Daylighting in Halifax’s Urban Core - Ecology Action · Daylighting in Halifax’s Urban Core A case study-based analysis of the proposed daylighting of Sawmill River in Dartmouth,

Daylighting in Halifax’s Urban Core A case study-based analysis of the proposed daylighting of Sawmill River in Dartmouth, Nova Scotia

PLAN 5000

Darryl McGrath

B00689518

Instructor: Ahsan Habib

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Executive Summary

River daylighting projects are becoming an increasingly popular way for cities to reshape their

urban environment in an attempt to achieve multi-faceted beneficial outcomes. Several high-

profile daylighting projects in recent years (such as those in Seoul, South Korea and Yonkers,

New York) have brought this type of urban restoration closer to the mainstream consciousness.

These cases and others are reviewed to gain an understanding of the processes, potential benefits

and challenges, motivations, and common results that might be expected from the undertaking of

a river daylighting project. This is done specifically to inform what the potential might be for a

daylighting initiative in the Halifax urban core area. Sawmill River in Dartmouth is a timely

candidate for daylighting and the push is on during the formation of this report for the city to

decide how to proceed. After reviewing the local conditions in Dartmouth (the suitability of the

site, the specific relevant goals of the proposed project, the policy context, the financial case and

the local climate of the citizenry)

this report confidently recommends

the Sawmill River for daylighting.

This project has the potential to

provide Dartmouth with an array of

significant benefits as the city

contemplates how to reinvigorate

itself. It is high time for the Halifax

government to take a bold step and

enable Dartmouth to engage in this

unique endeavour that aligns

greatly with municipal planning

strategies and sustainability goals.

Figure 1: Conceptual rendering of historical river course.

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Contents Executive Summary ....................................................................................................................................... 1

List of Figures ............................................................................................................................................ 3

Background ................................................................................................................................................... 4

Objectives ..................................................................................................................................................... 6

Methods and Findings ................................................................................................................................... 7

Case Studies .............................................................................................................................................. 7

The Cheonggyecheon River, Seoul, South Korea .................................................................................. 7

Valley Creek – Port Angeles, Washington ........................................................................................... 11

Saw Mill River – Yonkers, New York .................................................................................................... 12

Jenkins Creek – Maple Valley, Washington ........................................................................................ 14

Arcadia Creek – Kalamazoo, Michigan ................................................................................................ 16

Summary of Case Studies .................................................................................................................... 18

The Case for Halifax ................................................................................................................................ 20

Candidate Waterways ......................................................................................................................... 20

Sawmill River – Dartmouth, Nova Scotia ............................................................................................ 20

Goals for a Daylighted Sawmill River .................................................................................................. 22

Combined Stormwater Handling and Fish Passage ............................................................................ 22

Park space Allocation and Greenspace Connectivity .......................................................................... 23

Economic Returns and Urban Revival ................................................................................................. 24

Additional Motivating Factors............................................................................................................. 25

Policy Considerations .......................................................................................................................... 26

The 2014 Halifax Regional Municipal Planning Strategy..................................................................... 26

Department of Fisheries and Oceans – Fish Passage requirements ................................................... 27

HRM Policy on Daylighting Rivers ....................................................................................................... 27

2013 Secondary Planning Strategy for Downtown Dartmouth .......................................................... 27

Financial Considerations ..................................................................................................................... 28

The Local Climate ................................................................................................................................ 28

Summary ..................................................................................................................................................... 30

Recommendations ...................................................................................................................................... 32

References .................................................................................................................................................. 33

Figure references .................................................................................................................................... 36

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List of Figures Figure 1: Conceptual rendering of historical river course. ........................................................................... 1

Figure 2: Evolution of a daylighted river: natural state, pushed underground by urban development, re-

exposed condition. ........................................................................................................................................ 4

Figure 3: The daylighted Saw Mill Rover in Yonkers, New York. .................................................................. 5

Figure 4: Saw Mill River in Yonkers, New York: Subteranian view when the site was a surface parking lot;

The same location during winter after daylighting. ...................................................................................... 6

Figure 5: Cheonggyecheon area prior to daylighting with elevated expressway above river course. ......... 8

Figure 6: Children playing on a water feature of the daylighted Cheonggyecheon River. ........................... 9

Figure 7: Re-created estuarine habitat at the Valley Creek outflow in Part Angeles WA. ......................... 11

Figure 8: Local celebrations for the completion of the initial phase of daylighting in Yonkers, NY. .......... 13

Figure 9: Resulting city scape after daylighting the Saw MIll River in Yonkers, NY. ................................... 14

Figure 10: Jenkins Creek in Maple Valley, WA after daylighting efforts. The creek follows a meandering

route and natural obstacles and plantings are visible. ............................................................................... 15

Figure 11: Festival site on Arcadia Creek in Kalamazoo, MI. ...................................................................... 17

Figure 12: WaterFire Festival at Waterplace Park, where daylighting occurred at the confluence of the

Woonasquatucket, Moshassuck, and Providence rivers. ........................................................................... 19

Figure 13: Historical images surrounding the Saw Mill River site in Dartmouth, NS. The river courses from

Sullivan’s Pond to Dartmouth Cove, passing to the right of the church in the bottom right image. ......... 21

Figure 14: Locations along the proposed route for a daylighting project for the Sawmill River in

Dartmouth, NS. ........................................................................................................................................... 22

Figure 15: The last section of the Sawmill River before it flows into Dartmouth Cove. The building in the

background is part the King's Wharf developments. .................................................................................. 24

Figure 16: Cover page of the HRM Policy on Daylighting Rivers................................................................. 27

Figure 17: A selection of recent media coverage surrounding the proposal to daylight the Sawmill River

in Dartmouth, NS. ....................................................................................................................................... 29

Figure 18: Current outflow of the culverted Sawmill River in Dartmouth, NS. .......................................... 30

Figure 19: Overlay of current road network over Mike Reid (2012) map that used historic information to

retrace natural waterways on the Halifax peninsula. Data from HRM HalifaxOpenData, amended using

ArcMap software. ....................................................................................................................................... 31

Figure 20: Area plan by Ekistics in 2006 for a proposed project involving the daylighting of Sawmill River

in Dartmouth, NS. ....................................................................................................................................... 32

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Background

Daylighting is a term used to describe the intentional re-exposure of a waterway from a covered

state. This means uncovering a stream that has been pushed into underground infrastructure,

typically municipal storm water piping, with the aim of achieving a more natural state by making

the river or stream a surface feature again a period of being sub-surface. Since it is in urban areas

where the exercise of re-routing water flows into underground conduits to allow for more surface

structures is most common, it is inherently in an urban context where most daylighting projects

occur. Very simply put, it refers to “projects that deliberately expose some or all of the flow of a

previously covered river, creek, or stormwater drainage.” (Pinkman, 2000).

Daylighting is a relatively new phenomenon. The first documented projects date back to the

1970’s and the frequency of such initiatives has increased over subsequent decades (Pinkman,

2000 (p.IV)). A few high-profile projects in recent years have brought daylighting to more

widespread public attention. The Cheonggyecheon River in Seoul, South Korea is the largest and

most ambitious urban daylighting effort to date and it drastically altered the layout and feel of a

large swath of this major city (UN-Habitat, 2012). The Sawmill River in Yonkers, New York is a

daylighting project of more modest proportions. However the Sawmill river daylighting was still

a significant undertaking for the host city and has had deep impacts on the city (The New York

Times, 2012; Richardson, 2012). These two recent projects (Cheonggyecheon: 2003-2005; Saw

Figure 2: Evolution of a daylighted river: natural state, pushed underground by urban development, re-exposed condition.

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Mill River Phase 1: 2010-2011, subsequent phases ongoing), have garnered international

attention and have brought the concept of daylighting from being a little-known and risky

endeavour to become an increasingly referenced and promising idea for many communities.

There are a variety of reasons that a community might seek to daylight a river. Ranging from the

simple reason of creating aesthetically pleasing spaces to lofty economic goals, the aims for

daylighting projects are diverse. A desire to increase aquatic habitat, a want for a civic

centrepiece or prominent urban feature, a plan to boost tourism or tax revenues, a desire to

improve water quality or bolster flood resilience and for cultural heritage concerns or

recreational opportunities, the potential motivators to pursue daylighting are many and differ

between communities based on their specific locations and predicaments.

Figure 3: The daylighted Saw Mill Rover in Yonkers, New York.

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Objectives

The overarching objective of this investigation is to synthesize information from completed

daylighting projects in order to assess the potential for daylighting in Halifax’s urban core area.

This central objective is pursued through two

complimentary phases: the first being an investigation

of daylighting case studies to glean a general

understanding of the goals, procedures and results

from the array of projects that have been done

elsewhere; the second being an assessment of the

suitability and potential for daylighting projects in the

Halifax area, specifically in reference to the current

proposal for the Sawmill River in Dartmouth.

The primary goal then is use relevant examples of

daylighting to illustrate the costs, benefits and other

likely outcomes for a potential project. Additionally,

using these past examples this study then aims to take

stock of the assets in Halifax’s urban core for

undertaking a daylighting project and to identify any

major barriers to engaging in a daylighting project in

the near future in this area.

Though it was not the original intention of this study

to specifically address the current initiative in

Dartmouth, it quickly became apparent in the course

of research that it was a timely and relevant course to pursue.

Figure 4: Saw Mill River in Yonkers, New York: Subterranean view when the site was a surface parking lot; The same location during winter after daylighting.

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Methods and Findings

Since this investigation involves two phases, the methods reflect this arrangement. First, a

selection of daylighting projects are studied and synthesized to produce a general understanding

of daylighting projects. Second, the conditions for daylighting are assessed within the context of

Halifax’s urban core, with specific attention to Dartmouth’s Sawmill River.

Case Studies In order to gain an understanding of daylighting projects, it is prudent to look at the precedents

set by completed daylighting projects (or in some cases, projects that have been extended).

Looking at how daylighting projects typically proceed, what the impacts on a community often

are post-project, and what potential challenges commonly arise and what measures ought to be

taken to avoid negative results can all shed light on an endeavour that has only recently began to

enter the mainstream consciousness.

For this report, five daylighting projects were focused upon to help build an understanding of

daylighting projects, Ranging from the extremely large, to more modest procedures and spanning

projects with various goals and styles, this collection of daylighting projects is diverse but each

case is relevant in at least one major way to the current proposal in Dartmouth and to similar

projects wherever they might occur. The case studies include four scattered across the United

States and one in South Korea: the sites are Cheonggyecheon River in Seoul, South Korea;

Sawmill River in Yonkers, New York; Arcadia Creek in Kalamazoo, Michigan; Jenkins Creek in

Maple Valley, Washington; and Valley Creek in Port Angeles, Washington. That the projects

discussed are located mostly in the United States, with the one major exception, is due to the

apparent relative abundance of daylighting projects in the United States and the easily available

literature on these sites.

The Cheonggyecheon River, Seoul, South Korea

The Cheonggyecheon River is perhaps the most well-known case of river daylighting because of

the size and prominence of the project in a large, internationally recognizable metropolis. This

project took place between 2005 and 2005 and resulted in the formation of a 6-kilometer stretch

of daylighted riverside space that run through the downtown of this mega-city (Discovery Korea,

2014; Landscape Architecture Foundation, 2014).

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The history of the Cheonggyecheon is one of rapid urban development. Long a polluted

waterway, the river was pushed underground and converted into a major automobile throughway,

culminating in the construction of a 6-lane elevated highway above the river in the early 1970s,

with multi-lane roadways beneath (UN-Habitat, 2012). By the turn of the 20th

century, the area

around this former river-turned major expressway, had become plagued by vehicular congestion.

The neighbourhoods on either side of the river course exemplify socio-economic disparity. These

areas and the surrounding city lacked green space. The elevated roadway itself was deteriorating

and needs a major overhaul-the structure itself embodied the character of the adjacent

environment.

The municipal government decided to make the bold move to restore the river and make it a

prominent urban feature and centrepiece for spatial and economic revitalization. The goals set

out by local officials were diverse (CRP, 2009): improve the local ecology, eliminate the liability

associated with a crumbling overpass, recoup historical and cultural aspects of the river area, and

promote more balanced economic opportunities and invigorate the city’s economy.

Figure 5: Cheonggyecheon area prior to daylighting with elevated expressway above river course.

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The myriad ways in which the Cheonggyecheon was to improve the condition of life in Seoul

were almost universally achieved in both expected and emergent ways. The measureable

ecosystem benefits are numerous (Landscape Architecture Foundation, 2014). Post-completion

biodiversity has blossomed: plant species have increased nearly six-fold (from 62 to 308), fish

and bird species both by the same magnitude (4 to 25 and 6 to 36 respectively), aquatic

invertebrates have exploded from 5 to 53 species which is especially promising since they

comprise a fundamental trophic level. Heat island effects have been drastically reduced along the

stream by between 3 to 6°C, making for a significantly cooler environment. Air pollution has

been reduces by 35% in an area where area residents had double the chance of suffering

respiratory ailments than the city average.

Prior to the conversion, the area had become notorious for traffic congestion. Perhaps counter-

intuitive to some, the removal of the elevated expressway improved traffic flows (ITDP and

EMBARQ 2012; Revkin 2012). Bus ridership in the area bumped up 15% and subway numbers

increased over 3% between 2003 and 2008 (Landscape Architecture Foundation 2014). These

effects of the restoration project do have to be considered alongside simultaneous initiatives such

Figure 6: Children playing on a water feature of the daylighted Cheonggyecheon River.

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as a car restriction policy and public transit infrastructure improvements (bus lane network).With

regard to economic impacts, the effects were profound as well. Property values within fifty

metres of the river increased by 30-50%, double the rate of adjacent areas. A two-fold increase in

the number of businesses in the area relative to other parts of Seoul has been seen, as well as a

0.8% increase in employment in the area while the rest of the city has seen a decline in

employment number triple that in magnitude. The boost to tourism is also impressive. The

Cheonggyecheon sees 64,000 daily visits, over 1400 of which are foreign tourists, bringing in

about $2 billion to Seoul annually.

What is harder to quantify as of yet are the social benefits that the Cheonggyecheon restoration

imparts. Frequenters to the area now experience an expansive urban green space that brings a

natural atmosphere back to an urban locale. This area provides a milieu for socializing, exercise,

festivals, cultural and historical learning and escape for passers-by. The transformation has also

fostered a heightened awareness of socio-environmental issues. As described by Sinclair (2012)

an urban stream restoration can also initiate a robust injection of environmental awareness, even

if the daylighting project itself has limited ecosystem level benefits. The boost to collective

environmental awareness and in motivation to positively reform practices can have untold

benefits. The shift in urban attitudes towards increasingly sustainable practices can have far-

reaching implications. Put succinctly, having a naturalized landscape at arm’s reach can cause

urban dwellers to value natural landscapes at large to a much greater degree.

The benefits of the Cheonggyecheon project are manifold, but there are of course some

drawbacks to the project. Accessibility issues to the site have produced discontent amongst locals

who resent the lack consultation towards the design in early stages. Seasonal fluctuations in

water flows mean that a formidable pumping system is employed to ensure year-round viability

of the river. This points out the necessity of water-shed and ecosystem level solutions when

engaging in environmental restorations in order to achieve robust and resilient natural habitats.

Gentrification concerns have also arisen due to rising housing prices, meaning local residents

may be pushed out of the area. Many merchants were relocated during the construction phase

and though they were provided with new retail space, there were complaints that the interim

location was significantly less profitable due to its poor location (Lost Rivers, 2012). A number

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of these merchants were initially very unhappy with the process, though the long term economic

benefits of the project in general are extremely favourable to most.

Ultimately the Cheonggyecheon is a very large-scale project that illuminates many of the

positive possibilities that can achieved with daylighting while also reminding us of potential

costs that can arise. Overall this project show the diverse benefits of river daylighting and paints

an attractive picture of the possible successes.

Valley Creek – Port Angeles, Washington

This project represents the opposite end of the spectrum of daylighting projects in terms of scale.

It also differs in terms of its goals, its relative urban location, and its cost. However it is still very

relevant to Halifax in a few key ways. This project achieved unique reciprocal benefits for both

the local government and a private business, restored coastal habitat, and produced a desirable

recreational amenity (Pinkman, 2000). Port Angeles is an 18,000 person coastal town in

northwest Washington State. The watershed is largely rural forestland, though the creek

meanders through a residential section of the city then through an industrial area before flowing

into the Juan de Fuca Straight. A logging mill is a key operation in this industrial area and is the

business of concern for the daylighting project. Put briefly, the mill once dealt primarily with

cedar wood but industry restrictions forced a shift to cottonwood. Where cedar can be effectively

floated as a way of transport, this is not viable for

cottonwood. This reality rendered the artificially

constructed and ecologically void mill pond

obsolete .Where it was once a key asset to moving

and managing material flows, it then became a

barrier to mill operation as log deliveries could

not be made close to milling machine by land.

Through an operating agreement that saw

cooperation and integrated planning between the

city government, the mill ownership and state regulators, a physical reconfiguration of the land

was designed in an attempt to optimize operational efficiencies for the mill, recoup and bolster

aquatic habitat and produce a coastal recreational amenity for city folk was devised (Pinkman,

2000). Funding came from all the above parties, as well as considerable volunteering of time,

Figure 7: Re-created estuarine habitat at the Valley Creek outflow in Part Angeles WA.

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equipment and materials by various city stakeholders. The mill pond was essentially filled in and

estuarine habitat was re-created in adjacent areas. The results were diverse and lucrative: the

logging company is much more efficient, gaining back its project investment in less than two

years; the park created around the estuary is a popular destination for residents seeking

accessible natural space and wildlife viewing opportunities; the amendments to the mill property

ensured its operational viability and retained 200 jobs for the community; species diversity and

richness are much improved for the new estuary and once-absent salmonid fish have appeared in

the estuary. Salient advice was given by the planning and environmental manager of the city at

the time (Pinkman, 2000, p. 39): “Line up as much community support in advance as possible.”

He added that public support is “essential to smooth sailing through the regulatory and planning

process”.

The example of Valley Creek shows how private landowners can be allies rather than hurdles in

the daylighting process. It also shows how even smaller scale projects can have great impacts on

communities. At 150m and about $1 million, this was not a large project but the social,

environmental and financial implications were considerable.

Saw Mill River – Yonkers, New York

Another well-known and recent daylighting project is that of the Saw Mill River in Yonkers. The

project began in 2010 and although the initial phase is long since complete, the initiative is

ongoing because the town is motivated to extend the daylighted river sections (Sawmill River

Coalition, 2014; Yonkers Tribune, 2014). Yonkers is a city of just under 200,000 (US Census

Bureau, 2014) with a history built on industry. The city went through a period of decline and

local politicians were seeking ways to reinvigorate the city (The New York Times, 2012).

Various revitalization projects were already underway in Yonkers (a multi-million dollar library,

new apartment complexes and restored heritage structures) by the time of the 2008 recession, but

that economic reality stalled efforts.

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The river that had been buried in a

flume for nearly 100 years was then

seen as a potential centrepiece for a

town that was putting the pieces

together for a civic overhaul (Sawmill

River Coalition, 2014). The city

needed an economic boost, wanted

more tourists and needed to complete

the makeover of their downtown, so

they decided to turn their parking lot

into their fluvial focal point. The initial

project daylighted a two-block section in the downtown area (The New York Times, 2012).

Currently the river now flows under a large pedestrian bridge, down a terraced water feature

buffered by natural landscaping, out to the Hudson River in New York.

Daylighting the Sawmill River has provided the city of Yonkers with what it was hoping for. The

daylighting initiative helped garner a $3.1 billion investment by a private developer for new

housing, retail and office developments (Sawmill River Coalition, 2014). The area around the

daylighted section is now the diverse, bustling area that it was envisioned to be and nowhere are

people more convinced of the benefits than in downtown Yonkers (The New York Times, 2012).

The $19 million dollar investment in uncovering the Sawmill River pales in comparison to the

tax-revenues on the completed and pending projects. The re-exposed river is seen as the catalyst

for ongoing revitalization projects and continued optimism for the city. The area is now seen as a

successful mixed use neighbourhood that has anchored other building and infrastructure

developments. Some authours describe how “daylighting the Saw Mill River helped Yonkers

become a mixed-use, multimodal hub” (Tri-State Transit Campaign, 2014). What this reflects is

that the re-birthed river is at the core of an area that is a transition area for commuters, a

destination in and of itself, and a hub for living, working, commerce, learning, recreation and

social gathering.

Yonkers is further committing to daylighting the Sawmill River. The city has recently begun

another phase of daylighting and associated urban developments (Yonkers Tribune, 2014).

Figure 8: Local celebrations for the completion of the initial phase of daylighting in Yonkers, NY.

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Current and future phases will uncover even more of the river, vastly increase park space and

includes plans for a “European style piazza” and multiple bridges (vehicular and pedestrian).

More building developments are also planned and the intent is to integrate park space and

pedestrian networks.

Yonkers has fully embraced the daylighting of its river as the linchpin of its urban

redevelopment and the city has written a story for how to successfully leverage and integrate a

river restoration into the overarching plan for reversing the fortunes of a community in decline.

Jenkins Creek – Maple Valley, Washington

The case of Jenkins Creek is one that provides insights on habitat restoration and community

engagement. Valley Creek illustrated a project that created improved aquatic habitat. The project

goals for Jenkins Creek focus primarily on that aspect, with specific regard for salmon habitat

(Pinkman, 2000). Jenkins Creek posed two main challenges: improving conditions for salmon

such that the stream could provide useable habitat for spawning; and liaising with private

Figure 9: Resulting city scape after daylighting the Saw MIll River in Yonkers, NY.

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landowners (Golf Course residents and home owners) in order to ensure understanding of the

project goals and seek help with stewardship.

Portions of Jenkins Creek that had been diverted into underground pipes were converted back to

surface streams. Salmon were known to be present in downstream water and comprehensive

measures were taken in order to adapt the upstream sections appropriately for expansion the fish

habitat. Scientists mapped barriers to fish passage and took inventory of how to best create

micro- and macro-level sites for fish. The design incorporated a meandering water course,

incorporated appropriate streambed substrate materials and made use of living and non-living

vegetation to construct optimal stream conditions.

The course of the creek traversed a golf course, a parking lot and abutted several residential

properties. The project necessitated the acquisition of rights-of-way with the various landowners

and the design had to incorporate the needs of the golf course and parking concerns for an

adjacent ballpark. These concerns were addressed in a respectful way by collaborating with the

stakeholders. The exposed stream is now a bittersweet water hazard on the golf course.

Permanent parking space was reduced at the ballpark site but for the rare but inevitable instances

where overflow parking is required an agreement was reached to allow parking in certain areas

of restores parkland. A few concerns

emerged amongst local homeowners over

the course of this multi-phased project. One

uncharacteristically intense rain event

during stream restoration spurned notions

that the stream restoration was causing

flooding. County staff had to inform

lakeside residents that this reflected natural

high-water levels and that creek alterations

were not the cause of property flooding.

Furthermore residents are pivotal in the

ecosystem health of this stream as the

actions of streamside property owns (pesticide use, dumping of grass clippings or other materials

at banks, etc.) greatly impact the vitality of salmon habitat. Some reservations were also

Figure 10: Jenkins Creek in Maple Valley, WA after daylighting efforts. The creek follows a meandering route and natural obstacles and plantings are visible.

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expressed about the aesthetics of natural plantation. Residents were educated about the “beauty

and functional superiority of native species”. A series of public meeting were held throughout

the planning and implementation stages that fostered dialogue between city staff, wilderness park

employees and local landowners. This thorough and since public engagement was important in

the success of this project.

Stream conditions were vastly improved and the salmon showed indications of working their

way upstream, however progress was expectedly slow until streamside vegetation became well-

established. Jenkins Creek offers valuable guidance in the effective inclusion of stakeholder

opinions and the respectful management of multiple needs and desires amongst community

members

Arcadia Creek – Kalamazoo, Michigan

This project exemplifies how a daylighting project can flourish in the dense central business

district of a city. This project marries flood-relief measures with downtown amenity creation in a

city area that had become increasingly regarded as risky and in decline (Pinkman, 2000). The

areas above where the river had been piped had been prone to flooding prior to the daylighting

procedure. The city went through years of planning, property acquisition, citizen engagement

and design iterations before any construction began. Eventually the city acted on an ambitious

but well-derived plan to expose the river and renovate adjacent land.

The well-engineered canal is built to tolerate a 500-year flood, a lofty standard. In addition, the

city assumes all risk so downtown landowners no longer pay for flood insurance. There was not

sufficient room to incorporate a circuitous stream route or extensive naturalized stream banks,

but the reconfigured concrete-walled canal does incorporate considerable public space along the

daylighted section and the area expertly accommodates festival crowds and everyday passers-by.

The Arcadia Creek Festival Place now hosts many events year-round in the spaces created

around this daylighted creek (Downtown Kalamazoo Inc., 2014)

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The city had to solve several significant technical challenges associated with soil contamination

and structural stability concerns. (Pinkman, 2000). These remediations comprised a large part of

the total cost for the revitalization project but they were necessary and the city has reaped many

times over what the invested in the area. Over $200 million in private investments had flowed

five years after project completion including private developments and public institutions.

Annual tax revenues increased from $60,000 to $400,000 over the same period as a direct result

of the restoration project. Local businesses were reporting an estimated $12 million per year in

sales and employment at the newly created festival site. Ken Nacci, then director of Kalamazoo’s

Downtown Development Authority summarizes the impact by simply stating: “What we have is

much better than we had before.

In many ways Kalamazoo and Arcadia Creek are a close analog to Dartmouth and its Sawmill

River. The two cities mirror each other in their size and position in an urban agglomeration. At

the time Kalamazoo was 80,000 within a 250,000 urban centre, as of 2011 Dartmouth has a

population just shy of 70,000 within Halifax’s urban core containing almost 300,000 (Province

of Nova Scotia, 2014; Statistics Canada, 2014). Kalamazoo is a city with a significant post-

secondary education base, is a health care hub and several other major employers (Pinkman,

2000). This economic condition is reminiscent of Halifax’s regional centre. Kalamazoo was very

successful in transforming a troubled area of its urban centre into a lively mixed-use node

Figure 11: Festival site on Arcadia Creek in Kalamazoo, MI.

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through a daylighting project and associated downtown revitalization efforts. Dartmouth is well-

poised to follow the same path if it makes similar choices in the near future.

Summary of Case Studies

Each of the five daylighting projects described above inform thoughts about daylighting in

Halifax’s urban core. In specific ways each of these cases illustrate the many deep benefits that

daylighting initiatives can impart on cities willing to make the initial investment.

Cheonggyecheon reaped an array of environmental, financial and tourism-related rewards;

Valley Creek imbued Port Angeles with an attractive naturescape and bolstered the operations of

a key community business; Yonkers’ Saw Mill River is the keystone in a formidable integrated

urban restoration scheme; Jenkins Creek in rural Washington state informs how important

community engagement is and reminds of the intricacies of effective habitat restoration; Arcadia

Creek in Kalamazoo is a tantalizing example of how a daylighted river can be an inspiring civic

centrepiece even amongst the space constraints in a dense central business sector.

Table 1: Comparison of key aspects for the five case studies discussed and Dartmouth, NS

Cheonggyecheon

Seoul, S. Korea.

Yonkers,

NY

Kalamazoo,

MI

Maple

Valley, WA

Port

Angeles, WA

Dartmouth, NS

Length 5.8 km* 6 blocks

(580 metres)*

5 blocks (470

metres)

460

metres

150

metres

350-500

metres

Cost $367 million $19 million $7.5 million $1.05Million $1 million $2-5 million

Metres per

$ million

15.8 30.5 62.7 438 150 70

Though only five particularly relevant projects were discussed in this report, various other

daylighting projects might be informative for daylighting projects in the Halifax area. Still Creek

in Vancouver is an interesting case of phased river daylighting in an urban context that has

produced impressive ecosystem results (Waterbucket, 2012; City of Vancouver, 2002). Other

intriguing initiatives have developed in Zurich, Switzerland (American Rivers, 2013; Sinclair,

2012) and Providence, Rhode Island (WaterFire, 2014; Urban Omnibus, 2013)

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What is most apparent from the study of these

daylighting case studies in the abundance of

possible benefits that a community my garner

by daylighting an urban waterway. Through

careful planning, with community support and

as an integrated part of a comprehensive

planning strategy, cities seem abundantly

capable of achieving various successes

through daylighting schemes.

Figure 12: WaterFire Festival at Waterplace Park, where daylighting occurred at the confluence of the Woonasquatucket, Moshassuck, and Providence rivers.

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The Case for Halifax The next step for this investigation, after having described several completed daylighting

projects, is to review the case for such a project in Halifax’s urban core in light of the

informative case studies. The potential for any given daylighting initiative might be assessed on

the grounds of a suitable candidate waterway, the specific goals or intended outcomes for the

specific project, the policies in place that influence the practical undertaking of daylighting in a

given jurisdiction, financial realities, and perhaps most importantly the climate within which the

proposed project might occur in. This last consideration refers to the social factors that influence

the process and therefore the potential success of a daylighting project (or any publicly relevant

project). These factors include, but are perhaps not limited to, public support, community group

or other stakeholder support and local government desire.

Candidate Waterways

A standout candidate waterway for daylighting in Halifax’s urban core is the Sawmill River in

Dartmouth. Though other possible sites exists and may be viable in the future, the Sawmill River

is a timely option and will be the focus of this section of the report.

Sawmill River – Dartmouth, Nova Scotia

The Sawmill River in Dartmouth has an interesting history and presents an intriguing case for

daylighting in the near term. In essence, the Sawmill River currently exists largely as a culverted

stream between Sullivan’s Pond and Dartmouth Cove that for a variety of reasons warrants

serious and urgent consideration for daylighting (Ecology Action Centre and The Sackville River

Association, 2014).

The history of the river is as engaging as the initial impulse might be to engage in a daylighting

restoration (Spacing Atlantic, 2014). Historically the river was important for transport and

culturally for the Mi’kmaq people. Beginning in the mid-18th

century, the river was importantly

for industrial developments. Following a hurricane in 1971 which caused flooding in the area,

the flow was routed underground. There it has remained for the stretch between Sullivan’s pond

and the outlet south of the intersection of Alderney Drive and Mill Street behind the Dartmouth

curling club. From this culvert outlet, it flows down an artificial canal composed variously of rip

rap, timber, concrete and steel.

21

In a presentation to the Harbour East Marine Drive Community Council (HEMDCC) in mid-

November 2014, The Ecology Action Centre (EAC) and the Sackville River Association (SRA)

outlined some of their main reasons for advocating for the daylighting of parts of the Sawmill

River (Rankin and Regan, 2014). Major factors cited in that presentation included: providing fish

passage as mandated by the Department of Fisheries and Oceans (DFO), improving stormwater

management (increasing flow capability and enhancing resilience to high volumes), the

stipulations HRM Policy on Daylighting Rivers, the timeliness because of upcoming plans for

storm sewer maintenance and upgrades to the Portland St and Alderney Dr. intersection, the

complimentary fit with Canal Greenway plans, the need for increased parks/greenspace due to

residential development in the area (King’s Wharf), the cost effectiveness of partial daylighting

compared to a culvert-only arrangement, and what they see as strong public support for an

exposed stream. The following section will elaborate on a few of these factors and some others

that are relevant in light of the case study analysis done earlier in this report.

Figure 13: Historical images surrounding the Saw Mill River site in Dartmouth, NS. The river courses from Sullivan’s Pond to Dartmouth Cove, passing to the right of the church in the bottom right image.

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Goals for a Daylighted Sawmill River

Though it might seem plausible that daylighting Sawmill River will have innumerable benefits, it

is worthwhile to stress a few key aspects.

Combined Stormwater Handling and Fish Passage

Though these stormwater capacity and fish passage may seem at first like two distinct features of

a potential daylighting project in this location, they have been grouped together intentionally to

highlight how the ideas are in some ways connected and one.

The main reason for grouping these two factors is because by addressing one, the other is also

remedied, especially if a combined culvert/daylight arrangement is constructed. If

accommodations are made for fish passage by way of daylighting sections of the river, while

concurrently replacing the culverted sewer, a redundancy is achieved that would permit water

flow even if one or the other is compromised in a way that restricts or prevents flow through.

The DFO requires structures to allow fish passage in this stream system. Maintaining fish

passage structures in underground culverts complicates the installation and likely increases

lifetime operating costs when accounting for fish passage monitoring. The EAC and SRA point

out that DFO scientists indicate up to 300,000 gaspereau fish, as well as Atlantic salmon, eels

and trout could exploit daylighted passageways to access habitat and spawning grounds (EAC

Figure 14: Locations along the proposed route for a daylighting project for the Sawmill River in Dartmouth, NS.

23

and SRA, 2014). Recent flooding in the area at Ochterloney St and Maple St show how the

location is vulnerable to high water flows. Having a daylight watercourse as well as a piped

conduit increased the capability of the system to handle peak flows and provides insurance of

flow by having two separate routes. This is exactly the arrangement used in Yonkers (Spacing

Atlantic, 2014) as well as several other projects (Pinkman, 2000, p 6).

Park space Allocation and Greenspace Connectivity

The course of the Sawmill River is an area that represents a key valve between existing park

space and trail systems. A daylighted Sawmill River with adjoining green space would draw

people to the area and would provide needed parkspace in an area that is beginning to see huge

increase in its residential population.

The Sawmill River site is the missing link between the Trans-Canada trail along the Dartmouth

coastline and the Shubie Canal Greenway Corridor (HRM and Province of Nova Scotia, no date).

Currently it is a major hurdle to travel between the waterfront trail and the beginning of the

Dartmouth Multi-use trail that comprises the beginning of the Shubie Canal Greenway Corridor.

Connecting these two trail systems would enable users to access the lengthy reached of the

Shubie Canal Greenway directly from the Dartmouth coastline and conversely, would link

southbound travellers along the Shubie Canal Greenway to the Trans Canada trail that leads

towards the Shearwater Flyer Trail that then connects with the Saltwater marsh Trail (Harbour

Parks and Trails Association, 2014). This is the kind of connectivity that leads to useable trail

networks that are desirable for commuting and recreational use.

Additionally, the large-scale residential developments occurring around the Dartmouth Cove

area make the case for more and better integrated green space networks in the area.

Developments proximal to the Sawmill River are creating space for up to 5000 new residents in a

small area (King’s Wharf, 2014; EAC and SRA, 2014). Multi-storey condo-buildings with retail

space at ground level at the outflow of Sawmill River are bringing an influx of new residents into

the Dartmouth Cove area. This reality increases the need to protect and grow public space in the

immediate area in order to provide for the projected increase in population. It also means demand

will increase for such spaces as people move in, as they are already doing. Connecting the

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waterfront trail and the Shubie Canal Greenway via a daylighted Sawmill River area would

provide much needed trail connectivity and would greatly improve the liveability and feel to this

burgeoning area.

Economic Returns and Urban Revival

In the midst of the massive developments occurring in Dartmouth Cove, it is a prudent and

timely exercise to discuss the potential for a daylighted Sawmill River to produce great benefits

for the city. An exposed river course with trail connectivity could have significant positive

impacts on urban life in this area and on economic returns on investment for the city and the

developers. Providing appealing greenspace for both the current and the prospective residents in

this area will likely impact the sales of the proposed but not yet constructed buildings.

Greenspace of the type that would be part of a daylight river would surely increase condominium

sales and ensure viability to the whole Dartmouth Cove plan. Common in the cases studies

discussed earlier in this report is the boost to local tax revenues.

The trend of boosted property values and consequently municipal tax revenue is strong in

daylighting case studies. Advocates for the projects in Cheonggyecheon and Yonkers present this

as one of the major successes of those projects. Though I have not attempted to make detailed

Figure 15: The last section of the Sawmill River before it flows into Dartmouth Cove. The building in the background is part the King's Wharf developments.

25

projections, some estimates for the impact on tax revenues have been made (Spacing Atlantic,

2014). If lots with old buildings being used for commercial purposes adjacent to the river course

were consolidated by developers then residential buildings similar to the current Lock 4@Starr

building could be constructed. This arrangement could provide new commercial and residential

units that could garner about $200,000 in tax revenue annually and $4,000,000 over the projected

40-year life of the developments if the values mirror those of the Lock 4@Starr property. This

illustrates the potential for the site to generate profit and condense residential land use, all the

while providing a daylighted river for the public benefit.

These three main project goals by no means ought to be the only goals of such an important

project with such diverse implications. However, if focus is put towards achieving these major

objectives, then the project appears simpler than it otherwise might and other benefits will fall

into place. Stormwater handling and fish passage, parkspace allocation/greenspace connectivity,

and economic return/urban revival are important goals that ought to be prioritized for a

daylighting of Sawmill River.

Additional Motivating Factors

Adding to the notion of urban revival is the idea of the river as civic rallying point. At the

HEMDCC meeting at which the EAC and SRA presented their case for daylighting the Sawmill

River, an attendee voiced a thoughtful and passionate plea: “Halifax has their new library, we

can have the Sawmill River.” This strikes a powerful note: daylighted rivers can help develop

civic pride and can be powerful landmarks for citizens. The new public library on Spring Garden

Rd in Halifax is a much anticipated project and is an iconic building in the city’s downtown.

Perhaps a daylighted Sawmill River could provide a fixture for the people of Dartmouth to

identify with, rally around and be known for.

The aspect of increased tourism is also one that might be considered significant. Daylighted

rivers are still a novel concept even though it is slowly becoming more popular. Dartmouth

would certainly be a pioneer in eastern Canada if Sawmill River daylighting occurs. The

proposed project is not as large nor as extravagant as some of the case studies discussed, so the

prospect for it to be a significant tourist draw is likely minimal in comparison. Nevertheless, it

could become more of a tourist destination if connections were made with the existing trail

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networks and plans for cultural and historical installations proposed by the Shubenacadie Canal

Commission are carries out along the river course (Shubenacadie Canal Commission, 2014).

Policy Considerations

Many of the prominent policy documents in the Halifax Regional Municipality are in some way

relevant to this project (HRM by Design, the 2014 MPS, the Centre Plan and others). Three plans

will be references here: The newly updated 2014 Municipal Planning Strategy, the 2006 Policy

on Daylighting Rivers and the 2013 Secondary Planning Strategy for Downtown Dartmouth.

These three policy documents speak to delighting at various levels and considering this array of

documents illustrates how a daylighting project is relevant on multiple scales.

The 2014 Halifax Regional Municipal Planning Strategy

Chapter 3 of the MPS pertains to general settlement and housing objectives (Halifax Regional

Municipality, 2014). Objectives discuss managing growth in a way that is financially and

environmentally responsible and prioritizing 25% of growth to occur in urban communities in

the regional centre. Community design objectives include goals of “attractive, healthy places to

live and have access to goods, services and facilities needed by residents and support complete

neighbourhoods” and describe the municipality’s aim to “promote energy efficiency and

sustainable design; protect neighbourhood stability and support neighbourhood revitalization;

preserve significant environmental and cultural features”, amongst others (p.41).

These goals relate directly to the main goals and likely benefits to a Sawmill River daylighting

project. The plan then refers to the Regional Centre chapter for elaboration on community design

principles. The vision statement for the Regional Centre remarks on the intention to “build on its

distinctions and assets to nurture an urban context that enhances quality of life, enriches urban

living and becomes a global destination”, and continues to say how vibrancy, animation and

economic health will be strengthened through the cultivation of a compact, civic inspired and

human-scaled urban fabric of streets, blocks and buildings” (p77). These remarks also align

remarkable with the goals and expected results for this river daylighting project. The guiding

principles that follow expand on the general desires for sustainable development for the Regional

Centre and almost without exception aspects of a daylighted Sawmill River align with these

principles.

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Department of Fisheries and Oceans – Fish Passage requirements

The EAC has pointed out that the DFO requires that infrastructure upgrades to the Sawmill River

flows address fish passage (EAC 2014). HEMDCC councillors admit this is the case and say

they intend to follow these national requirements. The question then is to what end will the

passage be accommodated and what are best practices. These are best answered by fisheries

experts. However the reasoning to support surface passage as part of river daylighting presented

by the EAC and the SRA suggests that daylight passage is preferred by fish and is likely cheaper

to implement (Rankin and Regan, 2014; EAC and SRA, 2014).

HRM Policy on Daylighting Rivers

This short policy document outlines the intention of the

HRM to consider river daylighting whenever feasible

(HRM, 2014). The policy lists three main considerations:

when stormwater infrastructure is in need of repair,

daylighting will be expressly considered along with other

technical and legal issues; cost in comparison with

traditional underground piping infrastructure; and explicit

intent to work with community groups that may be able

to allocate funds towards a daylighting initiative. The

Daylighitng Policy then documents the locations of two

prime daylighting opportunity sites, one of which is the

Sawmill Creek, the other is the Freshwater Brook that

runs through part of downtown Halifax. This document was drafted when serious community

discussion around daylighting the Sawmill creek first reared up in 2006. Nothing came of the

advocacy at the time, but now that the stormwater piping is slated for imminent replacement, the

policy is supremely relevant.

2013 Secondary Planning Strategy for Downtown Dartmouth

The most recent SPS for Downtown Dartmouth makes specific reference to a specific

opportunity site called “Site E” (HRM, 2013). Site E involves land parcels surrounding Irishtown

Rd and Ochterloney St, the very intersection that flooded extensively during the hurricane of

1971 that prompted culverting of the Sawmill River. The special consideration encourages

Figure 16: Cover page of the HRM Policy on Daylighting Rivers

28

medium to high density on this opportunity site and the SPS succinctly states that “Intensive

redevelopment of this site can occur without the loss of any existing housing which is a goal of

this plan. Given the total area of 1.6 acres, the site offers an excellent opportunity for a major

infill project with landmark architecture which can be vital to achieving this plan’s goals of

increasing the area resident base and supporting local business development.” Furthermore,

specific urban design considerations enumerated in this section of the SPS specific to Site E

include that any project ought to embrace the historical context of the site by “allowing

restoration of a naturalized open stream bed to replace the piped waterway, formerly the mill

stream, that flows underneath a portion of the site” (p.30).

If this doesn’t set the stage for an integrated daylighting project then no policy anywhere does.

The 2013 SPS for downtown Dartmouth appears to specifically include provisions to facilitate

the daylighting of Sawmill River in conjunction with denser residential developments alongside

the stream course.

Financial Considerations

According to HRM staff and the EAC, the cost for culvert replacement will range between $8-12

million dollars (Rankin and Regan, 2014). Daylighting is estimated to cost an additional $3-5

million. If estimates for tax revenues from proposed developments on Site E are at all accurate

then these additional costs will be recouped by property taxes alone. Notwithstanding any of the

other possible sources of tax revenue (e.g. from property value increases in the surrounding area

as a result of the daylighting project as seen in other case studies) and other benefits associated

with such a project (social, spatial, environmental, etc.) the financial case for the project is very

promising.

The Local Climate

In any case of any major civic project, including those involving daylighting, the desire of the

community, the passion of advocates and the activity of community groups are crucial

considerations. These factors determine what I am calling the ‘local climate’.

As evidenced by the attendance of community meetings regarding Sawmill River daylighting,

the community of Dartmouth is very much for the project. According to the EAC over 100

residents attending a meeting in 2005 where general consensus was in favour of exposing the

maximum possible length of stream (Rankin and Regan, 2014). The EAC also lists the film

29

screening of the daylighting documentary ‘Lost Rivers’ in 2014 which was attended by over 80

people as indicating interest in local daylighting.. The EAC has also reached over 8000 people

by social media. The Community Council meeting I attended on November 13, 2014, where

presentations on the daylighting proposal were made, was a packed room of between 80-100

people that erupted in applause at the conclusion of the presentations. At that council meeting a

motion was a passed calling for an HRM staff report on the initiative “using full cost

accounting”, with comment by Halifax water.

Any community issue that garners around 100 citizens that appear unanimously in support of an

idea is likely supported by a significant portion of the population. The Ecology Action Centre is

a prominent community action organization that is strongly in favour of Sawmill River

daylighting and has worked hard to educate citizens on the issue and has pushed council on the

matter. The EAC has partnered with the Sackville River Association to inform the public and

make presentations to community council. The EAC lists several stakeholders of diverse

interests that support the idea: The Maritime Aboriginal People’s Council, Native Council of

Nova Scotia, Canoe Kayak NS, Clean Foundation, NDP MP & Fisheries Critic, Robert Chisolm,

Figure 17: A selection of recent media coverage surrounding the proposal to daylight the Sawmill River in Dartmouth, NS.

30

Innovative Real Estate Ltd., King’s Wharf Development, Just Us!-Kings Wharf and the DFO

(Rankin and Regan, 2014).

The community support behind this initiative is diverse and passionate. Now it is largely up to

local councillors to represent these interests appropriately and make informed, considerate

decisions on a project that is poised like few are to have a deep and diverse impact on the

Dartmouth community.

Summary

Daylighting activities are multi-faceted projects that endow manifold benefits to the communities

that commit to the process. The case studies that were analysed illustrated the different types of

daylighting projects that have happened in a variety of unique urban settings. They ranged in

scale and in their goals but they universally reaped rewards that are not often seen from any

single public project. The challenges and drawbacks that presented over the course of these

projects were small in comparison to the benefits seen. The primary hurdles were promoting the

idea to stakeholders and the initial capital investment. A consensus emerges amongst city

officials, developers and other concern groups that the end results are impressive and far-

reaching.

In Halifax, the standout candidate site for

daylighting is the Sawmill River in

Dartmouth. The stage is set well for the

proposed project to succeed. Stormwater

infrastructure work is required. The area

is well-suited for partial river exposure

and creation of surrounding public

greenspace. Local policy is not only

accepting of such a project but specific stipulations have been drafted to encourage consideration

of daylighting procedure. The local community climate is very conducive to engaging in and

Figure 18: Current outflow of the culverted Sawmill River in Dartmouth, NS.

31

supporting the project. Council appears cautiously receptive to the idea and now the fate of the

project rests largely with elected representatives.

River daylighting in Dartmouth could also set a precedent for similar projects on the Halifax

peninsula. Using historical information on water course locations can inform where potential

daylighting sites exist. The flood of potential benefits to communities that undergo stream

daylighting projects ought not to be limited to Dartmouth. Peninsular Halifax has several

potential sites, a severe lack of surface water features exists in the area and daylighting could

provide a unique revitalization to Halifax’s urban core.

Figure 19: Overlay of current road network over Mike Reid (2012) map that used historic information to retrace natural waterways on the Halifax peninsula. Data from HRM HalifaxOpenData, amended using ArcMap software.

32

Recommendations

The recommendations for the cased of Sawmill River in Dartmouth are relatively

straightforward. Bases on the information synthesized from the case studies and the assessment

of the Dartmouth condition, it is nearly inconceivable not to recommend that daylighting occur at

Sawmill River. Detailed site plans with multiple exposure length scenarios were developed by

Ekistics in 2006 for the Canal Greenway Park (Austin 2014; Rankin and Regan, 2014). These

comprehensive plans consolidate the desire of multiple community organizations, private

developers, the municipal government and most importantly community members.

The HRM government has the chance here to trade the status quo for sustainable development-

the key guiding principal in recent planning strategies. Halifax’s newest branding strategy is to

“Be Bold” (Halifax Defined 2014). The city says “this is not just a tag-line or slogan.” This is a

prime opportunity to prove that. Dartmouth is calling out for a bold initiative to reinvigorate its

urban centre, the local government can decide now whether or not to heed that call.

The recommendation to move forward with the daylighting of Sawmill River in Dartmouth is

made after a detailed assessment of completed daylighting projects and the current local

atmosphere surrounding Dartmouth Cove. If followed the city of Dartmouth will be making a

decision that is very likely to improve the liveability, sustainability and uniqueness of Dartmouth

and the city will just as likely see an impressive return on their important investment.

Figure 20: Area plan by Ekistics in 2006 for a proposed project involving the daylighting of Sawmill River in Dartmouth, NS.

33

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momentum-has-strong-current , http://spacing.ca/atlantic/2014/11/10/river-runs-daylighting-

sawmill-river/ , http://www.hellodartmouth.ca/the-time-is-now-daylight-the-sawmill-river/ ,

http://www.cbc.ca/news/canada/nova-scotia/ecology-action-centre-pushes-for-sawmill-river-

daylighting-1.2833250 , http://metronews.ca/news/halifax/1209179/group-seeks-to-bring-

dartmouths-sawmill-river-back-to-light/

18. Author.

37

19. http://urbanomnibus.net/2013/11/daylighting-rivers-in-search-of-hidden-treasure/

20. Author.