Proposed Terms of Reference for a New Residential Development Near

the Secord Woods Community

Tosin Afolabi, Travis Bico, and Steve Scott

Executive Summary
The proposed project is a residential development in south-east St. Catharines on a vacant field
between the Welland Canal Parkway and Rockway Avenue. This piece of land has remained
unused since the development of the neighbouring Secord Woods community in the 1960s.
Most of the land in eastern St. Catharines has been developed, limiting the opportunity for those
who wish to live there. With an increasing population, the development of this vacant land can
provide a suitable location for new residents to live.
St. Catharines is the largest city in the Niagara Region of Ontario. As such, it is the community
that is best positioned to handle the projected growth of the region. However, since the region is
already mostly urban in nature and well developed, land to accommodate this growth is at a
premium.
For these proposed Terms of Reference, multiple sites were examined to look at their impact to
the environmental, economic, social, and cultural fabric of the community and whether or not
there would be a net negative impact compared with the proposed location along the Welland
Canal Parkway and Glendale Avenue.
Background research was conducted to determine historical land uses on the proposed site and
whether that would have a negative impact on the proposed development. When this information
is compared with information for the alternative site locations, we determined that the most
beneficial location for the proposed development is near the Secord Woods community along the
Welland Canal Parkway and Glendale Avenue. Development in this area will not cause any
major environmental concerns as the land is currently empty and the surrounding area is already
largely developed.
Additionally, improved access between the existing communities and major transportation routes
could make those communities more desirable to live in, and make it easier for residents to
access commercial, industrial, and institutional services.
After construction monitoring of the socio-economic, cultural, and environmental impacts will
be monitored to ensure that the predicted impacts of the Environmental Assessment are
consistent.

Table of Contents
Executive Summary ......................................................................................................................... i
1.0

Introduction .......................................................................................................................... 1

2.0 Statement of Purpose ................................................................................................................ 2

3.0 Identification of the Proponent ................................................................................................. 2
4.0 Indication of How the EA is to be Prepared ............................................................................. 2
5.0 Description of the Undertaking ................................................................................................. 3
6.0 Criteria for Site and Alternatives .............................................................................................. 3
7.0 Description of the Environment ................................................................................................ 4
7.1 Socio-economic Environment ............................................................................................... 4
7.1.1 Immediate Area .............................................................................................................. 4
7.1.2 Surrounding Area stemming ........................................................................................... 4
7.1.3 Cultural Environment ..................................................................................................... 4
7.2 Natural Environment ............................................................................................................. 5
7.2.1 Geology/Hydrogeology .................................................................................................. 5
7.2.2 Biology ........................................................................................................................... 5
8.0 Description of and Rationale for Alternatives .......................................................................... 5
8.1 Fourth Avenue ....................................................................................................................... 5
8.2 First Street Louth & Rykert Street ........................................................................................ 6
8.3 Welland Canal Parkway ........................................................................................................ 6
8.4 No Alternative ....................................................................................................................... 6
9.0 Assessment and Evaluation....................................................................................................... 6
9.1 Socio-economic Impact ......................................................................................................... 6
9.2 Cultural Impact ...................................................................................................................... 7
9.3 Environmental Impact ........................................................................................................... 7
10.0 Consulting ............................................................................................................................... 7
11.0 Commitments .......................................................................................................................... 7
12.0 Summary ................................................................................................................................. 8
13.0 References ............................................................................................................................... 8
Appendices ...................................................................................................................................... 9
A

Terms of Reference Summary Document ............................................................................. 10

ii

Aerial Photographs ................................................................................................................ 12

1934 ....................................................................................................................................... 12
1971 ....................................................................................................................................... 13
2000 ....................................................................................................................................... 14

iii

1.0

Introduction

The Niagara Region consists of 12 different municipalities located between Lake Ontario in the
north, Lake Erie in the South, and New York State in the East. Each municipality has a shared
interest in managing the overall growth over the next two decades which is projected to increase
by 9.3%1. Since the region is mostly urban in nature1, the Niagara Region Consolidated Official
Plan for August 2015 recommends that future growth be directed to these urban areas2. St.
Catharines is the largest of these urban areas, but will still need to find new areas to expand into
as the population grows. New residential areas will need to be identified and new infrastructure
put into place in an area that already has limited space.
One of these areas considered ideal for a new residential development lies on 14 acres of vacant
land that was expropriated by the Federal Government in the 1960s for an expansion of the
Welland Canal3. The Federal Government never followed-through with the plan. Developing this
property into a residential area could be part of the solution for addressing the regions growth by
providing over 100 units of new housing, as well as improving accessibility of nearby
communities with a new collector road. In order to properly develop this area into a residential
neighbourhood, an Environmental Assessment (EA) should be conducted to evaluate what the
socio-economic, cultural, and environmental impacts of the area could be.
The Terms of Reference for the proposed development will be submitted to the Ministry of the
Environment and Climate Change and will provide the basis for the framework that the
proponent will adhere to when conducting the Environmental Assessment that will be carried out
on the site. They will identify any potential impacts (both positive and negative) that the
development could have on the community, and whether the community will ultimately benefit
from the development. The Terms of Reference Summary Form is included in Appendix A.
These Terms of Reference outline a basis for the preparation of an individual Environmental
Assessment for a proposed residential development on vacant land in St. Catharines along the
Welland Canal and will be named Victoria Village. Aerial photographs obtained from Niagara
Navigator of the development site are included in the Appendix B. The 1934 aerial photograph
shows the area around the Welland Canal as being predominantly agricultural in nature. By the
year 2000 and the area around the canal is predominately residential, with the exception of the
site for this proposed development, which is an abandoned field.
These Terms of Reference have been prepared in accordance with Section 6.0 and 6.1 of the
Environmental Assessment Act and outline the commitments of the proponent with regards to
this proposal. These Terms of Reference have been prepared with the assistance of several
guidance documents:

"Code of Practice - Preparing and Reviewing Terms of Reference for Environmental

Assessments in Ontario" (MOE. October, 2009)
"Code of Practice - Preparing and Reviewing Environmental Assessments in Ontario"
(MOE. October, 2009)
"Federal/Provincial Environmental Assessment Coordination in Ontario - a Guide for
Proponents and the Public" (Canadian Environmental Assessment Agency and MOE.
June, 2007)
1

2.0 Statement of Purpose

The proposed undertaking is to repurpose unused land along the Welland Canal for a new
residential community and to open a new route for traffic along Rockwood Avenue, thereby
opening up access between the Secord Woods community and the Welland Canal.

3.0 Identification of the Proponent

The proponent of this project is Bayview Wellington Homes, a prominent residential developer
in the Southern Ontario area.

4.0 Indication of How the EA is to be Prepared

The EA report will be prepared and submitted in accordance with the requirements of an
approved Terms of Reference and the Environmental Assessment Act. The Terms of Reference
will conform to the following sections of the Environmental Assessment Act:
6(1) The Proponent shall give the Ministry proposed terms of reference governing the
preparation of an Environmental Assessment for the undertaking.
6(2) The proposed terms of reference must,
(a) indicate that the Environmental Assessment will be prepared in accordance with the
requirements set out in subsection 6.1(2);
(b)indicate that the Environmental Assessment will be prepared in accordance with such
requirements as may be prescribed for the type of undertaking the proponent wishes to
proceed with; or
(c) set out in detail the requirements for the preparation of the Environmental
Assessment.
6.1(1) The proponent shall prepare an Environmental Assessment for an undertaking in
accordance with the approved terms of reference
6.1(2) Subject to subsection (3), the Environmental Assessment must consist of,
(a) a description of the purpose of the undertaking;
(b) a description of and a statement of the rationale for,
(i) the undertaking,
(ii) the alternative methods of carrying out the undertaking, and
(iii) the alternatives to the undertaking;
(c) a description of,
(i) the environment that will be affected or that might reasonably be expected to
be affected, directly or indirectly,
2

(ii) the effects that will be caused or that might reasonably be expected to be
caused to the environment, and
iii) the actions necessary or that may reasonably be expected to be necessary to
prevent, change, mitigate or remedy the effects upon or the effects that might
reasonably be expected upon the environment,
(d) an evaluation of the advantages and disadvantages to the environment of the
undertaking, the alternative methods of carrying out the undertaking and the alternatives
to the undertaking; and
(e) a description of any consultation about the undertaking by the proponent and the
results of the consultation.
6.1(3) The approved terms of reference may provide that the Environmental Assessment consist
of information other than that required by subsection (2).
The Incorporation of Section 6.1(3) into these Terms of Reference is to give the proponent some
flexibility in the project and allow them to incorporate unanticipated information that is gathered
at future public consultations so that the concerns expressed by the community can be taken into
account.

5.0 Description of the Undertaking

The proposed undertaking of this project is to develop the empty field between the Secord
Woods community and the Welland Canal to increase the number of homes in the St. Catharines
area that can accommodate some of the projected increase in population over the coming
decades. Additionally, the proposed undertaking will provide a new connection between the
Secord Woods community and the Welland Canal Parkway, thereby reducing the traffic burden
on access points already in existence. The exact description of the undertaking will be described
in the Environmental Assessment Report. The goal of this project is to benefit the local residents
of the area, as well as local businesses and institutions. Because of its location, commuters may
also benefit from the project, as it allows quick and easy access to the major highway, the Queen
Elizabeth Way (QEW).

6.0 Criteria for Site and Alternatives

For this proposed residential development, an ideal site would include easy access to living
essentials and services including food, transportation, schooling, and industry, and be beneficial
for residents wants and needs, while limiting negative impacts on the natural and social
environment.

7.0 Description of the Environment

7.1 Socio-economic Environment
7.1.1 Immediate Area
The 14 acres4 of land considered for this proposal is approximately 170 meters long and 335
meters wide, between the Welland Canal Parkway and the eastern end of Rockwood Avenue.
The site lies next to Pic Leeson Park, which is home to three baseball diamonds and two soccer
fields. Immediately east of the location is the Welland Canal, which allows for passage of cargo
and recreational ships between Lake Erie and Lake Ontario. To the northwest resides the St.
Catharines Museum and Welland Canal Centre, showcasing the history of St. Catharines and the
Welland Canal, as well as a viewing platform for observing ships passing through the canal lock
3. There is also Ball Hockey International (BHI) St. Catharines, running seasonal ball hockey
leagues for all skill levels. West of the site is the community of Secord Woods, mainly consisting
of residential homes and also containing a public and catholic school. As well, to the south a
former gun range existed, but was remediated in 20105.
7.1.2 Surrounding Area stemming
Flowing out of the community to the east lays the Niagara-On-The-Lake campus of Niagara
College, White Oaks spa and resort, the newly developed Niagara Outlet Collection shopping
centre, as well as Woodend Conservation Park and the Royal Niagara Golf Club. Access to the
QEW is a short drive east along Glendale Ave. Across the canal to the southeast lays the St.
Catharines General Motors branch, employing roughly 2,000 people for the Niagara Region6.
The Glendale Bridge provides passage over the Welland Canal; however, ships can cause
disturbances in traffic when the bridges must let them pass.
To the southwest lies Emterra Group, a vital component of the waste and recycling collection
throughout the Niagara Region. Though it is not an area where garbage is dumped, odours can
arise in the community in the summer if winds blow from the south. There is also a railway that
passes through Glendale Avenue, which can cause traffic disruptions. Due to the distance from
the railway though, sound disruptions are very minimal. Along the canal, the Welland Canal trail
extends to the city of Port Colborne and Lake Erie.
To the west, resides the Pen Centre, the largest mall in the Niagara Region which has a variety of
commercial stores to meet local consumer needs. Close to these areas are two golf courses, the
Garden City Golf Course and St. Catharines Golf and Country Club. Highway 406 to the west of
the proposed development site connects to downtown St. Catharines, as well as the QEW going
north, or to the city of Welland and Brock University going south.
North of the site, there is the functional and maintained Victoria Lawn Cemetery. There is also
the Queenston Bridge, which provides an alternative route to the Glendale Bridge, as well as
giving a direct route to the town centers of Virgil and Niagara-on-the-Lake. Along the canal the
Welland Canal Trail extends north to the Waterfront Trail that connects to Lake Ontario.
7.1.3 Cultural Environment
The community of Secord Woods came into existence in the 1960s, while previously being
utilized for agricultural use7. Long before the existence of Secord Woods, the community of
4

Merritton existed to the west and grew independently of St. Catharines in the late 1800s, before
being amalgamated in the 1960s8. It is an area rich in history that has continued to grow as the
community has grown. With Brock University and Niagara College both being 5 to 10 minutes
away by car, this location is enticing for post-secondary students, while the nearby elementary
schools promote a family environment.

7.2 Natural Environment

7.2.1 Geology/Hydrogeology
Both hydrogeological and geological data will be collected and described in the EA for the
proposed area of development. These will provide further data to assess possible environmental
effects to the immediate area and surrounding.
7.2.2 Biology
The biological conditions and features of the area will be considered in accordance to the Federal
Species at Risk Act and Ontarios Endangered Species Act. Assessment will provide insight on
potential damages to the existing ecosystems and determine the severity of damage to existing
species inhabiting the area. Upon completion, commitments will be made to remediate damages
found to be severe or desired by local input.

8.0 Description of and Rationale for Alternatives

Alternative sites were examined that looked at their proximity to necessities, services, and
industry and whether they would be more beneficial than the proposed site. In order to create an
appealing and beneficial residential development in St. Catharines, a site that is near these things
that has little negative impacts on the environment is important. Based on these criteria,
alternative sites include: Fourth Avenue, between Greater Niagara General Hospital and Fourth
Avenue Square, vacant land across from New Hope Church Niagara, at the intersection of First
Street Louth and Rykert Street, and vacant land further up the Welland Canal Parkway, across
from the Welland Canal Museum.

8.1 Fourth Avenue

The Fourth Avenue location benefits from having quick access to the 406, which quickly
connects to the QEW. Commercial amenities surround this location, from grocery stores to
restaurants in Fourth Avenue Square and Ridley Square. It is also very close to the Greater
Niagara General Hospital, benefiting those who may require frequent health care. The site is also
close the Seymour Hannah Sports and Entertainment Centre, for recreational needs. For those
that work in downtown St. Catharines, this site is relatively close compared to the desired site.
The hospital is a major factor in why this alternative is undesirable, as sirens will be frequent and
loud. Furthermore, traffic along Fourth Avenue can be an issue at times and creating a new
intersection where the entrance to the development would negatively impact the traffic in that
area. There could also be additional noise pollution from Highway 406 along the north end of the
property.

8.2 First Street Louth & Rykert Street

For this location, the beginning of rural St. Catharines begins immediately to the west and newer
developments in the community of Western Hill lie to the east. The development here, would
allow for a more rural feel to homeowners, while still being close to the urban center. This site
has a few amenities, including the conference center, Club Roma and the elementary school,
Power Glen Public School. It is also close to Fourth Avenue Square and Ridley Square for any
commercial needs and the Greater Niagara General Hospital for health care needs.
Apart from these favourable factors, the location does lay close to many newly developed homes,
so the need for further development in the area can be questionable. Additionally, because it is
further from the city center and the highway, it will be more time-consuming for commuters to
reach their workplace. The undertaking in this location would not provide the same benefits to
the city of St. Catharines as our purposed site.

8.3 Welland Canal Parkway

The alternate Welland Canal Parkway location lies just north of the proposed location and
directly across from the Welland Canal Museum. This location has all the amenities of the
proposed location, but its access to Secord Woods and connecting it to the Welland Canal
Parkway is not advantageous since connections could only be made to low-density roads, which
may cause a strain to local traffic.

8.4 No Alternative
The three alternatives proposed have their merits, but ultimately, they do not benefit the
surrounding community as heavily as the proposed site. By creating an alternate route for the
Secord Woods community to travel, as well as, expanding residential development in a
commercially, industrially and institutionally significant area of St. Catharines, the do nothing
alternative would be the most favourable choice for the undertaking.

9.0 Assessment and Evaluation

9.1 Socio-economic Impact
The socio-economic effects of this development appear to be overall, positive. Opening up a
route between Secord Woods and the Welland Canal Parkway would greatly improve the
transportation flow within that area. Due to the road expansion, traffic levels will likely increase
along the Welland Canal Parkway. We will monitor the traffic levels before the development of
the road and quarterly after construction for two years to observe any gross changes. Since the
corridor is open, the community has better access to the QEW from Glendale Avenue. This is
beneficial to commuters who work outside St. Catharines and are looking to locate themselves
closer to a highway for these purposes. Also, new and long-time employees of the nearby
General Motors plant may look to this area for housing since it is close to their work.
The homes are priced, starting at $300,000. These higher-end homes should help raise the
property values of the nearby community benefiting the existing homeowners who can receive
more for their property if they decide to move. With the rising land value, however, taxes could
potentially increase, which may not be favoured by current homeowners.
6

With more residents in this area, the commercial establishments may help increase business to
restaurants and commercial centres found in the area, including the Pen Centre and the Niagara
Outlet Collection. Also, recreational centers in the area, such as the Merriton Arena, Lion Dunc
Schooley Pool, Pic Leeson Park and BHI St. Catharines may see increased participation and
interest in their services. Furthermore, for those interested in golf, the Garden City Golf Course
and Royal Niagara Golf Club are a quick drive from the site.

9.2 Cultural Impact

Since the surrounding community has been present since the 1960s, new development could be
an area of distress for nearby residents. Though the empty field the site will replace is not an
important part of the community, some residents use it for dirt-biking and walking. The potential
exists that a dirt-bike park may be constructed in the future, depending on the comments received
during consultation; it is not being considered at this time. Creating a path to the Welland Canal
Trail is being considered, which should allow a more accessible and safe walking trail to the
existing trail. To evaluate the effects we will release a survey after the first year and ask for
opinions and improvements.

9.3 Environmental Impact

Due to the nature of the site, environmental impacts from construction should be very minimal.
The southern portion of the development, which overlaps property that formerly belonged to a
gun club, was remediated in 2010 to remove remnants of lead bullets and so construction should
not create any issues. The soil will be tested when it is being cleared to ensure that lead levels are
below acceptable limits.

10.0 Consulting
The proponent will complete a consultation program in relation to this development by posting
newspaper advertisements for the public to attend open houses to voice any concerns they may
have and to offer suggestions that may be beneficial to the community. At least one open house
will be held for the public and stakeholders to attend.
As well, a list of Aboriginal groups that may be affected by, or have interest in the proposed
development, will be created by consulting with the Ministry of Aboriginal Affairs and
Aboriginal Affairs and Northern Development Canada. Comments will be solicited from these
Aboriginal groups to determine their concerns, if any, of the proposed development. If there are a
sufficient amount of concerns are made, an additional open house will be held to consider them.
Otherwise, concerns will be taken into consideration on an individual basis.

11.0 Commitments
Plans for development include a crosswalk at the end of Rockwood Avenue to connect
pedestrians from the development and surrounding community to the Welland Canal Trail.
Furthermore, the development allows traffic to connect from the Secord Woods community to
the Welland Canal Parkway. It is our commitment to properly construct and maintain the road
and passageway up to standards until the development is completed.

In terms of the environmental impacts the project may cause, tests will be performed before
construction to identify any potential concerns. Upon completion of environmental tests on the
site after approval of the EA, a plan will be created to prevent or mitigate any potential concerns
that arise from the test results.
Monitoring will be completed to document any issues that may arise during and after
construction, such as, an increase in traffic, landscape and drainage changes, and assess social
impacts to the surrounding community. Social impacts will be assessed by sending a survey to
the surrounding communities upon completion of the project, assuring any last details can be
dealt with.

12.0 Summary
These Terms of Reference outlined the basis for the preparation of an individual Environmental
Assessment for a proposed residential development on vacant land along the Welland Canal to
be named Victoria Village. Alternative sites were examined, but it was determined that the best
location is in the proposed area. Additionally, the socio-economic, cultural, an environmental
impacts will not have a negative impact on the community and so the project should proceed as
outlined. A Record of Consultation will be included in the final Environmental Assessment
Report.

13.0 References
1. https://www.niagararegion.ca/social-services/technical-report/demographics-report.aspx
2. Niagara Region Consolidated Official Plan for August 2015
3. http://www.stcatharinesstandard.ca/2011/05/20/phantom-canal-haunts-plans-for-go-trainexpansion
4. http://en.clc.ca/property/41
5. http://www.stcatharinesstandard.ca/2009/03/23/from-gun-range-to-subdivision
6. http://www.wellandtribune.ca/2015/08/07/13m-investment-at-st-catharines-gm-plant
7. http://www.tbhs.ca/images/uploads/EvolutionofStCatharines.pdf
8. http://www.merritton.com/2010/08/merritton-history-part-1.html
9. Unknown, (1934), Welland Canal [ONLINE]. Available at
http://maps.niagararegion.ca/Navigator/ [Accessed 10 October 2015].
10. Unknown, (2000), Welland Canal [ONLINE] Available at
http://maps.niagararegion.ca/Navigator/ [Accessed 10 October 2015].
11. Ministry of Natural Resources, [St. Catharines] [air photo enlargement]. [ca. 1:12,500].
714/MN/15. Photo #309. Peterborough, Ont.: Ministry of Natural Resources, 1971.

Appendices

Terms of Reference Summary Document

10

11

Aerial Photographs

1934

12

1971

13

2000

14