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As populations and development boom in many cities, finding space for new parks is creating challenges—and spurring innovation

This case study is part of the 2020 Canadian City Parks Report, showcasing Inspiring projects, people, and policies from across Canada that offer tangible solutions to the most pressing challenges facing city parks.

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Much of the low hanging fruit is gone, but cities are finding the fruit higher up tastes a bit more interesting. Or, as Ann-Marie Nasr, Toronto’s Parks Development and Capital Projects Director put it: “Part of not having a lot of land around to turn into parks means you become more inventive, right?”

Nasr is overseeing a burst in innovative park building, including rooftop recreation facilities, parks over rail corridors, and linear parks in hydro corridors. Vancouver’s experience is similar, with designs for a new downtown park including an elevated walkway. “We need to think in three dimensions,” Dave Hutch, the Vancouver Park Board’s Planning Director said, and “use every square inch, especially on small sites.”

While the majority of the projects in this article were in development before COVID-19, physical distancing requirements have put additional pressure on cities to creatively and quickly expand public space, potentially bolstering arguments for and accelerating planning for new public spaces.

However, as these constraints push public space creation into so-called “leftover” spaces in a city, such as under a highway or along rail lines, it can have unintended effects. This includes displacing people occupying those spaces for shelter and potentially spurring gentrification.

Despite its popularity, many have criticized New York’s elevated High Line park as contributing to unaffordable housing and catering to overwhelmingly white visitors despite the racial diversity of the neighbourhood. In response, the Friends of the High Line spun out a new entity called the High Line Network to advise infrastructure reuse parks on more inclusive practices. Toronto’s Bentway and The Meadoway are the groups only Canadian members. The Network has published toolkits with strategies for community-based planning and equitable development principles, which can be helpful guides as Canadian cities embark on a new era of park building.

Put A Park On It

Rendering of Oakridge Mall park greenspace. Credit: Vancouver Park Board

One trend likely to grow is building parks on top of other infrastructure, like a parking garage. These are called strata parks because of their stratified ownership: the city doesn’t own the land underneath, just the layer on top.

On its face, it seems like a win-win situation. A property owner gets to build something and the city gets a park on top. But in reality, strata parks present a number of logistical, design, and legal challenges with which cities are grappling. 

The structural integrity of what is below dictates the amount of soil you can place on top, which impacts landscaping. Additionally, when the waterproof membrane separating the park from the structure below needs replacing or maintenance, the park must often be scraped off and rebuilt. These parks can end up less green because of these factors, Nasr said—an issue when cities facing climate change want to add more greenery for stormwater management and urban heat mitigation.One city that has seen rising pressure to accept strata parks is Richmond Hill. “Land value has appreciated quite substantially in the last 10 years,” said Michelle Dobbie, the city’s Park Planning Manager, leading developers to maximize land by pushing parking underground.

Aside from the design challenges of strata parks, there’s a host of legal and logistical implications, like long-term financial liability for future upgrades. Recognizing that this pressure is not abating, Richmond Hill has commissioned a study to look at strata parks and help guide its decisions on accepting this type of parkland.

Vancouver’s plans for a new park partially on top of the redeveloped Oakridge Mall shows both the promise and complexity of strata parks. The 3.6 hectare park will rise from ground level onto the mall’s roof with areas for social gathering, gardening, and sports. Using the roof allowed the city to create a much larger park, Hutch said. 

The Park Board worked hard to negotiate an ownership structure with the mall, Hutch said, including a provision that park maintenance and future capital renewal are paid for and done by the landowner, not the Park Board. A first for the Park Board, this was negotiated due to the complexity of having multiple maintenance crews on site and liability if a Park Board staff person damaged the protective membrane. An operating committee including Park Board and mall staff will be created to troubleshoot issues.

Connecting The Network

High Level Line Grandin Junction in Edmonton. Credit: High Level Line

As we reported in last year’s Canadian City Parks Report, parks planning is increasingly concerned with connectivity. Linear parks, trails, and other green spaces that thread their way through tight spots—repurposing rail corridors and hydro corridors to do so—are becoming more common.

One such project is the Edmonton High Level Line, a vision by a group of community members that has caught city officials’ attention. The plan proposes connecting neighbourhoods along a 4km route using an existing rail corridor across the North Saskatchewan River. It’s an idea that follows the principles of connectivity put forward in the city’s 2019 Downtown Public Places Plan.

The project envisions tying existing parks together, but also plays off opportunities on private lands. For example, property owners could develop their sites to open up onto the Line or provide amenities. “Edmonton has this great asset in the North Saskatchewan River and the River Valley…but it also acts as a real barrier,” said Kevin Dieterman, spokesperson for the group. But the project isn’t just about moving from A to B, he said, it’s “the experience that you have along the way.”

From Street To Park

Montreal pedestrian Street. Credit: Park People

Land in the public right-of-way, such as streets, is increasingly being viewed as a resource for temporary and permanent public space creation. New designs that employ low curbs and special paving allow streets to be used more flexibly. Toronto calls this design approach “parks plus.” As Nasr explained: “If you think of it as an equation, parks plus streets equals an amazing public realm.”

However, it’s Montreal that has been a pioneer with 15 shared/pedestrian streets developed in the last five years adding to the 50 already in existence. The city’s Shared and Pedestrian Streets Program (“Le Programme de rues piétonnes et partagées”), which has developed an inspirational catalogue, supports the implementation of projects that reflect the culture of a neighbourhood, including a participatory design process.

While street reallocations have been happening for years, the practice accelerated during COVID-19. Starting in April, cities across Canada including Winnipeg, Toronto, Montreal, and Vancouver, began turning over car lanes to pedestrians to create temporary public space to help with physical distancing. Advocates and urbanists have since deepened that conversation. For example, placemaker Jay Pitter highlighted the “spatial inequities” that underscore the limits of such reallocations and which populations they serve. She has called for the need to centre discussions around racial and socioeconomic inequities, and specifically anti-Black racism, as cities expand public space—a call that other writers have echoed. Rising incidents of anti-Asian racism in public spaces, for example, have also been reported in Canada during the pandemic.

Private Space, Public Amenity

Over a third of cities we surveyed reporting increasing demand for privately-owned public space development (POPS). POPS are built and maintained by private property owners, with city agreements to ensure public access. Cities like Toronto and Vancouver already have many POPS, while Mississauga, Richmond Hill, and Waterloo said they were contemplating their use.

“I think being clear about [POPS’] role and function is really important,” said Nasr. In Toronto, POPS have been used to create a more connected public realm, like a landscaped walkway or small gathering space in the front of a building, but not to replace requirements for parks. They can also help take some pressure off parks in dense areas, Nasr said.However, the “publicness” of POPS have been called into question with disputes over access and encroachment from businesses. And since they’re privately owned, these spaces could be redeveloped over time, as has happened in Vancouver. In a bid to raise awareness and promote better design and visibility, Toronto mapped POPS and produced design guidelines and a signage strategy to clarify that POPS were public spaces.

To Expand Or Improve?

Square One redevelopment public space rendering in Mississauga. Credit: Oxford Properties Group and Alberta Investment Management Corporation

Weighing the cost and benefits of expanding parkland versus improving the parkland you have should be part of the discussion, said Chris Hardwick, Principal at 02 Planning + Design, who has worked on park plans in Edmonton, Halifax, Toronto, and Winnipeg.

In cases where land is expensive and scarce, the best strategy may be to deploy resources to improve parkland to ensure it’s performing its best, Hardwick argued. However, it’s critical for cities to get ahead of development by targeting land acquisition in areas that are slated for growth, as opposed to playing catch up later.

Different challenges exist in different urban contexts, depending on growth and demographic change, he said. Some cities are dealing with a lack of park space, while others are dealing with too much or the wrong kind of spaces. For example, Prince George reported turning underused baseball diamonds into dog parks.

Other cities are in between. They’re shifting from a more suburban style of development to higher density development, necessitating shifts in policies, financial tools, and planning to ensure new neighbourhoods have the parks they need as they grow. For example, Surrey reported land banking in growth areas to prepare for future development.

Toronto’s Nasr said that suburban malls are becoming another focus of new park development, with some malls slated to be transformed into the centres of new, dense neighbourhoods. “They’re big blocks of land in which parks become an organizing element to inform those transformations,” said Nasr.Toronto has three major mall redevelopments underway that contain new anchor parks, including Cloverdale, Yorkdale, and Agincourt. In neighbouring Mississauga, the redevelopment of Square One Mall will include 37 towers and new parks.

How cities are dealing with the high demand for—and high controversy around—dog parks

This case study is part of the 2020 Canadian City Parks Report, showcasing Inspiring projects, people, and policies from across Canada that offer tangible solutions to the most pressing challenges facing city parks.

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If you want to see a park staffer cringe, just mention dog parks. There’s hardly a park amenity more controversial than setting aside space for dogs to run off-leash in green space.But off-leash dog areas are also increasingly in demand, as 85% of cities noted in our survey, and they can provide important social benefits. However, cities are challenged to find suitable land and deal with community concerns. The COVID-19 crisis further complicates the issue as many Canadian cities including Edmonton, Ottawa, Calgary, and Toronto restricted, or closed, off-leash parks to encourage physical distancing. In May, Edmonton opened up off-leash parks as part of its first phase of re-opening. However, longer-term physical distancing requirements may challenge cities already struggling to provide enough off-leash space.

The Struggle Over Limited Space

Dogs off-leash area. Credit: City of Calgary

As cities grow, so does our population of four-legged friends. Many cities are under pressure to create more space for dogs, while juggling demand for other park uses, which leads to conflicts.

In 2011, Waterloo dropped a pilot to create six off-leash areas due to lack of public support and is now looking to expand their one off-leash area to three. Guelph city council nearly closed the city’s only fenced-in leash-free park due to community complaints, before reversing course. The animosity can quickly reach ridiculous heights. In Toronto, someone locked up an off-leash dog area and a resident played recordings of barking out a window to rile up the dogs.

Conflict with natural areas is another area of concern, with the potential for off-leash dogs to trample sensitive plantings and disturb wildlife. Ron Buchan, Parks Community Strategist for the City of Calgary, said that the city has turned down community requests for new off-leash areas adjacent to natural areas. However, of the city’s 152 off-leash areas, only 11 are fenced, meaning that in parks where existing off-leash areas abut natural spaces, there is nothing physically stopping dogs from heading into sensitive habitats. To address this, Calgary is working on initiatives that include a park ranger program targeted to high user conflict areas, education on habitat restoration and dog etiquette, and an adopt-a-park program to encourage stewardship.

The number of off-leash areas varies widely between cities and many appear to have been planned in an ad hoc manner. Finding appropriate sites to locate off-leash areas is difficult, especially in cities already dealing with park deficiencies.

“There are many areas in Hamilton that are parkland deficient,” Hamilton city staff said. “There is a bit of a tug of war between folks who want land for people and those that want it for dogs.” In an indication of how challenging space constraints have become, the last two off-leash areas the city created were approved by council direction even though they didn’t conform to the city’s policies on size.

A citywide strategy for managing and expanding off-leash areas can go a long way to alleviating concerns—both from dog owners and others, said Eric Code, founder of the 2,000 member Toronto Dog Park Community Group. “If you’re going to walk across a tight-wire, you need a pole,” he said. “That’s what policy is.”

We found one third of cities have off-leash strategies that include planning and design criteria for establishing and managing areas citywide. In Calgary, Buchan said the city’s decade old management plan helped “tremendously” by providing a clear decision-making framework for where and how to expand off-leash areas and clarity in responding to residents. 
In Ottawa, the city uses a point system to designate off-leash areas. The city allows dogs off-leash in 175 parks and in 62 others only in certain areas or at certain times, with nine of these areas fenced-in.

The Social Benefits Of Dog Parks

Etobicoke Valley Mississauga. Credit: Eric Code

For Eric Code, the benefits of the dog park go far beyond being a place for his dog to play—they create a sense of community, providing a “third space” between work and home where he connects with others.

Taking your dog to the park makes it easier to start up a conversation with a stranger, Code said. You wouldn’t necessarily go up to people throwing a ball around and start chatting, Code said. But you can easily meet new people at the dog park.

“In today’s world, especially in Toronto, where life can be a bit cold, there’s a small town feeling in dog parks that you just can’t get elsewhere,” he said. The importance of dog parks for social connection is backed up by research. One study found having dogs increased the likelihood of people meeting others in their community, acting as an ice-breaker, while another study found that dogs help reduce feelings of social isolation and increase the chance of building social support networks. Dog parks have also been shown to increase perceptions of safety as dog owners use parks in the “off hours” of early morning or evening.

Instill A Sense Of Responsibility

P.U.P.P.Y patrol. Credit: City of Calgary

Some Canadian cities rely on, or are developing, programs that involve community members to fundraise for and manage dog parks—a response to both budgetary pressures and desires for greater community engagement.

After noting the city’s “limited resources,” Edmonton is studying the creation of community-operated off-leash areas to help expand offerings. Montreal’s Club d’Agilite de Montreal is run by a community non-profit that provides space for dog agility training. And in Gatineau the 1,200 member Aylmer Canine Club has an agreement with the city to run an off-leash area in Paul Pelletier Park.

But it’s Mississauga that has the most developed community-run off-leash arrangement out of the cities we surveyed. In 1997, a city by-law created off-leash zones in parks, but also placed the costs and management on a non-profit called Leash-Free Mississauga; however, in 2016 due to funding challenges as demand grew, the city stepped in with financial support.

In Calgary, where the city runs a volunteer program called P.U.P.P.Y (Pick Up Pooch’s Poo Yourself), Buchan said that dog park community groups help reduce complaints as people take on a stewardship role.

Eric Code noted that programs to get residents more involved in dog parks can be a way to harness people’s frustrations for good. It can help build a sense of responsibility, reducing incidents of dog owners not respecting the rules.

“If you make people volunteers, and give them the ability to make the dog park better, they’re going to take that much more care and pride in it.” Code said.

Get Creative

High Park dog hill in Toronto. Credit: Eric Code

  • Find space outside parks. Calgary hopes to create more off-leash areas within hydro corridors, while also encouraging developers to create dog amenities within new developments. In the hopes of encouraging the same, Toronto released its Pet-Friendly Design Guidelines for High Density Communities.
  • Improve existing spaces. Kingston is increasing lighting at its dog parks to make them safer and more inviting to use at night and in winter.
  • Create temporary spaces. Edmonton and Regina have created temporary off-leash areas in facilities like tennis courts when they’re not being used. Guelph has approved the use of 41 sports fields for off-leash use when not occupied.
  • Create separate spaces. Hamilton piloted an enclosure for small dogs only at one park and plans to expand the offering after positive feedback.
  • Listen to feedback—and react. North Vancouver is piloting a new off-leash area along its waterfront, collecting public feedback and updating a website to show what’s been altered.
  • Turn poop to power. Both Waterloo and Mississauga have dealt with the issue of growing dog waste in parks by testing designated bins that divert dog poop to facilities that turn it into energy.

Parks are not “nice to haves,” they are critical social, health, and environmental infrastructure for Toronto. City parks are lifelines in extreme heat waves. Social connectors in an age of increasing polarization. Keepers of biodiversity despite ever fragmenting urban landscapes.

To meet the biggest challenges we face in Toronto—climate change, biodiversity loss, social polarization, rising inequality—we need whole new ways to plan, design, manage, program, and govern parks.

This shift requires doing things differently. It requires ensuring proper funding, sharing decision-making power, addressing inequities head-on, and prioritizing action on truth and reconciliation with Indigenous peoples.

As Toronto faces upcoming municipal elections, we urge candidates for Mayor and Council to accelerate the transition to a more equitable, resilient future for city parks by working with us on the ideas presented in this platform.

Money Matters

Credit: MABELLEarts

All of the ideas in this platform require us to invest more time and money into city parks. In our 2022 survey of residents of Canadian cities, 87% said they support more investment in parks.

Responsible for 60% of Canada’s infrastructure, municipalities like Toronto receive only 10 cents on every tax dollar. That means our three levels of government, each of which has responsibilities for our natural environment and human health, all need to come to the table.

This is easier said than done. The multiple benefits of parks—health, environmental, social, economic—actually make it harder to invest at the scale we need to. Why? Because the benefits of investing in parks are distributed across many different ministries and government departments, each of which is accountable for its own budgets and plans. That is why we need to support governments to pursue an ambitious, whole-of-government approach to investment in Toronto parks.

Investing more in city parks is not an imposition or an obligation. It is an opportunity to transform Toronto for the better.

Fund core amenities and prioritize equity-deserving communities

What we Know: Parks in Toronto’s Equity-Deserving Communities are Under-Resourced

There is a clear and growing disparity in who has access to quality green spaces in Toronto. As COVID laid bare, equity-deserving communities face complex, interrelated health crises. Toronto must recognize how race, income and the built environment conspire to make parks a pressing environmental justice issue in our city.

  • Park planning has long tracked development growth to guide investment. This has led to a growing disparity between who has access to quality green spaces and who does not because it ignores other important factors like income levels and climate change impacts.
  • While Toronto started to move forward with an equity framework in the 2019 Parkland Strategy, concrete actions still remain limited. Recent research shows that neighbourhoods with higher proportions of racialized and lower-income residents don’t have the same access to quality green spaces as whiter, wealthier neighbourhoods in Toronto.

Park Policy Directions:

  • Equity frameworks must be embedded into park plans, and resources must be focused on equity-deserving communities where there has been historic underinvestment in parks. The following data should be used and made transparent to direct new park investments:
    • Income
    • Race and ethnicity (e.g., the proportion of racialized residents)
    • Climate justice (e.g., tree canopy coverage, urban heat islands)
    • Public health (e.g., chronic disease prevalence, mental health indicators)
    • Housing type/tenure (e.g., apartments, single-family houses)
    • Historical investment and disinvestment patterns
  • In Toronto, the 2019 Parkland Strategy includes new measures such as income, but in order to create transparency and accountability, Toronto should follow Vancouver’s lead in not only collecting richer data but making the information readily accessible to communities to help guide investment.

What we Know: Lack of Basic Amenities in Toronto Parks Restricts Use

Usable parks are the bar for entry. Toronto’s parks maintenance and operating budget have not kept pace with use and demand. There’s an urgent need to increase park operating budgets to ensure basic amenities like bathrooms and water are the standard in every single Toronto park.

  • In Toronto, park washrooms are frequently closed in the winter and locked early in the summer. This failure restricts park use and contributes to accessibility barriers. Toronto has just 6.4 washrooms per 100,000, less than half the national average of 13.1. Of the 178 washrooms available, only 45 are open in the winter.
  • Drinking fountains are dormant until late June even though our changing climate means we experience warmer weather earlier. Anger around this reached a boiling point this summer.

Park Policy Directions:

Spending on park operating budgets must start to keep pace with demand. It is basic: amenities like bathrooms and water must be the standard in every single Toronto park, with a priority focus on equity-deserving and high-use parks. Investments in basic amenities that promote park use must include:

  • All-season washroom access with longer open hours.
  • Working water fountains & bottle fill-up stations.
  • Daily maintenance including garbage removal and basic repairs.
  • Rain-shelter and shade structures to support all-weather use.

Further reading:

Towards equitable parks, Canadian City Parks Report 2020

Invest in the co-benefits of parks for climate resilience and adaptation, nature connection, and biodiversity

What we Know: Parks Mitigate Climate Impacts and are key to Toronto Climate Adaptation

Credit: Bonnyville Ravine Toronto, Joel Rodriges

People living in Toronto will need to adapt to hotter, wetter and more unpredictable climates. Climate change is here and is already impacting our city. With the right investment, parks can serve as climate infrastructure and provide people with critical places of refuge in hot, dense cities where a major health crisis is looming.

At the same time, people are seeking out nature more for its mental and physical health benefits. People want more places to experience nature close to home: 71% of survey respondents said they value visiting naturalized spaces within a 10-minute walk of homes, such as a native plant garden or small meadow. In fact, 87% of respondents said they were in favour of more native plant species within parks—the second most requested amenity after public washrooms. Toronto’s Ravine Strategy offers a strong road map for ensuring these vital biodiversity and natural habitats are safeguarded for the future and enjoyed by residents, but funding has remained limited.

Policy Directions:

Invest in the co-benefits of naturalized spaces as climate resilience infrastructure, urban biodiversity habitat and vital nature connections in Toronto.

  • Accelerate funding for the Ravine Strategy with a focus on:
    • Critical restoration projects to ensure biodiversity and natural habitats are safeguarded.
    • Increasing accessibility and wayfinding through new and improved access points, signage, maps, and education about how to explore the ravines safely while respecting sensitive habitats.
    • Investment in ravine programming to help communities connect to nature in the ravines safely, which could include funding for community leaders to devise local initiatives.
  • Create more naturalized spaces close to where people live, such as native plant gardens and mini-meadows, to increase nature connection, climate resilience, and urban biodiversity. Include:
    • Funding for stewardship and educational opportunities in collaboration with Indigenous peoples and organizations who hold knowledge about these plants and how they fit into a larger kinship network of species.
    • Prioritization for investments in equity-deserving neighbourhoods that have lower levels of green space and tree canopy.
  • Adopt publicly available climate resilient standards as part of every municipal Request for Proposals for new or redesigned Toronto parks. Standards should include:
    • Standards for rainwater capture and reuse (e.g., bioswales, permeable pavers).
    • Percentage of naturalized space, tree canopy coverage, and native plants.
    • On-site educational opportunities (e.g., signage, programming).

Further reading

Deepening the conservation conversation, Canadian City Parks Report 2020

Updated Park Governance is Key to Inclusive Parks

There is an urgent need for new models of Toronto park governance rooted in shared decision-making power. We need a new way of managing city parks that are more inclusive, community-focused, and respects the land rights of Indigenous peoples and the knowledge of communities.

What we Know: Unhoused Toronto Constituents Deserve Humane Treatment in Parks

Credit: Bench with centre bars to prevent lying down in Winchester Park Toronto

  • We found that nearly two-thirds of city residents who noticed a park encampment did not feel it negatively impacted their personal use of parks.
  • There is no easy answer to park encampments, but we know there are alternatives to the violent encampment clearances we saw in Toronto in the summer of 2021. In 2021, City Council rejected a motion to co-create a strategy with encampment residents—this was a mistake.

Policy Directions:

  • Toronto must fulfill its human rights obligations to people sheltering in parks as outlined in the UN National Protocol for Encampments in Canada—and as Toronto organizations called for in a joint statement. The city needs to act on the Ombudsman’s recommendations.
  • Toronto must develop an encampment strategy in collaboration with unhoused residents and community partners. The strategy can guide decision-making on park issues affecting unhoused communities, identifying core values such as harm reduction, reconciliation, and leadership of people with lived experience.

What we Know: Truth and Reconciliation Must be Advanced in Toronto Parks

Credit: High Park Turtle Protectors, High Park Nature Centre, Toronto, 2022

  • Toronto has taken positive steps with the adoption of a “place-keeping” strategy and engagement with Indigenous peoples in the Toronto Island Park Master Plan. There are also some excellent recommendations for supporting reconciliation in parks in Toronto’s recently passed Reconciliation Action Plan. But concrete resources and action plans must be created to move forward with deeper collaboration and shared stewardship, applying practices already being implemented in Canadian municipalities.

Policy Directions:

Park planning and design practices

  • Begin to work immediately with communities to implement and fully fund the recommendations for parks in the Reconciliation Action Plan.
  • Expand commitments to working with treaty & territorial partners, urban Indigenous communities and organizations to explore co-management and collaborative governance opportunities in Toronto, including funding for this work.
  • Establish co-management and collaborative governance initiatives with treaty & territorial partners, urban Indigenous communities and organizations in Toronto, which include:
    • Shared decision-making in park management (e.g., permitting)
    • Maintenance practices and stewardship (e.g., plant care)
    • Park (re)naming, programming, and cultural use

What we Know: Power Sharing Impacts Communities

Credit: InTO the Ravines Champions, 2022, Earl Bales Park, Toronto. Clémence Marcastel

Over the past several years, communities have been actively working to decentralize power in institutional spaces.

It is time for Toronto to give communities more decision-making power on the park issues that affect them most, particularly in equity-deserving communities.

  • A dismal 22% of residents of Canadian cities said they felt they had a voice in influencing decision-making about their local park.
  • New strategies are needed to ensure people feel able to get involved, including overhauling confusing and costly permits for community programming.
  • The work of Toronto’s park consultation staff on a more meaningful engagement strategy is certainly a step in the right direction, but it’s just the beginning.

Policy Directions:

Co-create neighbourhood-level park plans with Toronto residents and community organizations that:

  • Identify opportunities for park improvements, acquisitions, and programming within a defined local area.
  • Examine both the quantity and quality (e.g., amenities, cultural relevance) of public space and opportunities for how parks can contribute to social cohesion.
  • Include all publicly accessible open spaces (e.g. parks, streets, laneways, schoolyards, hydro corridors, etc.).
  • Prioritize “quick start” projects to implement first or trial during the development of the plan so action is not held up.

Break down barriers for community programming and offer more targeted support, including:

  • Remove park permit fees for equity-deserving communities as well as all Indigenous programming and cultural ceremonies.
  • Designate a staff contact for engagement with community park groups to facilitate programming opportunities.
  • Reduce barriers to community-based economic development in parks (e.g., local markets, fresh food stands, culturally responsive food kiosks/cafes) through grants, reduced permits, or free/reduced leases.

Deepen engagement opportunities and longer-term community involvement:

  • Incorporate discussions of social life and cultural practices into park consultations.
  • Employ local residents to co-lead engagement processes.
  • Fund a community programming plan for after the ribbon is cut.

Why habitat corridors are important for urban biodiversity and what cities are doing to make sure parks large and small are connected

This case study is part of the 2020 Canadian City Parks Report, showcasing inspiring projects, people, and policies from across Canada that offer tangible solutions to the most pressing challenges facing city parks.

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While small-scale biodiversity projects are important, there’s no question that when it comes to nature, size matters: larger spaces allow for a greater diversity of plants that in turn support a greater diversity and number of species. They also provide critical ecological services, such as cleaning the air, managing stormwater, and mitigating urban heat—all of which only become more important as climate change increases environmental stress.

Cities use different policy and planning levers to protect sensitive urban ecosystems or important habitat links, often designating them as Environmentally Sensitive/Significant Areas. For example, Toronto expanded its ESA’s by 68 areas, Montreal instituted an Ecosystem Management Program for its large parks, and Fredericton released two new large park management plans.

However, with 19% of cities reporting citywide biodiversity strategies in place, and a further 52% who have biodiversity objectives embedded in other environmental plans, there’s a need for more holistic citywide planning that examines key species, develops education and stewardship plans, and identifies habitat corridors.

Connect at All Scales

Boardwalk in a forest
Bose Forest Boardwalk in Surrey. Credit: Pamela Zevit

It’s not enough to have habitat patches—even large ones—if they are isolated.

Whether it’s an urban landscape or a pristine natural area, you need connected networks for ecosystems to function properly, said Pamela Zevit, Surrey’s Biodiversity Conservation Planner.

Connectivity ensures wildlife are not confined to what Zevit called “habitat islands,” which can easily become degraded by pollution, disease, or disturbance, leaving wildlife with nowhere else to go.

This is why Surrey has spent so much energy planning what it calls its green infrastructure network: a series of cross-city habitat corridors connecting larger habitat hubs. While important at the city scale, planning must also connect within regional networks—after all, animals don’t stop at city borders—so Surrey has made sure their network matches up with the natural systems of neighbouring cities.

“Surrey has a very strong desire to be a leader,” Zevit said. “So we made this effort early on to connect a lot of the dots and we’ll be able to fit into whatever happens over time at the regional level.”

Within its own borders, the city is also working towards approving its first biodiversity design guidelines. The guidelines will cover not just natural areas but places in what Zevit referred to as the “urban matrix”—all those other land uses outside of parks and natural areas that have an impact on biodiversity.

“The [guidelines] are this long overdue, comprehensive approach to linking all the existing design guidelines and construction documents and everything that we have around us and saying how do we integrate biodiversity objectives into everything that the city does,” said Zevit.

Calgary is another city that has been working hard at restoring natural spaces and ensuring connectivity through a biodiversity strategy the city approved in 2015.

Field at dawn with city skyline in the background
Nose Hill Park in Calgary. Credit: Chris Manderson

Over the past two years, the city has identified and evaluated the components of its ecological network so it could prioritize restoration and enhancement projects. It has even produced a guide on how to naturalize existing parks.

Until this evaluative work was underway, Calgary didn’t have “a mechanism to set citywide priorities for biodiversity conservation or habitat restoration,” with actions largely done as needed over time, said the city’s Landscape Analysis Supervisor, Vanessa Carney. Like many Canadian cities, she said, urban development happened neighbourhood by neighbourhood, meaning environmental planning has occurred largely at the local scale, rather than comprehensively across the city or region.

“While this approach helps to conserve highly biodiverse and landscape diverse parcels of land as public, we’ve been missing that ecological backbone that allows us to look at how neighbourhood development contributes or constrains citywide and regional connectivity,” Carney said.

To perform its evaluation, the city examined the permeability of landscapes for wildlife movement, the size of habitat areas and their adjacent land uses, and how integral the space was to the functioning of the overall ecological network.

Despite the citywide view, Carney said that both small and large parks play a role in connectivity. The larger parks serve as “biodiversity reservoirs,” while smaller parks—whether natural or manicured—provide habitat for smaller species, serve as stepping stone habitats, and allow people to connect with nature in their everyday lives.

At this smaller scale, cities can turn to development policies to preserve and enhance connectivity. For example, through its Greenway Amenity Zoning, Langley Township ensures every community includes green corridors and buffers to support biodiversity and Red Deer creates Ecological Profiles for new subdivisions to ensure natural features are protected.

Restore Waterways

Digital drawing of a city with buildings, green spaces and bodies of water
Naturalized Mouth of the Don River. Credit: Waterfront Toronto

Riparian areas (habitat along waterways) are particularly rich areas for biodiversity and can help create important habitat connections. They are also important for climate change mitigation as flood protection from increased extreme weather damage.

Surrey’s Nicomekl River Park project will restore and enhance unique riverfront ecological zones into a 3km linear park, aiming to combine nature with art, heritage, recreation, and social space. The city has released a heritage plan and public art strategy, along with a management plan that highlights opportunities for recognition of Indigenous history, practices, and plants through programming, signage, and naming.

Led by Waterfront Toronto, Toronto is also undertaking a massive restoration project in naturalizing the mouth of the Don River, which flows into Lake Ontario. The project, which also includes creating biodiverse “park streets” as part of new neighbourhood development in the area, will create flood protection and restore lost landscapes.

At a smaller-scale, Vancouver is moving ahead with daylighting a creek through Tatlow and Volunteer Parks, restoring a waterway into English Bay. The creek is one of many that have been buried throughout Vancouver’s development—something many cities did as part of urbanization.

The project acts on priorities in Vancouver’s new parks master plan, VanPlay, for restoring wild spaces and increasing connectivity. Restoring the creek to aboveground will create new aquatic habitat, manage stormwater, improve water quality, and create habitat for birds and pollinators.

Turn Hydro Corridors into Biodiversity Corridors

Corridor of greenspace in a big city
Meadoway Western Gateway. Credit: TRCA

The often large swathes of mowed grass in hydro corridors that cut for kilometres through cities are also increasingly being seen as areas ripe for habitat connections.

Take The Meadoway, a project of the Toronto and Region Conservation Authority in partnership with the City of Toronto, Hydro One, and philanthropic funder The W. Garfield Weston Foundation.

Child in a flower field, with butterflies and electrical cables above head
Meadoway Childs Eye View in Toronto. Credit: TRCA

Already partly constructed, the plan will naturalize a 16km hydro corridor across Scarborough connecting two large natural areas on either side: Rouge National Urban Park and the Lower Don Ravine. When finished, The Meadoway will feature hundreds of acres of meadow habitat with restored wetland areas, a connected trail, and social gathering spaces. An online visualization toolkit showcases the potential of the project, which is expected to be completed by 2024.

Montreal has also announced plans for a biodiversity corridor in a Saint-Laurent borough hydro corridor. “Climate change issues are requiring us to act quickly with innovative solutions,” said the borough’s mayor, Alan DeSousa, calling the project a “laboratory” from which others can learn. Ultimately constructed on 450 hectares of land, the project will include native habitat, trails, and green roofs installed on neighbouring buildings.

People on a trail surrounded by purple flowers with electrical cables above head
Saint Laurent Biodiversity Corridor. Credit: Table Architecture, LAND Italia, civiliti, Biodiversité Conseil

Make Big Plans for Big Parks

Plan with project zone highlighted in green
Blue Mountain Wilderness Connector. Credit: Nova Scotia Nature Trust

Here’s what other Canadian cities are doing to create and enhance large nature parks and increase habitat connectivity:

  • In 2019, Montreal’s mayor announced a vision to create a large green space system in the city dubbed Grand parc de l’Ouest. Situated on Montreal’s West Island, the park will stitch together existing parks and 1,600ha of new green spaces for a total 3,000ha.
  • Halifax is working with the Nova Scotia Nature Trust to preserve a 230ha wilderness area 20 minutes from downtown Halifax called the Blue Mountain Wilderness Connector. Nova Scotia Nature Trust Executive Director Bonnie Sutherland told CBC that the land is “one of the last large intact wilderness areas that we have in the greater Halifax area.” The area is home to several at-risk species and was previously slated to be a housing development.
  • In 2019, Kingston approved a new master plan for Belle Park, setting the stage for a 15-year restoration of the 45ha park—the largest urban park operated by the city. The land was formerly a landfill turned golf course and includes Belle Island, which has significant importance as an Indigenous burial ground and is co-owned between the Mohawk Nation Council of Chiefs and the city. The new plan calls for promoting biodiversity through naturalization projects and creating recreational access such as trails.
  • Richmond Hill is moving ahead with a large woodlot restoration project in the 40ha David Dunlap Observatory Park as set out in the park’s 2016-approved master plan, which also identifies wetlands and wildlife corridors. Local advocacy resulted in the land being saved as a park rather than developed.
  • Toronto approved an implementation plan for its Ravine Strategy in 2020 for this network of ecologically rich areas that thread throughout the city. The plan creates a special ravine unit to oversee work and adds extra funding towards conservation, clean-up measures, and community stewardship.

Destination Danforth is part of a suite of ActiveTO programs, designed to support the City of Toronto’s restart and recovery response to COVID-19. These programs were part of a period of unprecedented rapid program implementation and deserve careful evaluation.

The Destination Danforth Intercept Survey Evaluation Report was designed to provide diverse perspectives on safety, accessibility, and user impact of the new street installation and to assess the success of the program’s goals to support businesses and increase safe and equitable access to active modes of transportation.

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Perspectives on safety, accessibility, and user impact of the new street installation

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Park People’s ‘Making Connections’ report proposes strategies for creating a network of parks and open spaces that can connect our parks, ravines, hydro and rail corridors, streets, laneways, schoolyards, and other public spaces.

“As many Toronto neighbourhoods continue to develop and intensify, the need for an expanded and improved parks and open space system grows. Encouraging flexibility and experimentation both in designs and funding as well as in how we engage with communities. Underpinning all of this is the need to make connections— connections between different types of parks and open spaces, between communities and partners in those spaces, and between city divisions and resources.”

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Strategies for creating a network of parks and open spaces.

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One of the oldest parks in the City of Toronto, Allan Gardens and its historic conservatory provides a unique space in the heart of downtown Toronto amidst a diverse and bustling neighbourhood. With these assets, Allan Gardens represents an unparalleled opportunity in the city to create a truly vibrant, active public space for the surrounding community, the wider city, and visitors to Toronto—an opportunity that a renewed focus and energy can help bring to life. 

The report recommends that a new partnership model focus on the conservatory and adjacent gardens, with a full-time project manager needed to engage with the community, the City, and potential funders to lay the necessary groundwork for a success.

“The key to unlocking Allan Gardens’ potential is in establishing a new governance model for the park. This new and creative partnership is needed to not only deliver the capital improvements required, but to activate the space with rich community-based programming around horticulture, food, and the arts. A new partnership dedicated to Allan Gardens would help focus community input in the park and drive new investment into both capital improvements and programming.”

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Unlocking Allan Gardens’ potential with a new governance model

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Green City looks at how parks, once thought of as places of relief from the urban condition, should be viewed as integral with city form, helping to make our cities more sustainable and resilient in the face of climate change. The paper is a refreshing and accessible discussion of how parks have shaped the relationship between nature and society, and calls for a new approach that links good environmentalism and good urbanism through park systems.

“New tools, techniques, and ways of understanding nature in the city are required. Parks, once thought of as places of relief from the urban condition, should be viewed as integral with city form, and as having important roles to play in sustaining life, in addition to providing places for recreation, entertainment, and aesthetic enjoyment. Parks and parks systems are part of our very survival, providing countless environmental functions and giving cities greater resilience to withstand the unpredictability and extremes of climate that are now more common and catastrophic.”

Beverly A. Sandalak, Landscape architect & Planner

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A new approach linking good environmentalism and good urbanism through park systems.

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With the intensification of many communities in the Greater Golden Horseshoe (ON), we are seeing a change in how people use parks. Parks in higher-density areas are heavily relied on by urban residents who no longer have access to private backyards for outdoor exercise and social and cultural activities. This requires a change in the way parks have historically been planned and designed in many of these municipalities.

Thriving Places is designed as a case study toolkit highlighting new urban parks and open spaces in the Greater Golden Horseshoe that showcase creative ideas for planning, designing, programming, and engaging community in public spaces in intensifying neighbourhoods.

“We don’t always need to look to cities such as New York, Vancouver, and San Francisco for creative park ideas when so many municipalities across the GGH are stepping up with innovative projects.”

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Explore inspiring new urban parks in the Greater Golden Horseshoe (ON).

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It’s become a familiar urban experience. Heavy rain, flash floods, rising water levels, and, ultimately, flooded parks, streets, and homes. With climate change leading to extreme weather—both hot, dry periods and heavy rain—it’s imperative that we design our urban environments to mitigate these impacts.

In this report, Park People explores the challenges and opportunities facing city parks in Canada by offering inspiration, best practices, and key strategies for moving forward.

“Green infrastructure at its core is about creating spaces that help manage stormwater, but these projects also bring a host of other benefits—from habitat creation to providing new spaces for people to gather. Much like parks, the benefits of green infrastructure are deep and layered, touching on the environment, economic, and social.”

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Challenges and opportunities facing city parks in Canada

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