Item - 2013.EX36.7

The purpose of this report is to respond to City Council's direction to review a request from Porter Airlines to permit jet-powered aircraft, and to add extensions at both ends of the main runway at Billy Bishop Toronto City Airport (BBTCA). This report provides a summary of findings from staff and consultant reviews, and recommends a process for moving forward.

BBTCA has experienced significant growth following the launch of Porter Airlines in 2006, with annual passenger volumes rising from 26,000 in 2006 to 2.3 million in 2012.  BBTCA is now the ninth busiest airport in Canada, with a reputation for positive passenger experiences.  It provides connections to key regional business and leisure destinations such as Montreal, Ottawa, New York, Chicago, Boston and Washington. The close proximity of BBTCA to the downtown financial district is a significant asset to businesses operating in downtown Toronto, and the recent success and convenience of BBTCA has been an economic benefit to the City. 

As part of the review, City staff retained specialized consultants in the following areas: aviation, coastal processes and water quality, economic impacts, health impacts including air quality and noise, land use and planning, polling and public consultation, and transportation impacts. Reports with status updates on the consultant findings were provided to Executive Committee on July 3 and September 24, 2013. 

The consultant team was asked for additional information and review as a result of input from the public consultations, direction from Executive Committee, and in response to a revised request from Porter Airlines to extend the runways from 168 to 200 metres at each end.  As a result, a number of the final consultant studies have not been available until the release of this report, and so Porter Airlines, the Toronto Port Authority (TPA), and other interested stakeholders and members of the public have not had an opportunity to respond with their view of issues raised as well as how these issues can be mitigated. 

The current review is premised on an expectation that:

1. the proposed runway extensions would likely meet Transport Canada regulatory requirements, proceed through appropriate Environmental Assessment(s), and meet Council's stipulations respecting preservation of the Marine Exclusion Zone;
2. the proposed jets, the Bombardier CS-100, would meet the noise restrictions contained in the Tripartite Agreement, and that this would be demonstrated by flight test data; and
3. the proposal would provide a net improvement to the City, and be without adverse impacts as defined by the relevant Official Plan policy.

Despite the breadth of consultant studies, there remain outstanding questions. First, Transport Canada has not provided the City with confirmation of the feasibility and impacts of a runway extension.  Second, the available flight test data, as provided by Bombardier to the City's aviation consultants on November 4 and on November 26, 2013, is insufficient to confirm whether the proposed jet aircraft will meet the noise guidelines set out in the Tripartite Agreement.  Third, the TPA recently advised the City that an extension of the Tripartite Agreement would be necessary if Porter Airlines' request is approved. At present, the Tripartite Agreement expires in 2033 with no provision for renewal or extension, and additional information is needed to understand the implications for the City of its extension.  These outstanding questions undermine the agreed-upon premises for this review, and substantiate that approval of the expansion request is premature.

This review has also highlighted conflicts which exist between the nearby schools, community centre, parks and residential community and BBTCA. Mitigation measures to address traffic congestion, emissions, noise from aircraft and maintenance operations and groundside conflicts are necessary in order to provide better conditions in the neighbourhood surrounding the airport.

BBTCA is one of the few downtown area airports in the world, and its waterfront location presents a unique condition.  Review of the current request has led to a broader discussion of tools the City needs to more effectively assess current and future airport operations in the context of the central waterfront's revitalization. 

Advances in jet technology have significantly improved the noise and emissions performance of such aircraft.  Staff suggest that, in assessing changes proposed at BBTCA, the key question is not the type of aircraft technology proposed, but the number of passengers, flights and required infrastructure which may arise as a result of new aircraft technology.  Neither the TPA nor the City has a framework to evaluate or manage these key growth factors at BBTCA.

While BBTCA is not required to have a master plan legislatively, master plans are a standard operating requirement that provide information to regulators, funding partners and the community on airport growth and business planning.  All other Canadian airports operate in accordance with an airport master plan.  The TPA should have one prepared for BBTCA in accordance with industry best practices, and in consultation with the City, Transport Canada, relevant stakeholders and members of the public.  Referencing the airport master plan, the City should follow with the necessary planning studies to assess how an expanded airport could fit within the context of a revitalized waterfront.  Staff should report back to Council on both of these processes and, if appropriate, make recommendations for updates to the Official Plan. 

The public consultation undertaken as part of the current review has received significant interest and participation.  The airport master planning process and City planning studies will both include opportunities for continued public engagement respecting BBTCA.  If this report is adopted, additional next steps include review by the public and interested stakeholders of the consultants' studies prepared through the current review, completion of necessary environmental assessment(s) for any future proposed runway extensions, and completion of the local transportation study and implementation of Eireann Quay improvements.   Confirmation from Transport Canada of certification of the proposed jet aircraft as well as runway extension feasibility will be required, and further discussions respecting existing and future improvements to airport facilities both airside and groundside will continue.

This review has concluded that the expansion of an airport in a downtown area and on an active waterfront must consider, firstly, the fit of that airport within its surroundings.  Staff believe it is essential to understand the airport's existing and planned size, volume of passengers, number of flights, and its role within the Southern Ontario regional system of airports, in order to complete this evaluation.