Item - 2013.EX36.7

Tracking Status

  • This item was considered by Executive Committee on December 5, 2013. The Executive Committee postponed consideration of this item. Consult the text of the decision for further information on the deferral.

EX36.7 - Request to Amend the Tripartite Agreement for Billy Bishop Toronto City Airport

Decision Type:

Committee Decision

The Executive Committee deferred the Item and public presentations to the February 4, 2014 Executive Committee meeting, or to a special meeting at the call of the chair, whichever is sooner.


(November 21, 2013) Report from the Deputy City Manager, Cluster B


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. 

Background Information

(November 21, 2013) Report from the Deputy City Manager, Cluster B on Request to Amend the Tripartite Agreement for Billy Bishop Toronto City Airport
(April 22, 2013) Appendix 1 - Letter from Porter Airlines to Mayor Rob Ford
(September 3, 2013) Appendix 1a - Letter from Porter Airlines to Deputy City Manager, Cluster B, John Livey
(November 25, 2013) Appendix 2a (Part 1) - Consultants' Report - Urban Strategies Inc.
(November 25, 2013) Appendix 2a (Part 2) - Consultants' Report - Urban Strategies Inc.
(November 27, 2013) Appendix 2b - Consultants' Report - AirBiz Aviation Strategies
(November 27, 2013) Appendix 2c (Part 1) - Consultants' Report - BA Group Transportation Consultants
(November 27, 2013) Appendix 2c (Part 2) - Consultants' Report - BA Group Transportation Consultants
Appendix 2d - Consultants' Report - CH2MHill
Appendix 2e - Consultants' Report - DPRA Consulting
Appendix 2f - Consultants' Report - Environics Research Group
Appendix 2g - Consultants' Report - HLT Advisory and N. Barry Lyon
Appendix 3 - Correspondence between the City and the Toronto Port Authority
(November 8, 2013) Appendix 4 - Letter from Transport Canada to Deputy City Manager, Cluster B, John Livey
Appendix 5 - Circulation responses from Toronto Police Services and the Office of Emergency Management
Appendix 6 - Letter from the Toronto and Region Conservation Authority
Appendix 7 - Planning Policy Summary
Appendix 8 - Airport Master Plan Examples


(September 24, 2013) E-mail from Lisa Arsenault (EX.Main.EX36.7.1)
(October 30, 2013) E-mail from Miranda Bisnauth (EX.Main.EX36.7.2)
(October 1, 2013) E-mail from Helen Toliver (EX.Main.EX36.7.3)
(October 2, 2013) E-mail from Paulette Pelletier-Kelly (EX.Main.EX36.7.4)
(October 2, 2013) E-mail from John Alexopoulos (EX.Main.EX36.7.5)
(October 3, 2013) E-mail from Stephanie Tjelios (EX.Main.EX36.7.6)
(October 4, 2013) E-mail from Dorothy Cirka (EX.Main.EX36.7.7)
(October 7, 2013) E-mail from Alastair Dickson (EX.New.EX36.7.8)
(October 10, 2013) E-mail from Barbara Klunder (EX.Main.EX36.7.9)
(October 10, 2013) E-mail from Jacob Stoller (EX.Main.EX36.7.10)
(October 10, 2013) E-mail from Anne Barber (EX.Main.EX36.7.11)
(October 10, 2013) E-mail from Gwen Fogel (EX.Main.EX36.7.12)
(October 10, 2013) E-mail from Sari Bercovitch (EX.Main.EX36.7.13)
(October 10, 2013) E-mail from Catherine Olsen (EX.Main.EX36.7.14)
(October 14, 2013) E-mail from Rosemary Waterston (EX.Main.EX36.7.15)
(October 17, 2013) E-mail from Mary Partridge (EX.Main.EX36.7.16)
(October 17, 2013) E-mail from Jasmine Lovric (EX.Main.EX36.7.17)
(October 20, 2013) E-mail from Lisbie Rae (EX.Main.EX36.7.18)
(October 20, 2013) E-mail from Ann Vanderhoof (EX.Main.EX36.7.19)
(October 21, 2013) E-mail from Glenys Squires (EX.Main.EX36.7.20)
(October 21, 2013) E-mail from Peter Ashby (EX.Main.EX36.7.21)
(October 21, 2013) E-mail from Moya Ashby (EX.Main.EX36.7.22)
(October 21, 2013) E-mail from Susan Grant (EX.Main.EX36.7.23)
(October 23, 2013) E-mail from John McLeod (EX.Main.EX36.7.24)
(October 23, 2013) E-mail from Dale and Inna Whittington (EX.Main.EX36.7.25)
(October 23, 2013) E-mail from Mike Darnbro (EX.Main.EX36.7.26)
(October 23, 2013) E-mail from Nancy Kent (EX.Main.EX36.7.27)
(October 23, 2013) E-mail from Rod Duncan (EX.Main.EX36.7.28)
(October 23, 2013) E-mail from John Heath (EX.Main.EX36.7.29)
(October 23, 2013) E-mail from Anne Kotyk (EX.Main.EX36.7.30)
(October 23, 2013) E-mail from Merle Kisby (EX.Main.EX36.7.31)
(October 23, 2013) E-mail from Kristin Basmadjian (EX.Main.EX36.7.32)
(October 24, 2013) E-mail from Janine Clark (EX.Main.EX36.7.33)
(October 24, 2013) E-mail from Victor Granic (EX.Main.EX36.7.34)
(October 24, 2013) E-mail from Patrick and Diana Walton (EX.Main.EX36.7.35)
(October 24, 2013) E-mail from Mark MacRae (EX.Main.EX36.7.36)
(October 25, 2013) E-mail from Chris Sumpton (EX.Main.EX36.7.37)
(October 28, 2013) E-mail from John McLeod (EX.Main.EX36.7.38)
(November 2, 2013) E-mail from Nancy Snelgrove (EX.Main.EX36.7.39)
(November 8, 2013) E-mail from Peter Ashby (EX.Main.EX36.7.40)
(November 26, 2013) E-mail from Ross Hornby, Vice-President, Government Affairs and Policy, General Electric - Canada and Letter dated November 6, 2013 (EX.Main.EX36.7.41)
(November 26, 2013) E-mail from Carole Zaza (EX.Main.EX36.7.42)
(November 27, 2013) E-mail from Denys Jones (EX.Main.EX36.7.43)
(November 27, 2013) E-mail from Ross Irvine, President, Metropolitan Toronto Condominium Corporation No. 949, Number One York Quay (EX.Main.EX36.7.44)
(November 21, 2013) E-mail from Denys Jones, Commodore the National Yacht Club (EX.Main.EX36.7.45)
(November 27, 2013) E-mail from Mark Steele, President, Toronto Passenger Vessel Association (EX.Main.EX36.7.46)
(November 27, 2013) E-mail from Braz Menezes (EX.Main.EX36.7.47)
(November 27, 2013) E-mail from Shirley Bush (EX.Supp.EX36.7.48)
(November 28, 2013) E-mail from Pat Fletcher, Windward Co-op (EX.Supp.EX36.7.49)
(November 29, 2013) E-mail from Teresa Ascencao, Acting Coordinator, Citizens for a Healthy Toronto Waterfront (EX.Supp.EX36.7.50)
(November 29, 2013) E-mail from Michael Colgrass (EX.Supp.EX36.7.51)
(November 29, 2013) E-mail from Adrienne Pollak (EX.Supp.EX36.7.52)
(November 30, 2013) E-mail from Gerald Hunt (EX.Supp.EX36.7.53)
(December 1, 2013) E-mail from Kevin Allis (EX.Supp.EX36.7.54)
(December 1, 2013) E-mail from Kevin Allis (EX.Supp.EX36.7.55)
(December 1, 2013) E-mail from Leah Lambert (EX.Supp.EX36.7.56)
(December 1, 2013) E-mail from Anita Grunau (EX.Supp.EX36.7.57)
(December 1, 2013) E-mail from Julie Beddoes (EX.Supp.EX36.7.58)
(December 1, 2013) E-mail from Dennis Findlay (EX.Supp.EX36.7.59)
(November 29, 2013) E-mail from Peter Ashby (EX.Supp.EX36.7.60)
(November 30, 2013) E-mail from Glen Newbury (EX.Supp.EX36.7.61)
(November 30, 2013) E-mail from Shawn Dinn (EX.Supp.EX36.7.62)
(November 30, 2013) E-mail from Talia Erlich (EX.Supp.EX36.7.63)
(November 30, 2013) E-mail from Brian Brown and Laurel Rowbotham (EX.Supp.EX36.7.64)
(November 30, 2013) E-mail from Alastair Dickson (EX.Supp.EX36.7.65)
(November 30, 2013) E-mail from Angela Jackson (EX.Supp.EX36.7.66)
(November 30, 2013) E-mail from Peter Newman and Susan Warner Keene (EX.Supp.EX36.7.67)
(November 30, 2013) E-mail from Corrie Galloway (EX.Supp.EX36.7.68)
(November 30, 2013) E-mail from Angela Jackson (EX.Supp.EX36.7.69)
(December 1, 2013) E-mail from Anne O'Callaghan (EX.Supp.EX36.7.70)
(December 1, 2013) E-mail from April Hickox (EX.Supp.EX36.7.71)
(December 1, 2013) E-mail from Dave Fernandes, Founder and CEO, MintLeaf Software Inc. (EX.Supp.EX36.7.72)
(December 1, 2013) E-mail from Dawn Brennan (EX.Supp.EX36.7.73)
(December 1, 2013) E-mail from Rachel Doran (EX.Supp.EX36.7.74)
(December 1, 2013) E-mail from Masha Ostrovsky (EX.Supp.EX36.7.75)
(December 1, 2013) E-mail from Janet Cornfield (EX.Supp.EX36.7.76)
(December 2, 2013) E-mail from Elizabeth Griffin (EX.Supp.EX36.7.77)
(December 1, 2013) E-mail from Bill Freeman (EX.Supp.EX36.7.78)
(December 2, 2013) E-mail from Kathy De Bruyne (EX.Supp.EX36.7.79)
(December 2, 2013) E-mail from Chris Thompson (EX.Supp.EX36.7.80)
(December 2, 2013) E-mail from Rev. James Holzbauer (EX.Supp.EX36.7.81)
(December 2, 2013) E-mail from Mary Brock (EX.Supp.EX36.7.82)
(December 2, 2013) E-mail from Sarah Ives (EX.Supp.EX36.7.83)
(December 2, 2013) E-mail from Udo Kaul (EX.Supp.EX36.7.84)
(December 2, 2013) E-mail from William Roberts (EX.Supp.EX36.7.85)
(December 2, 2013) E-mail from Phylis Coles, President, Gooderham & Worts Neighbourhood Association (EX.Supp.EX36.7.86)
(December 2, 2013) E-mail from Kevin Allis (EX.Supp.EX36.7.87)
(December 2, 2013) E-mail from Nicholas Singh, President, Swansea Area Ratepayers Association (EX.Supp.EX36.7.88)
(December 3, 2013) E-mail from Andrew Silcock (EX.Supp.EX36.7.89)
(December 2, 2013) E-mail from Land Over Landings (EX.Supp.EX36.7.90)
(December 2, 2013) E-mail from Dennis Bryant (EX.Supp.EX36.7.91)
(December 2, 2013) E-mail from Lorna Milne (EX.Supp.EX36.7.92)
(December 3, 2013) E-mail from E. L. Cramp, Secretary, High Park Residents' Association (EX.Supp.EX36.7.93)
(December 3, 2013) E-mail from Regina Virgo (EX.Supp.EX36.7.94)
(December 3, 2013) E-mail from Wendy Hardy (EX.Supp.EX36.7.95)
(December 3, 2013) E-mail from Michael Harrison (EX.Supp.EX36.7.96)
(November 21, 2013) Letter from Denys Jones, Commodore the National Yacht Club (EX.Supp.EX36.7.97)
(December 3, 2013) Letter from George Hume, West Don Lands Committee (EX.Supp.EX36.7.98)
(December 4, 2013) Letter from Eliza Moore (EX.Supp.EX36.7.99)
(December 3, 2013) E-mail from Patti Hughes (EX.Supp.EX36.7.100)
(December 3, 2013) Letter from Tom Litto, Chair, Harbourfront Community Centre (EX.Supp.EX36.7.101)
(December 4, 2013) E-mail from Bruna Nota (EX.Supp.EX36.7.102)
(December 3, 2013) Letter from Lesley Monette (EX.Supp.EX36.7.103)
(December 3, 2013) E-mail from Lili Enarson (EX.Supp.EX36.7.104)
(December 3, 2013) E-mail from Ellen Larsen (EX.Supp.EX36.7.105)
(December 3, 2013) E-mail from Peter Ashby (EX.Supp.EX36.7.106)
(December 3, 2013) E-mail from Tito Faria (EX.Supp.EX36.7.107)
(December 3, 2013) E-mail from Mary Anderson (EX.Supp.EX36.7.108)
(December 4, 2013) E-mail from Eric Malcolmson (EX.Supp.EX36.7.109)
(December 4, 2013) E-mail from Peter Robertson (EX.Supp.EX36.7.110)
(December 4, 2013) Letter from Paul Scrivener, Director of External Affairs, The Toronto Industry Network (EX.Supp.EX36.7.111)
(December 4, 2013) E-mail from Sean Gallagher (EX.Supp.EX36.7.112)
(December 4, 2013) E-mail from Daniel Wilson (EX.Supp.EX36.7.113)
(December 4, 2013) Letter from Dianne Usher, President, Toronto Real Estate Board (EX.Supp.EX36.7.114)
(December 4, 2013) E-mail from Carole A. Zaza (EX.Supp.EX36.7.115)
(December 4, 2013) E-mail from Sean Gallagher (EX.Supp.EX36.7.116)
(December 4, 2013) E-mail from Andrea Stark (EX.Supp.EX36.7.117)
(December 4, 2013) E-mail from Lily S. May (EX.Supp.EX36.7.118)
(December 4, 2013) E-mail from Timothy Egan (EX.Supp.EX36.7.119)
(December 4, 2013) E-mail from Dan Bordun (EX.Supp.EX36.7.120)
(December 4, 2013) E-mail from Gene Desfor (EX.Supp.EX36.7.121)
(December 2, 2013) Letter from Janet Ecker, President and CEO, Toronto Financial Services Alliance (EX.Supp.EX36.7.122)
(December 4, 2013) E-mail from Pippa Feinstein (EX.Supp.EX36.7.123)


Councillor Pam McConnell
Councillor Adam Vaughan
Councillor Raymond Cho


Motion to Defer Item moved by Councillor Norman Kelly (Carried)

Defer the Item and public presentations to the February 4, 2014 Executive Committee meeting, or to a special meeting at the call of the chair, whichever is sooner.

Vote (Defer Item) Dec-05-2013

Result: Carried Majority Required - EX36.7 - Kelly - Defer Item
Total members that voted Yes: 11 Members that voted Yes are Gary Crawford, Vincent Crisanti, Frank Di Giorgio, Norman Kelly (Chair), Peter Leon, Giorgio Mammoliti, Denzil Minnan-Wong, Cesar Palacio, Anthony Perruzza, David Shiner, Michael Thompson
Total members that voted No: 2 Members that voted No are Rob Ford, Peter Milczyn
Total members that were Absent: 0 Members that were absent are

Point of Privilege by Councillor Michael Thompson

Councillor Thompson, on a Point of Privilege, stated that Councillor Mammoliti made disparaging remarks about staff being political, and asked that he retract such comments.

Ruling by Deputy Mayor Norman Kelly
Deputy Mayor Kelly accepted the Point of Privilege.

Councillor Mammoliti retracted his comments.

Source: Toronto City Clerk at