From Pessimism to Optimism:
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Genealogy
Today, what we consider to be Rock Bay is defined as the area to east of the Upper Harbour, South of Bay Street, west of Dowler Street and North of Chatham street (Hemmera and Golder, 2001); and while the watershed extends to over eight neighbourhoods in the greater Victoria area, the following body of work will primarily focus on the area immediately surrounding the Bay (Figure 1). The history of this now partially revitalized space is burdened and largely defined by the city’s extensive industrial past, once earning it the distinguished privilege of being perhaps the most contaminated area in the province. The following is an attempt to look at Rock Bay’s history, and how it earned its place among the dirty places in the country.
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A devastating fire, which occurred at the federal archives near the end of the 19th century, erased much of the historical records prior to the colonization of Victoria (Hemmera and Golder, 2001). The best indicator of any deeper historical use comes curtesy of the Burnside Gorge Community Association (BGCA), which reveals that Rock Bay was historically shared by the Esquimalt and Songhees Nations.
The area surrounding the bay was never considered a place of permanent settlement; rather, it was a space provided to visiting nations and peoples during their time in the area (BGCA, n.d.) (Figure 2). In 1850 representatives of the Kosampson Tribe of the Songhees Nation signed a treaty for fifty-two pounds and ten shillings’ sterling that granted |
Rock Bay and the surrounding area to the Hudson’s Bay Company (BGCA, n.d.). Shortly after signing the treaty, the area began to undergo drastic changes as industrialization and urbanization took place.
In 1860 The Victoria Gas Company (a direct ancestor of B.C. Hydro) acquired the land in the south-eastern part of the bay, and began filling in that portion of the foreshore between the spring of 1861 and summer of 1862 when the company went into production (Hemmera and Golder, 2001).
In 1860 The Victoria Gas Company (a direct ancestor of B.C. Hydro) acquired the land in the south-eastern part of the bay, and began filling in that portion of the foreshore between the spring of 1861 and summer of 1862 when the company went into production (Hemmera and Golder, 2001).
Prior to infilling, the bay was around three times the size it is today (Figure 3), with many small islands populating the area earning it its English name (CRD, n.d.). Until 1888 a creek ran from the Fernwood marsh, through Hillside Farm to an outlet at Rock Bay (BGCA, n.d.). This was eventually covered, and piped to prevent flooding of the newly paved streets (BGCA, n.d.). While very little information is available regarding the historic ecology of the site, the bay itself has been identified as an area which likely supported intertidal mud flats and salt marsh habitat until the onset of heavy industrialization (CRD(a), n.d.). These ecosystems are known to house a diverse and functional ecosystem supporting shorebird populations, as well as act as nurseries for juvenile fish (CRD (b,c), n.d.). |
Shortly after the establishment of the gasification plant in 1862, the area underwent rapid expansion in its industrial activity which resulted further significant shoreline changes during the latter part of the 19th and early part of the 20th century. Activities in the area included: a tannery, sawmills, a coal gasification plant, an asphalt plant, a propane tank farm, and a concrete batch plant (BGCA, n.d). During the next century so much infilling occurred that today roughly 72% of the uplands portion of Rock Bay is located on highly heterogeneous fill (Hemmera and Golder, 2001).
After nearly 100 years of continuous and intensive industrial activity, many of the areas buisness were either abandoned or converted by the end of the 20th century leaving a drastically altered and degraded habitat (BGCA, n.d., Hemmera and Golder, 2001). An Environmental Site Assement completed in 2001 revealed that the on site contaminants included excessive levels of PAHs (Polycyclic aromatic hydrocarbons), ammonia liquors, cyanide, hydrocarbon fuels, sulphate, oxide box wastes, PCBs (polychlorinated biphenyl), arsenic and metals (Hemmera and Golder, 2001). What ultimately emerged from this investigation was a massive remedial effort lasting over a decade and costing upwards of $138 million (Wilson and Dedyna, 2015), leaving us with an excellent example of the effort needed to “fix” some of the more extensive environmental problems in the city.
Socio-ecological characterization
Originally a location shared by the Songhees and Esquimalt First Nations to host visiting peoples, Rock Bay has seen extensive changes since its transfer to The Hudson’s Bay Company in 1850. While many aspects of the site have changed over the past one and a half centuries, BC Hydro has maintained ownership over a significant portion of the site since the creation of the Victoria Gas Company in 1860. Today the area is shared by a number of landholders including BC Hydro, Transport Canada, Lehigh/Ocean Concrete, Old Victoria Properties, Vancouver Island Brewery, and Island Asphalt (Figure 4). While the majority of the current landholders continue to operate their businesses, BC Hydro and Transport Canada (the largest holders) have undertaken various environmental actions in the Rock Bay area since 1988. While there have been reports of tension between the involved parties, remediation is said to be completed in 2016.
According to the Environmental Appeal Board (EAB), early approvals for remediation were met with multiple appeals on the grounds of either filed aggrievances by neighbouring properties (former land owner Super Save Gas), or with regards to the inclusion of neighbouring properties in the remediation (an attempt by BC Hydro to increase remedial site) (BC Hydro, 2007). Despite these potential setbacks, remediation went ahead as each appeal was dismissed due to a lack of jurisdiction (BC Hydro, 2007).
Looking at the site from an ecological perspective, the Rock Bay drainage basin was once defined by a stream that has since been completely modified over the years to facilitate storm water removal (BGCA, n.d.). This, along with heavy industrial use, has contributed to poor water quality and habitat loss in Rock Bay (CRD (d), n.d.). The salt-water marsh that once provided habitat for fish and wildlife has completely disappeared due to continuous infilling of the |
bay, leaving only anthropogenic intertidal habitat features (BCGA, n.d.; Windward et.al., 2014). Urbanization in the drainage basin has increased impervious surfaces such as roofs, driveways, parking lots and roads, and has consequently changed the natural hydrological conditions and altered runoff rates (BCGA, n.d.).
Despite receiving a “very low” ecological value rating as part of the Victoria and Esquimalt Harbours Environmental Action Program in 2009 (VEHEAP, 2009), a subsequent Detailed Ecological Risk Assessment (DERA) indicates that there is the possibility for some aquatic life to exist in the area (Windward et.al., 2014). The report suggests the potential for Rock Bay to support both Pacific and Olympia oysters. The Olympia oyster is of particular importance as it is listed as a native “species of special concern” (Windward et.al., 2014) However, while they have been identified at the entrance to the Bay, it is unknown if their distribution extends into Rock Bay given the turbidity of the waters (Windward et.al., 2014). The DERA also suggest the possibility of crangon shrimp, dungeness crab, graceful crab, red rock crab, helmet crab, and sunflower and short-spined sea stars to frequent Rock Bay, along with common fish species such as shiner perch, various sculpin species, starry flounder and juvenile salmonids to occur in Rock Bay for at least a portion of their life (Windward et.al., 2014). Information on terrestrial species and habitat was not included in the DERA, or was any additional information found that could help to indicate any sort of suitable habitat to support any species. This is likely due to recent changes in landscape (after the remediation) and ongoing industrial use on the other sites. Time will tell what, if anything, may colonize this space.
Now that the long and expensive remediation in coming to an end, questions regarding what to do next have begun to arise. Due to the nature of the remediation, a large portion of the Bay is starting over. It appears that green space has not been integrated into the site, and the intensive dredging of the sea floor has likely removed what little habitat space once existed. Perhaps these remedial changes will allow for better ecological function in the bay, but it is too early to tell. Sources suggest that the land will soon be sold to the Songhees and Esquimalt First Nations, thus returning the property to its original landholders (CBC, 2016; Holmen, 2012). Regardless of what ultimately happens to the site (ecologically or otherwise), there is some level of irony implicit in selling back the land to the people who were once forced to sell it during early colonization.
Despite receiving a “very low” ecological value rating as part of the Victoria and Esquimalt Harbours Environmental Action Program in 2009 (VEHEAP, 2009), a subsequent Detailed Ecological Risk Assessment (DERA) indicates that there is the possibility for some aquatic life to exist in the area (Windward et.al., 2014). The report suggests the potential for Rock Bay to support both Pacific and Olympia oysters. The Olympia oyster is of particular importance as it is listed as a native “species of special concern” (Windward et.al., 2014) However, while they have been identified at the entrance to the Bay, it is unknown if their distribution extends into Rock Bay given the turbidity of the waters (Windward et.al., 2014). The DERA also suggest the possibility of crangon shrimp, dungeness crab, graceful crab, red rock crab, helmet crab, and sunflower and short-spined sea stars to frequent Rock Bay, along with common fish species such as shiner perch, various sculpin species, starry flounder and juvenile salmonids to occur in Rock Bay for at least a portion of their life (Windward et.al., 2014). Information on terrestrial species and habitat was not included in the DERA, or was any additional information found that could help to indicate any sort of suitable habitat to support any species. This is likely due to recent changes in landscape (after the remediation) and ongoing industrial use on the other sites. Time will tell what, if anything, may colonize this space.
Now that the long and expensive remediation in coming to an end, questions regarding what to do next have begun to arise. Due to the nature of the remediation, a large portion of the Bay is starting over. It appears that green space has not been integrated into the site, and the intensive dredging of the sea floor has likely removed what little habitat space once existed. Perhaps these remedial changes will allow for better ecological function in the bay, but it is too early to tell. Sources suggest that the land will soon be sold to the Songhees and Esquimalt First Nations, thus returning the property to its original landholders (CBC, 2016; Holmen, 2012). Regardless of what ultimately happens to the site (ecologically or otherwise), there is some level of irony implicit in selling back the land to the people who were once forced to sell it during early colonization.
Future trajectory
The decision to secure McLoughlin Point as the future site of Victoria’s tertiary waste water treatment plant has left many wondering about the future of Rock Bay. All that we know is that the land will be transferred to the Songhees and Esquimalt First Nations in the coming months as remedial efforts come to a close (CBC, 2016; Holmen, 2012). Recent articles published by CBC and Victoria News suggest that the land will remain largely commercial or industrial after the land transfer is completed (CBC, 2016; Holmen, 2012). This should be expected given the need for such an area to exist in or near the metropolitan center of the city; however, growing pressures for gentrification may lead to greater changes in the area. For example, the recent purchase of Vancouver Island Brewery by an out of province buyer could result in a primary shift to their Saanich facilities and the ultimate closure of the inner-city operations allowing for new opportunities in the space. While neither Island Asphalt nor Lehigh concrete appear to be moving in the near future, both companies have multiple national or international operating sites which may allow for retirement of these locations if there is enough public pressure.
The most comprehensive plan for the area comes from the recent City of Victoria draft Burnside Gorge Neighbourhood Plan published in 2016. While not a definitive action plan, the document provides an example of what the future might hold for much of the greater Burnside area over the next 25 years (City of Victoria, 2016). The document focuses on 8 “Big Moves” for the neighbourhood, several of which have implication for the recently remediated Rock Bay site. The area of interest is designated as a “special planning zone” under the city’s proposal, focusing on enhancing public interaction and enjoyment while maintaining industrial use and activity (City of Victoria, 2016). Some of the ideas proposed draw from other successful improvements such as the incorporation of painted silos or other prominent buildings with unique branding similar to those seen on Granville Island in Vancouver (City of Victoria, 2016). Keeping in mind the land is scheduled to be returned to the Songhees and Esquimalt peoples, there are hopes for the creation of a park on Barclay Point, with special considerations regarding the interpretation of First Nations history in the space. This would be a part of the larger pedestrian friendly planning that would join the Selkirk waterfront to the downtown core via the construction of a pedestrian and bicycle bridge spanning Rock Bay and linking the David Foster Harbour Pathway to Bridge Street and Bay Street (Figure 1) (City of Victoria, 2016).
The most comprehensive plan for the area comes from the recent City of Victoria draft Burnside Gorge Neighbourhood Plan published in 2016. While not a definitive action plan, the document provides an example of what the future might hold for much of the greater Burnside area over the next 25 years (City of Victoria, 2016). The document focuses on 8 “Big Moves” for the neighbourhood, several of which have implication for the recently remediated Rock Bay site. The area of interest is designated as a “special planning zone” under the city’s proposal, focusing on enhancing public interaction and enjoyment while maintaining industrial use and activity (City of Victoria, 2016). Some of the ideas proposed draw from other successful improvements such as the incorporation of painted silos or other prominent buildings with unique branding similar to those seen on Granville Island in Vancouver (City of Victoria, 2016). Keeping in mind the land is scheduled to be returned to the Songhees and Esquimalt peoples, there are hopes for the creation of a park on Barclay Point, with special considerations regarding the interpretation of First Nations history in the space. This would be a part of the larger pedestrian friendly planning that would join the Selkirk waterfront to the downtown core via the construction of a pedestrian and bicycle bridge spanning Rock Bay and linking the David Foster Harbour Pathway to Bridge Street and Bay Street (Figure 1) (City of Victoria, 2016).
Apart from engaging in the social and aesthetic re-imagining of Rock Bay, the recent Neighbourhood Plan also focuses on restoring or creating some level of ecological function in the area. Similar to what we see in Fisherman’s Warf, there are discussions regarding the creation of raingardens at the site of the historic creek that once flowed into the bay (Figure 5) (City of Victoria, 2016). This could potentially help filter runoff in the area, as well as provide a visually appealing aesthetic quality. In addition to design efforts, special consideration for shoreline restoration has been made in hopes of boosting the existing ecosystem, granted that barge traffic will likely remain high in the near future. Efforts to restore tidal flow to the bay should be considered if the city wants to implement a more environmental and functional focus for the site, as years of degradation and infilling have drastically changed the dynamics of the site (Windward et.al., 2014).
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Regardless of what the future ultimately holds for Rock Bay, change is happening. Efforts to gentrify the area over the next 20-30 years appear to focus on creating a more engaging space, while maintaining some level of industrial activity to support the city’s economy. Looking further into the future, the space has the potential to change more drastically as urban development shifts over the next century, resulting in a new focus for the area. For examples of what this might look like, we can look to locations such as Dockside Green (Figure 6), the Selkirk Waterfront, or the Olympic Village in Vancouver to draw parallels, as these locations have undergone massive changes associated with a shift from industry toward mixed use spaces that incorporate elements of smart/green growth (Boeing et. al., 2014). While plans such as the aforementioned are being made, any decision to move forward ultimately hinges on the decisions made by the future indigenous governance, as they have the final say in what happens to the area. Considering that many of the above proposed changes are
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deemed to be long term projects (20+ years), only time will tell if economic opportunities will be prioritized by the Songhees and Esquimalt Nations. However, efforts to reinvigorate the area through creating an interactive, multi-use space may ultimately lead to a larger long-term upside than short-term benefits from rapid economic re-development.
References
BC Hydro (2007). Rock Bay [power point presentation]. Not accessible online. Retrieve via email from BC MOE.
Boeing, G., Church. D., Hubbard, H., Mickens, J., & Rudis, L. (2014). "LEED-ND and Livability Revisited". Berkeley Planning Journal. 27: 31–55.
Burnside Gorge Community Association [BCGS] (n.d.). Rockbay.burnsidegorge.ca. Retrieved 8 October 2016, from http://rockbay.burnsidegorge.ca/sub2_History-of-Rock-Bay.html
CBC News (2016). $50M clean up of toxic site in Victoria's upper harbour nearly complete. Retrieved 6 October 2016, from http://www.cbc.ca/news/canada/british-columbia/rock-bay-clean-up-1.3665990.
City of Victoria. 2016. The Burnside Gorge Neighbourhood Plan: August 2016 Draft. Online. Accessed November 08, 2016
CRD (a) (n.d.) Victoria harbour: History. Retrieved October 12, 2016 from: https://www.crd.bc.ca/education/our-environment/harbours/victoria-harbour/history
CRD(b) (n.d.) Intertidal Mud Flats. Retrieved on November 24, 2016 from: https://www.crd.bc.ca/education/our-environment/ecosystems/coastal-marine/intertidal-mud-flats
CRD(c) (n.d.) Salt Mashes. Retrieved on November 24, 2016 from: https://www.crd.bc.ca/education/our-environment/ecosystems/coastal-marine/salt-marshes
CRD(d) (n.d.) Victoria Harbour: Environmental Concerns. Retrieved October 25, 2016, from https://www.crd.bc.ca/education/our-environment/harbours/victoria-harbour/concerns
Dedyna, K. & Wilson, C. (2016). $138 million and 11 years: Victoria’s toxic cleanup nearly done. Times Colonist. Retrieved from http://www.timescolonist.com/business/138-million-and-11-years-victoria-s-toxic-cleanup-nearly-done-1.1770342
Hemmera Envirochem Inc., & Golder Associates Ltd. (October, 2001). Rock Bay Victoria: Detailed site investigation volume I or II, repot, figures, tables & appendices A to G
Holmen, R. (2012, June 8). First Nations to re-establish historic ties to Victoria Harbour. Victoria News. Retrieved November 08, 2016, from http://www.vicnews.com/news/158267175.html
VEHEAP. (2009). Victoria and Esquimalt Harbours Environmental Action Program harbours ecological and rating final phase 1 report: intertidal and backshore inventory and rating. Victoria and Esquimalt Harbours Environmental Action Program.
Windward, Azimuth and SNC-Lavalin. (2014). Detailed Ecological Risk Assessment: Rock Bay Remediation Project Working Area 1. Prepared for BC Hydro and Power Authority. Windward Environmental LLC, Seattle, WA; Azimuth Consulting Group, Vancouver, BC; SNC-Lavalin Environment, Victoria, BC.
Boeing, G., Church. D., Hubbard, H., Mickens, J., & Rudis, L. (2014). "LEED-ND and Livability Revisited". Berkeley Planning Journal. 27: 31–55.
Burnside Gorge Community Association [BCGS] (n.d.). Rockbay.burnsidegorge.ca. Retrieved 8 October 2016, from http://rockbay.burnsidegorge.ca/sub2_History-of-Rock-Bay.html
CBC News (2016). $50M clean up of toxic site in Victoria's upper harbour nearly complete. Retrieved 6 October 2016, from http://www.cbc.ca/news/canada/british-columbia/rock-bay-clean-up-1.3665990.
City of Victoria. 2016. The Burnside Gorge Neighbourhood Plan: August 2016 Draft. Online. Accessed November 08, 2016
CRD (a) (n.d.) Victoria harbour: History. Retrieved October 12, 2016 from: https://www.crd.bc.ca/education/our-environment/harbours/victoria-harbour/history
CRD(b) (n.d.) Intertidal Mud Flats. Retrieved on November 24, 2016 from: https://www.crd.bc.ca/education/our-environment/ecosystems/coastal-marine/intertidal-mud-flats
CRD(c) (n.d.) Salt Mashes. Retrieved on November 24, 2016 from: https://www.crd.bc.ca/education/our-environment/ecosystems/coastal-marine/salt-marshes
CRD(d) (n.d.) Victoria Harbour: Environmental Concerns. Retrieved October 25, 2016, from https://www.crd.bc.ca/education/our-environment/harbours/victoria-harbour/concerns
Dedyna, K. & Wilson, C. (2016). $138 million and 11 years: Victoria’s toxic cleanup nearly done. Times Colonist. Retrieved from http://www.timescolonist.com/business/138-million-and-11-years-victoria-s-toxic-cleanup-nearly-done-1.1770342
Hemmera Envirochem Inc., & Golder Associates Ltd. (October, 2001). Rock Bay Victoria: Detailed site investigation volume I or II, repot, figures, tables & appendices A to G
Holmen, R. (2012, June 8). First Nations to re-establish historic ties to Victoria Harbour. Victoria News. Retrieved November 08, 2016, from http://www.vicnews.com/news/158267175.html
VEHEAP. (2009). Victoria and Esquimalt Harbours Environmental Action Program harbours ecological and rating final phase 1 report: intertidal and backshore inventory and rating. Victoria and Esquimalt Harbours Environmental Action Program.
Windward, Azimuth and SNC-Lavalin. (2014). Detailed Ecological Risk Assessment: Rock Bay Remediation Project Working Area 1. Prepared for BC Hydro and Power Authority. Windward Environmental LLC, Seattle, WA; Azimuth Consulting Group, Vancouver, BC; SNC-Lavalin Environment, Victoria, BC.