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CONFEDERATION PARK MASTER PLAN REVIEW & UPDATEFinal ReportpAugust, 2010

TOWN OF AJAX

Old Kingston Road –Urban Square Design

RFP No. P10008

Closing: May 11, 2010 at 11:30 a.m.

CONFEDERATION PARK MASTER PLAN REVIEW & UPDATE Report for Hamilton Conservation Authority

FINAL REPORT – August, 2010

G. O’CONNOR CONSULTANTS INC. Page 1 of 100

TABLE OF CONTENTS

EXECUTIVE SUMMARY .................................................................................................. 5

1. PURPOSE AND SCOPE OF STUDY .......................................................................... 7

1.1. Introduction ............................................................................................................. 7

1.2. Hamilton Conservation Authority – MISSION STATEMENT ................................ 7

1.3. City of Hamilton – MISSION STATEMENT ............................................................... 9

1.4. Study Team ............................................................................................................. 10

1.5. Acknowledgements .............................................................................................. 10

2. REGIONAL AND CITY CONTEXT ............................................................................ 11

2.1. Local and Site Context .......................................................................................... 12

2.2. Existing Park Facilities and Role ........................................................................ 12

3. HISTORY AND NATURAL ENVIRONMENT ............................................................ 14

3.1. Introduction ........................................................................................................... 14

3.2. Prehistoric and Early European Settlement .................................................... 14

3.3. Community Development and Transportation (1900-1950) .......................... 17

3.4. The Era of Environmental Challenges (1950-1985) .......................................... 18

3.5. The Era of Environmental Reconciliation (1985 to Present) ......................... 18

3.6. Planning Responses Through Time ................................................................... 19

3.6.1. Hamilton Beach: Noulan Cauchon ..................................................................................... 19

3.6.2. The First City Master Plan .................................................................................................. 20

3.6.3. Hamilton Area Transportation Study ................................................................................ 20

3.6.4. Halton‐Hamilton Waterfront Study ................................................................................... 20

3.6.5. Lessons Learned.................................................................................................................. 23

3.7. Confederation Park .............................................................................................. 24

3.7.1. Faludi’s Master Plan for the City of Hamilton ................................................................... 24

3.7.2. Confederation Park Expanded ........................................................................................... 25

3.7.3. Macklin Hancock’s (Project Planning) Master Plan ........................................................... 25

3.7.4. The Moore George Plan ..................................................................................................... 26

3.7.5. The Conservation Authority’s Master Plan ....................................................................... 28

3.7.6. Lessons Learned.................................................................................................................. 29

3.8. The Natural Environment .................................................................................... 30




3.8.1. Environmentally Sensitive Area (E.S.A.) ............................................................................ 30

3.8.2. The Landform...................................................................................................................... 32

3.8.3. Vegetation and Wildlife / Natural Heritage ...................................................................... 35

4. THE PLANNING CONTEXT ..................................................................................... 37

4.1. Introduction ........................................................................................................... 37

4.2. Provincial Growth Plan ........................................................................................ 37

4.2.1. The Provincial Policy Statement ........................................................................................ 42

4.2.2. Ontario Trails Strategy ....................................................................................................... 45

4.3. Other Provincial/Municipal Planning Considerations .................................... 45

4.3.1. Hamilton Harbour Remedial Action Plan .......................................................................... 45

4.3.2. Windermere Basin .............................................................................................................. 46

4.3.3. Red Hill Creek Restoration ................................................................................................. 47

4.3.4. Metrolinx ............................................................................................................................ 48

4.4. Municipal Planning ................................................................................................ 49

4.4.1. Vision 2020 ......................................................................................................................... 49

4.4.2. GRIDS .................................................................................................................................. 50

4.4.3. Official Plan ......................................................................................................................... 51

4.4.4. Transportation Master Plan ............................................................................................... 60

4.4.5. Parks, Culture and Recreation Master Plan ....................................................................... 61

4.4.6. Natural Heritage System .................................................................................................... 62

4.5. Other Planning Considerations .......................................................................... 63

4.5.1. Air Quality ........................................................................................................................... 64

4.5.2. Noise ................................................................................................................................... 65

4.5.3. Public Health ....................................................................................................................... 66

4.5.4. Hamilton Street Railway .................................................................................................... 68

4.5.5. City of Hamilton Recreational Trails Master Plan (completed in December, 2007) ........ 68

5. MASTER PLAN PROCESS ....................................................................................... 70

5.1. Master Plan Issues ................................................................................................. 70

5.2. Project Approvals and Implementation ........................................................... 77

5.2.1. Planning Act ........................................................................................................................ 77

5.2.2. Environmental Assessment Act ......................................................................................... 77




5.2.3. Environmental Bill of Rights ............................................................................................... 78

6. PUBLIC CONSULTATION PROCESS ....................................................................... 79

6.1. Introduction ........................................................................................................... 79

6.2. Public Consultation ............................................................................................... 79

6.3. Summary of User Surveys ................................................................................... 80

6.3.1. Wild Waterworks and Park Questionnaire ........................................................................ 80

6.3.2. Waterfront Trail – User Survey (See Appendix 7) ............................................................. 81

6.3.3. Hamilton Beach Trail Survey (See Appendix 8) ................................................................. 81

7. MASTER PLAN AND LANDSCAPE STRATEGY ....................................................... 82

7.1. Big Picture Ideas and Principles ......................................................................... 83

7.2. Trends in Recreation ............................................................................................. 85

7.3. Recreation Zones ................................................................................................... 85

7.4. Road Network and Parking ................................................................................. 88

7.5. Pedestrian Network .............................................................................................. 88

7.6. Architectural Design Principles .......................................................................... 90

7.7. Landscape Site Design Principles ....................................................................... 92

7.8. Operational Considerations ................................................................................ 93

8. IMPLEMENTATION STRATEGY & CAPITAL FORECAST .............................................. 95

8.1. Capital Forecast – Order of Magnitude ............................................................. 95

9. RECOMMENDATIONS AND CONCLUSIONS .......................................................... 98

9.1. Next Steps Moving Forward ............................................................................... 98

9.2. Recommendations ................................................................................................ 98

9.3. Conclusions ............................................................................................................. 99

APPENDICES .............................................................................................................. 100

A‐1 Steering Committee A‐2 Site Photos (August 2009) and Open House Photos (January 2010) A‐3 Summary of Questionnaires, Public Meetings 1 & 2 (June 29, 2009, January 20, 2010) A‐4 Summary of Questionnaire, Confederation Park Master Plan Update A‐5 Wild Waterworks Survey A‐6 Waterfront Trail User Survey A‐7 Hamilton Beach Trail Survey and Breakdown of Beach Trail Users A‐8 Playground Comment Sheets A‐9 Minutes of Steering Committee Meeting A‐10 Minutes of Meetings A‐11 Building Facility Condition Assessment Report (Insyght) and Capital Asset Plan/Inventory Building Information




A‐12 Visual References A‐13 Comparables/Relative Scale A‐14 Preliminary Master Plan A‐15 Various Hamilton Spectator Newspaper Articles: January 12, 20, 22 and March 4, 2010 LIST OF FIGURES

Figure 1 Aerial Photograph of Existing Conditions Figure 2 1791 Survey Map Figure 3 Master Plan Update – Then & Now Figure 4 1971 Hamilton Official Plan Figure 5 B‐4 Hydrological Features – Wetlands (Official Plan) Figure 6 B‐5 Hydrological Features – Lakes and Littoral Zones (Official Plan) Figure 7 B‐6 Environmental Significant Areas (Official Plan) Figure 8 B‐8 Key Hydrological Features (Official Plan) Figure 9 1791 Survey Figure 10 Natural Heritage System (Official Plan) Figure 11 Significant Woodlands (Official Plan) Figure 12 Urban Structure (Official Plan) Figure 13 Functional Road Classification (Official Plan) Figure 14 Urban Land Use Designations (Official Plan) Figure 15 Major Transportation Facilities and Routes (Official Plan) Figure 16 Parks Classification Map (Official Plan) Figure 17 Natural Heritage Lands Figure 18 Naturalized Play Facilities Figure 19 Proposed Park Zones Figure 20 Master Plan Diagram




EXECUTIVE SUMMARY

Confederation Park is a linear waterfront park located on Lake Ontario between the Queen Elizabeth Way and Lake Ontario in the City of Hamilton. This 93 hectare (228 acre) park, is owned by the City of Hamilton and managed by the Hamilton Conservation Authority. It is situated at the southern end of Hamilton Beach, a spit that extends from Confederation Park to the Burlington Canal. Prior to European settlement, Confederation Park was comprised of sandy beaches, littoral wetlands, the mouth of the Red Hill Creek and dune vegetation communities together with rich fish and bird habitat and communities. The environment was characterized by cool summer breezes from the Lake and bay, the sound and scent of birds, fish and surf. King’s Head, an inn was established to serve people traveling from Newark (Niagara on the Lake) to York (Toronto) The Beach strip attracted early recreational development that stimulated the development of hotels, resorts and cottages. Early recreational success encouraged permanent residential development. By the 1950’s a population of 3,000 people lived on the strip. But early success brought environmental challenges for air quality and noise from encroaching industries as well as the Queen Elizabeth Highway. By mid‐century, fish kills, flooding, odour and noise emanating from traffic and industry made community life difficult, diminished the beach’s environment and necessitated a planned response. Several planning efforts were undertaken to plan the beach strip and Confederation Park to address these challenges. Many are reviewed in this Master Plan so as to learn from these efforts. All these previous efforts emphasize the continued recreational and environmental importance of the Beach Strip and Confederation Park to the City of Hamilton. But the mix of surrounding uses, transportation corridors and infrastructure owned and operated by many jurisdictions constrain the Park’s shape and ability to respond. Associated noise and air emissions also impact its use. Following extensive public consultation and review, this Master Plan addresses these challenges by:

• providing management flexibility for a new recreational/commercial village subject to business cases being confirmed for each activity;

• applying a conservative approach to design in order to address noise and air emissions from surrounding industries and transportation corridors;

• restoring valuable littoral wetlands, savannah and dune habitat within the Park; • removing underutilized and inappropriately located recreational uses and re‐deploying

these lands to better meet Park and community needs; • applying signature design principles to the development of trail development and

focusing new development within a central recreational commercial village; and • providing for trail and public transit interconnections with surrounding neighbourhoods.




The Confederation Park Master Plan, and its implementation, will demonstrate ecological sustainability and best management practices to showcase this City Wide Park as an example of a harmonious blending of the built and natural environments.




1. PURPOSE AND SCOPE OF STUDY 1.1. Introduction G. O’Connor Consultants Inc. was retained by the Hamilton Conservation Authority in July 2009 to prepare a Master Plan Review and Update for Confederation Park in Hamilton, Ontario. Confederation Park is a linear waterfront park located between Lake Ontario and the Queen Elizabeth Way at the mouth of the Red Hill Creek. This 93 hectare (228 acre) park is owned by the City of Hamilton and managed by the Hamilton Conservation Authority. The park is a resource of regional significance and constitutes Hamilton’s major Lake Ontario public access. The purpose of this Master Plan Review and Update is to:

• consider new developments and activities for sites within the Park taking into consideration the valuable lakefront setting;

• unify the different and various elements of the park; • examine ways of softening these existing and new recreational developments from air

and noise, adverse effects from local industry and highways; • integrate the pedestrian and cycling bridge over the QEW by linking the Red Hill Valley

Trail with the Hamilton Beach Trail; and • undertake improvements that support City and Authority core values.”

1.2. Hamilton Conservation Authority – MISSION STATEMENT The Hamilton Conservation Authority’s Mission Statement is entitled “Leading Conservation Forward 2007 – 2011.1 The Authority highlights its management of Confederation Park for exciting family recreation. The Authority vision is: “Our Vision: Hamilton Conservation Authority will work to ensure healthy streams and healthy communities in which human needs are met in balance with the needs of the natural environment, now and in the future.”2 The Authority mission statement is: “Our Mission Statement: To lead in the conservation of our watershed’s natural environment.”3 Five sets of strategies clustered around goals implement the Mission. Here are the goals and strategies applicable to Confederation Park: 1 Hamilton Conservation Authority, Leading Conservation Forward 2007 – 2011, November 2006 2 Ibid, Hamilton Conservation Authority, 2006, pg. 13 3 Ibid, Hamilton Conservation Authority, 2006, pg. 13




“Goal: Protect watershed citizens, property, wildlife and natural resources through flood and erosion control, low flow augmentation and water quality improvement. Strategic Objectives: 6. Work with government partners and others in Hamilton Harbour rehabilitation. 10. Continue to monitor and improve aquatic systems in our watershed. Goal: Protect, restore and enhance natural areas, ecological systems, and built heritage through land acquisition, stewardship and environmental planning. Strategic Objectives: 5. Assist the City and partners to develop a natural heritage strategy. 8. Continue habitat restoration, including tree, shrub and wildflower planting, wetland

restoration and water quality improvement projects. Goal: Provide high quality, diverse conservation areas to promote greater physical activity, health and well being for all, and to act as tourist destinations. Strategic Objectives: 1. Maintain, restore and enhance our existing outdoor recreation infrastructure to ensure

their role as profit centres and HCA’s main financial engine. 4. Explore partnership opportunities among public and private sectors for outdoor recreation

and healthy living initiatives. Goal: Strengthen public awareness of the important benefits of conservation through outdoor education and initiatives such as HCA’s website and the Conservation Review. Strategic Objectives: 3. Provide environmental information to urban areas. Goal: Ensure HCA is a financially viable, community relevant corporate entity, always positioned to provide best practices and business advancements for the citizens it serves. Customers: continually enhance and improve customer service. Corporate Conservation Imperative: be a leading example to the community in finding greener ways of doing business.”4

4 Ibid, Hamilton Conservation Authority, 2006, pages 14 to 17




1.3. City of Hamilton – MISSION STATEMENT In 2008, the City of Hamilton adopted a Strategic Plan. The Confederation Park Master Plan helps, in part, to implement this Strategic Plan. “Vision: To be the best place in Canada to raise a child, promote innovation, engage citizens and provide diverse economic opportunities. Mission • We provide high quality services in a fiscally and socially responsible, environmentally

sustainable and compassionate manner in order to ensure a healthy, safe and prosperous community.

• We engage our citizens and promote a fair, diverse and accepting community. • We are a skilled, knowledgeable, collaborative and respectful organization that thrives on

innovation and quality customer service. • We are led by a forward thinking Council. • The team (staff) shows leadership in carrying out their responsibilities and is valued and

appreciated for their contributions and accomplishments. Strategic Themes • Image –Changing the perceptions of Hamilton and promoting the City as a great place to

live work and play. • Job Creation – Ensuring the City has a thriving and diverse business economy with

sustainable jobs and employment for its residents. Focus Areas The City’s seven Focus Areas are: • Skilled, Innovative and Reflective Organization • Financial Stability • Effective Inter‐governmental Relations • Growing Our Economy • Social Development • Environmental Stewardship • Healthy Community”5 5 City of Hamilton, Strategic Plan, 2008




1.4. Study Team G. O’Connor Consultants Inc. led the Consulting Team in the preparation of the Master Plan Review and Update. They were responsible for overall project direction, management, design, text and mapping. McKibbon Wakefield Inc. provided expertise on report writing, Provincial/Municipal landuse and environmental planning issues and research. Forrec provided expertise on recreation trends, park opportunities, facility enhancements and facilities to be retained, enhanced or replaced. Insyght Systems provided expertise with respect to building condition and systems assessment of existing buildings. 1.5. Acknowledgements The study team would like to acknowledge the Steering Committee, HCA staff, City of Hamilton staff and Council Members who guided, challenged ideas and helped to shape this document. Many members of the public participated in user surveys, questionnaire responses and provided comments on the draft Master Plan. These were all carefully reviewed and considered in the preparation of this document. The study team thanks all for their contributions and support to help make Confederation Park a great place.




2. REGIONAL AND CITY CONTEXT Confederation Park is situated on Hamilton Beach, both of which have been transformed significantly over the past 200 years. Provincial and Municipal planning documents require remnant natural heritage features be protected and compatible recreation be developed to achieve the planned goals, objectives and policies. This section describes Confederation Park’s site and context. Both will be built upon in this Master Plan to meet Provincial and Municipal expectations.

FIGURE 1 – Aerial Photograph of Existing Conditions




2.1. Local and Site Context Hamilton Beach comprises a spit of land, extending from the shipping canal in the northwest to Centennial Parkway in the east. A survey dated 1791, describes the original landscape encountered by early settlers. As Hamilton grew to become an Industrial City, the beach became an attractive recreational destination for its residents. Confederation Park is situated on the southeastern end of Hamilton Beach. Hamilton Beach has been changed significantly since 1791. These changes affect Confederation Park’s current and future use. This Plan considers the Park’s future in two ways. It explores how the past affected the recreational viability of Hamilton Beach generally and Confederation Park specifically and provides direction on the Park’s development to achieve its full potential under present circumstances.

FIGURE 2 – 1791 Survey Map 2.2. Existing Park Facilities and Role The Park landscape is knit together by the Hamilton Beach Trail: a paved trail that parallels the beach and provides for pedestrian, cycling and inline skating access to the Park’s many facilities. These include, from northwest to southeast: Lakeland Go Karts, the Lakeland Centre and Pool, Hutch’s Restaurant, Barangas’ Restaurant, Adventure Village, picnic area, the Beaches picnic stand, Water Park/Wild Water Works and Campground. Between July 25th and August 16th,




2009, close to 200 people an hour used the Hamilton Beach Trail between 7 AM and 2 PM or approximately 2,200 people per day during these periods. Natural features include remnants of the Red Hill and Van Wagner marshes with littoral wetlands extending from the northwestern Park boundary to east of Centennial Parkway. The Stoney Creek pond is situated in the eastern end of the Park. Presently, the City is naturalizing the vegetation in various areas throughout the Park, in conjunction with the natural restoration of the Red Hill Creek Valley. The new City of Hamilton Official Plan also provides important natural heritage policy direction to enhance these natural features and the development of lands in the vicinity. The eastern portion of the Park is accessible through an internal Park road system and gatehouse administered by the Hamilton Conservation Authority. Controlled emergency and maintenance entrances supplement the gatehouse access. An entrance fee is charged to access the Campground and Water Park/Wild Water Works. Van Wagner’s Boulevard provides unfettered access to the restaurants, Lakeland Centre and Go Kart Track. No parking fees are collected to access these facilities, the beach and the Hamilton Beach Trail. A pedestrian bridge will be built in the summer/fall 2010 over the Queen Elizabeth Way connecting public trails from the Red Hill Valley to the Hamilton Beach Trail at a new trailhead to be developed where the Hamilton Beach Trail and access intersect. These and other matters are addressed in this Master Plan.




3. HISTORY AND NATURAL ENVIRONMENT 3.1. Introduction

Tourism represents unique planning and design challenges. The activity occupies peripheral landscapes. These landscapes are favoured by climate (cool summer breezes), landform (a superb beach), recreational opportunities (boating, fishing and hunting) and scenic quality (views to Burlington Bay and Lake Ontario). Tourists chose to recreate there. Tourism benefits from urban growth because growth creates the wealth that enables the expense and congestion creates the urban conditions from which respite is sought.6 This section describes the historical evolution of Hamilton Beach, within which Confederation Park is situated. 3.2. Prehistoric and Early European Settlement Prior to European settlement, Hamilton and Burlington Beaches comprised two spits: one extending in a north‐western direction from the Red Hill Creek outlet into Hamilton Harbour and the other extending in a south‐eastern direction into Hamilton Harbour from Burlington. Open water separated the two spits around the present day canal. The Burlington Beach is in Halton Region. See FIGURE 3 – Master Plan Update – Then & Now

6 Christaller, Walter., “Some Considerations of Tourism Location in Europe: The Peripheral Regions ) Underdeveloped Regions _ Underdeveloped Countries – Recreation Areas,” in the Regional Science Association; Papers XII, Lund Congress, 1963, pg. 95.




Figure 3




Grass, interspersed with oak trees covered the sand dunes facing Lake Ontario. On cross‐sections of the dune, from east to west, the grades became shallower on the leeward side of the dunes. Marshes, on these shallow grades, bordered Burlington Bay. Aboriginal communities and early settlers used trails to travel across the spit between early settlements such as Newark (Niagara on the Lake) and York (Toronto) and harvested abundant fish and waterfowl on the Bay and Lake Ontario shores. Hamilton Beach was an early military reserve and Upper Canada’s government assigned it to Saltfleet Township for Municipal government purposes. Unlike the rest of Wentworth County, Hamilton Beach wasn’t surveyed and settled. “King’s Head” was the first European building on Hamilton Beach, a Government Inn. It existed between the mid 1700’s and 1812 in the vicinity of the Red Hill Creek marshes, near the proposed trailhead that will connect the Red Hill Trails with the Hamilton Beach Trail. In the 1830’s, bridges, a canal and lighthouse were constructed. Commercial fishing and gardening provided livelihoods. Multi‐government jurisdiction of the strip began early and continues to the present day. Dynes Tavern was built in 1846. In 1856, the City of Hamilton established a pump house close to the Lakeland centre to pump municipal water to the growing City. In the 1870’s Hamilton Beach was leased to the City of Hamilton and administered by the City Park’s Department. Subsequently, lands were surveyed and leased, often to wealthy Hamilton residents.

Post Card – South of Canal, Hamilton, circa 1910 Post Card – Royal Hamilton Yacht Club, circa 1910 Soon, several taverns, hotels and exquisite cottages were built including the Ocean House in 1875 and the Royal Hamilton Yacht Club in 1890. In 1893, the Ocean House burnt and was replaced by Brant House. A railway was built in 1876 and an electric radial line was constructed along Beach Boulevard in 1896 to provide better public access to hotels and beaches.




Beach Strip, Burlington looking South, circa 1920’s Beach Strip, Burlington looking North, circa 1920’s 3.3. Community Development and Transportation (1900-1950) As Hamilton grew in size, the beach became a popular destination to escape the summer heat and relax. The Beach Commission, created by the Province of Ontario under the Burlington Beach Act, oversaw residential development. This included the Canal Amusement Park (1903) in the vicinity of the Canal. In 1912, a ferris wheel and merry‐go‐round were installed.

In the 1930’s, the Queen Elizabeth Way (QEW) was constructed, the first electricity corridor was established along the strip, cottage development expanded and many seasonal residences were converted to permanent homes. The popularity of the Beach Strip as a tourist attraction peaked and higher end resorts closed or moved. The Royal Yacht Club burned in 1915 and relocated. In 1916, Beach Bungalow School was built and by 1950, as many as 3,000 people lived in the community.

Beach Boulevard circa 1950’s




Beach Boulevard Community, circa 1940’s 3.4. The Era of Environmental Challenges (1950-1985) Traffic congestion and noise, poor air and water quality, Harbour land filling and flooding overtook Hamilton Beach’s scenic qualities as defining features in the late 40’s. Inter‐jurisdictional transportation and land use priorities complicated effective responses to these challenges. Hurricane Hazel struck in 1954 and flooding occurred in the years 1947, 1952, 1954 and 1955. Water pollution resulted in declining fisheries and significant fish kills, especially in the early 1970’s. In the early 1950’s several cottages in the vicinity of Van Wagner’s Beach were destroyed by a Lake storm. Poor noise and air quality accompanied with increasing traffic congestion on Beach Boulevard reduced Hamilton Beach’s appeal. In 1960, the Burlington Bay Skyway was constructed displacing several residences. In 1957, the “Beach Commission” was disbanded. The City of Hamilton assumed responsibility for the Beach south of the Canal. In 1958, the remainder of Van Wagner’s and Crescent Beaches were expropriated to create Confederation Park. In 1971, Hamilton approved the first Official Plan for the Beach Strip community. In the 1970’s, the City acquired 175 cottages and residences through a program of public acquisition administered by the City and the Hamilton Conservation Authority. By 1985, the Hamilton Beach community was significantly smaller and fewer people lived there. 3.5. The Era of Environmental Reconciliation (1985 to Present)

In the mid‐1980’s residential acquisition on the Beach Strip ceased and a second Official Plan for the Strip was approved. The new Plan proposed a stable residential community with compatible lake shore recreation. The Skyway was twinned. Piers 25 and 26 were developed in Hamilton Harbour. New industries were established on these piers. Significant wildlife and




water quality restoration plans were implemented in Windermere Basin. The “Breezeway”, now known as the Hamilton Beach Trail, a multi‐purpose recreational trail, was constructed on the Lake from Burlington to Confederation Park. While much work remains, community and environmental reconciliation is unfolding.

3.6. Planning Responses Through Time Hamilton Beach is the context within which Confederation Park is situated. Confederation Park was established in part to provide public access to this recreational amenity. Over time, Hamilton Beach’s recreational amenity changed. In order to provide effective revisions to the Confederation Park Master Plan, these changes need to be addressed in a systematic fashion. The following sections summarize the various planning approaches applied to Hamilton Beach generally and Confederation Park specifically. From this analysis, we adopt what was successful and avoid what was ineffective in this review of Confederation Park’s Master Plan. 3.6.1. Hamilton Beach: Noulan Cauchon Noulan Cauchon, an engineer and planner, prepared a Reconnaissance Report on the development of the Hamilton District dated October 15, 19177. He characterized recreation as a restorative activity. “Resiliency, elasticity, are properties of mind and matter, indispensible to recuperation. The exercise of function maintains efficiency. Alternative tension and relaxation in sentient domain are stabilized by wholesome opportunity and fitting regulation; are warned by pain of excess or compensated by pleasurable satisfaction. Recreation, by stimulating the joy of living, is essential in fostering survival, is economic, not wanton.”8 He went on to state: “Hamilton has three unrivalled features of health asset and spectacular beauty, jewels in the gift of nature awaiting acknowledgement by the hand of man: the Causeway; the Mountain; and the Beach.”9 On the beach, he states: “The beach is a priceless boon to the citizens during the hot months. Hamilton, with a waterfront, the nucleus of a fast developing harbour, has a rare dispensation and without lessening its marine purpose, been supplemented with a magnificent water playground. The Harbour bar which stretches widely out across the lake for about four miles to the northern shore, should all in time become public property and be finally adapted by landscape treatment, local planning, equipment and fast service to receive the multitudes that will seek relief of its evening breezes and cool nights.

7 Cauchon, Noulan., The Reconnaissance Report, City of Hamilton Plan Commission, October 17, 1917. 8 Ibid, Cauchon, page 54. 9 Ibid, Cauchon, page 55.




As the centre of industrial dwelling grows easterly, average access to the beach will be increasingly shorn of distance. With the raising of the railway tracks across the beach, only undercrossings should prevail; this should abate engine whistling, except for the drawspan, the increased clearance of which would also lessen the frequency of opening.”10 With respect to the Red Hill Creek valley, he recommended the valley be purchased from Albion Falls to the beach to create a park belt. 3.6.2. The First City Master Plan E. G. Faludi prepared a Master Plan for the Development of the City of Hamilton for the City Planning Committee dated November 21 194611. The Master Plan recommended the purchase of 512 acres of land for a green belt park system of which 304 acres extended the length of the Red Hill Valley to the Lake. These purchases included portions of the Red Hill Creek Valley to link lands already in public ownership, the King’s Forests, with the beach. The system also encompassed the Niagara Escarpment and the Chedoke Valley. “The acquisition of these natural park lands joining the already publicly owned land under the jurisdiction of the Parks Board would provide Hamilton with a green belt system that will be outstanding within Cities of this Continent. It will also create a natural barrier between densely built up area and future developments.”12 The Red Hill Creek Valley and Van Wagner’s Beach are shown as a proposed park and beach. Faludi recommended the City develop and expand Van Wagner’s Beach, already owned by the City, with swimming pool facilities and an amusement park. His proposed plan is addressed in the following section on Confederation Park. 3.6.3. Hamilton Area Transportation Study Following the preparation of the Hamilton Area Transportation Study, the Technical Co‐ordinating Committee prepared a Summary Report for City Council dated August 30 1963. That report concluded “the QEW will require widening throughout the study area, including a twin Skyway Structure on the Beach Strip.”13 3.6.4. Halton‐Hamilton Waterfront Study The Halton‐Wentworth Waterfront Study was prepared by Co‐ordinating and Technical Committees comprised of Conservation Authority, Municipal and provincial representatives and

10 Ibid, Cauchon, pages 59 and 60. 11 Town Planning Consultants Ltd., A Master Plan for the Development of the City of Hamilton, prepared by E. G. Faludi for the City Planning Committee of Hamilton, November 21, 1946. 12 Ibid, Town Planning Consultants Ltd., pg. 9. 13 Technical Co‐ordinating Committee, Hamilton Area Transportation Study, Summary Report, prepared for Mayor Copps and City Council, August 30, 1963.




was released in 1974. “This report presents planning guidelines for future use and management of land and water areas along the shores of the Regional Municipality of Halton and the Regional Municipality of Hamilton‐Wentworth.” 14

FIGURE 4 – 1971 Hamilton Official Plan taken from the Hamilton Spectator “The study was jointly commissioned in the summer of 1972 by the Halton Region Conservation Authority, The Hamilton Region Conservation Authority and the Conservation Authorities Branch of the Ministry of Natural Resources of the Province of Ontario.”15 The report’s recommendations address several topics. Here is a synopsis of the recommendations that apply to Hamilton Beach. “The Beach is one of the finest sand beaches on Lake Ontario. It is on the annual travel route for millions of local and long distance travelers and it is an important link in the provincial power transmission system. Nine hundred families now reside on the Beach in houses that were mainly intended as summer cottages and that are not served by Municipal sewers. In periods of high water levels there is serious flooding and septic tanks fail. “Recent proposals by the Ministry of Transportation and Communications to increase the capacity of the QEW on the Beach have long term implications for the future of the Beach area. Some housing will probably have to be acquired and there will be an opportunity to relocate aerial transmission lines in underground conduits. These changes could stimulate redevelopment of the entire Beach area as a recreational resource of international importance,

14 Acres Consulting Services Limited and Project Planning Associates, The Halton‐Wentworth Waterfront Study, Volume 1, Concepts for Waterfront Development, prepared for the Coordinating and Technical Committees, June 1974. 15 Ibid, Acres Consulting Services, pg. i.




but such developments can be successful only if air and water pollution emanating from the Harbour is substantially reduced.”16 With respect to parks, “the Beach area would be redeveloped as one of these regional parks. It would include a variety for public and commercial recreation opportunities for tourists as well as for people from the region.”17 With respect to air quality, “the poorest air quality in the area exists near the Hamilton Harbour industrial zone. Other than the industrial zone itself, the waterfront most seriously affected is the Beach near the former toll booth. Both industrial and motor vehicle emissions contribute to poor air quality in this location.”18 The authors describe the efforts underway to improve air quality but conclude “it is unlikely that the resulting air quality will be satisfactory for intense use of the Beach without additional measures.”19 “Until air quality conditions are improved in the Beach area, only low intensity uses should be planned for, especially near the most heavily polluted area near the former toll booth.”20 With respect to tailpipe emissions, “we endorse the proposals of the Ministry of Transportation and Communications to reconstruct the Queen Elizabeth Way as a tunnel under the Burlington Canal as the best alternative for minimizing air and noise pollution on the Beach.” The consultants recommended that nine areas should be identified as fish and wildlife habitats including the Red Hill Creek Marsh. “Four areas should be designated as reserves for birds and land animals where restrictions would be placed on noise and human intrusion.”21 The Red Hill Creek and Van Wagner Marshes is one of the four areas. “The Conservation Authorities should jointly co‐ordinate policy formation with regard to designation, classification and management of fish and wildlife resources in these nine designated areas. They should be supported in this function by the Ontario Ministry of the Environment, the Ministry of Natural Resources, the Regional Area Municipalities and the Royal Botanical Gardens”.22 With respect to land use, the consultants observed “the principal weaknesses of this pattern are the lack of well distributed open space; inefficient use of the Beach, whose recreation potentials have been displaced by housing of depreciating quality; and encroachment of the Harbour by

16 Ibid, Acres Consulting Services, pg. 4. 17 Ibid, Acres Consulting Services, pg. 7. 18 Ibid, Acres Consulting Services, pg. 15. 19 Ibid, Acres Consulting Services, pg. 15. 20 Ibid, Acres Consulting Services, pg. 15. 21 Ibid, Acres Consulting Services, pg, 18. 22 Ibid, Acres Consulting Services, pg. 18.




expanding port and industrial uses.”23 The authors go on to say essential harbour port and industrial development needed to be “confined to specific limits.”24 On the subject of Hamilton Harbour, they recommended that “policies are immediately required that provide a balance between the competing demands of industry and shipping, recreation, fish and wildlife, aesthetics and the need for disposal areas for community and industrial wastes.”25 Specific recommendations were made on co‐ordination with the Harbour Commissioners and Municipal governments. “The lakeside of the Beach is a unique natural feature on the waterfront and should be specially planned as a park of Provincial scale.”26 “The principal functions of the Beach should be: • To provide major recreation opportunities of regional or provincial interest, • to provide for a land bridge for important transportation and utility routes, and • to protect Hamilton Harbour. “For these reasons we recommend that a long range development plan be prepared which would include: • Reconstruction of the QEW in the bayside of the Beach. There should be a tunnel crossing

under the Burlington Canal, and the east side of the highway should be bermed and planted along its length to protect future lakeside recreation developments from highway noise.

• Relocation of the hydro transmission lines into underground conduits in the right‐of‐way for the new highway; removal of all housing, industries and the CNR line from the Beach; development of major public and private recreation areas including facilities for accommodation, entertainment, amusement, active sports, boating, fishing, swimming, viewing, camping and strolling;

• Development of an Interpretative Centre of the Environment of the bayside of the Beach in

the vicinity of the canal. This centre should be designed with a tower for viewing historical, industrial, environment and current points of interest.”27

3.6.5. Lessons Learned Obviously, many ambitious and far sighted recommendations were not implemented and, where implemented, some outcomes have been different than anticipated. It is unreasonable to establish a Regional Park at this location given the mix of conflicting uses and environmental

23 Ibid, Acres Consulting Services, pg. 19. 24 Ibid, Acres Consulting Services, pg. 20. 25 Ibid, Acres Consulting Services, pg. 29. 26 Ibid, Acres Consulting Services, pg. 23. 27 Ibid, Acres Consulting Services, pg. 27.




issues to be addressed and the land base with which to work with. Other opportunities were lost, (e.g., tunnelling the QEW under the Harbour access) and many challenges remain today, (e.g., noise and air quality). In redesigning and updating Confederation Park, we need to address the environmental issues associated with air and noise where these impact the recreational environment within the park as well as the restoration of the remaining littoral water features. Better recreational linkage needs to be provided to Windermere Basin and Hamilton Harbour as well as the Red Hill Valley and the Niagara Escarpment beyond. While the Park has regional user appeal, it doesn’t appear to be well used by urban residents in those neighbourhoods located closest to the Park and in that sense, fails to meet its originating, and current planned purpose, providing beach access to City residents. Both a conservative approach to design where institutional and environmental vulnerabilities exist, such as the possible expansion of the QEW to 8 lanes, and signature design are required to create a successful Park Master Plan for the future development of Confederation Park as a City Wide Park. 3.7. Confederation Park In the following subsections we review the succession of land use and recreational plans that have addressed the development of Confederation Park. 3.7.1. Faludi’s Master Plan for the City of Hamilton

Faludi’s Master Plan for the City of Hamilton (1946) includes conceptual plans for that portion of Confederation Park known then as Van Wagner’s Beach. “The plan submitted here provides a variety of summer recreation opportunities for both adults and children. Its main objective is to create an attractive beach area which can be self‐supporting or even revenue producing for either private or public enterprise. In order to satisfy these objectives, the plan provides four main features: • Possible waterfront, sandy shore, suitable for free swimming and also for the building of a

swimming pool • Vehicular Access – readily accessible from all parts of the City by mass transit means • Types of recreational facilities – both active and passive recreational facilities should be

provided for adults and children • Public utilities – drinking water and sewage services is imperative.” The characteristics of the City’s lands in 1946 were: • “Location – a continuation of Burlington Beach in the direction South/East • Area ‐ total 25.7 acres, length of the shoreline – 3200 feet, width of usable beach – 350 feet • Transportation – Route is Burlington Beach Bus from the major streets




• Existing Structures – north end are two ponds 500 feet long and 100 feet wide; 2 valve houses, 6 feet and 12 feet high; 4 refreshment booths; 1 bath house; life guard cabin; along Beach Road, hydro poles, distanced 300 feet apart. Two intake pipes are laid on the east half of the area.”

General design guidelines included the following: • “Provide a variety of summer recreational opportunities for both adults and children • Self supporting revenue • On the west – outdoor pool area for swimming and wading with accessory buildings and

play areas for children and rest areas for adults • In the center – open beach area with restaurant and bath house • On the east ‐ amusement park to be concessioned as a whole or in individual parcels on a

planned pattern.”28

3.7.2. Confederation Park Expanded In 1958, the City of Hamilton expropriated the balance of Van Wagner’s Beach and Crescent Beach to address public health concerns arising from the use of seasonal cottages as permanent residences. With the purchase of these lands, all of the Lake Ontario shore from the Canal to Centennial Parkway was in public ownership. These lands were added to Lakeland Beach to form Confederation Park. 3.7.3. Macklin Hancock’s (Project Planning) Master Plan Macklin Hancock, of Project Planning Associates, prepared a Master Plan for the development on this park for a maximum capacity of 20,000 persons. From newspaper reports, we are able to gather the Plan included provisions for “tot lots and play areas will be provided in conjunction with picnic areas for families with younger children; playfields will cater to a wide range of age groups; a wide boardwalk invites strolling along the beach; and amusement gardens will appeal to children of all ages… a marina will provide all the essential elements for a wide variety of boating activities. It is emphasized that sufficient parking, bus loops and terminals are provided to open the development for people in the vicinity, and Region, whether travelling by private automobile or public transit. Other features of the plan mentioned are… a swimming pool, shelters and bath houses, a lagoon for children’s boating, and restaurants – which, it is suggested, could provide a year round operation of the park.”29

28 Ibid, Town Planning Consultants Ltd., pages 54 and following. 29 Hamilton Spectator, date unknown.




3.7.4. The Moore George Plan In 1979, the Regional Municipality of Hamilton Wentworth assumed responsibility for Confederation Park. In 1980 the Region entered into agreement with the Conservation Authority to operate, manage and develop Confederation Park. In 1985, the Moore George Master Plan was prepared under the direction of the Hamilton Conservation Authority. This Master Plan addressed three very important considerations: 1. “Develop a theme which incorporates and reflects key and positive elements of the visual

and functional character of the park, as a unifying influence now and in future park development.

2. Develop a planning and design system which is implementable and contains an element of flexibility.

3. Develop special features which must be considered in order to expand the potential of Wild Waterworks and the Confederation Campground, as well as development of new facilities such as Confederation Place, the Hamilton‐Scourge Centre and the Breezeway Promenade.”30

“The theme proposed for Confederation Park… (was a) passive linear waterfront promenade combined with an exciting urban intensive activity zone which provides multiple visitor attractions.”31 At that time, six distinct activity areas were considered:

• campground area; • Wild Waterworks/main beach area; • passive, picnic, barn area; • west end beach strip area; • waterfront promenade area; • central parking and field area.

Two additional activity areas were projected for future development: the Hamilton Scourge project and linear beach expansion west areas. With respect to integration, the Moore George Master Plan emphasized the land water interface and the backshore. Both should be respected. Noise reduction is important within these areas. Both the beachfront and breezeway, now known as the Hamilton Beach Trail, require different design treatments. Also buffering and transition areas between uses are important, especially between parking areas and the various uses.

30 Moore George Associates Inc., Confederation Park Master Landscape and Development Plan, prepared for the Hamilton Region Conservation Authority, February 1985, pg. 9. 31 Ibid, Moore George, pg. 10.




Confederation Park was considered unique for the following reasons: • “notwithstanding major land acquisition and rehabilitation of either Hamilton harbour areas

or the Beach Strip, it is the major waterfront access area for the regional population. • It is accessible via public transportation. • It is located on a highly traveled tourist route with good access.”32 Public transportation is no longer available to Confederation Park. With respect to expanding potential uses, the authors considered an expanded role or “Confederation Place” approach. To improve year round use, additional indoor facilities were suggested: • “special features, winter garden, aquarium, museum (Hamilton Scourge) • entertainment features, restaurants, bars, films, • sports facilities, sports complex, squash courts • cultural facilities, arts and crafts workshops • commercial facilities such as boutiques, markets • community facilities, pavilion, meeting rooms.”33 With respect to winter use, an artificial skating rink, vehicular overlook, and winter sports events like a carnival were suggested. Night time uses such as the following were suggested: • “a major amphitheatre for concerts, films • boardwalk with night lighting and sound system • fountain and light show • mini‐golf and other amusement facilities • commercial entertainment, restaurants.” 34 Expansion of day use was suggested with the addition of the following uses: • “outdoor farmer’s market, flea market • outdoor education, natural environment exhibits, wildlife interpretive features • roller skating rink/or trails • a super playground • expand Wild Waterworks • arts and craft centre • entertainment centres, restaurant.”35

32 Ibid, Moore George, pg. 19. 33 Ibid, Moore George, pg. 21. 34 Ibid, Moore George, pg. 21. 35 Ibid, Moore George, pg. 22.




With respect to expanding the tourism role, the following uses were considered: • “generally all of the regional role components previously outlined • development of a motor hotel within the park boundaries • expand the campground • The Hamilton Scourge Centre • Development of a major regional tourism information centre.”36 The Master Plan focused on expanding the regional and tourism roles, while maintaining the passive qualities that exist. Detailed plans and cost estimates were prepared to implement the preferred concept.

3.7.5. The Conservation Authority’s Master Plan By the 1990’s, revenues and attendance were declining. The Conservation Authority’s Watershed Planning and Engineering Division prepared a new Master Plan in 199737. This Master Plan sought environmental integrity and economic viability. The challenges to the achievement of these objectives included the need to further enhance the natural environment, the need to increase revenues, and the fragmentation of park uses into western and eastern parcels. The Authority has a vision for Confederation Park. “The Hamilton Region Conservation Authority should continue to develop Confederation Park as a waterfront park with combined waterfront trails and exciting recreational facilities. The planning and development of Confederation Park must be based on the intent to maintain and increase ecological integrity and financial profitability.”38 The Plan’s goal was: “to create a multi‐dimensional park that is both user and environmentally friendly. The end result should be one that does not jeopardize the quality of the site aesthetically, physically, economically, nor should it decrease the current or future sustainability of the site. It should attempt to maximize profit while enhancing the Park’s environmental integrity.”39 Several objectives were sought to achieve this vision and goal: “Objective 1: Provide recreational activities for all ages, mobilities, and cultures with varied levels of fitness, individual participation, and intensities (passive and active). Increasing the

36 Ibid, Moore George, pg. 22 37 Watershed Planning and Engineering Division, Hamilton Region Conservation Authority, Confederation Park Master Plan, The Final Report, October 1997. 38 Ibid, Hamilton Region Conservation Authority, 1997, pg. 7. 39 Ibid, Hamilton Region Conservation Authority, 1997, pg. 5.




activity base should increase attendance and gate receipts. This includes increasing weather proof activities and facilities that extend the shoulder seasons or even during winter. “Objective 2: Maintain and improve the Breezeway to be more user friendly for walking, jogging, cycling, and in line skating. Allowance for security and maintenance vehicles should be maintained. Allowances will be made for the extension of the Breezeway/Waterfront Trail. “Objective 3: Provide a circulation system that minimizes user conflicts and provides organized and safe travel for pedestrians and vehicles. “Objective 4: Provide seating in public areas where views are prominent and/or important socially, environmentally and physically. Areas may include picnic tables, benches along pathways, and lookouts. “Objective 5: Provide a continuity of design style in signage, structures and landscapes to create unity. Signage should be used at all profit centres and where appropriate to clearly communicate directions and information. “Objective 6: improve the co‐operation between lessees and HRCA staff for increased efficiency of activities, marketing and public relations. Use cooperative advertising techniques to reduce overall costs and give the site an identity as one park with many attractions. “Objective 7: Maintain businesses that are proving economically feasible and introduce new profit centres that are compatible. “Objective 8: Relate design of activities and facilities to the waterfront and provide conservation and restoration efforts as needed. “Objective 9: Provide areas to allow natural wildlife corridors to re‐establish. “Objective 10: Increase protection of important environmental areas (i.e., Van Wagner’s Marsh, the Lake Ontario waterfront and existing vegetative communities). “Objective 11: Provide areas for environmental interpretation through easily accessible trails, literature (signage) and various other formats as designed to meet the need.”40

3.7.6. Lessons Learned There are many lessons to be learned from this long history. In redesigning and updating Confederation Park’s Master Plan, the recommended changes will be general in character in order to give Park manager’s appropriate direction, while maintaining flexibility to make decisions as monies and opportunities become available, particularly where private sector involvement or opportunities occurs. Other legislative approvals may be required for facility

40 Ibid, Hamilton region Conservation Authority, 1997, pages 5 and 6.




expansion and new facilities. Where detailed plans have been made in the past, these have not been implemented. Many of these plans may have been too prescriptive to allow for flexibility and change over time. The Park is constrained by adverse noise and air emissions from surrounding uses and highways and is vulnerable to changes such as the future expansion of the QEW to 8 lanes and surrounding industrial uses beyond. Noise and air emission trends need to be monitored and addressed. The Park’s land base is long and narrow. Its size and configuration limit its ability to become a regional recreational node, except in so far as trail development and, possibly, expanded commercial recreational facilities are concerned. Integration of different uses throughout the length of the Park will be difficult. Initial Municipal impetus for the Park was to provide Lakefront access for Hamilton residents. However, public transit and walking/cycling access is minimal and requires substantial upgrading. With the construction of a pedestrian QEW overpass in 2010, the Hamilton Beach Trail will be connected to Red Hill Creek Valley trails and beyond. Public transit access also needs to be improved and especially along Centennial Parkway (Highway 20). The Master Plan update will focus on making the Park more accessible and attractive to local neighbourhoods comparable to the manner in which Bayfront Park provides access to local neighbourhoods in the central and west Hamilton. 3.8. The Natural Environment This section addresses the existing landform, its vegetation and various planning responses. The analysis assists in developing Master Plan goals and objectives by providing a better sense of what it looked like before settlement and developing a theme for its maintenance and use that respects and uses the feature in a sustainable manner. 3.8.1. Environmentally Sensitive Area (E.S.A.) Augustus Jones surveyed Hamilton Beach in 1790. His survey describes the beach environment as comprising sand dunes behind which littoral wetlands associated with the Red Hill Creek extended eastwards to beyond Centennial Parkway. Schedule B of Hamilton’s Official Plan, maps Natural Heritage Core Areas covering each of the following features mapped on Schedules B1 through B8:

• Schedule B‐4 Hydrologic Feature Wetlands including the Red Hill and Van Wagner Marshes connected to remaining wetlands in the Centennial Parkway and the Stoney Creek pond;

• Schedule B‐5 Lakeshore and Littoral Zones including the Red Hill and Van Wagner Marshes and inter‐connecting wetlands extending east to Centennial Parkway and the Stoney Creek between the QEW and Lakeshore;




• Schedule B‐6 Environmental Significant Areas including the eastern Park from the Red Hill and Van Wagner Marshes to Lake Ontario west and the vegetated Stoney Creek valley from the QEW to the Lakeshore; and

• Schedule B‐8 Key Hydrologic Features including all water and wetland features in detail within the Park and surrounding areas. See Figure 17, Natural Heritage Lands.

The Hamilton Conservation Authority has mapped these remnant environmental features and this map has been used to identify those features to be protected and the areas in which sustainable development may occur.

FIGURE 5 – Schedule B‐4 Key Hydrological Features – Wetlands

FIGURE 6 – Schedule B‐5 Key Hydrological Features – Lakes and Littoral Zones




FIGURE 7 – Schedule B‐6 Environmentally Significant Areas

FIGURE 8 – Schedule B‐8 Key Hydrological Features – Streams 3.8.2. The Landform During the glaciers, the ice finally retreated to the east, clearing the western end of the lake. As the ice retreated from the St. Lawrence River Valley, the waters emptied and early Lake Ontario formed at a lower water level than presently exists. However, the weight of the glaciers, having retreated, resulted in the earth’s crust, centred in the Kingston to Montreal area, to rebound upward blocking flows to the east and causing lake levels in western Lake Ontario to rise. Initially, the Red Hill Creek emptied into Lake Ontario. As the Lake levels rose to current elevations, an estuary formed at the mouth in the present day Red Hill Creek Marsh. Together with silt carried downstream by the Red Hill Creek and sand being deposited by shore currents, the outlet into Lake Ontario became blocked, initially on a seasonal basis. As the Red Hill Marshes expanded behind the emerging sand bar, the creek cut a new outlet into Hamilton




Harbour through Windermere Basin. The bar formed a spit extending the full length of Hamilton Beach.41 An early survey map from 1791 shows what this feature looked like prior to settlement. Not only was the outlet to Lake Ontario blocked, water levels behind the dunes, during high water levels, were interconnected as far east as present day Centennial Parkway. There were two spits, each emanating from the northern and southern shores. European settlers, first encountered elevated dunes along the Lake Ontario shore. Moving from east to west, elevations rose to their highest levels along the dunes and declined to marshy bay shores. The width ranged from approximately 135 metres at the narrowest locations to 350 metres at the widest locations. Beach strip geometry has been modified significantly by the addition of the Skyway Bridge and its twining; the filling of Piers 25, 26 and 27; industrial development on these port lands; and the creation of the Canada Centre for Inlands Waters (CCIW) together with services and street access. These newly created lands and facilities are elevated over the adjoining beach strip elevations. The width has expanded to 375 metres at the narrowest locations to 750 metres at the widest location.

41 adapted from Laing, Brian., “The First Landscape: The Red Hill Creek’s Physical Environment” in From the Mountain to Lake: The Red Hill Creek Valley, edited by Walter G. Peace, W. L. Griffin Printing Limited, Hamilton, Ontario 1998.




FIGURE 9 – 1791 Survey with overlay

FIGURE 10 – Natural Heritage System




3.8.3. Vegetation and Wildlife / Natural Heritage Augustus Jones, in the first survey dated 1791, described “Long Beach” as a beach of sand and gravel. The bay marshes and wetlands were not so clearly defined, being comprised of sand, silt and organic material. In its early years, Hamilton Beach supported an abundant fishery. Ducks and game birds were plentiful, especially in the Red Hill Marsh. The Marsh is highlighted, then and now, in several reports as an important wildlife area. Beach strip vegetation comprised grassed dunes interspersed by oak and basswoods with tall beach grasses situated closer to the lakeshore. Large willows most likely existed along the marshy Burlington Bay shore. Hamilton Beach’s early appeal stemmed from the visual and physical access to both Lake Ontario and Hamilton Bay. Lake waters were cooler than the Bay and more inviting for swimming. Fisheries were very productive and early conservation efforts focused on the wise management of these resources. Microclimate and sandy soils made market gardening productive and attractive to the first inhabitants. By the early 1900’s, industrialization in Hamilton Harbour lessened water quality in the Bay. Fish harvests declined and by the late 40’s the fishery collapsed. Fish kills in the late 40’s may have been a response to food chain adjustments associated with this collapse.42

FIGURE 11 – Significant Woodlands The Red Hill and Van Wagner Marshes, together with the Windermere Basin, continues to be important bird habitats.

42 Adapted from Duncan, Bruce., “Vegetation and Wildlife: The Red Hill Creek Valley, 1615 – 1998” in From the Mountain to Lake, The Red Hill Creek Valley, edited by Walter Peace, W. L. Griffin Limited, Hamilton, 1998, and Johnson, W. F., Hamilton Spectator article dated July 15, 1946.




Using natural feature mapping (Figure 17, Natural Heritage Lands) produced by the Hamilton Conservation Authority, the recreational facilities proposed in this Master Plan will maintain and enhance remnant features and ensure valued ecological functions continue.




4. THE PLANNING CONTEXT Confederation Park fits within a larger Municipal parks and natural heritage system. Municipal infrastructure (e.g., Confederation Park) must be provided for in an approved official plan in order for its development to be funded. Municipal plans conform to Provincial Plans and are consistent with the Provincial Policy Statement 2005. This section describes the applicable Provincial Plan and Policy Statement directions addressed in Confederation Park’s Master Plan review; it reviews other significant Federal, Provincial and Municipal initiatives that impact Confederation Park; and it describes applicable City of Hamilton Official Plan policies these revisions conform to. 4.1. Introduction The Provincial Growth Plan and the Provincial Policy Statement 2005, apply to Confederation Park. Of particular interest is the quality of the urban living environment to be created, specific policies that address active and public transportation that access the Park, and natural heritage features and systems. In this Master Plan review, the revisions to Confederation Park address these policies to achieve conformity with the Growth Plan and to be consistent with the Provincial Policy Statement. 4.2. Provincial Growth Plan The Provincial Growth Plan43 seeks to create high quality of life and economic opportunity for its residents. However, without growth management, there will be increased traffic congestion, deteriorating air and water quality and the disappearance of natural resources. The growth plan guides decisions on transportation, infrastructure planning, land use planning, urban form, housing, natural heritage and resource protection in order to promote economic development and strong communities. Among the applicable factors that need to be addressed in this Master Plan are: trade, over 90% of which is with the United States; a highly educated work force whose social and economic diversity are critical factors in a growing knowledge economy; natural features and areas which the Province is committed to protect and which make communities more attractive and healthier; and cultural amenities that offer creative recreational activities that attract knowledge workers. 43 Places to Grow, Growth Plan for the Greater Golden Horseshoe, Ministry of Infrastructure Renewal, 2006.




Applicable principles include: “Enhancing infrastructure, integrating and improving transit systems, protecting valuable natural resources and strengthening government will all go far towards the implementation of this Plan”44. “Getting around will be easy. An integrated transportation network will allow people choices for easy travel both within and between urban centres throughout the region. Public transit will be fast convenient and affordable. Automobiles, while still a significant means of transport, will be only one of a variety of effective and well‐used choices for transportation. Walking and cycling will be practical elements of our urban transportation systems”45. “A healthy natural environment with clean air, land and water will characterize the GGH.”46 Applicable guiding principles include: building compact complete communities; planning and managing a strong competitive economy; protecting, conserving and wisely using air and water; optimizing the use of existing and new infrastructure to support growth and promoting collaboration among all sectors. “The Plan is about building complete communities, whether urban or rural. These are communities that are well designed, offer transportation choices, accommodate people at all stages of life and have the right mix of housing, a good range of jobs, and easy access to stores and services to meet daily needs.”47 “Complete communities meet people’s needs for daily living throughout an entire lifetime by providing convenient access to an appropriate mix of jobs, local services, a full range of housing, and community infrastructure including affordable housing, schools, recreation and open space for their residents. Convenient access to public transportation and options for safe, non‐motorized travel are also provided.”48 “Community infrastructure refers to lands, buildings, and structures that support the quality of life for people and communities by providing public services for health, education, recreation, socio‐cultural activities, security and safety, and affordable housing.” 49 Confederation Park contributes to Hamilton’s complete communities by protecting important natural heritage features and providing opportunities for active, healthy recreation. It is essential Municipal infrastructure. This Master Plan needs to be developed with a view to achieving Municipal goals and objectives associated with the needs of the broader Hamilton community and Regional and local infrastructure.

44 Ibid, Ministry of Infrastructure Renewal, 2006, pg. 8 45 Ibid, Ministry of Infrastructure Renewal, 2006, pg. 9 46 Ibid, Ministry of Infrastructure Renewal, 2006, pg. 9 47 Ibid, Ministry of Infrastructure Renewal, 2006, pg. 13 48 Ibid, Ministry of Infrastructure Renewal, 2006, pg. 41 49 Ibid, Ministry of Infrastructure Renewal, 2006, pg. 41




In terms of 2.2.2 Managing Growth, the following measures are sought including: “h) encouraging cities and towns to develop as complete communities with a diverse mix of

land uses, a range and mix of employment and housing types, high quality public open space and easy access to local stores and services;

i) directing development to settlement areas, except where necessary for development

related to the management or use of…. resource based recreational activities… that cannot be located in settlement areas.” 50

Confederation Park, like Bayfront Park, is uniquely situated within Hamilton’s settlement area. In terms of intensification, section 2.2.3.7 states “all intensification areas will be planned and designed to: c) provide high quality public open spaces with site design and urban design standards that

create attractive and vibrant places d) support transit, walking and cycling for everyday activities f) achieve an appropriate transition of built form to adjacent areas.”51 With respect to Urban Growth Centres, section 2.2.4 states “urban growth centres will be planned: a) as focal areas for investment in institutional and region wide public services, as well as

commercial, recreational, cultural and entertainment uses b) to accommodate and support major transit infrastructure.”52 Policy 2.2.5 addresses “Major Transit Station Areas and Intensification Corridors”. “1 Major Transit station areas and intensification corridors will be designated in official plans

and planned to achieve: a) increased residential and employment densities that support and ensure the viability

of existing and planned transit service levels b) a mix of residential, office, institutional and commercial development where

appropriate.

50 Ibid, Ministry of Infrastructure Renewal, 2006, pg. 14 51 Ibid, Ministry of Infrastructure Renewal, 2006, pages 15 and 16 52 Ibid, Ministry of Infrastructure Renewal, 2006, pg. 16




2. Intensification corridors will generally be planned to accommodate local services, including recreational, cultural and entertainment uses.”53

With respect to employment areas, policy 2.2.6.9 states “in planning lands for employment, Municipalities will facilitate the development of transit supportive compact built form and minimize parking surface parking.”54 Section 3 addresses “Infrastructure to Support Growth”. Policy 3.1 states “ready and accessible public infrastructure is essential to the viability of Ontario’s communities and critical to economic competitiveness, quality of life and the delivery of public services. But increasing demand, low density land use patterns and historic underinvestment have resulted in a substantial infrastructure deficit to meet the needs of current residents as well as those of future Ontarians. This Plan provides the framework for infrastructure investments in the GGH, so that existing infrastructure and future investments are optimized to serve growth to 2031 and beyond. The policy directions for intensification and compact urban form in this Plan guide many of the infrastructure priorities in this section. It is estimated that over 20% of infrastructure costs could be saved by moving from low intensity development to more efficient and compact urban form. The savings could be reinvested more efficiently.”55 “Investment in community infrastructure (i.e., more intensive use of Confederation Park and public transit access) should be planned to keep pace with changing needs and to promote complete communities.” 56 With respect to infrastructure and infrastructure planning, “the transportation system… will be planned and managed to – offer a balance of transportation choices that reduces reliance upon any single mode and promotes transit, cycling and walking”.57 General policies include the following: “The transportation system… will be planned and managed to: b) offer a balance of transportation choices that reduce reliance upon any single mode and

promotes transit, cycling and walking c) be sustainable, by encouraging the most friendly and environmentally appropriate mode

for trip making e) provide for the safety of system users.” 58

53 Ibid, Ministry of Infrastructure Renewal, 2006, pg. 17 54 Ibid, Ministry of Infrastructure Renewal, 2006, pg. 19 55 Ibid, Ministry of Infrastructure Renewal, pg. 22 56 Ibid, Ministry of Infrastructure Renewal, pg. 23 57 Ibid, Ministry of Infrastructure Renewal, pg. 24 58 Ibid, Ministry of Infrastructure Renewal, pg. 24




Under policy 3.2.3, Moving People, “public transit will be the first priority for transportation infrastructure planning and major transportation investments.”59 Policy 3.2.3.3 states “Municipalities will ensure that pedestrian and bicycle networks are integrated into transportation planning to: a) provide safe, comfortable travel for pedestrians and bicyclists within existing communities

and new development b) provide linkages between intensification areas, adjacent neighbourhoods and transit

stations, including dedicated lane space for bicyclists on the major street network where feasible.

Policy 3.2.6, Community Infrastructure states “community infrastructure planning, land use planning and community infrastructure investment will be co‐ordinated to implement this Plan.” 60 With respect to natural heritage features and areas, “these valuable assets must be wisely protected and managed as part of planning for future growth.”61 With respect to natural systems (section 4.2.1), the following apply: “1. Through sub‐area assessment, the Minister of Public Infrastructure Renewal and other

Ministers of the Crown, in conjunction with Municipalities and other stakeholders will identify natural systems for the GGH, and where appropriate develop additional policies for their protection.

3. Planning authorities are encouraged to identify natural heritage features and areas that

complement, link, or enhance natural systems. 4. Municipalities, conservation authorities, non‐governmental organizations, and other

interested parties are encouraged to develop a system of publicly accessible parkland, open space and trails, including shorelines areas within the GGH that:

a) clearly demarcates where public access is and is not permitted b) is based on a co‐ordinated approach to trail planning and development c) is based on good land stewardship practices for public and private lands.

5. Municipalities are encouraged to establish an urban open space system within built up

areas, which may include rooftop gardens, communal courtyards, and public parks.”62

59 Ibid, Ministry of Infrastructure Renewal, pg. 55 60 Ibid, Ministry of Infrastructure Renewal, 2006, pg. 28 61 Ibid, Ministry of Infrastructure Renewal, 2006, pg. 30




Existing Marsh and Pond 4.2.1. The Provincial Policy Statement “The Provincial Policy Statement provides policy direction on matters of provincial interest related to land use planning and development”.63 “The long term prosperity and social well being of Ontarians depends on maintaining strong communities, a clean and healthy environment and a strong economy”.64 It states “strong communities, a clean and healthy environment and a strong economy are inextricably linked. Long term prosperity, environmental health and social well‐being should take precedence over short‐term considerations”.65 Under Section 1.0 Building Strong Communities, “efficient land use and development patterns support strong, liveable and healthy communities, protect the environment and public health and safety, and facilitate economic growth”.66 Specific policies in Subsection 1.1.1 intended to sustain healthy communities include: “d. accommodating an appropriate range and mix of residential, employment (including

industrial, commercial and institutional uses) recreation and open space uses to meet long term needs, and

c. avoiding development and land use patterns which may cause environmental or public

health and safety concerns”.67 Subsection 1.1.3 Settlement Areas provides further elaboration. Subsection 1.1.3.2 states “land use patterns within settlement areas shall be based on: densities and a mix of land uses which:

62 Ibid, Ministry of Infrastructure Renewal, 2006, pg. 31 63 Provincial Policy Statement 2005, pg 1 64 Ibid, Provincial Policy Statement 2005, pg. 2 65 Ibid, Provincial Policy Statement 2005, pg. 3 66 Ibid, Provincial Policy Statement 2005, pg. 4 67 Ibid, Provincial Policy Statement 2005, pg. 4




1. Efficiently use land and resources; 2. Are appropriate for, and efficiently use infrastructure and public service facilities which are

planned or available, and avoid the need for their unjustified and/or uneconomical expansion; and

3. Minimize negative impacts in air quality and climate change, and promote energy

efficiency in accordance with policy 1.8”.68 Specific policy direction on parks and open spaces is provided in Section 1.5. 1.5.1 “Healthy, active communities should be promoted by: a) Planning public streets, spaces and facilities to be safe, meet the needs of pedestrians, and

facilitate pedestrian and non‐motorized movement, including but not limited to, walking and cycling;

b) Providing for a full range and equitable distribution of publicly‐accessible built and natural

settings for recreation, including facilities, parklands, open space areas, trails and, where practical, water based resources;

c) Providing opportunities for public access to shorelines; and d) Considering the impacts of planning decisions on provincial parks, conservation reserves

and conservation areas”.69 Applicable Transportation and Infrastructure Corridors (Subsection 1.6.6) include the following: “1.6.6.1 Planning Authorities shall plan for and protect corridors and rights‐of‐way for transportation, transit and infrastructure facilities to meet current and projected needs. 1.6.6.2 Planning authorities shall not permit development in planned corridors that could preclude or negatively affect the use of the corridor for the purpose(s) for which it was identified. 1.6.6.3 The preservation and reuse of abandoned corridors for purposes that maintain the corridor’s integrity and continuous linear characteristics should be encouraged, wherever feasible. 1.6.6.4 When planning the corridors and rights‐of‐way for significant transportation and infrastructure facilities, consideration will be given to the significant resources in Section 2L Wise Use and Management of Resources”.70

68 Ibid, Provincial Policy Statement 2005, pg. 5 69 Ibid, Provincial Policy Statement 2005, pg. 10




Section 1.7.1, Long Term Prosperity, is to be supported by: “d. providing for an efficient, cost‐effective, reliable multi‐modal transportation system that is

integrated with adjacent systems and those in other jurisdictions, and is appropriate to address projected needs;

e. planning so that major facilities (such as airports, transportation/transit/rail infrastructure

and corridors, intermodal facilities, sewage treatment facilities, waste management systems, oil and gas pipelines, industries and resource extraction activities) and sensitive land uses are appropriately designed, buffered and/or separated from each other to prevent adverse effects from odour, noise and other contaminants, and minimize risk to public health and safety;

f. providing opportunities for sustainable tourism development”.71 The QEW is considered to be an important transportation corridor which is designed to be expanded in the future to 8 lanes. This may require additional work to the service roads, especially where access and egress ramps are concerned. The north service road, from time to time also serves as an alternative route during emergencies on the QEW Section 1.8, Energy and Air Quality referred to previously contains applicable policy in subsection 1.8.1: a) ‘Promote compact form and a structure of nodes and corridors; b) Promote the use of public transit and other alternative transportation modes in and

between residential, employment (including commercial, industrial and institutional uses) and other areas where these exist or are to be developed;

c) Focus major employment, commercial and other travel‐intensive uses in sites which are

well served by public transit, where this exists or is to be developed, or designing these to facilitate the establishment of public transit in the future”.72

Section 2, Wise Use and Management of Resources, addresses several natural heritage resources that exist on or close to Confederation Park that are addressed in Hamilton’s new Official Plan. Section 3.0 addresses Protecting Public Health and Safety and specifically flooding and erosion hazards from the lower Red Hill Creek and Lake Ontario shore. The Definitions section provides definitions for several terms used in applicable policy. Specifically, “sensitive land uses: means buildings, amenity areas, or outdoor spaces where routine or normal activities occurring at reasonably expected times would experience one or

70 Ibid, Provincial Policy Statement 2005, pg. 12 71 Ibid, Provincial Policy Statement 2005, pg. 13 72 Ibid, Provincial Policy Statement 2005, pg. 14




more adverse effects from contaminant discharges generated by a nearby major facility. Sensitive land uses may be part of the natural or built environment. Examples may include, but are not limited to: residences, day care centre, and education and health facilities”.73 4.2.2. Ontario Trails Strategy Two Ministry of Health Promotion publications and policies apply to Confederation Park, especially the Hamilton Beach Trail and its interconnections to larger City recreational trail systems, both existing and proposed. Ontario’s Action Plan for Healthy Eating and Active Living74 sets important Provincial policy to support trail development as a means of achieving a physically active populace. The health care costs associated with physical inactivity and obesity are profoundly concerning. The Ontario Trails Strategy states that 52% of Ontarians are insufficiently active where their personal health is concerned. 75 The Hamilton Beach Trail and the other Confederation park facilities will help stem the tide towards inactivity and increasing body mass. 4.3. Other Provincial/Municipal Planning Considerations A variety of Federal, Provincial and Municipal initiatives, some taken under the authority of other legislation or international agreements, need to be considered in this Master Plan review. The Park’s management and development may impact and be impacted by these initiatives. To the extent possible, these initiatives and their implications on the Park were considered in this Master Plan review and are outlined in this section. 4.3.1. Hamilton Harbour Remedial Action Plan The International Joint Committee (IJC) administers Great Lakes water quality and quantity agreements between Canada and the United States. Hamilton Harbour is one of 43 “areas of concern” identified in the Great lakes Water Quality Agreement, 1978. The Hamilton Harbour Remedial Action Plan (R.A.P.) is a plan to “delist” Hamilton Harbour from an area of concern76. A multi‐stakeholder committee representing various Federal, Provincial, Municipal and stakeholders agreed to take action on a number of matters to achieve water quality goals and objectives established in the Plan. The action plan includes three steps. Stage 1, a status report on the Harbour was prepared. That report defined the extent and severity of the problems encountered. Stage 2, a remedial action plan was prepared in 1992. That plan set the goals and objectives to be achieved. These

73 Ibid, Provincial Policy Statement 2005, pg. 35 74 Ministry of Health Promotion, Ontario’s Action Plan for Healthy Eating and Active Living, 2006 75 Ministry of Health Promotion, Active 2020: Ontario trails Strategy, 2005 76 Remedial Action Plan for Hamilton Harbour: Stage 2 Update 2002, prepared by the Hamilton Harbour RAP Stakeholder Forum, 2002.




establish a benchmark upon which delisting can occur. Stage 3, delisting, is projected to occur when goals and objectives set by the Plan are achieved in 2015. In 2002, the various goals, objectives and actions were reviewed to refine the work program. The R.A.P. provisions impact Confederation Park in two areas: habitat restoration and public access. Confederation Park’s Red Hill Marshes have been and continue to be, important aquatic and terrestrial habitat. This habitat is connected physically and hydraulically with Windermere Basin. Plans to establish public access to Windermere Basin need to be coordinated with trail access to Confederation Park. In 1990, less than 5% of the Hamilton Harbour shoreline was available to public access. That situation has improved, but many of the improvements are in the west Harbour in Bayfront Park. Public access remains limited in the east Harbour where Windermere Basin is situated. The 2002 Update specifically refers to Windermere Basin and the Red Hill/Van Wagners Marshes when addressing wildlife habitat and trail enhancement targets.77 The authors speculate that the established targets for the Windermere Basin could be increased albeit the necessary measures had yet to be taken. Alternatively, “improving access and aesthetics in the east portion of the Harbour remains a challenge because air quality issues and use conflicts impair public enjoyment of the waterfront. It will be necessary to pursue a more compatible relationship between the valuable economic pursuits that occur in this area and the potential to enhance public access.”78 “The change over from the Hamilton Harbour Commissioners to the Hamilton Port Authority (HPA) in 2001 brought an opportunity to complete a new land use Master Plan for the port. Completion and release of this plan occurred in 2002. The HPA intends to improve the existing parkette at Pier 25 and to construct a second publicly accessible parkette at Eastport; they will also develop a plan for the Fisherman’s Pier (Pier 28)/Burlington Ship Canal area for recreation, waterfront commercial uses and fish habitat. A trail is envisioned along the east side of the Harbour, connecting Windermere Basin to Fisherman’s Pier at the Burlington Ship Canal.”79 4.3.2. Windermere Basin On November 24, 2000, Windermere Basin was transferred to the City of Hamilton by agreement between the Federal Government, Hamilton Harbour Commissioners and the City of Hamilton. That agreement prescribed green and open space zones for the Basin and that the City is responsible for dredging and maintenance.80 In 2001, an “International Brownfield Exchange Design Charette” convened designers and stakeholders to sketch a plan for Windermere Basin. While the approved park development varies from that proposed by the charette, the vision applies.

77 Ibid, Hamilton Harbour RAP Stakeholder Forum, 2002, pg. 103 78 Ibid, Hamilton Harbour RAP Stakeholder Forum, 2002, pg. 125 79 Ibid, Hamilton Harbour RAP Stakeholder Forum, 2002, pg. 128 80 Public Works Department, City of Hamilton, Staff Report PW060088, July 19 2006, pg. 4




“Windermere Basin will be a restored estuarine ecosystem providing a sanctuary for wildlife and passive recreational use, with improving water quality and habitat regeneration. Windermere Basin will be a “healed” area; a source of community pride; a place where citizens and visitors can witness the ongoing regeneration of an area to a healthier environment. “Windermere Basin will be a green area in an industrial waterfront. As a unique feature of the eastern gateway to the City of Hamilton, the Basin will be an area where people can learn and understand about the area’s natural and cultural history. Trails will connect the Basin with other natural and cultural attractions in the surrounding area, this facilitating public access and linkages across the entire Hamilton Waterfront.”81 “The Hamilton Waterfront Trust (HWT) as lead on this project has been undertaking the planning design and public consultation for the restoration of this land base at Windermere Basin.”82 An Official Plan amendment in 2000, designated Windermere Basin for the following uses: visitor centre, museum, trail centre, information centre and open space uses. A record of Site Condition is required before uses can be established on the open space designation, as well as environmental assessment statement to address the environmentally sensitive area designation on Hamilton Harbour. With these provisions as holding requirements, the lands were zoned for these uses. Plans have been made and work is underway to meet these requirements. Confederation Park’s trail system needs to inter‐connect with Windermere Basin trails where possible and provide for management and enhancement of the Red Hill Creek and Van Wagners Marshes consistent with the environmental and landscape strategy applied to Windermere Basin. 4.3.3. Red Hill Creek Restoration Confederation Park is being restored in accordance with an integrated landscape plan implemented as part of the Red Hill Valley Project. The work is under contract with Kayanese, a Six Nations contractor for the Red Hill Valley Project ecological restoration program. “Project objectives include: • Increase natural habitat quality and natural species diversity. Concomitant is the need to

reduce the presence of invasive exotic species.

• Increase habitat quality and connectivity for migrating birds.

81 Ibid, Hamilton Harbour RAP Stakeholder Forum, 2002, pg. 128, also in the Public Works Department Staff Report 2006, Appendix C 82 Ibid, Public Works Department, 2006, pg. 3




• Emulate natural aesthetic habitat character using appropriate natural reference model habitats (e.g. oak savanna, oak pine upland forest, beach dunes, etc.).

• Consider measures to reduce environmental impact and maintenance costs for grounds

maintenance and tending. • Consider measures to reduce/buffer noise and light pollution levels associated with traffic on

the QEW. • Maintain flexibility for accommodating camping use in the park and consider opportunities

for enhancing recreational uses and enjoyment of park facilities by visitors. • Establish new trees to help offset the potential negative effects that may result from the loss

of existing trees. Many large shade trees (especially European white Lombardy poplar) are senescent and will need to be replaced to maintain shade tree density in some areas. Also, ash trees currently make up a large proportion of the larger shade trees throughout the park as well as being important in natural regeneration areas. With the threat of the emerald ash borer, it is very possible that many of these trees could die in the near future and it is prudent to begin action to replace such a potential devastating loss of trees in the Park.

• Implement designs and/or activities as part of the naturalization/ecological enhancement

works that are sensitive to potential public concerns and that help create a more holistic appreciation of natural landscapes.”83

Some revisions to this Management Plan may be required in the future in order to address revisions proposed by this Master Plan where uses are removed or, alternatively, new buildings and uses are introduced. Otherwise, these works are incorporated in this Master Plan. 4.3.4. Metrolinx The Regional Transportation Plan (RTP) “provides a vision, goals and objectives for the future in which transportation within the Greater Toronto Hamilton Area is seamless, coordinated, efficient, equitable and user centred. It also contains strategies, priority actions and supporting policies that are needed to achieve the future vision, as well as an investment strategy to finance the transportation system over the short and long terms.”84 In the first 15 years, one of the top transit priorities is to establish a rapid transit from Downtown Hamilton to McMaster University and to Eastgate Mall.85 Together with transit improvements proposed in the City Official Plan, this will re‐establish transit linkage to

83 Kayanase, An Integrated Landscape Management Plan: Opportunities and Designs for Ecological Restoration and Naturalization at Confederation Park, undated and marked Draft, pages 1 and 2 84 Metrolinx, The Big Move, Transforming Transportation in the Greater Toronto and Hamilton Area, November 2008, pg. vi 85 Ibid, Metrolinx, 2008, pg. 60




Confederation Park. Provision should be made within the Park along Centennial Parkway to establish improved bus access. These provisions are shown in the Master Plan. 4.4. Municipal Planning The City of Hamilton recently approved an official plan for its rural and urban environments. This plan conforms to the Provincial Growth Plan and is consistent with the Provincial Policy Statement 2005. It also addresses relevant matters arising from the Hamilton Remedial Action Plan, Municipal plans for Windermere Basin and the transit proposals contained within the Metrolinx Regional Transportation Plan. Relevant Municipal planning documents that require consideration in the development of this Master Plan include Vision 2020, GRIDS, the new City of Hamilton Official Plan and various servicing and infrastructure master plans. 4.4.1. Vision 2020 “As citizens, businesses and government of the City of Hamilton we accept responsibility for making decisions that lead to a healthy, sustainable future. We celebrate our strengths as a vibrant, diverse City of natural beauty nestled around the Niagara Escarpment and Hamilton Harbour. We are able to achieve our full potential through safe access to clean air and water, food, shelter, education, satisfying employment, spirituality and culture. We weigh social/health, economic and environmental costs, benefits and risks equally when making decisions.”86 This is Hamilton’s Vision 2020. The vision is achieved through four measures: “Action – Sustainable community goals, strategies and targets are achieved by committing resources and acting decisively. Access – People have the ability to contribute and participate in community life regardless of physical and mental ability, income, age, gender, spiritual or cultural background or geographic location. Accountability – Community leaders measure and report on progress in achieving the Vision. Adaptability – We learn from the past and take action to create positive change.”87 Highlights of Hamilton’s Vision include the following: “We are an environmentally conscious community where the existence of all living things is cherished and where all can breathe fresh air, swim in clean streams and lakes and have ample opportunity to observe and experience the wonders of the natural world….

86 City of Hamilton, Vision 2020, pg. 1 87 Ibid, City of Hamilton, pg 1




“Healthy lifestyles, improved safety measures and quality health care have progressively reduced disease and disability…. “Our quality of life is enriched by a protected system of natural areas that threads throughout the City, preserving and improving our natural heritage. This system of natural areas and connecting corridors allows wildlife to migrate, enhancing their chances of reproducing and finding food and shelter. A recreational greenway gives residents access to this system of natural areas, in ways that do not threaten ecological processes. Recreation and the needs of wildlife for a protected habitat co‐exist…. “As a community, we cherish a clean, healthy environment… “Architecture, green building technology and environmental design are commonly used to create neighbourhoods that are models of energy‐efficiency, waste reduction and respect for nature. Human needs for space, privacy, safety, and aesthetic appeal are fulfilled… “Neighbourhoods have a central gathering place where essential services such as shopping, health care, education and recreation are clustered around an attractive pedestrian oriented common open space… “We have many transportation choices. We are not dependant on automobiles and trucks. An integrated transportation system serves the entire city in an affordable, efficient, and accessible way. Our transportation system improves community health by reducing the need for automobile use and making it easy and attractive to walk, cycle, skateboard or roller blade… “Citizens, businesses, academic institutions and government form partnerships, work cooperatively and innovate to achieve the goals that will make our vision a reality.”88 4.4.2. GRIDS In September 2003, Directions to Guide Development were established to provide direction to the GRIDS Study Design. From that effort, the new City Official Plan and various infrastructure and servicing master plans were prepared. The relevant directions that apply to this Master Plan include the following: “Direction #6 – Expand transportation options that encourage travel by foot, bike and transit and enhance inter‐regional transportation connections. Direction #7 – Maximize the use of existing buildings, infrastructure and vacant and abandoned land. Direction #8 – Protect ecological systems and improve air, land and water quality.

88 Ibid, City of Hamilton, pages 1 through 5




Direction # 9 – Maintain and create attractive public and private spaces and respect the unique character of existing buildings, neighbourhoods and settlements.”89 4.4.3. Official Plan The City of Hamilton has prepared a new Official Plan. The plan’s policies that apply to Confederation Park are: “The plan projects a long term vision for the physical development of the City over the next 30 years...” (1.3). Two Plan principles affect Confederation Park: • Environmental systems – land, air and water – that are protected and enhanced; • Balanced transportation networks that offer choice so people can walk, cycle, take the bus,

or drive, and recognize the importance of goods movement to our local economy. Policy B.1.0, the Introduction, states: “Health and safety in our communities is essential. Policies ensure that our communities are safe and healthy. A broad interpretation of health recognizes the inter‐relationships between all aspects of our environment and the impacts on the health of citizens. Policies in this section enable healthy lifestyles, promote a healthy and safe community, and promote a high quality of life.” Under Quality of Life and Complete Communities, the following policy applies: “Complete communities provide convenient access to a mix of jobs, local services and shops, a full range of housing and community facilities such as schools, recreation facilities, open space, health care facilities, cultural facilities and more. Complete communities enable residents to meet most of their daily needs within a short distance from their homes, facilitating ease of access and use of public transit and active modes of transportation.” Policy 3.3.28 states “Urban design plays a significant role in the physical and mental health of our citizens. Community health and well being shall be enhanced and supported through the following actions, where appropriate: a) creating high quality, safe streetscapes, parks and open spaces that encourage physical

activity and active transportation; b) ensuring an equitable distribution of accessible and stimulating amenity areas, including the

development of places for passive and active recreation and use; c) encouraging development of complete and compact communities or neighbourhoods that contain a variety of land uses, transportation, recreational and open space uses; and reducing air, noise and water pollution through the following:

89 City of Hamilton, Directions to Guide Development




I. Facilitating and promoting the use of active transportation modes through building and

site design; II. Providing adequate green space, landscaped buffering, and storm water management

facilities; III. using appropriate pavement treatments; IV. Promoting energy efficient design of sites and buildings; and V. Promoting innovative construction materials and techniques.”

Hamilton Beach Trail Hamilton Beach Trail A number of policies apply to Confederation Park. These are set out in the section “Policies for Publicly Owned or Operated Facilities/Services”: “3.5.2.7 The City’s responsibilities for community facilities/services includes parks… among others. Where appropriate, the City shall establish standards for the level of these community facilities/services through policies of this Pan and other Municipal studies and strategies. 3.5.2.8 Proposals for new development and redevelopment shall take into account the availability and location of existing and proposed public community facilities/services and be phased so new public community/services can be provided efficiently, effectively and in a logical fashion. 3.5.2.9 Public community facilities/services shall be provided in an equitable, sustainable, efficient manner and their use optimized through application of the following policies: a) Partnership and collaboration among providers and funders of community facilities/services,

including the City, shall be strongly encouraged.

b) The use of existing community facilities/services shall be optimized to serve the surrounding community, wherever feasible, before the development of new facilities is considered.

c) Where community facilities/services are deemed to be surplus, other community facility/service uses shall be given first priority in disposal of the property.




d) Shared use of sites and buildings, including clustering/co‐locating of facilities into campus

like settings with shared parking facilities, shall be strongly encouraged. 3.5.2.10 Public buildings and public community facilities/services provide a focal point, image and sense of identity for communities. Clustering/colocating of new facilities which support a range of services on a shared site or in a shared building optimizes efficiency and improves convenience and accessibility. Clustering also creates a major destination that can be readily served by transit, facilitate service integration, and provides flexibility for program or use change as community needs change. 3.5.2.11 New public buildings and public community facilities/services shall be designed and strategically located to support the urban structure and intensification policies…. 3.5.2.12 All new public buildings and public community facilities/services shall: a) Be designed to reflect and enhance local community character, image, identity, and sense of

place; and

b) Be encouraged to include public art as art of overall site and/or building design.” Within the Parkland Policies (3.5.3), Confederation Park is a City‐wide Park. The uses permitted shall be parks for active and passive recreational uses, community/ recreational facilities, and other open space uses. “Notwithstanding Policy C.3.3.4, “ancillary commercial uses that are complementary to Community and City Wide Parks and support the primary open space use such as, food concessions, recreational equipment rentals, and water oriented recreational uses, may be permitted provided such uses do not interfere with or have negative impacts on the open space nature of the land.” Additional applicable policy includes 3.5.3.4, “the City shall establish a hierarchy of parks as follows: d) City Wide Parks are Municipally, regionally, provincially or nationally significant destinations that meet the needs of residents and are of interest to visitors. These facilities are often associated with major recreation, education or leisure activities and may have natural, historic, or unique features. They range greatly in size and type.” In addition, Confederation Park is connected to General Open Space along the Beach Strip and Natural Open Space associated with the Red Hill Creek Valley. Policy 3.5.3.5 applies: “In addition to the parks hierarchy outlined in Policy B.3.5.3.4, there are two open space categories not considered as parks but which contribute to the City’s open space and parks system: a) General Open Space shall include golf courses, community gardens, pedestrian and bicycle

trails, walkways, picnic areas, beaches, remnant parcels of open space lands, and urban plazas, squares and core spaces. These areas do not function as parks but are used for both active and passive recreational activities.




b) Natural Open Space shall include lands with significant natural features and landscapes such as woodlots, hazard lands, forested slopes, creek/ravine corridors, the Niagara Escarpment, environmentally sensitive areas (of natural and scientific interest), and areas of wildlife habitat. These areas perform important biological and ecological functions and provide passive recreational opportunities.”

Parks can also have multiple functions, such as being a City Wide Park and General and Natural Open Space at the same time. Confederation Park is referred to specifically in the Beach Strip Secondary Plan through provisions for the Hamilton Beach Trail. The Beach Strip General Open Space links Confederation Park to Burlington and, when the QEW trail overpass is constructed, recreational trails into the Red Hill Creek Valley. “3.5.3.7 In certain cases, single parks may have dual classification, such as Natural Open Space and Community Park, which recognize that parks can have multiple functions.” Air quality and climate change are addressed together. The City partners with groups such as Clean Air Hamilton “to develop actions to reduce air pollutants and improve air quality” (3.6.2.1). Some forms of recreation can be a sensitive use (i.e., camping) for the purposes of air, odour and noise analysis. Policy 3.6.3.1 addresses this sensitivity. “Development of noise sensitive land uses, in the vicinity of Provincial highways, parkways, minor or major arterial roads, collector roads, truck routes, railway lines, railway yards, airports, or other uses considered to be noise generators and shall comply with all applicable provincial and Municipal guidelines and standards.” These include the Ministry of the Environment D1 through D6 Guidelines and Policies NPC 233 and NPC 205. Other policy requires a noise feasibility study to be prepared when noise sensitive land uses are to be located within 400 m of a Provincial Highway (the QEW). Several map schedules apply various policies to Confederation Park. Schedule B, Natural Heritage System shows the entire Confederation Park as being within the Natural Heritage System. Core Areas include each of the natural features identified in Schedules B1 through B8 and are defined as including “key natural heritage features, key hydrologic features and local natural areas”. The remaining lands not included within Core Areas are designated as Parks and General Open Space. The Red Hill Creek Marshes and several ponds within Confederation Park are shown as key hydrologic features on Schedule B‐5, Detailed Natural Heritage Features: Key Hydrologic Features: Lakes and Littoral Zones. Schedule B‐4, Detailed Natural Heritage Features: Key Natural heritage Features and Key Hydrologic Feature Wetlands depicts the Red Hill Creek and Van Wagners Marshes, the ponds and associated wetlands in Confederation Park as wetland features. Schedule B‐6, Detailed Natural Heritage Features: Local Natural Area Environmentally Sensitive Areas describes the Red Hill Creek marsh and associated dune and Lakeshore as well as the Stoney Creek and pond as Environmentally Significant Areas. All the water features in the Park are described as key hydrologic features on Schedule B‐8, Detailed Natural Heritage Features: Key Hydrologic Features, Streams. Below is a table that sets out




important details to be used in determining when an environmental impact statement (EIS) is required for new projects within or within the vicinity of these natural features. Table ‐‐ Adjacent Land Distances to Trigger an Environmental Impact Statement

Natural Heritage Feature Boundary Definition Extend of Adjacent Lands (Outside of Greenbelt)

Fish Habitat Streams, rivers, lands and ponds

30 metres from stable top of bank

Provincially Significant Wetlands

Defined by the Province (Class 1‐3)

120 metres

Significant Habitat of Threatened and Endangered Species

Defined by the Province and the City of Hamilton

50 metres

Local Wetlands and unevaluated wetlands

Defined by the Province (class 4‐7) and City of Hamilton

50 metres

Significant Woodlands Defined by the City of Hamilton

50 metres, measured from the dripline

Streams and River Valleys Conservation Authority regulator lines, flood plain mapping

30 meters from stable top of bank

Areas of Natural and Scientific Interest (ANSIS)

As identified by the Province 50 metres

Significant Valley Lands As defined by the Province and the City of Hamilton

50 metres

Significant Wildlife Habitat As defined by the Province and the City of Hamilton

50 metres

Environmentally Significant Areas (ESAs)

As defined by the City of Hamilton

50 metres

In addition, “Where vegetation protection zones have not been specified by watershed and sub‐watershed plans, Secondary or Rural Settlement Area Plan policies, Environmental Assessments and other studies, the following minimum vegetation protection zone widths shall be evaluated and address by Environmental Impact Statements:

• Permanent and intermittent streams: 30 m vegetation protection zone on each side of the watercourse, measured from beyond the stable top of bank;

• Provincially significant, locally significant, and significant coastal wetlands: 30m vegetation protection zone. The Environmental Impact Statement shall also take into consideration adjacent upland habitat that is required by wetland species for breeding, foraging, dispersal, and other life processes;

• Fish habitat: 30m minimum vegetation protection zone measured from beyond either

side of the top or bank or meander belt allowance;




• Woodlots: 15m minimum vegetation protection zone measured from the drip line of trees at the woodlot edge;

• Significant Woodlands: a minimum 30 m vegetation protection zone measured from the

drip line of trees at the woodlot edge;

• Significant Areas of Natural and Scientific Interest: a minimum of 30m vegetation protection zone;

• Designated Valley lands: 15m minimum vegetation protection zone measured from top

of bank; and

• Lakes: 30m vegetation protection zone, measured form the stable slope of the shoreline”.

Existing uses are largely permitted. However their upgrading, expansion and new uses will require careful scrutiny to ensure these natural heritage policies are met. Open space represents an important component in the City’s Urban Structure. It provides a basis for consistent decision making. “The Major Urban Space system identified on Schedule E – Urban Structure includes the predominant natural and open space features that form part of a continuous system throughout the urban area. These features are comprised of the Niagara Escarpment and associated environmentally significant areas, the Red Hill Valley, Cootes Paradise and the Waterfront areas including the West Harbour Area and the Waterfront Trail, Confederation Park and the Hamilton Beach Recreational Trail (2.8).” The Hamilton Conservation Authority has mapped the environmental features found within Confederation Park. This map, Figure 17, Natural Heritage Lands, has been used to ensure that the environmental features are protected and enhanced in this Master Plan. Application of prescribed setbacks and other enhancement measures will occur during detailed design and consultations with City and Conservation Authority officials. Potential conflicts, if any, with ongoing ecological restoration can also be reviewed during detailed design. To the extent possible, we have confirmed that ecological restoration works undertaken to date are outside areas proposed for new recreational development. Compensation measures, if required, can be identified at that time. Where possible, preference will be given to landscape plantings which utilize oak savannah species and sand dunes to enhance ongoing restoration work where applicable. To the extent possible, the study team and Conservation Authority staff have confirmed that these measures, and the recommendations made in this Master Plan, will preserve and enhance the ecological features and functions performed within and around the Park. These functions include migratory bird habitat concerns. In this regard, Conservation Authority staff reviewed concerns raised about potential migratory birds. Based on that review, they are satisfied the Master Plan does not adversely impact wildlife.




FIGURE 12 – Urban Structure Among the applicable Urban System Goals are the following: c) develop a compact, mixed use urban environments that support transit and active

transportation; d) develop complete communities where people can live, work, learn and play; and i) protect and enhance a system of linked natural areas.” Nodes and corridors are also key components of Hamilton’s Urban Structure. The intersection of Centennial Parkway and Main Street is a Sub Regional Service Node while Main Street between Downtown and Centennial is a Primary Corridor and a Secondary Corridor east of Centennial Parkway. Centennial Parkway is a Secondary Corridor north to Barton Street and south to Rymal Road. On Schedule C, Functional Road Classification describes Burlington Street and Centennial Parkway as major collectors. Schedule E, Urban Structure depicts a sub‐regional centre on the intersection of Centennial Parkway and Queenston Road with a secondary corridor extending northwards on Centennial Parkway to beyond Barton Street. Queenston Road is a primary corridor. Employment uses border Hamilton’s harbour, Burlington Street and QEW with the exception of neighbourhoods south of the Centennial Parkway QEW intersection.




FIGURE 13 – Functional Road Classification Schedule E‐1, Urban Land Use Designations shows Industrial land bordering Burlington Street the full length of Confederation Park between the Red Hill Creek and Woodward Avenue. The Red Hill Creek Marsh is open space, as is all of Confederation Park. Lands on either side of Centennial Parkway are designated commercial and mixed use, medium density. A business park designation extends east from this designation along the QEW. Schedule G, Local Housing Market Zones shows Confederation Park within East Hamilton and the Park borders Central East Hamilton on the west.

FIGURE 14 – Urban Land Use Designation Schedule B, Major transportation Facilities and Routes shows the Red Hill Creek Parkway and the QEW. It also shows Eastgate Square as an HSR Terminal with a Potential Rapid Transit Line




along Queenston Road and extending south from the Queenston Road/Centennial Parkway intersection.

FIGURE 15 – Major Transportation Facilities and Routes Appendix F, Cultural Heritage Resources shows a number of individually designated properties south and east of Confederation Park. There are no designated sites within the Park. Appendix A, Parks Classification Map designates Confederation Park as City Wide Park while a number of community parks and general and natural open space parks are extended the full length of the Red Hill Creek valley.

FIGURE 16 – Parks Classification Map Appendix F‐4, Archaeological Potential shows Confederation Park as having archaeological potential. For the purposes of the Provincial Growth Plan, Confederation Park is shown as being within the built up area on Appendix G, Boundaries Map.




4.4.4. Transportation Master Plan The Transportation Master Plan develops policies and strategies for Hamilton’ transportation system to guide the Municipality for the next 30 years. The system undergirds the “nodes and corridors” urban structure of the City’s Official Plan. The Plan’s key objective is reflected in this Master Plan review:

• “offer a choice of integrated travel modes, emphasizing active transportation (walking and cycling), public transit and carpooling.”90

This Vision is embodied in the Master Plan’s Cycling Network Strategy’s Goals:

• “facilitate efficient and safe travel for commuters and other cyclists through expansion and improvement of the network of on‐street cycling facilities and Escarpment connection; and

• promote recreational cycling and active transportation through the development of off street facilities.”91

While dated, “the 1997 Hamilton‐Wentworth Community Cycling Survey… found that 40% of the residents above the age of 18 consider themselves to be cyclists. The survey also indicated that 14% of residents above the age of 18 are not cyclists, but could be inclined to take the activity up in some form, while 46% do not cycle and are not interested in the activity. Of the cyclists, just over half cycle for both utilitarian and recreational purposes, 45% cycle only for recreational purposes and 4% only cycle for transportation purposes.”92 The Lake Ontario Waterfront Trail, including the Hamilton Beach Trail, is a primary attractor and generator of bicycle traffic. The Trail provides access to the Lakefront and associated natural amenities and represents a tourist attraction. Obstacles include connectivity with the local neighbourhoods. This will be addressed in part with the installation and operation of the QEW pedestrian and cycling overpass bridge and with the introduction of public transit to Confederation Park. When Confederation Park is better inter‐connected with the surrounding urban neighbourhood fabric and beyond to the Niagara Escarpment, via the QEW overpass and on street cycling network improvements, increased usage will occur. These improvements are important from a recreational cycling perspective and Hamilton’s Transportation Master Plan’s action transportation objectives.

90 City of Hamilton, Class Environmental Assessment Report, Hamilton Transportation Master Plan, May 2007, pg. ES 2 91 City of Hamilton, Cycling Network Strategy, May 2007, pg. 2 92 Ibid City of Hamilton, Cycling Network Strategy, pg. 3




The Pedestrian Network Strategy establishes the factors that go into a decision to walk. These include the following:

• “the extent, directness and quality of pedestrian infrastructure; • trip destinations within walking distance, including… recreational facilities; • the perceived safety of walking, which is affected by the availability of pedestrian

infrastructure, automobile speeds and volumes, lighting, street‐crossing facilities, etc; • the pleasantness of the walk, which is affected by the availability of pedestrian

infrastructure, automobile speeds and volumes, lighting an street crossing facilities, etc.; • the pleasantness of the walk, which is affected by pedestrian amenities (e.g., benches,

street trees, natural areas, trellises, etc.) weather and noise levels; • the need to improve one’s level of fitness; and • physical ability and personal perceptions of walking.”93

These are equally applicable to explaining the Hamilton Beach Trail’s success and factors considered generally when making a decision to cycle. With the QEW bridge overpass, many of these factors will be addressed positively. In 2001, 6% of the trips made by Hamilton residents each day involve cycling and walking, a decrease of 1% from 1996. Targets within the Transportation Master Plan are to raise this to 10% in the near term and 15% in 30 years. As with cycling, the Lake Ontario Waterfront (Hamilton Beach Trail) is both a primary attractor and generator of walking trips. The absence of sidewalks north of Barton Street and east of Centennial Parkway affects the mode choice for people who work in the area. It also appears from the user data collected, that this absence of sidewalks limits the use of Confederation Park by neighbourhood residents. The planned development of transit to service the Eastgate Node and Centennial Parkway together with the improved transit access to Confederation Park, will improve this situation for pedestrians. 4.4.5. Parks, Culture and Recreation Master Plan The former campground at Confederation Park, is proposed for major, City‐wide sports and recreation facilities which is under investigation separately by the City of Hamilton. Through recent studies of community sport and recreation needs, the City, especially the lower Hamilton and Stoney Creek neighbourhoods, are deficient in terms of outdoor sports facilities and land. Recreational facilities, located in the former campgrounds, would improve the provision levels in the lower Hamilton/Stoney Creek area and City wide requirements for league and tournament play. Facilities contemplated are high end recreation facilities. These facilities will optimize the use of City lands, especially with the proposed new park entrance access from Centennial Parkway. The following outdoor facilities are under consideration in the former campgrounds: regulation size cricket pitch; multi‐use artificial turf fields; and buildings, additional natural turf soccer fields. These facilities will be confirmed by

93 City of Hamilton, Pedestrian Network Strategy, May 2007, pg. 2




the City at a later date. On a preliminary basis, the area is sufficiently sized. Vehicular access, servicing and accessory buildings can be accommodated to meet this objective. 4.4.6. Natural Heritage System The new Official Plan natural heritage policies are challenging. The eastern Lakeshore encompassing the Stoney Creek pond, the Hamilton Beach Trail from Woodward Street to the canal and lands encompassing the Red Hill Creek from the QEW interchange to Windermere Basin are designated Core Area. The balance of the Park is designated Parks and General Open Space. Here is our interpretation of their application to the Confederation Park Master Plan. Natural heritage systems are comprised of natural heritage features and linkages. The words “core areas” are not found in the Provincial Policy Statement but are found in the draft Natural Heritage Reference Manual. It is a concept used to develop policy where greater attention is required to protect ecological functions. These areas can be used for properly designed compatible development provided ecological functions are preserved and maintained. Some natural heritage features are inviolate, e.g., provincially significant wetlands. Unless already in existence, development is not permitted in these features. Within a prescribed distance “unless the ecological function of the adjacent lands has been evaluated and it has been demonstrated that there will be no negative impacts on the natural features or on their ecological functions”94 development is not permitted. Schedule B‐4 designates the Red Hill and Van Wagners Marshes and inter‐connected ponds throughout the Park as wetlands. These are the remnants of the interconnected wetlands and ponds that are shown in the 1791 survey. Except for enhancements, these need to be preserved in the Master Plan and, unless already existing, new development will require further assessment. Schedule B‐6 designates much of the lands and waters north of the Red Hill Parkway interchange with the QEW and the Stoney Creek valley, pond and Lakeshore as “Environmentally Significant Area”. Environmental assessment is required to determine whether development can occur and, if so, under what conditions. Schedule B‐8 describes the Red Hill Marsh, interconnected wetlands and Stone Creek as “Key Hydrologic Features”. Policy 2.2.2 under “Water” in the Provincial Policy Statement states: “Development and site alteration shall be restricted in or near sensitive surface water features… such that these features and their related hydrologic functions will be protected, improved and restored. Mitigative measures and/or alternative development approaches may be required in order to protect, improve or restore sensitive surface water features… and their hydrologic functions.”95 These policies are also intended to ensure the results of watershed plans, prepared under the provisions of the Clean Water Act, are incorporated into official plans.

94 Ibid, Provincial Policy Statement 2005, pg. 15 95 Ibid, Provincial Policy Statement 2005, pg. 16




These policies have several implications on Confederation Park. To the extent possible, new development is restricted in the eastern portion of the Park from the Red Hill Parkway intersection with the QEW. The Lakeland Go Kart Track and infrastructure should be removed and that site restored to a natural condition. Existing water features should be restored and buffered where possible. New development should be directed to the central and east areas where vacant lands of less environmental significance exist. Conservation Authority mapping has been used to ensure natural features are maintained and enhanced and to identify those areas in which recreational development may occur. 4.5. Other Planning Considerations Transportation and industrial, residential and recreational uses, and natural habitat exhibit land and environmental compatibility issues on Hamilton Beach. Lands of sufficient size and shape need to be available to site facilities and uses. In this instance, creating sufficient land for transportation and industrial uses resulted in landfill in Burlington Bay, significant alteration of the Red Hill Creek Marsh and removal of residential uses. Further encroachments may be required on Confederation Park. Beyond location, compatibility involves noise and adverse effects on air quality. Sensitive uses (i.e., residential and recreational uses) need to be buffered from noise and air emission sources. The Environmental Protection Act established a regulatory framework for emissions regulation. It has been applied to industrial uses since the legislation and Ontario Regulations 346 and 419 were enacted. A parallel series of policies (the D1 through D6 Land Use Compatibility Guidelines) were developed by the Ministry of the Environment to be addressed in decisions made under the Planning Act. The intent of the legislation and policies is to result in trivial exposure to air and noise emissions. Active recreation should be designed and set back from the QEW in order to minimize exposure. In this section, we explore how this might be achieved through design in three ways: 1. Identify future potential traffic improvements and their impact on the Park area, uses and

facilities; 2. Buffer sensitive uses by application of the Ministry of the Environment land use

compatibility guidelines to proposed Park uses and facilities; and 3. Design park uses and facilities that highlight the built and natural environments, existing

and restored, and accentuate the visual, aural and olfactory environments associated with the Lake Ontario shore, the dunes and associated vegetation and the Red Hill Creek Marsh.




4.5.1. Air Quality Air quality is a planning concern. Two air emission sources require consideration in this Master Plan: industrial and transportation emissions. Transportation emissions include nitrogen dioxide and particulate matter, especially respirable particulate, particulate small enough to be ingested deeply into the lungs and into the circulation system. Alternatively, industrial emissions comprise sulphates and are stable or decreasing over time. Traffic emissions are increasing because of more trucks and cars, longer and more frequent trips. Clean Air Hamilton is a stakeholder group with membership from the Ministry of the Environment, Environment Canada, the City of Hamilton and local industries. It is charged with a mission that addresses many Hamilton air quality goals. It also helps maintain an air quality monitoring system throughout the City. This system has positioned monitoring stations downwind of the industrial bay so as to capture downwind emissions under most wind conditions. The monitors are arrayed on Hamilton Beach from the Red Hill Creek outlet into Windermere Basin to the Canal. Much of the Clean Air Hamilton’s monitoring work tracks industrial emissions around Stelco and Dofasco. Industrial development on Piers 25 and 26 (and 27 in the future) is closer to Hamilton Beach and emissions from these industries represent a special challenge for Hamilton Beach. Generally speaking, Clean Air Hamilton reports that industrial emissions have improved over time and air quality generally is better. These improvements are attributed to the efforts of industries and governments to improve air quality through the implementation of the Environmental Protection Act and regulations 346 and 419 and improvements in industrial processes. Hamilton’s unique location between the Niagara Escarpment and Lake Ontario also results in temperature inversion poor air quality events. While infrequent, they occur several times annually and result in elevated air pollution because air currents trap emissions close to the ground. Under the predominant and normal wind conditions, that is from the southwest to northeast, the area from the former Lakeland centre east experiences poor air quality. Similarly, during inversions, when wind is coming from the northeast to the southwest, the area west of the former Lakeland centre experiences poor air quality. The northern and eastern portions of the Park generally experience better air quality conditions, except along the QEW, depending upon wind direction. Transportation emissions comprise tailpipe emission (especially diesel), brake lining and tire wear and dust (often of industrial origin on Hamilton Beach) re‐suspended when tires pass over concrete/pavement. Clean Air Hamilton operates a mobile monitoring vehicle that has measured emissions from major streets, including Beach Boulevard, and the QEW. Beach Boulevard is one of the most seriously affected transportation corridors.




With respect to traffic air emissions, experience demonstrates that air quality effects reach ambient levels at distances of 300 metres distance from the right‐of‐way. Again a higher mix of truck traffic would mean greater distances. Highway ramps and the service road may not have as great an impact as the highway. Service road stop lights and associated idling impact local conditions. Traffic air emissions will affect recreational uses within distances of up to 300 metres of the QEW. Of particular concern are sensitive recreational uses such as the campgrounds and active recreational activities such as the Hamilton Beach Trail immediately south of the Woodward Avenue interchange with Beach Boulevard. In this area, the QEW is located in close proximity and the trail is elevated above the intervening lands. These lands of concern also include the Go Kart Track. Future traffic improvements may encroach physically onto Confederation Park, especially where changes to the service roads are required. Increased traffic, especially truck traffic may increase potential traffic emissions within Confederation Park. East Port Drive and internal traffic within Piers 25 and 26 may increase traffic emissions, especially along the Hamilton Beach Trail. 4.5.2. Noise Noise emissions are from two sources, industrial and transportation sources. In this instance, transportation sources are of concern. Noise is regulated using sound intensity measurements known as decibels (dBA). Provincial policy establishes the standards that are to be met and these standards are based on health risks. Sound is also perceived within a context and that context varies depending upon the landscape in which it is experienced and whether traffic sounds are background to other sounds that give pleasure and relaxation. The sounds of wildfowl, wind and waves and individuals and families strolling along the Hamilton Beach Trail and nature trails provide design guidance for “soundscapes” that are compatible with traffic noise where that noise is background. Two considerations apply to this Master Plan: • adverse noise impacts and the location of sensitive uses where applicable standards cannot

be met; and

• “soundscapes” and design where transportation noises are background to other Park sounds.

The QEW traffic is the dominant noise source outside the Park. With respect to current QEW traffic flows, the noise emanating from the expressway, not the service road, are likely to be 70ish decibels. The Provincial standard is 55 decibels, although for outdoor recreation, the level we may seek in the passive areas within Confederation Park may be 45 decibels. A standard of 45 dBA is more desirable level for a park.




At a distance of 30 metres distance from the right‐of‐way, sound levels decrease by roughly 5 decibels. For every doubling of the distance over acoustically ‘soft’ ground, the sound level would decrease by another 5 decibels. For example, sound levels decrease by 5 dBA at 30 m and another 5 dBA at 60 m and another 5 dBA at 120 m. Without taking anything further into consideration, 45 dBA isn’t achieved within 480m of the QEW right‐of‐way. As a rule of thumb, passive recreation should be set back at least 450 m from the QEW. Without mitigation, this is impractical at Confederation Park given proximity to the QEW. Noise levels may be higher if the proportion of trucks is higher. Given the industrial area and traffic to the United States, the proportion of trucks is high in this area. One truck has the same noise output as 10 automobiles and it has a much higher noise source. This height makes barriers more ineffective than if there were cars only on a highway. As well, if there are hard surfaces adjacent the right‐of‐way, sound levels won’t decrease as rapidly with distance. For example, parking lots and buildings associated with Wild Waterworks will transmit sound over a larger distance than soft green space surfaces in other areas of the park. Parking lots within Confederation Park should be carefully planned and redesigned. Those parking lots closer to the QEW, will carry noise deeper into the Park because of their hard surfaces. Where excess clean fill exists, earthen berms would be useful along the QEW/ service roads to mitigate sound and reduce sounds farther into the core of the park. Ramps and service roads don’t contribute much to highway noise levels because the road traffic volume on them are generally much lower that on the QEW freeway. The service roads are the responsibility of the City of Hamilton and any requirements the Ministry may have with respect to their usage during traffic blockages would be addressed with the Municipality. Generally, with respect to QEW improvements, the right‐of‐way provides for 8 lanes at the moment. Projected improvements can most likely be accommodated in the right‐of‐way. There may be some need to tweak the service roads, especially where on/off ramps are involved. Provincial transportation planning for the mid‐peninsula corridor may have implications for the QEW. 4.5.3. Public Health Several public health issues require consideration in the design and management of Confederation Park including: active transportation and larger population trends towards obesity and air quality. “Unless effective interventions to reduce obesity are developed, the steady rise in life expectancy observed in the modern era may soon come to an end and the youth of today may live shorter lives than their parents.” 96

96 New England Journal of Medicine, 352 (11) March 2005, pages 1138 to 1145




Obesity and related health risks, especially among young people, has become a public health focus for research and intervention. Unless these trends are reversed, we are apt to see circumstances where young people will develop what has been known as adult onset diabetes and related cardio vascular risks such as heart attacks and strokes. There is a relationship between obesity and urban form/transportation patterns97. Residents in sprawling neighbourhoods reliant on automobiles tend to be heavier and more vulnerable to obesity than residents in denser neighbourhoods where alternative transportation modes such as public transit, cycling and walking are used. The health risks associated with being overweight and obese reduce the quality of life of affected residents. The health risks are immense and the future medical costs will be profound if these trends are not reversed! Confederation Park’s Hamilton Beach Trail provides active recreation opportunities. User surveys conducted during the preparation of the Master Plan, reveal a wide cross‐section of men and women of various age cohorts using the Hamilton Beach Trail. On average, they travel over 7 kms per trip for an average time of almost 2 hours. Most use the trail weekly and many use the trail several days or every day of the week for cycling, rollerblading and walking. Most access the trail by automobile and park within the park. While usage declines in the winter and is highest in the summer, there are consistent patterns of year round usage. The majority of the users surveyed achieve the medical recommended activity patterns of 30 to 60 minutes of active recreation a day and most respondents use the Hamilton Beach Trail 4 to 7 times a week. The Hamilton Beach Trail and its expansion will play an important role in reversing public trends towards obesity. While urban air quality has improved as a result of industrial process and control improvement, environmental regulations and the efforts of non‐governmental organizations like Clean Air Hamilton, we have a better understanding of the risks associated with exposure. Urban mobile air quality monitoring demonstrates traffic generated particulates and emissions are elevated along heavily travelled major streets and highways. Health risks associated among residents within 100 m of highways and 50 m of major streets are higher than those living elsewhere98. We also understand there are no thresholds between good and bad air quality from a public health perspective. Some members of the Hamilton community are at risk, irrespective of pollution levels, and these members include infants whose lung capacities are not fully developed and an increasingly larger population affected by asthma and chronic obstructive pulmonary disease (COPD). Where possible, the Hamilton Beach Trail will be designed to be much greater than 100 m from the QEW. Provisions should also be made to display the daily air quality index so users can make decisions on whether to use the trail and at what level of activity.

97 Ontario Professional Planners Institute, Healthy Communities, Sustainable Communities, November 2007, pg 5 98 Finkelstein, Murray M., Michael Jarrett, and Malcolm R. Sears, “Traffic Air Pollution and Mortality Rate Advancement Periods” in the American Journal of Epidemiology, Volume 160, No. 2




Air quality and the emerging science on associated health risks needs to be monitored in the future. Important research conducted in Hamilton show that particulate emissions cause inheritable DNA changes in mice99. These results add a potential caution that will only be addressed definitively with additional research. Initiatives such as Clean Air Hamilton should be monitored to become aware of unfolding public health science as it may apply to Confederation Park. In a digital age and suburban culture, children do not experience nature as children have in the past. “A growing body of research links our mental, physical and spiritual health directly to our association with nature in positive ways. Several of these studies suggest that thoughtful exposure of youngsters to nature can even be a powerful form of therapy for attention deficit disorders and other maladies.”100 Exposure to nature may be necessary for emotional growth and development. Opportunity exists to introduce an environmental playground, in addition to regular playgrounds, to provide this “hands on” recreational exposure. 4.5.4. Hamilton Street Railway A rapid transit link is proposed by in the Metrolinx Regional Transportation Plan and the new City of Hamilton Official Plan from downtown Hamilton to Eastgate Square. Implementation of this rapid transit link will enhance the viability of bus linkage from Eastgate Square to Confederation Park’s new entrance at the northern terminus with Centennial Parkway. The proposed new entrance will complete the works necessary to provide a revitalized public transit hub and access to the Park’s central village component. 4.5.5. City of Hamilton Recreational Trails Master Plan (completed in December,

2007) The City of Hamilton Recreational Trails Master Plan is a comprehensive document which prescribes a multi‐use, off‐road recreational trails system throughout the City of Hamilton. This system links both the current and proposed off‐street as well as on‐street systems into a fully integrated, City‐wide system. The Master Plan completed in December, 2007 completes a process that was started in 1999 by staff of the former City of Hamilton. This Master Plan is intended to guide trails systems, development and management throughout the City from the present into the future, providing clear direction and decision making capabilities. The Hamilton Recreational Trails Master Plan is intended to be utilized as a working document/tool providing comprehensive and valuable information in order to make informed decisions on a system wide basis. The Hamilton Beach Trail improvements contained in this Master Plan implement the recommendations contained in the Recreational Trails Master Plan. The bridge over the QEW, which will be completed in

99 Samet, Jonathon M., David M. DeMarini, Heinrich V. Malling, Biomedicine Perspectives: Do Airborne Particles Induce Heritable Mutations? In Science, Vol 304, 14 May 2004, pgs. 971 and 972 100 Louv, Richard., Last Child in the Woods: Saving our Children from Nature Deficit Disorder, Algonquin Books of Chapel Hill, 2005, pg. 3




2010, was an important initiative proposed in the Hamilton Recreational Trails Master Plan. This bridge will provide a significant link from the waterfront to both the upper and lower City.




5. MASTER PLAN PROCESS Tourism represents unique planning and design challenges. The activity occupies peripheral landscapes. These landscapes are favoured by climate (cool summer breezes), landform (a superb beach), recreational opportunities (boating, fishing and hunting) and scenic quality (views to Burlington Bay and Lake Ontario). Tourists chose to recreate there. Tourism benefits from urban growth because growth creates the wealth that enables the expense and congestion creates the urban conditions from which respite is sought.101 Hamilton Beach’s, cool lake breezes, beaches, fishery and wildlife and scenic location became an important tourist destination. The attraction is the contrast that this landscape exhibits, in contrast to the busy, congested City. Success as a tourism destination often breeds failure in that, as Hamilton Beach became popular, increasing numbers of people were attracted by its charms thereby bringing the congestion from which respite was sought and compromising the landscape’s attractive qualities. In this instance, transportation and encroaching industrial development became competing functions. For example, the fishery was impaired by water pollution, views to both Burlington Bay and the Lake were blocked by landfill and bridges, cool summer breezes now carried industrial and transportation emissions and the sound of the shore environment were replaced with the din of highway traffic. The challenge facing Confederation Park is to recapture that unique Hamilton Beach recreational experience in a sustainable manner. 5.1. Master Plan Issues Here are the issues and responses this Master Plan considers in the redevelopment of the Confederation Master Plan. 1. Physical Dimensions of Confederation Park: The Park area is compressed by highway

interchanges and the QEW into an elongated parcel through most of its length. The width of the park varies from ± 80m to ±400m wide. Furthermore, highway noise and air emissions conflict with sensitive passive and active recreational uses and camping, a sensitive use, needs to be relocated and/or set back so as to mitigate to a negligible level potential adverse effects. This long narrow property together with noise and air emissions makes it difficult to plan for concentrations of recreational use.

Response: The Hamilton Beach Trail and Red Hill Creek Valley trails represent the unifying focal point for healthy active recreation and unite Confederation Park with Lakeshore recreation as far north/west as Burlington and south to the Niagara Escarpment. The

101 Christaller, Walter., “Some Considerations of Tourism Location in Europe: The Peripheral Regions ) Underdeveloped Regions _ Underdeveloped Countries – Recreation Areas,” in the Regional Science Association; Papers XII, Lund Congress, 1963, pg. 95.




central and eastern lakeshore provide opportunities for swimming and picnicking whereas the larger eastern shore provides the opportunity for clustered, more intensive recreation. Design these so as to provide healthy active recreation opportunities and link them along the Hamilton Beach Trail.

2. Confederation Park’s Environmental Setting: From 1791 to the present, the Park natural

landscape has been significantly altered. Ponds created by estuaries and Lake currents have been filled or reshaped. The largest remaining pond was deepened and redesigned in the 60’s to provide berthing for a Great Lake freighter. The Queen Elizabeth Way crosses the Red Hill Marsh and diverts the Red Hill Creek. The Van Wagner’s Marsh is an important wildlife habitat.

Response: The Marsh within Confederation Park should be managed so as to continue to

restore its natural habitat, together with the other Lakeshore ponds throughout Confederation Park in a manner that supports the Red Hill Creek landscape management and Windermere Basin restoration while achieving conformity with the new City Official Plan natural heritage policies. Landscape design guidelines are required to emphasize environmental reconciliation throughout the Park and especially around the Red Hill marsh.

Ecosystem rehabilitation work is being undertaken in the Red Hill Creek Valley and

Windermere Basin by the City and Harbour stakeholders. These need to be co‐ordinated with future Park design and management of natural heritage features within Confederation Park in order to achieve longer term valley and harbour restoration objectives and to provide for compatible recreational development. Consideration is given to removing some recreation uses in the eastern Park to better integrate the Park with restoration taking place along the Red Hill Creek and Windermere Basin.

The new City of Hamilton Official Plan identifies and applies Provincial and Growth Plan

natural heritage policy to many natural features within the Park. Refined Park environmental policies are required to achieve conformity with Provincial and Municipal directions. Consideration is given to restoring, to the extent possible, the drainage system that existed before settlement. Where possible, opportunities for habitat enhancement throughout the park are proposed.

3. Hamilton Beach’s Sensory Quality: Early European settlers encountered an environment

filled with the sound of waves and shore birds, scented with cool fresh moist winds. Shore, dune and wetland vegetation bordered the inviting waters of Lake Ontario and Burlington Bay. While the Park can’t recapture this sensory environment entirely, the redesign must focus on those areas in which highway traffic hum, industrial air emissions, highway traffic grit and asphalt odour become background to the sounds of waves, shore birds and the rustle of leaves and cool moist lakeshore breezes.

Sustainable development isn’t achievable without a design that manages the adverse

effects associated with surrounding industries and the QEW.




Response: Where land use incompatibility exists, noise, odour and air emissions require a design that includes mitigation and buffers to create a quality recreational environment to the extent practical. The sensory character of that recreational environment should focus on noises associated with lakeshore waves and shore birds, on scents associated with shore and dune vegetation and the coolness of lakeshore breezes. Recreational development associated with the Hamilton Beach Trail and beach focused activities, should be buffered as far as possible from the QEW. Where possible, earthwork and vegetation should be restored along the highway so as to muffle noise and to remove particulates as much as is practical.

Buffers of at least 100 m for particulate and as great as 400 m for noise should be sought

where possible. Shorter distances can be considered for where these distances cannot be achieved and where mitigation is provided in the form of earthwork and/or fencing.

4. Sustainable Park Development: What is sustainable development for Confederation

Park? In the short term, we define sustainable development as attendance and lease revenue meeting administrative, maintenance and capital costs. In the long term, sustainability means providing a quality, active recreational environment in which users achieve healthy active lifestyles, thereby reducing obesity rates and associated health risks and long‐term care costs. Sustainable development also means development that protects and enhances the Park’s natural heritage features in a manner that is co‐ordinated with the Municipal and stakeholder efforts taking place within the Red Hill Creek Valley and the Windermere Basin.

Response: The long term benefits associated with active lifestyles will result in substantial

health care costs savings. Where possible, barriers to access such as the absence of public transit and the improvement of amenities along the Hamilton Beach Trail, should be implemented in order that the City may achieve the substantial benefits this Park can achieve if properly designed and managed. Facilities such as Adventure Village, Wild Waterworks and food services in the park will be expanded using a business model to be developed during implementation based on return for investment.

Sustainability also means the administrative costs needs to be covered by user and lease

revenues. The Park Gatehouse will be removed. In addition, as facilities within the Wild Waterworks are enhanced, additional entrance and user fees will be charged. Other facilities that are underperforming, such as the campground, will be replaced with other, more sustainable recreation activities.

5. The Remaining Natural Heritage Features: Provincial and Municipal natural heritage

policy applies to the Red Hill Creek Marshes and ponds and lakeshore throughout the length of Confederation Park. The Master Plan must conform with Provincial policy, the new City of Hamilton Official Plan and policies of the Hamilton Conservation Authority. Some existing uses will be relocated and mitigation provided to protect the natural features. Special landscape maintenance/management and Park interpretive programs will also be required to emphasize an environmental reconciliation theme and to restore, to the extent possible the pre‐settlement drainage pattern. See Figure 17, Natural Heritage Lands.




Response: Restoration of the littoral wetlands and dune vegetation will guide natural

heritage preservation throughout the Park. Restoration of other plant communities will be provided throughout the park using natural features mapping prepared by the Conservation Authority. Key to the plan is the principle of protecting and enhancing natural areas and increasing overall areas where possible through restoration.

See FIGURE 17 – Natural Heritage Lands




Figure 17




6. Hamilton Beach’s Historical Heritage: “Government House” (King’s Head Inn) was the first building on Hamilton Beach. It was situated in the vicinity of the Red Hill Creek Marsh. The Hamilton Beach Trail approximates early aboriginal and settler trails. These should be used as unifying Park design themes. Both represent unique historical interpretive opportunities and design themes to highlight Hamilton Beach’s strategic importance.

Response: A number of historical heritage exhibits exists along

the Hamilton Beach Trail. These will be integrated using interpretive materials and the Lakeland Centre will be outfitted to better represent the “King’s Head” an inn and storage facility that was one of the first buildings in this area. Historic Plaque –

Government House

Pond, east end of Park

7. Jurisdictional Co‐ordination: Several jurisdictions, Federal and Provincial as well as

Municipal, have responsibilities within Hamilton Beach. Both the Hamilton Conservation Authority and the City of Hamilton have operational responsibilities within Confederation Park. Co‐ordination amongst these various and potentially conflicting functions and jurisdictions is challenging.

Response: Within the Park, uses will be harmonized. Buffers will be established along the periphery to buffers active and passive recreation from external noise, air and odour emission and, to the extent possible, take into account future QEW expansion and industrial land use changes beyond that may impact on the Park negatively.

8. The Recreational Mix: A variety of recreational uses and commercial services exist within

Confederation Park. Some make good use of the land while others do not. In addition, their development doesn’t blend well with the Hamilton Beach Trail or build upon Hamilton Beach’s natural and historical heritage or integrate well with other recreational uses.




Response: This Master Plan recommends the removal of the Lakeland Go Kart and the camping facilities. The Go Kart facility, is situated between the Queen Elizabeth Way and Lake Ontario at a key entrance way into the Park. This entrance needs to be enhanced and moved westwards in order to better welcome patrons into the Park. The Campground is underutilized and comparable, better quality facilities exist at 50 Point Conservation Area, a short distance to the east on Lake Ontario. These lands can be put to more intensive use with sports facilities identified as being needed within the City’s recreational facilities plans. These facilities will also support the commercial village. Architectural and landscape design standards are provided to better integrate recreation areas along the Hamilton Beach Trail so as to highlight Park natural and historical themes and provide better amenities to Hamilton Beach Trail users.

Wildwater Works Entrance Beaches Concession The campground will be replaced with signature recreation facilities prescribed in the City’s Recreational Facilities Report that builds upon the historical and environmental reconciliation themes, provides for a steady source of revenue and provides a lakeshore presence that anchors Hamilton Beach’s Hamilton Beach Trail in the same manner as Spencer Smith Park does in the City of Burlington. The nature and design, beyond a general description, is not prescribed by the Master Plan. The site is maintained for future development at such time as a significant opportunity is identified and a suitable design competition can be held to achieve a development that best meets design standards established in this Master Plan. This could be modelled in a design, build, finance, maintain (DBFM) model, similar, but simplified Infrastructure Ontario model. Buffers and habitat restoration zones are shown which are essential components of redevelopment.

9. Pedestrian, Cycling and Public Transit Access (Active Transportation): At one time,

public transit existed to Confederation Park. Confederation Park public transit is currently limited to June to Labour Day/weekends and holidays. Provision needs to be made to enable future public transit access in order to enable the widest possible use public use, especially among local neighbourhood residents. Provincial and Municipal plans are underway that will result in an east/west light rail system from which the park can be




serviced by bus and on foot along Centennial Parkway and the Red Hill Valley trail system. Park provisions need to accommodate this future traffic. Responses: Provisions are in place to provide pedestrian and cycling trail access over the QEW in 2010 via a new pedestrian bridge. Provisions will be made to integrate this access with the Hamilton Beach Trail. Provisions will also be made to remove the Gate House and replace with a public transit access turn around facility at the end of Centennial Parkway. Both improvements will better make this Park available to local neighbourhood use and enjoyment.

10. Building Condition Assessment: An overview of building conditions and assessment was completed. This provided an overview of existing assets and infrastructure.

Responses: Some facilities are in better condition than others. Some require limited

capital renewal while others are nearing the end of their service life cycle. This report is included in the Appendices.

5.2. Project Approvals and Implementation Confederation Park is owned by the City of Hamilton and managed by the Hamilton Conservation Authority. The Master Plan requires both City Council and Conservation Authority Board approval. More importantly, the structure of regulatory approvals flows through those approvals required of municipal projects. 5.2.1. Planning Act This Master Plan conforms to various Municipal planning instruments. New facilities proposed in this Master Plan involve existing buildings and uses provided for in Municipal planning instruments and expansions on lands well removed from natural heritage features. No planning approvals will be required for the proposed works with the exception of the “signature use”, to be determined, proposed to replace the existing campground. Depending upon the results of a future proposal call, that use may involve a public/private partnership for a commercial or institutional venture that may not have been contemplated by the current planning instruments. For the Master Plan, we have illustrated an example range of City uses that were considered appropriate to the Master Plan. 5.2.2. Environmental Assessment Act Federal and Provincial Environmental Assessment Act requirements may apply to the implementation of larger projects within the Master Plan. The Hamilton Conservation Authority and City of Hamilton are encouraged to review larger projects for Federal and Ontario Environmental Assessment Act and Class Environmental Assessment Act requirements before implementation.




The Canadian Environmental Assessment Act applies when triggered by other Federal legislative requirements (e.g., Fisheries, Species at Risk and migratory Birds Acts), when projects are situated on Federal Crown lands (e.g. the bed of the Red Hill Creek), or when projects are initiated by the Federal Government or are funded by Federal monies. Subject to confirmation with Federal officials, no projects are proposed which would trigger Federal Canadian Environmental Assessment Act approvals. Restorative planting is occurring consistent with ongoing restoration work in the Red Hill Creek Valley. This work will strengthen the ecological functions of natural heritage features, establish vegetative buffers around these remnant habitats and help restore the natural environment close to what existed prior to settlement. Subject to consultation with Municipal officials, no environmental assessments are required to implement this restoration and review by EASIAG is required. 5.2.3. Environmental Bill of Rights Municipal projects such as those contemplated within this Master Plan are not instruments, for the purposes of the Environmental Bill of Rights. Consequently no legislative or regulatory requirements apply.




6. PUBLIC CONSULTATION PROCESS 6.1. Introduction The guiding principles expressed in the treatment of Master Plan issues have been developed in consultation with the stakeholders and shared with the public in various forums including through the application of survey instruments examining use of the Park facilities and user expectations. These are described in the following sections. 6.2. Public Consultation Public meetings were held on three (3) occasions during the course of the Master Plan Update. These were all held at the Park in the Lakeland Centre meeting room. These were well advertised through newspaper notices, notices posted onsite, websites: Hamilton Conservation Authority and City of Hamilton and through direct e‐mail via Ward Councillor, Mr. Chad Collins. Public Meeting #1 – June 29, 2009 This introductory meeting was held to inform the public of the Master Plan Update process, gather initial information, comments and concerns. This was attended by approximately 17 people. Questionnaires were available which were filled out and returned. Comments and results were summarized and recorded. Public Meeting #2 – January 20, 2010 This meeting was extremely well attended with over 100 people attending. The format was an informative combination of open house, followed by a formal theatre style presentation and lively question and answer period. Public interest and participation was excellent and input/issues and concerns gathered were extremely helpful in guiding future directions and decisions. All those attending were given an equal opportunity to be heard and comments were noted. Given the large number of senior staff in attendance, the public received first hand information and concerns were duly noted. This meeting was attended by the Ward Councillor, members of the Conservation Authority Board and numerous City of Hamilton and Hamilton Conservation Authority staff. Overall, this was an exceptionally informative session for all who attended. Questionnaires were available both at the meeting and through the Ward Councillor’s website. Results of the questionnaires were documented and recorded. Staff of both the City and Conservation Authority subsequently provided the study team with guidance and direction on varied issues. Public Meeting #3 – June 10, 2010 The third public meeting was combined with the Conservation Authority Areas Advisory Board (CAAAB). Public notice was provided in the Hamilton Spectator. A presentation and question




and answer session was provided. Approximately 60 people attended and provided valued input. Steering Committee and Other Meetings In addition to the public meetings, a number of Steering Committee and staff meetings were held throughout the Master Plan process. These were valuable working sessions with staff to discuss and canvass issues and potential solutions. Minutes of meetings are provided in the comprehensive, limited edition version of the report. 6.3. Summary of User Surveys Several user surveys were conducted for the major recreational facilities in order to determine the users and user satisfaction. The surveys included a specific survey for Wild Waterworks, entrants at the Confederation Park gatehouse, and a detailed survey of and traffic counts on Hamilton Beach Trail users. This information will guide the development of the Master Plan. Appendices 6, 7 and 8 contain user data summaries. 6.3.1. Wild Waterworks and Park Questionnaire Multiple year data on Wild Waterworks user surveys provides insight into the operation and areas for improvement. Users appear to be generally satisfied with Wild Waterworks and use the facility on a repeat basis. Some users would like new uses that offer a wider range of experiences and additional shaded picnic areas. The majority indicate they are prepared to pay more than the current fees charged if such improvements are made. The Conservation Authority staff also distributed questionnaires at the Gatehouse. These Park users include those who use the Wild Waterworks and those who access the Park for other purposes such as the Hamilton Beach Trail and picnic areas. Access to the Park is by automobile and entrants have Conservation Area seasonal passes or pay an entrance fee. The former City of Hamilton established Confederation Park for its residents. However, many of the users come from more distant communities outside Hamilton. For example, thirteen of the 47 respondents come from outside the new City of Hamilton boundaries. Eighteen of the 47 respondents use the park once a month or more while an additional 27 users use the Park once every few months. From both the survey and public meetings, there appears to be a dedicated group of repeat users who access the Park for a variety of recreational uses. The exception is the campground, which exhibits below average, low occupancy rates. While these interviews were conducted of individuals accessing the park by automobile, the respondents indicate they also access the Park by trail and public transit, albeit less often. Thirty‐six of the 47 respondents travel more than 6 km and 29 travel over 10 km to reach the Park to use it. The improvement most sought were children’s playgrounds and consistent parking fees throughout the Park.




6.3.2. Waterfront Trail – User Survey (See Appendix 7) Detailed user surveys (31 were completed), which were conducted in August 2009, illustrate a user profile that is equally mixed between male and female and respondents were distributed evenly between age cohorts ranging between ages 15 and 79. The majority of the respondents visit the trail weekly, or more often. Most arrive by automobile and on average, travel over 7 km to do so, often in groups comprised of family and friends. Use is fairly evenly distributed between walking, rollerblading, cycling and jogging, depending on the time of day. On average, respondents used the trail 1.75 hours per trip and their usage is well distributed throughout the year with peaks of 14 and 25 times during the months of April to June and July to September. Respondents also report they use the Hamilton Beach Trail over 4 times during the winter months of January to March. The Hamilton Beach Trail is rated as either a “good” or “excellent” trail. In terms of activity levels, significant majorities of respondents observe that most are active 30 to 60 minutes a day and they walk or cycle on most days of the week. Most users report they come to exercise although they also report they appreciate nature and the waterfront landscape at the same time. They spend, on average, over $6 per trip and these usually involve food and refreshments. On a satisfaction scale, however, trail amenities do not score that well, especially trail oriented amenities. In that sense, satisfaction with the trail appears to exceed satisfaction with amenities associated with the trail and the opportunities to use other Park facilities along the Hamilton Beach Trail. Users appear to be consciously seeking opportunities for an active lifestyle and the Hamilton Beach Trail figures as an important facility enabling users to achieve public health exercise objectives for an active lifestyle. 6.3.3. Hamilton Beach Trail Survey (See Appendix 8) A detailed count of Beach Trail Users was completed by Authority staff daily during June and July 2009. This information was gathered for 15 minutes/survey per day generally in late afternoon, early evening. Use was recorded for walkers/joggers, cyclists, inline skating. Generally, walkers/joggers outnumbered cyclists 2:1. Walkers/joggers outnumbered inline skating 4:1. More surprising was the high daily use patterns and numbers of users on the trail, at upwards of 2,000 per day. The trail is heavily and regularly utilized on a daily basis by a wide variety of concurrent users.




7. MASTER PLAN AND LANDSCAPE STRATEGY The Confederation Park Master Plan is shown on Figure 20, Confederation Park Master Plan Update Diagram. Provision is made for both passive and active recreation throughout the Park along the Lake Ontario shore. The active recreation focuses on the Hamilton Beach Trail and beach activities. In the northwest, the Red Hill Marshes and lowlands between the Hamilton Beach Trail and the QEW are designated Natural Environment and provisions are made for additional restoration consistent with the work being undertaken in the Windermere Basin and the Red Hill Creek Valley. Within the Park, natural restoration focuses on recreating and enhancing both the wetland and aquatic habitat, interspersed with prairie savanna vegetation characterized by oaks and large open areas that existed prior to settlement, reconnecting and strengthening the aquatic features that remain on the lee of the dune system. The Go Kart Track will be removed and that landscape restored to an upland habitat. A secondary walkway will be provided at a lower level in this area to provide a more immediate water experience. The Lakeland Centre becomes the first building encountered from the eastern entrance. The central section involves an expanded “Adventure Village” that includes more exposure to the Hamilton Beach Trail, a trailhead to be established where the Red Hill Valley trail bridge overpass extends to the Hamilton Beach Trail. Interpretive materials will focus on the 1791 survey and the remaining restored natural features and the “Government House”, the Inn that was strategically located in that area to provide an overnight and strategic storage for early settlers. Interpretation to the present and other significant local initiatives are also contemplated. The eastern section provides for both passive and active recreation. Habitat restoration and a picnic zone are proposed immediately east of the enlarged “Adventure Village”. The park entrance will be relocated and gatehouse will be removed. A public transit terminal/entrance is to be established at the Centennial Parkway/South Service Road intersection as the main park entrance. The “Central Village” area will accommodate a mixed range of food service, retail, year round recreation and programmed activity uses. An “environmental play zone” is proposed south of the Hamilton Beach Trail west of Wild Waterworks to provide a unique children’s recreational facility. The existing Water Park, situated to the east, will undergo some expansion and upgrading. The Stoney Creek Pond will be maintained and the shore restored to natural habitat, and where possible both the Lakeshore and pond are to be integrated into a signature recreational development project, to be located on the lands presently occupied by the campgrounds.




7.1. Big Picture Ideas and Principles Jurisdiction and Land Use Challenges: Provincial and Municipal administration of Hamilton Beach was and continues to be multi‐jurisdictional. Multiple jurisdictions present unique co‐ordination demands on the various parties where sustainable development is required. Potentially conflicting land use and transportation facilities also present noise and air quality challenges. We propose the park design incorporate measures that buffer sensitive recreation activities to an area along the beach with parking and landscape restoration proposed closer to the QEW. Properly designed, this should provide for a robust, high quality recreational experience along the beach. Naturalized Play Facilities: Children develop motor and developmental skills through engagement with the natural environment. Within a suburban environment, increasingly mediated by digital equipment, the opportunity to experience the natural environment is becoming rare. An opportunity exists at Confederation Park to provide an environmental play facility for children that will contribute to their health and development, and to the community. This will involve a playground that is far more than a typical play environment for children, such as a grouping of manufactured play equipment over safety surfacing, set in a flat area of sod. The naturalized play environment proposed in this Master Plan consists of a combination of manufactured play components which are selected to fit the theme of nature, and the proposed topography of the site. The large naturalized area, or rough ground that can be experienced physically, is an equally important aspect of this play environment. "One approach would be to broaden the range of park and open space management styles to include "rough ground" approaches. This would reduce costs by reducing labour intensity: it would improve ecological diversity; and accommodate children's play more appropriately and less visibly. Long grass is a terrific camouflage agent and a good habitat for wildlife. Acres of space in communities.........are suitable for roughing up with wild flowers, scrubby bushes, trees, and interesting topography. Such treatment would make them both self‐sustaining and child‐sustaining."102 The City of Hamilton recently embarked on a multi‐faceted effort to make Hamilton the “Best Place to Raise a Child”. The naturalized play space at Confederation Park would be a valuable contribution to this principle. There are natural areas within the City where urban children can visit. The trails at the various conservation areas and Royal Botanical Gardens are also a favourite destination for many families. These areas provide wonderful facilities for hiking, walking, education, and visiting various garden and ecosystem areas. However, they are not intended for play. Picking of vegetation is

102 Moore, Robin C., Childcren’s Domain – Play and Place in Child Development, MIG Communications, 1990, pg. 242




discouraged, as is leaving the public pathway for the obvious reasons of protection of the indigenous plant communities which reside there. This Master Plan’s concept for the natural play area at Confederation Park includes "meadows" "the wild forest" "the river" and hills and valleys that can be run and climbed through.

Naturalized Play Environments and Activities These are archetypal landscape images that are fundamental to our human psyche; and provide rich play value. Hillside slides are one of the easiest ways to provide gross motor play in conjunction with interesting topography. The play space will include at least one slide, or possibly a series of slides. Water play is an essential component for this play space. It is also appropriate given the context of the site. This special play environment will provide children with the opportunity for outdoor play through direct interaction with elements commonly found in natural areas: plants, water, rocks, wood, and loose materials. By providing these "landscape types", and giving permission to pick the flowers and engage in experiential play, children will have the opportunity to not only visit a natural environment, but directly interact and play with it.

FIGURE 18 – Naturalized Play Facilities




7.2. Trends in Recreation The user surveys suggest the Hamilton Beach Trail attracts significant numbers of users throughout the seasons, although less during the winter months. Those interviewed, described their recreational activities as meeting public health recommendations for active living. Further surveys would be required to confirm whether users made a conscious attempt to achieve these objectives. Whether fortuitous or intended, a number of public health objectives are being met which need to be further encouraged to a wider population base. With the development of a QEW pedestrian bridge overpass and trailhead along the Hamilton Beach Trail, neighbourhoods bordering the Red Hill Creek valley to the Niagara Escarpment will be connected to the Hamilton Beach Trail. Significant increases in trail users will likely occur. Trail usage should be monitored carefully and new users interviewed after the overpass is opened in order to ascertain who the new users are, where they are coming from and whether the additional trail facilities provided in this Master Plan are sufficient. We recommend a follow‐up survey of trail users and data counts once the bridge is opened in late 2010. An annual survey could compare 2009 baseline data to subsequent years to confirm use patterns, changes and user types. 7.3. Recreation Zones The following recreation zones are established: Hamilton Beach Trail/Trailhead/Beach Zone: This zones the Lakeshore, beach and Hamilton Beach Trail for beach oriented recreation and trail uses. Commercial Service Nodes have been established along the Hamilton Beach Trail and these service trail users and provide commercial services to Park users generally. These are already in existence and no new services are proposed. As existing uses are upgraded and/or new leases established, these services should be redesigned with greater attention to access to the beach and the Hamilton Beach Trail. Particular attention should be given to signage and amenities designed to blend the service with Hamilton Beach Trail users by removing access barriers and providing bike parking. The Plan’s architecture and design guidelines are intended to guide the redevelopment of these uses so as to re‐orient these users to the Hamilton Beach Trail and provide more appropriate architectural style. A trailhead and interpretive centre will be opened at the Lakeland Centre utilizing the facilities with a standing exhibit on matters of historical and ecological interest. These could include an examination of “Kings Head” a government inn and strategic storage facility established in the mid 1700’s and habitat restoration work to name a few. Interpretive facilities could also be developed to explain the integrated landscape plan being currently implemented for the Red Hill Creek Valley. The unique arrangement with Kayanese could be the focus of interpretive displays and monitoring as the project unfolds. Possibly the trailhead centre could be used to house and display RAP documents and plans especially for the




restoration of Windermere Basin. Throughout the park, a comprehensive interpretive signage program will be established. Buffer zones have been established along the QEW within which natural restoration will occur in order to minimize and absorb noise and air emissions from the QEW and adjoining industrial lands. Parking facilities may be strategically located behind the buffer around the Wild Waterworks, and where possible, to service the commercial restaurants. Natural Heritage Features are those features described in the City of Hamilton Official Plan and are zoned for protection. These constitute remnant habitat and the policy intent is to strengthen and restore, as closely as is possible, the original habitat first encountered when the area was first settled. The existing rail right of way will be used for a natural interpretation trail and will be designed to appreciate the aquatic and avian environments while minimizing active recreational use. Designed viewing shelters will be installed to enable strategic viewpoints of the habitat throughout the seasons. Active Commercial Recreation Zones include the Wild Waterworks, Central Village and Adventure Village. The improvements proposed for Wild Waterworks can be contained within the existing building footprint. Greater attention needs to be placed on the redesign of buildings along the Hamilton Beach Trail. Alternative waste management facilities need to be implement away from the Hamilton Beach Trail and, where possible, increased visual access to and from the Hamilton Beach Trail and lakeshore need to be implemented. A Central Village is proposed with a mix of commercial, food, retail and entertainment facilities. An expanded Adventure Village is proposed towards the Lakeshore in order to enable additional commercial recreational activities. An environmental play zone is proposed between the Wild Waterworks and the expanded Adventure Village. This playground will include earth and water works designed to enable children to experience a naturalized landscape. See FIGURE 19 – Proposed Park Zones




Figure 19




7.4. Road Network and Parking The Confederation Park Gatehouse and Entrance road will be removed, relocated and redesigned. Parking and access facilities will be normalized throughout the Park. A uniform parking system across the Park will be instituted as an implementation and management issue. Some variation in the fee system may be instituted to encourage different users to park in different areas in order to maintain spaces for the restaurant and Wild Waterworks users. Van Wagner’s Road is a public street and it accesses the Park between Beach Boulevard to Centennial Parkway and beyond on the South Service Road. With the removal of the Gatehouse and existing entrance road, the public street system and internal Park roads may have to be modified and/or expanded to service parking and active recreation uses in the eastern Park. During QEW emergencies, portions of Van Wagner’s and the South Service Roads may serve as emergency routes. Furthermore, when the QEW is expanded to 8 lanes, some modifications may be required to the South Service and Van Wagner’s Roads. The buffering provisions discussed elsewhere in the Plan provide mitigation during these occurrences. Parking areas are somewhat re‐organized and more strategically located in order to make better use of existing parking and to provide a better noise and air quality buffer from the QEW. When public transit access is developed and as the internal transit improvements contemplated in City planning documents is implemented, parking fees should be reviewed, especially in heavy use seasons and weekends in order to generate revenue and ensure optimum use of public transit.

7.5. Pedestrian Network The Pedestrian Network at Confederation Park, has been designed using both a primary and secondary network/links. Many of the existing pedestrian trails, particularly the Hamilton Beach Trail, are becoming increasingly popular. These wider 6.0m asphalt paths, have numerous concurrent users and reach capacity at several times during the day, particularly warm weekends. To meet increased future use and to support the educational potential of the Park, a series of secondary trail links are recommended. These connect to other areas of the Park, including the beach/water offering a wider range of opportunities for the public. Side trails to natural or activity areas are also shown. These trails are intended to be 4.0m wide and may be asphalt, granular or boardwalk, depending on their location and function. In this regard, the geometry and surface treatment will filter and direct varied user groups. For example, in areas intended for walking/strolling/running, paths may be granular with more pronounced horizontal curves. Some links to natural areas are shown as boardwalks intended for slower movement, frequent rest stops and education opportunities. Both the primary and secondary trails loop or link to areas or activity zones. See FIGURE 20 – Master Plan Diagram




Figure 20




7.6. Architectural Design Principles The following principles are intended to be used when existing leases are up for renewal and/or when structural changes or new facilities are required to existing commercial and Hamilton Beach Trail accessory uses are contemplated. These are intended to achieve better integration between the beach, Hamilton Beach Trail, surrounding areas and the intended design of the Park. In the course of contemplating potential elements for the park’s expansion, we reviewed a variety of comparable sites in similar context in or near urban areas around the world. In the absence of any formal feasibility or market study by economists, we have based the general scale of the commercial hub, or Village, on a reasonably scaled development for a park of this size, acknowledging the mix already on the site, and with the goal of complementing the programme offer that is currently in place. This in part responds to the evolution over the years of usage patterns and access improvements that will facilitate visitation to the park. Ultimately, each individual component will need to be looked at by a potential proponent, with a detailed business case supporting any application, but the framework for the potential of the park is represented in the Master Plan and their relative location is illustrated. In general, it is expected that these commercial facilities would be modest in scale, with clearly defined design guidelines to be drafted and enforced to ensure consistency and cohesion of the development within the park setting. By keeping them independent, it allows for highly phased implementation only as demand and interest warrants. Ultimately, should the proposed village or any individual facility not proceed, the enhanced open space will still represent a considerable benefit to the park users. The Water Park and Adventure Village, as key anchors of the park, will continue to generate traffic to the park and its facilities, and synergistically, can also benefit from the traffic to the expanded programme elements to the east end of the Park. Wild Waterworks: Based on historical, current and anticipated attendance levels, it is anticipated that the current boundary footprint of the Water Park is sufficient to satisfy capacity requirements. Consistent with industry practice, it will be necessary to continue to budget for renewal and/or expansion of attractions within the footprint over time. The annual reinvestment will vary from year to year; typically a significant marketable improvement is made on a 3 to 5 year cycle to renew user interest. In between this, more modest improvements should be implemented. The annual amounts could vary between $500K to $2.5M depending on annual objectives and targets. In order to better integrate the Water Park operations with the overall park, the Master Plan suggests re‐configuration of service access and improvement of the interface along the waterfront and trail system. This could be integrated as part of the annual reinvestment strategy and phased if necessary, but will require more detailed study. The Plan also acknowledges food service re‐organization within the Master Plan.




Adventure Village: As a continuing operation with close access to and from the Village, it is expected that the increased utilization of the park would be to the benefit of the existing operation. The Master Plan as proposed, includes provision to permit the expansion of Adventure Village to increase the offer of attractions/amusements over time, as if and when the operator determines sufficient demand exists. The type and size of such additions would be considered on a case by case basis as the operator wishes to propose them. There is some capability within the existing lease limits for modest expansion at the operator’s discretion. The ability to modify/expand the lease boundary over time has also been considered and is illustrated which would require the operator to develop the business case to support such expansion. Implications of such expanded use would also be considered to ensure that any potential impacts to the adjacent areas are mitigated and integrated with the Central Village and natural heritage features. The proposed Village feature is centrally located between these 2 anchors, Adventure Village, Wild Waterworks. The contemplated components include: 1. Commercial units/pads: a. Contemplates a maximum total of approx. 8 commercial units, for a total of under 4,000

square metres (43,000 ft2), with the potential for individual units to vary in size from 325 square meters to 800 square meters (for an average of just under 500 square meters each), centrally located around a village core. It is expected that these could accommodate a variety of retail and food and beverage operations, likely weighted more towards food than retail. In general, it is expected that these facilities would be 1 – 2 storey’s maximum height, with clearly defined design guidelines as stated above, and capitalizing on views out to the lake. Variety of sizing implies flexibility in implementation and ability to phase and/or tailor the growth of the village to suit demand and market. Setting within the property would ensure that all units benefit from good foot traffic, visibility and views.

i. Potential retail opportunities could include convenience items focused at park visitors, or

tailored to the specific on‐ site user activities that will include inline skating, cycling, ice skating in winter etc., as well as snacks etc.

ii. The Food and Beverage mix could include a variety of styles, including walk up and table

service. Sufficient critical restaurant mass established over time, could make this a well known and popular destination within the City and beyond.

b. An approx. 300 square meter Warehouse/Service Facility has been allowed for, with the

expectation that additional servicing will be required for the expanded programme on site. Validation of the need and size for such a facility will depend on a detailed review of the Conservation Authority’s needs moving forward as each element of the Master Plan is considered in more detail. The potential to use a central point for receipt of incoming goods would then permit distribution to individual units in smaller less obtrusive vehicles, as opposed to having an extensive internal roadway system within the pedestrian focused portion of the park. It would also contribute support to festivals and events programmed in the park’s open spaces.




c. An Interpretive Centre. Allocated in the Master Plan at approx. 2,900 sm GFA, a scale

consistent with the size of the site and anticipated traffic levels. Drawing from the history of the site and the surrounding vicinity, it would generate school visits and complement the other uses on the site. It could also offer the ability to be programmed for events if integrally considered in its design.

In addition to facility programme above, infrastructure to facilitate the hosting of festivals and events will be provided. While the location and ambient sound levels will be a limiting factor for live performances, inclusion of an elevated informal performance stage on the edge of the large central open space area will maximize flexibility for such programming. Additionally, provision of infrastructure along the central pedestrian spine, which would integrate a unifying sculptural detail, can also be included. This will facilitate food and arts festivals, which could be set up along its edges, extending from the Village, using temporary shade structures. The combination of the spine and stage related to a contiguous open space ‘lawn’ would constitute a programmable, multi‐purpose space that could accommodate a variety of events of various scales.

7.7. Landscape Site Design Principles The following principles are intended to guide the landscape site development throughout the Park as detailed design and implementation proceeds.

• Confederation Park contains many diverse habitats both terrestrial and aquatic. These will form the foundation for further expansion of habitat areas and increased biodiversity.

• The Park is well positioned for “new branding” and “public image”. For example, a transformation of landscape management has begun to transform the turfgrass into meadows. The overall image/look of the park should be enhanced through varied, landscape maintenance and management practices which are more sustainable.




• The Park has large continuous green spaces which will accommodate both planned expansion and reorganization of facilities, but also, enhanced natural plant communities.

• Given the range of soil types, moisture regimes and remnant plant communities, efforts should focus on restoring and enhancing appropriate habitats.

• The underpinnings of both terrestrial and aquatic plant communities exist which should be used to restore plants no longer found on site, but that are regionally appropriate.

• Recurring annual maintenance and management dollars need to be redirected within the Park to allow cost effective, ongoing maintenance. For example, some areas currently mowed/maintained should be converted to meadows, shrub or tree thickets. However, highly visible public activity areas such as Wild Waterworks, Central and Adventure Villages can be maintained to a higher level.

• Landscape maintenance levels across the Park should not be uniform. Maintenance and management must work together with the principles of natural succession.

• In principle, the Park should move to a more sustainable landscape with varied degrees of sustainability.

• Indigenous, regionally appropriate tree cover should be increased in the Park. The phased removal of adventives and aggressive non‐native plants should be continued.

• Given the close proximity of these plant communities to a large urban population, public education should be a high priority through interpretive signage, setting up programs with local elementary and high schools. The Park represents an opportunity to educate children, our leaders of tomorrow, at an early stage with respect to plant communities, natural systems, hydrology, adverse impacts of urban runoff, dunes and a series of story themelines. In this regard, a combination of passive interpretive signage and active school outdoor classroom sessions will assist to educate people on the importance and vulnerability of urban natural systems.

• Confederation Park has an opportunity as an urban park to provide an abundance and range of passive/active recreation as well, a diversity of plant community types in a small area.

7.8. Operational Considerations Together with the phased implementation of the Master Plan, it is understood that new or upgraded facilities will be subject to a business case analysis. The Plan has set out in clear terms, the organizing principles, yet avoids being prescriptive to allow a logical, phased implementation. Park‐wide parking and user fees, must be examined annually as the Plan is implemented. Policies will be refined and evolve to meet changing market and business case model. A critical mass will need to be implemented at the Central Village that encourages




quality growth and centralized facilities within the Park. Public transit and a new entrance are examples of uses/activities which are co‐dependent.




8. IMPLEMENTATION STRATEGY & CAPITAL FORECAST 8.1. Capital Forecast – Order of Magnitude A preliminary capital forecast has been prepared as an “order of magnitude” to illustrate in 2010 dollars, the anticipated value of work. Phases are not shown as they may be variable. Overall costing has been considered as if the project proceeded as a single phase. Note: Underground utilities/servicing, buildings and lighting are excluded. Roads, walkways, landscape treatments are included as well as allowances for earthwork, hard and soft landscaping. General Park Re‐Development An overall allowance is included for the park upgrades and enhancements throughout. These have been estimated based on general programming shown on the Master Plan. Based on enhancements and upgrades to approximately 20 ha. of parkland.

m2 Cost/m2 ROM

Budget General Park Site Development

200,000

45 9,000,000

Central Village Area

m2 Cost/m2 ROM

Budget

Demolition

Asphalt Paving (entry road & parking) 30,265 20 605,300

Entry Road Buildings 20 500 10,000

Picnic Pavilion 245 20 4,900

Long Building (between 2 ponds) 550 20 11,000

Square Building (between 2 ponds) 55 20 1,100

Hamilton Beach Trail Paving 1,555 20 31,100

$663,400




m2 m2 Cost/m2 ROM

Central Village Budget

Improvements

Pedestrian Bridge 1 4 x 10 40 2,750 110,000

Pedestrian Bridge 2 4 x 10 40 2,750 110,000

Entry Feature at Road 1 1 50,000 50,000

Asphalt Paving 22,835 22,835 67 1,529,945

Boardwalk 1,825 1,825 300 547,500

Plaza Paving 3,385 3,385 150 507,750

Path Paving 4,445 4,445 75 333,375

Skating Rink 2,400 2,400 120 288,000

Skate Change Facility 60 60 2,000 120,000

Gazebo Feature in Rink 150 150 2,250 337,500

Themed Steel 1 1 1,000,000 1,000,000

Soft Landscape (Low Density 50%) 10,000 10,000 75 750,000 Soft Landscape (Medium Density 25%)

5,000 5,000 100 500,000

Soft Landscape (High Density 25%) 5,000 5,000 112 560,000

Site Furnishings 1 1 25,000 25,000

Tree Tops Play 1 1 TBD TBD

General Conditions 15.00% 15.00% 850,719

$7,619,789

TOTAL ROM $17,283,189

The new facilities listed below are under consideration as part of the redevelopment of Confederation Park and the

uses and associated order of magnitude budgets are guidelines only. The capital cost of the infrastructure required

by the development would be borne by the City. The facility costs would be borne by private developers following

design guidelines.

Floorplate No of Total Cost/m2 ROM m2 Floors GFA Budget

New Facilities

Public Interpretive Centre 1,450 2 2,900 3,200 9,280,000

Private Warehouse/Service Facility 300 1 300 2,000 600,000

Private Commercial 425 1 425 2,500 1,062,500

Private Commercial 350 1 350 2,500 875,000










7,140 $19,730,000

Facility Floorplate Total 5,690

Area Development Area Total 55,040

TOTAL PROJECT AREA 60,730

Works Cost/m2 $123.40




9. RECOMMENDATIONS AND CONCLUSIONS 9.1. Next Steps Moving Forward The Confederation Park Master Plan provides for the future by learning from past experience. Master Plan implementation will enable the Park’s environmental appeal to be re‐established while softening air and noise emissions from industrial and transportation facilities surrounding the park. It prescribes an integrated development framework while also providing for flexibility to enable land use conflicts and jurisdictional mandates to be sorted out as the master plan is implemented through site and facility planning. The plan focuses on what has been successful as well as present and future needs: the Hamilton Beach Trail and active and passive recreation. These themes will be refined as the following recommendations are implemented. 9.2. Recommendations

1. Business plans and analysis for other concessions within the Central Village zone are

recommended to determine their feasibility and approval requirements.

2. A feasibility and traffic analysis will be required of the proposed new entrance off Centennial Parkway. Ministry of Transportation and City of Hamilton review and approvals are also required.

3. Site and facility design will require attention to existing natural heritage features to ensure natural features and functions are preserved during implementation and enhanced following completion.

4. Where landscape plantings occur around new facilities and trails, indigenous/native species and oak savannah species are recommended to be planted in order to complement and enhance ongoing ecological restoration in the Park and throughout the Red Hill Creek Valley. These should recreate habitats which were pre‐existing prior to urbanization.

5. Archaeological assessments may be required and should be planned for where construction of new facilities or landscaping is proposed. Stage 1 and, possibly, stage 2 assessment are required.

6. Cultural heritage landscape consideration is required given the Park location in the Beach Boulevard Cultural Heritage Landscape. These matters can be addressed with City staff when new construction, alterations to existing buildings and landscaping are proposed.

7. Urban design guidelines for the Central Village zone should include City site plan guidelines in the detailed design.




8. Provide increased public education through on‐site interpretive signage/brochures and outreach education programs with schools.

9.3. Conclusions

This Confederation Park Master Plan provides for recreational and park development that demonstrates how ecological sustainability and best management practices can be showcased in this City Wide Park. It will blend the built and natural environments and enhance the quality of life for Hamilton’s citizens by providing for:

• an enhanced Hamilton Beach Trail as an integrating feature and an enhanced central recreational village core. It will also use the former sports fields to meet municipal outdoor recreational facility requirements and provide for habitat restoration and trails.

• integration of the Red Hill Creek restoration plans into the Master Plan to preserve and enhance remaining wetland and significant natural features.

• development and buffering existing, as well as new passive/active recreational facilities along the beach by providing facilities and parking between recreational facilities and the QEW.

• a sufficient buffer along the QEW to enable future highway expansion (if required) in a manner that preserves sufficient buffer without building and facility reconstruction.

• development of passive trails to better enable the public to enjoy habitat and view wildlife. • integration of the QEW trail overpass and new public transit entrance facilities at Highway

#20 into the Master Plan to reconnect the park to local neighbourhoods. • sustainable development in its many forms, including additional revenue sources, active

recreational opportunities, habitat restoration and public awareness and education.




APPENDICES Please note that appendices are only included in the complete version of this Report, which had limited distribution due to the considerable size of the document. Complete electronic versions were provided to the Hamilton Conservation Authority at the conclusion of the study. A‐1 Steering Committee A‐2 Site Photos (August 2009) and Open House Photos (January 2010) A‐3 Summary of Questionnaires, Public Meetings 1 & 2 (June 29, 2009, January 20, 2010) A‐4 Summary of Questionnaire, Confederation Park Master Plan Update A‐5 Wild Waterworks Survey A‐6 Waterfront Trail User Survey A‐7 Hamilton Beach Trail Survey and Breakdown of Beach Trail Users A‐8 Playground Comment Sheets A‐9 Minutes of Steering Committee Meeting A‐10 Minutes of Meetings A‐11 Building Facility Condition Assessment Report (Insyght) and Capital Asset Plan/Inventory Building Information A‐12 Visual References A‐13 Comparables/Relative Scale A‐14 Preliminary Master Plan A‐15 Various Hamilton Spectator Newspaper Articles: January 12, 20, 22 and March 4, 2010

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