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HomeMy WebLinkAboutJune 9, 2003 Planning Committee Meeting Agenda Monday, June 9th, 2003 at 7:30 p.m. Chair: Councillor Holland ¢) ADOPTION OF MINUTES Meeting of May 12, 2003 (11) 1. DELEGATION Gary Bowen, representing the Toronto and Region Conservation Authority, will address Committee with respect to the Watershed Plan for Duffins Creek and Carruthers Creek. Ifil) I. MATTERS FOR CONSIDERATION PLANNING & DEVELOPMENT REPORT PD 25-03 A WATERSHED PLAN FOR DUFFINS CREEK AND CARRUTHERS CREEK A REPORT OF THE DUFFINS CREEK AND CARRUTHERS CREEK WATERSHED TASK FORCES TORONTO AND REGION CONSERVATION AUTHORITY PAGE 1-26 (IV) CORRESPONDENCE Members of Council may formally table an item of correspondence that has been circulated by the Mayor, CAO, Clerk or other staff person. (V) ADJOURNMENT RECOMMENDATION OF THE PLANNING COMMITTEE DATE MOVED BY SECONDED BY 1. That Council RECEIVE the draft report "A Watershed Plan For Duffins Creek and Carruthers Creek" of the Duffins Creek and Carruthers Creek Watershed Task Forces; and 2. That Council SUPPORT IN PRINCIPLE the vision, management philosophy and ten integral management actions set out in "A Watershed Plan For Duffins and Carruthers Creek", provided the TRCA adopts the technical amendments to the Watershed Plan identified in Appendix I of Report Number PD 25-03; and 3. That Council AUTHORIZE City staff to work with staff of the Toronto and Region Conservation Authority, the Region of Durham and other municipalities, agencies, residents and stakeholders, as appropriate, to provide input to a terms of reference for an implementation team to be formed in the fall of 2003 that would, among other things, review, clarify and recommend precise indicators, measures and targets for the objectives of the Watershed Plan; and that the terms of reference be brought back for consideration by City Council. 02 PICKERING REPORT TO PLANNING COMMITEE Report Number: PD 25-03 Date: May 26, 2003 Neil Carroll Director, Planning & Development Subject: A Watershed Plan For Duffins Creek and Carruthers Creek A Report of the Duffins Creek and Carruthers Creek Watershed Task Forces Toronto and Region Conservation Authority Recommendations: That Council RECEIVE the draft report: "A Watershed Plan For Duffins Creek and Carruthers Creek" of the Duffins Creek and Carruthers Creek Watershed Task Forces; That Council SUPPORT IN PRINCIPLE the vision, management philosophy and ten integral management actions set out in '% Watershed Plan For Duffins and Carruthers Creek", provided the TRCA adopts the technical amendments to the Watershed Plan identified in Appendix I of Report Number PD 25-03; That Council AUTHORIZE City staff to work with staff of the Toronto and Region Conservation Authority, the Region of Durham and other municipalities, agencies, residents and stakeholders, as appropriate, to provide input to a terms of reference for an implementation team to be formed in the fall of 2003 that would, among other things, review, clarify and recommend precise indicators, measures and targets for the objectives of the Watershed Plan; and that the terms of reference be brought back for consideration by City Council. Executive Summary: "A Watershed Plan For Duffins Creek and Carruthers Creek" is the draft report of the Duffins and Carruthers Creek Watershed Task Forces, resulting from a three year process. The Task Forces, as advisory groups to the Toronto and Region Conservation Authority, comprise elected and appointed members from the seven watershed municipalities, environmental groups and other interested people. The Task Forces had strong TRCA staff support, state-of-the-art scientific analysis, municipal staff support, and held extensive public and industry consultation. The Watershed Plan includes a vision to maintain the watersheds' legacies as healthy, dynamic and sustainable communities. Ten proposed integral management actions highlight the most important measures to maintain and enhance healthy watersheds to fulfill the objectives and targets in the Plan. The "Watershed Plan" is supported by extensive "State of the Watershed Reports" and other technical reports. Report PD 25-03 Subject: Duffins/Carrutthers Watershed Plan Date: May 26, 2003 Page 2 03 The vision, management philosophy and ten integral management actions of the "Watershed Plan" should be supported by City Council, in principle, as the foundation to the strategy to improve the health of the watersheds, provided a small number of technical clarifications and factual corrections are adopted. Following adoption of the '~Vatershed Plan" by TRCA, watershed-wide and municipal-specific implementation teams are to be formed later this year to identify how each partner - TRCA, the municipalities, landowners and industries, students, environmentalists and other stakeholders - can each participate in putting the proposed strategy into effect throughout the watersheds. To this end, it is recommended that Council authorize City staff to provide input to a terms of reference for implementation teams, focusing in particular on the indicators, measures and targets for the objectives. The "Watershed Plan" can be recognized as a primary source of guidance to maintain the health of the watersheds through an amendment to the Pickering Official Plan, if necessary, once the detailed review of the individual objectives is completed. Financial Implications: Not Applicable. 1.0 1.1 Backqround: The City of Pickering has been an active participant in the three year long task force process. In the spring of 1999, TRCA staff approached the five local and two regional municipalities within the Duffins and Carruthers watersheds to seek staff input and financial support for the development of a Watershed Plan. In January 2000, the City of Pickering agreed to participate on the Task Forces and provide funding in the amount of $20,000.00. In 2002, Council agreed to provide a further $20,000.00 in support of the Task Forces. Two Task Forces were formed, and the Toronto and Region Conservation Authority (TRCA) commenced the process of developing a watershed plan for Duffins Creek and Carruthers Creek in June of 2000. The Duffins Creek Task Force included one elected representative from each of the five local and two regional municipalities within the Duffins Creek watershed, with Mayor Arthurs as the Durham Regional representative and City Councillor Pickles as the City of Pickering representative and Regional Councillor Johnson as the alternate. The Carruthers Creek Task Force included elected representatives from the Region of Durham, the City of Pickering and the Town of Ajax with City CouncillorPickles as the City of Pickering representative and Regional Councillor Johnson as the alternate representative. 04 Report PD 25-03 Subject: Duffins/Carrutthers Watershed Plan Date: May 26, 2003 Page 3 The Division Head, Corporate Projects & Policy, and Planning & Development staff were assigned as staff support from Pickering. Watershed residents and representatives from the Aggregate Producers of Ontario, the golf course industry, the Durham Chapter of the Urban Development Institute (UDI) and members of the agricultural community participated on both Task Forces. As an Advisory Board to the TRCA, the Task Forces were charged with developing a watershed plan for the Duffins and Carruthers Creeks that would be understood and implemented by municipal and agency politicians and staff, community groups, business and industry, watershed residents and the general public. Recognizing the merits of watershed planning, representatives of the Federal Department of Transportation and Ontario Ministry of Transportation participated in the study. The provincial Ministries of Natural Resources and Environment were invited, but declined to directly participate. Municipal staff provided technical assistance to the Task Forces. Pickering Planning & Development staff attended most meetings of the Task Forces and provided input throughout the Task Force process. In the fall of 2002, TRCA staff completed the "Duffins and Carruthers Creeks State of the Watershed Reports", and in early 2003, completed the "Technical Analysis and Integration Process Summary Report", which together provides a compendium of the current condition of the two watersheds and the scientific approach to the watershed strategy. In addition, the "Ratings Report for the 2003 Duffins and Carruthers Creek Watersheds Report Card" was completed early in 2003 to document analysis of the current achievement of the objectives for the watersheds. Together, these technical documents, completed by TRCA, reflect state-of-the-art scientific analysis of the health of the Duffins and Carruthers watersheds. The draft "Watershed Plan for Duffins Creek and Carruthers Creek" dated April 29, 2003, comprising over 250 pages and over 30 colour figures has not been printed in large numbers to date, due to cost considerations. A copy of the "Watershed Plan" may be examined in the Planning & Development Department. Once the final "Watershed Plan for Duffins Creek and Carruthers Creek" is adopted by the Toronto and Region Conservation Authority later this summer, copies of the "Plan" will be made available to the City in printed and digital format. A presentation of "A Watershed Plan for Duffins Creek and Carruthers Creek" will be made by one of the Task Force Chairmen to Pickering City Council on June 16, 2003. Report PD 25-03 Subject: Duffins/Carrutthers Watershed Plan Date: May 26, 2003 Page 4 05 1.2 1.3 In addition, similar presentations are scheduled for each Regional and Local municipality with lands in the watersheds in June. Adoption of the "Watershed Plan" by the Toronto and Region Conservation Authority is also anticipated in June 2003, following consideration by the affected municipalities. The Task Forces undertook extensive public consultation. Stakeholder consultation began in the spdng of 1999 before the two Task Forces were formed. Once the Task Forces were formed, TRCA hosted public information sessions in the fall of 1999 to inform the public of the Watershed Plan process and to encourage watershed residents to apply for positions on the task forces. Over their two year term, the Task Forces provided numerous opportunities for public and stakeholder input throughout the study area. At key public meetings in November and December of 2001, and June of 2002, feedback was received regarding watershed issues, the proposed vision and management actions. The Task Forces also met with the Aggregate Producers of Ontario, the agricultural industry, the Durham Chapter of the Urban Development Institute, the golf industry, municipal and regional Environmental Advisory Committees (EACs) and active environmental groups in the watersheds including Uxbridge Conservation, Durham Conservation Association, the Green Door Alliance, Citizens for Carruthers, Uxbridge Naturally and the Oak Ridges Trail Association. TRCA staff and the Chairs of the Task Forces kept municipal staff and their councils updated at regular intervals and encouraged participation at regular Task Force meetings, which were open to the public. The Summary of Meetings held includes: 4 Task Force Workshops, 3 Task Force Meetings, 29 Working Group Meetings (Land and Water Working Group, Planning & Policy Working Group, Outreach Working Group), 3 Golf Course Industry Meetings, 5 Public Open House Meetings, 1 Aggregate Tour, and 2 Agricultural Industry Meetings, in the year 2001. During the year 2002, 5 Task Force Meetings, 1 Task Force Workshop, 1 Agriculture Meeting, 1 Golf Course Industry Meeting, 1 Environmental Advisory Committee Meeting, 2 UDI Durham Chapter Meetings, 2 Public Open Houses, 1 Public Event at Paulynn Park in Ajax, and 2 Series of municipal staff meetings (5 local and 2 regional municipalities) were held. The Watershed Plan describes the current conditions and identifies a management strategy to address issues and opportunities. The Duffins and Carruthers river systems connect communities across Durham Region and York Region, including the City of Pickering, Towns of Ajax, Markham and Whitchurch-Stouffville, and the Township of Uxbridge. They are among the healthiest of watersheds in the Greater Toronto Region. Yet, parts of the watersheds are exhibiting signs of stress from land use activities. 06 Report PD 25-03 Subject: Duffins/Carrutthers Watershed Plan Date: May 26, 2003 Page 5 1.4 1.5 Although the final "footprint" of any future airport has not yet been finalized and the conclusions of the Growth Management Study are yet to be determined, it is clear that parts of the Duffins watershed will face significant pressure from future urban growth and related road widenings and construction. The draft Management Actions contained within the Watershed Plan and its associated technical reports provide a watershed perspective and are intended to provide direction for future growth and development. The Duffins watershed also holds the potential for innovative management associated with its extensive public land holdings and by the location of its headwaters in the Oak Ridges Moraine. The Watershed Plan is presented as a blueprint for action. The Plan includes a brief summary of current watershed conditions and identifies the issues to be addressed and the opportunities that exist. It sets out a vision for the future, a management philosophy, and a framework of management strategies including watershed management goals, objectives and required actions. It outlines a set of implementation mechanisms, and provides guidance for implementation priorities at a sub-watershed scale. The Vision for the two watersheds identifies not only the ideal future conditions, but also the need for all stakeholders to participate in achieving the vision. The Watershed Plan includes the following vision: "Duffins Creek and Carruthers Creek watersheds will be healthy, dynamic and sustainable watersheds that continue to have clean, safe water. These watersheds will have functioning wetlands and be diverse with self-sustaining communities of native plants, fish and wildlife, where natural and human heritage features are protected and valued. Residents will recognize the watersheds as essential community resources that enhance their quality of life. All stakeholders will participate in the stewardship of the watersheds and growth and development will reflect this vision and the importance of protecting and enhancing this priceless legacy." The management philosophy is supported by ten integral management actions that are generally consistent with the City's Official Plan. The Watershed Plan includes ten integral management actions that reflect the 25 objectives along with the indicators, measures and targets for 7 ecosystem functions to achieve healthy watersheds. The Ten Integral Management Actions are: · Protect existing meadows, wetlands, and forests identified in the targeted terrestrial natural heritage system and secure lands to be restored; Report PD 25-03 Subject: Duffins/Carrutthers Watershed Plan Date: May 26, 2003 Page 6 07 1.6 · Actively restore areas within the targeted natural heritage system, which contribute multiple watershed benefits, and allow passive restoration to occur in the remaining areas; · Provide stormwater quantity controls for new and existing development, including transportation corridors; · Manage land uses and water withdrawals to maintain or enhance infiltration patterns, groundwater pathways, and resultant baseflows; · Eliminate the remaining point source of pollution (i.e.: Stouffville Water Pollution Control Plant)and manage non-point sources of pollution, in particular stormwater runoff and infiltration from urban land uses, transportation corridors, and rural contributions; · Enforce stringent erosion and sediment controls for construction and infrastructure maintenance activities; · Protect and restore natural streams and stream processes by managing runoff and sediment loss at source, and protecting valley and stream corridors, and naturalizing altered streams; · Remove and/or mitigate human-built barriers to fish passage and sediment transport, including on-line ponds, where recommended by the Fisheries Management Plan; · Maintain self-sustaining, resident/migratory fish and wildlife populations as barometers of a healthy natural heritage system; · Identify and raise awareness of past and present human influences on the watersheds and the strong link between human heritage, watershed recreation and human and environmental health. The Task Forces undertook a modeling exercise that produced an enhanced natUral system that could significantly reduce the impacts of development as proposed by current official plans. Given the more extensive information base existing within the Duffins and Carruthers Creek watersheds, and the experience of TRCA and its partners with watershed planning, the Task Forces were able to employ more advanced methodologies for the watershed planning of these watersheds than for previous watershed planning exercises within TRCA's jurisdiction. Recognizing that the watershed ecosystem is a complex network of inter-related features and functions, the Task Forces examined the different component systems of the watershed ecosystems in order to understand the response to each of three land use scenarios. The findings of the studies undertaken for the following component systems of each watershed are summarized in the "Watershed Plan" and presented in greater detail in the "State of the Watershed Reports" and the other technical reports: · Surface Water Quantity · Groundwater Quality and Quantity 08 Report PD 25-03 Subject: Duffins/Carrutthers Watershed Plan Date: May 26, 2003 Page 7 · Surface Water Quality · Aquatic Habitat and Species · Terrestrial Habitat and Species · Human Heritage · Public Use- Outdoor Recreation Three land use scenarios were developed to evaluate the effects on watershed health. The scenarios include: · existing land use; · future land use (if fully developed in accordance with Official Plans); and, · future land use with achievement of enhanced natural cover. the approved The modeling of the impacts of the three land use scenarios on the ecosystem functions has permitted identification of management actions to significantly reduce the impact of development. Protection and enhancement of the natural heritage system is central to the Duffins and Carruthers Task Forces management philosophy. Technical studies undertaken in support of this Watershed Plan have individually demonstrated that terrestrial natural cover (i.e.: vegetation) provides many functions beyond wildlife habitat, including hydrological benefits, enhanced recreational experiences and better water quality. Together, "A Watershed Plan for Duffins Creek and Carruthers Creek", the "State of the Watershed Reports" and the other accompanying technical reports provide a thorough basis for the vision, ten integral management actions and objectives of the proposed strategy for the Duffins and Carruthers watersheds. 2.0 Discussion The main purpose of the 'Watershed Plan' is to set out a strategy to maintain and enhance the current health of the ecosystem functions of the Duffins Creek and Carruthers Creek watersheds. The 'Watershed Plan' details many reasons and methods of maintaining and enhancing these watersheds to ensure they will not become degraded as have a number of other GTA watersheds. Maintenance of the current health of the watersheds by requiring high standards for initial development is ultimately much less costly than remediation of problem situations later. Recent examples of this in Pickering include the repair of property damage caused by erosion of streams flowing into Frenchman's Bay. The vision, management philosophy and ten integral management actions reflect the purpose and intent of policies contained in the Pickering Official Plan. Report PD 25-03 Subject: Duffins/Carrutthers Watershed Plan Date: May 26, 2003 Page 8 09 2.1 The vision in the Watershed Plan is supported by a management philosophy that includes five key elements - net gain, environment first, balanced land use, protection of human health and everyone counts (including all stakeholders in decision-making and solutions). The key elements are each supportable philosophies to guide the management of the watersheds. The management philosophy is to be implemented by application of the ten integral management actions, which list the 'top ten' steps to maintain the health of the watersheds. While most of the Ten Integral Management Actions are supportable, in principle, the reference in the first and second Integral Management Actions to achieving a "targeted" natural heritage system should be changed to an "enhanced" natural heritage system. Reasons for this change are set out in Appendix t. The 25 objectives, along with the associated management actions, indicators, measures and targets must first be reviewed and discussed in detail and clarified by a City/TRCA staff implementation team before a conclusion can be reached about support for these matters. The vision, the elements of the management philosophy and of the integral management actions are generally positive philosophies or actions to maintain and enhance the health of the watershed and are supportable in principle, for the future development and/or management of these lands in Pickering with the exception of a number of lar.qely technical clarifications and corrections detailed in Appendix I to Report Number PD 25-03. These technical clarifications and corrections were previously noted by Pickering staff to TRCA staff during review of earlier drafts of the document, but inadvertently, were not reflected in the Watershed Plan. The work of the Duffins Task Force helps inform Pickering's Growth Management Study The "Watershed Plan", the "State of the Watershed Reports" and the other supporting technical reports and scientific data have been made available by the Toronto and Region Conservation Authority to the Pickering Growth Management Study team. The findings and recommendations of the Task Forces have provided a broad watershed context for the findings in Phase l of the Growth Management Study. A similar watershed context has been used by the Growth Management Study team for the Petticoat Creek watershed. Preliminary results of the Phase I Growth Management Study Report suggest that the proportion of the land area within the Growth Management Study Area to be maintained in natural vegetation is in line with the target recommended by the draft "Watershed Plan". l0 Report PD 25-03 Subject: Duffins/Carrutthers Watershed Plan Date: May 26, 2003 Page 9 2.2 The City, along with many other stakeholders who will implement the Watershed Plan over time, should participate in the review of the implementation details for the 25 watershed objectives. Once considered by the two regional and five affected local municipalities, and adopted by the TRCA, the watershed plan can be implemented in a wide variety of ways across the Duffins and Carruthers watersheds. For municipalities, implementation could include new policies in official plans, new requirements for the development of private lands and for public infrastructure projects, and new practices for managing existing public lands and facilities. The new approaches may have higher cost implications than current practices. Although the vision, management philosophy and ten integral management actions proposed in the "Watershed Plan" conform with the general spirit of the policies in the Pickering Official Plan, an amendment to the Pickering Official Plan could be one step in the implementation of the watershed plan. Once a detailed review and clarification of the indicators, measures and targets to achieve the objectives of the "Watershed Plan" and associated management actions is completed, an appropriate amendment to the Pickering Official Plan can be considered. For the Toronto and Region Conservation Authority, the Watershed Plan will provide a new watershed basis for comments and conditions on private and public development proposals. The watershed plan will also provide guidance for changes to policies and practices of other levels of government, agencies and utilities. For landowners, farmers, developers and operators of gravel pits, golf courses and other specialty uses, different implementation measures and management strategies may result from adoption of the "Watershed Plan". For educational institutions, service clubs, youth groups, etc., it may identify critical ecological projects in which they can participate. Implementation mechanisms can include policy and planning tools, regulations and permits, land stewardship and regeneration activities, land acquisition, education and awareness campaigns and monitoring and reporting of achievements. Linkages must be established between the Watershed Plan, management strategies and practices, and municipal planning policies. Implementation of the management actions and objectives will require participation of a broad range of agencies and stakeholders across the watersheds and within each municipality. As the municipality covering the largest part of the watersheds, the City of Pickering should be a key participant on both watershed-wide and Pickering-specific implementation teams to develop suitable implementation measures for the "Watershed Plan". City staff should assist in providing input to a terms of reference for the implementation teams. Report PD 25-03 Subject: Duffins/Carrutthers Watershed Plan Date: May 26, 2003 Page 10 The implementation teams' work should review, clarify and refine the objectives of the "Watershed Plan", including the management actions, indicators, measures and targets for each objective. It is recommended that Council authorize staff to work with TRCA, the Region of Durham and other municipalities, agencies, residents and stakeholders, as appropriate, to provide input to a terms of reference for implementation teams to be formed later this year for the "Watershed Plan" to be brought back for consideration by City Council at a later date. Appendix Technical Amendments to '% Watershed Plan for Duffins Creek and Carruthers Creek" Attachments: 1. Executive Summary of Watershed Plan Prepared By: Approved / Endorsed By: St~ve Gaunt,¥MClP, RPP Planner II Catherine Rose Manager, Policy Director, P,l.a__Qp~g & Development SG:jf Attachments Copy: Chief Administrative Officer Division Head, Corporate Projects & Policy Recommended for the consideration of Pickering City Council /T'~s ~.,,~uin~', Chief Adm~'"'C~a~'~e O~icer 12 APPENDIX I TO REPORT NUMBER PD 25-03 TECHNICAL AMENDMENTS TO "A WATERSHED PLAN FOR DUFFINS CREEK AND CARRUTHERS CREEK" 1 Appendix I: Technical Amendments To "A Watershed Plan For Duffins Creek and ' Carruthers Creek" Clarifications: Achievement of a "targeted" natural heritage system: Section 6.3 of the "Watershed Plan" indicates that the most effective management approach for the watersheds would involve achievement of the targeted natural heritage system which is depicted on Figures 6.3 and 6.6, showing the "Future Land Use with Enhanced Natural Heritage Cover" for the two watersheds. The first and second integral management actions in Section 6.13 refer to protecting and actively restoring features and areas "identified in the targeted terrestrial heritage system". Objectives #5, #6, #8, #14 and #16 and associated text identify that management actions should "achieve the targeted natural heritage system". The proposed integral management actions to "Protect existing meadows, wetlands, and forests identified in" and "Actively restore areas within" the "targeted terrestrial natural heritage system" depicted on a precisely mapped Figure in the Plan identify individual properties and would prevent any change not in conformity with these management actions. It further suggests any action not in conformity would be opposed by TRCA in its comments on planning applications. If this Plan is going to hold this high level of authority, greater information about this document to individual property owners is required. Reference to achievement of "an enhanced", rather than "the targeted" natural heritage system removes the precise and prescriptive nature from the integral management actions and the objectives, and would represent a policy suitable for adoption by TRCA, and support in principle by the City. Accordingly, the first two integral management actions and the objectives that refer to a targeted natural heritage system should be amended to refer to "an enhanced natural heritage system". TRCA staff have acknowledged this concern and have agreed to add a note to Figure 6.3 that the "Enhanced" natural heritage system is to be considered a concept to illustrate the general extent of an enhanced system, not to define the exact locations for that enhanced system. A similar note should also be added to Figure 6.6. The two clarification notes to Figures 6.3 and 6.6 are suitable as interim amendments to the "Watershed Plan" but references throughout the Plan and supporting State of the Watershed and associated technical reports should also be made before the "Watershed Plan" is adopted in final form by TRCA. Appendix I to Report PD 25-03 Subject: Technical Amendments to "A Watershed Plan for Duffins Creek and Carruthers Creek" Page 2 Factual Corrections: 1) The urban area shown in Figures 6.2 -"Future Land Cover (Municipal Official Plans)" and 6.3 - "Future Land Cover (Municipal Official Plans - Enhanced Natural Heritage System)" do not accurately reflect the correct northern boundary of the urban areas designated in the Pickering and Region of Durham official plans. Figure 6.3 incorrectly depicts the northern boundary of the urban area halfway between Highway 407 and the Fifth Concession, which is considerably south of the correct edge of the urban area at Highway 7. Despite previous identification of this to TRCA staff, this inaccuracy still appears in the "Watershed Plan". TRCA staff have acknowledged this concern and are prepared to insert a note on Figures 6.2 and 6.3 to indicate that the urban lands shown on the maps represents a modelling exercise, not the actual boundary of the urban areas shown in Official Plans. However, a note is unsatisfactory for the final "Watershed Plan". Since the April 29, 2003 draft of the Watershed Plan is a draft, the maps in the final report adopted by TRCA should be amended to reflect the actual urban area boundary before the final document is printed for general release. If the difference is important, TRCA should include a note that modelling assumed a different boundary. 2) Similarly, a number of country residential subdivisions are not shown as "urban/hamlet" area. Figures 6.2 -"Future Land Cover (Municipal Official Plans)", 6.3 -"Future Land Cover (Municipal Official Plans) Enhanced Natural Heritage System" for the Duffins Creek watershed, and the corresponding Figures 6.5 and 6.6 for the Carruthers Creek watershed should be changed to depict official plan designations for country residential subdivisions accurately. 3) Section 5.7 of the "Watershed Plan", which outlines current conditions for the Duffins Creek watershed refers to provincial consideration of a community on the Seaton lands for 90,000 people. No reference is provided to the Durham and Pickering Official Plan policies which provide for up to 45,000 jobs in addition to 90,000 residents. Inclusion of the jobs in the planning for the new community supports economic sustainability with the potential for people to work and live in the same community. Also, the discussion of the future of the Seaton lands makes no reference to the City of Pickering Growth Management Study. These corrections should be made before Pickering's support is given to the Watershed Plan. ATTACHMENT d J TO REPORT ~ PD ~--~-0._% 15 Executive Summary The Duffins and Carruthers Creek watersheds lie to the east of Toronto and drain into the north shore of Lake Ontario. These two river systems connect communities across Durham Region and York Region including the City of Pickering, the Towns of Ajax, Markham and Whitchurch-Stouffville, and the Township of Uxbridge. They are among the healthiest of watersheds in the Greater Toronto Region, yet they are also exhibiting signs of stress land use activities. Although the "footprint" of the proposed Pickering Airport and the Seaton land development was not available during the time this Plan was written we do know these two watersheds will face pressure from this future urban growth, road widenings and construction. The Management Actions contained within the Watershed Plan and its associated technical reports provide a watershed perspective and clear direction for these undertakings. However, these watersheds also hold the potential for innovative management associated with their extensive public land holdings and position relative to the protection afforded by the newly enacted Oak Ridges Moraine Act (2001). This Watershed Plan is a blueprint for action. The Plan includes a brief summary of current watershed conditions and identifies the issues to be addressed and the opportunities that exist. It sets out a vision for the future, a management philosophy, and a framework of management strategies including watershed management goals, objectives, and the required actions. It outlines a set of effective implementation mechanisms, and provides guidance for implementation priorities at a subwatershed scale and areas within the watershed where initial implementation activities should focus. This Watershed Plan comes from a commitment by the Toronto and Region Conservation Authority (TRCA) in its 1989 Greenspace Strategy to guide the preparation of a watershed management strategy for each of the nine watersheds in its jurisdiction. Building upon commitments made in the Greenspace Strategy, and with over 45 years experience in protecting and restoring the environmental health of one of the most rapidly expanding city regions in the wodd, TRCA has defined a new vision for its work, The Living City: The Living City Vision The quality of life on Earth is being determined in the rapidly expanding city regions. Our vision is for a new kind of community, The Living City, where human settlement can flourish forever as part of nature's beauty and diversity. The Living City is a way of living in city regions that promotes a healthy coexistence between economy and nature. In a Living City, the ecosystem is seen as the foundation for the City Region. Nature is protected and enhanced for its ability to sustain the health of its important functions in the regional ecosystem, a system in which all living things are interdependent and exist in a delicate balance. The Living City vision has three objectives: healthy rivers and shorelines, regional biodiversity and greenspace, and sustainable living through education. In support of the Living City vision and building upon the experience gained from previous watershed planning initiatives, TRCA has advanced its community-based process and technical approaches in the development of this Watershed Plan. 16 /~,TTACHMEI~!T #. t TO REPORT # PD ~5- 0.5 The TRCA continued its very successful model for empowering watershed stakeholders and formed two Watershed Task Forces in 2000. Membership of the two Task Forces included elected municipal representatives, watershed residents, and representatives from key stakeholder groups and agencies. The Task Forces were charged with the responsibility of developing this Watershed Management Plan. Despite their difference in size, the Duffins Creek and Carruthers Creek watersheds are diverse and contrasting landscapes that share many of the same opportunities and challenges. Therefore, the Task Forces prepared one management plan for the two watersheds. The Duffins and Carruthers Creek Watersheds Task Forces hold the following vision for the future of these watersheds: The Vision Duffins Creek and Carruthers Creek watersheds will be healthy, dynamic and sustainable watersheds that continue to have clean, safe water. These watersheds will have functioning wetlands and be diverse with self-sustaining communities of native plants, fish and wildlife, where natural and human heritage features are protected and valued. Residents will recognize the watersheds as essential community resources that enhance their quality of life. All stakeholders will participate in the stewardship of the watersheds and growth and development will reflect this vision and the importance of protecting and enhancing this priceless legacy. 'ATTACHMENT ~ I REPORT # PD 25 - 0..% The vision for the Duffins Creek and Carruthers Creek watersheds is supported by a management philosophy that promotes five key elements. · Improve upon existing features and functions throughout the watersheds. · Use the unique opportunities provided by extensive public land holdings in the watersheds. · Manage the watersheds as a "system," considering the environmental function first. · Protect and enhance the natural features and functions as a first step in a hierarchy of other management approaches. · Emphasize prevention over remediation, recognizing that prevention is more cost efficient than remediation. · These watersheds, adjacent to one of the largest cities in Canada, must support a combination of natural, urban and agricultural land uses and systems. · Apply the principles of Smart Growth. · Recognize through land use actions, the concept of balance, thus ensudng integrity of watershed functions. · Recognize linkages between human health and the health of the environment. · Minimize dsk to human health and safety. · Demonstrate sustainable living and sustainable community design. · Build upon existing leadership, stewardship and good decision making practices. · Strengthen existing and develop new partnerships. · Make the appropriate lifestyle choices, change behaviours and encourage innovation in thoughts words and actions. ATTACHMENT # I TO REPORT # PD ~- o5 State-of-the-art watershed management today not only addresses a broader range of issues than previous initiatives, but also considers the interrelationships among these issues. Issues are considered in both the current and future planning context, in order to take a more proactive approach to management. Given the rich information base existing within the Duffins and Carruthers Creek watersheds, and the extensive experience of TRCA and its partners with watershed planning, the Task Forces were able not only to employ, but advance, state-of-the-art methodologies for watershed planning. To understand key functions and issues operating within the watersheds, the Task Forces and the technical support team defined and evaluated three land use scenarios in terms of the effects they would impose on watershed health. The three scenarios included: existing land use; future land use (as per the approved Official Plans); and future land use with enhanced natural cover. These scenarios reflected the primary drivers of change expected in the watersheds, including urban growth and opportunities for natural area protection. The results of the evaluation enabled the Task Forces to benchmark the watersheds' response along a continuum. Recognizing that the watershed ecosystem is a complex network of inter-related features and functions, the task forces reduced the watershed ecosystems to a set of simpler component systems in order to understand the response to each of the three land use scenarios. Studies were undertaken within the following technical areas: 1) 2) 3) 4) 5) 6) 7) Surface Water Quantity Groundwater Quantity and Quality Surface Water Quality Aquatic Habitat and Species Terrestrial Habitat and Species Human Heritage Public Use - Outdoor Recreation An innovative aspect of this work was the degree to which the findings of each technical study component were integrated and interpreted from the perspective of other inter-related components. A watershed response model guided the integration and interpretation of results arising from each individual technical component study. For example, increases in vegetative cover predicted changes in groundwater levels and stream baseflow, which in turn predicted an effect on the aquatic community composition in certain stream reaches. Details of this approach and each of the technical component studies are summarized in the Technical Analysis and Integration Process Summary Report (TRCA, 2003) and in the full set of supporting technical reports. These reports build upon information previously published in the Duffins and Carruthers Creek State of the Watershed Reports (TRCA, 2002). KI'rACHMENT ~ I TO REPORT # PD ~-5 - 02 The Task Forces have recommended that the most effective approach for managing the Duffins and Carruthers Creek watersheds involves achievement of the targeted natural heritage system, together with the application of best management practices in all aspects of land use activities. The concept of a targeted natural heritage system at a watershed scale is described in the "Future Land Use (as per Official Plans) with Enhanced Natural Heritage Cover" scenario. Implementation of this management approach will involve a review and realization of opportunities for achieving the targeted natural heritage system at subwatershed and site scales. The selection of this approach was based on the following considerations: · its consistency with the Task Forces' Management Philosophy; its effectiveness for meeting multiple watershed management benefits; · its ability to provide the foundation for a sustainable watershed; · its feasibility; and · its consistency with other provincial and federal basin management objectives. A set of eight goals and twenty-five objectives make up the overall management strategy of this Watershed Plan (Table E-l). A rating has been assigned to each goal and objective, based on an evaluation of the state of current watershed conditions in relation to the management direction provided by the specific goal and objectives. These ratings form a baseline "Watershed Report Card" from which the effectiveness of implementing the Watershed Plan can be measured. Details of the rating analysis are documented in the Ratings Report for the 2003 Duffins and Carruthers Creek Watersheds Report Card (TRCA, 2003). 20 'ATTACHMENT # I TO REPORT ~' PD ~_5 - O~ The task forces recommended a detailed set of management activities for the achievement of each objective. A number of these actions are common, in that they contribute toward the fulfillment of numerous objectives. Certain benefits are considered especially important because they can happen well beyond their site of application. These particular management actions are so important that they are integral to the overall health of the watersheds and should be afforded top priority for implementation. The Integral Management Actions are: 1. Protect existing meadows, wetlands, and forests identified in the targeted terrestrial natural heritage system and secure lands to be restored. Actively restore areas within the targeted natural heritage system, which contribute multiple watershed benefits, and allow passive restoration to occur in the remaining areas. 3. Provide stormwater quantity controls for new and existing development, including transportation corridors. 4. Manage land uses and water.withdrawals to maintain or enhance infiltration patterns, groundwater pathways, and resultant baseflows. Eliminate the remaining point source of pollution (i.e. Stouffville Water Pollution Control Plant) and manage non-point sources of pollution, in particular stormwater runoff and infiltration from urban land uses, transportation corridors, and rural contributions. 6. Enforce stringent erosion and sediment controls for construction and infrastructure maintenance activities. o Protect and restore natural streams and stream processes by managing runoff and sediment loss at source, and protecting valley and stream corridors, and naturalizing altered streams. 8. Remove and/or mitigate human-built barriers to fish passage and sediment transport, including on-line ponds, where recommended by the Fisheries Management Plan. 9. Maintain self-sustaining, resident/migratory fish and wildlife populations as barometers of a healthy natural heritage system 10. Identify and raise awareness of past and present human influences on the wate~'sheds and the strong link between human heritage, watershed recreation and human and environmental health. 6 ATTACHMENT # t .TO ~EPORT # PD 2.5, ~ O ~ 21 The protection and enhancement of terrestrial natural heritage cover through the achievement of the targeted natural heritage system is central to the Task Forces' management approach. Technical analysis of the watersheds' response to the "Future Land Use (as per the Official Plans) with Enhanced Natural Heritage System" scenario repeatedly demonstrated the multiple watershed benefits that can be realized by achieving a targeted natural heritage system. In addition to benefits associated with terrestrial habitat and species objectives, a natural heritage system would contribute to the management of hydrological, hydrogeological, water quality, aquatic resource, recreation and human heritage concerns. At a watershed scale, the protection of a viable natural heritage system will provide the foundation for a sustainable watershed. By protecting the ability of natural systems to carry out watershed functions there will be less need for costly maintenance of infrastructure, less risk with unproven technological solutions to watershed management and cost savings in taking a preventative approach rather than a reliance on remedial or "end-of-the-pipe" solutions. In addition, choices made at the community and site scales within the watershed will contribute to overall watershed sustainability. A Tool Kit of Implementation Mechanisms Common to many watershed plans in Ontario, the key implementation mechanisms include: policy and planning, regulations and permits, stewardship and regeneration activities, land acquisition/securement; and education and awareness. Both the Province, under the Oak Ridges Moraine Act (2001) and Conservation Plan (2002), and Justice O'Connor in his Part 2 Report of the Walkerton Inquiry (2002) have endorsed the important role municipal land use planning and other government permitting processes play in implementing a watershed plan. The Duffins and Carruthers Watershed Task Forces have also recognized the importance of developing a model policy framework to assist in the transition between the watershed plan and its implementation through these other planning and policy tools. Initial work has been completed in developing model policy framework; further work is a priority implementation activity. GIS-based mapping has been prepared for each watershed to identify the areas targeted for active stewardship, regeneration, and/or land acquisition/securement. 7 22 A'tYACHIVIENT # J ,TO REPORT ,~ PD, 2..~ - 05 Subwatershed Scale Direction A more detailed identification of key management considerations and actions has been provided at the subwatershed level. For this purpose, the Duffins Creek watershed was divided into six drainage areas including: West Duffins Creek, East Duffins Creek, Ganatsekiagon Creek, Urfe Creek, Millers Creek, and the Lower Duffins Creek. The Carruthers Creek Watershed makes up the seventh area. Opportunities have been illustrated on a map for each subwatershed. Community Action Sites The task forces have identified six sites within the watersheds as potential "Community Action Sites". Sites were selected to demonstrate the implementation of many aspects of the watershed plan; the expected interest, enthusiasm, and support of implementation partners; and the feasibility of design and implementation at the site level. Community Action Sites have been successful in other watersheds as a means of facilitating the transition from plan to ground level action and in providing a sense of early accomplishment for partners implementing the plan. Roles and Responsibilities Implementation of the Watershed Plan requires the involvement of everyone, including: residents, businesses, schools, and all levels of government. Specific recommendations are provided as to a role for each partner. ATTACHMENT #~TO REPORT # PD, 2--_~ - 23 A watershed response model guided the integration and interpretation of results arising from each individual technical component study. For example, increases in vegetative cover predicted changes in groundwater levels and stream baseflow, which in turn predicted and effect on the aquatic community composition in certain stream reaches. Details of this approach and each of the technical component studies are summarized in the Technical Analyisis and Integration Process Summary Report (TRCA 2003) and in a full set of supporting technical reports. These reports build upon information previously published in the Duffins and Carruthers Creek State of the Watershed Reports (TRCA 2002) 24 flEPOflT # PD~ 2-~ - 0 ~ The release of this report could not come at a better time as it complements recent recommendations of the Walkertoh Inquiry, the Oak Ridges Moraine Act and Conservation Plan, and the proposed North Pickering Land Exchange and its principles for development of the Seaton lands. These decisions, combined with planning for the extensive federal government land holdings for a proposed regional airport in the Duff'ins watershed, suggest that we are at a point in time when critical decisions concerning the protection and enhancement of these areas need to be made. Walkerton Inquiry Call for Source Protection The Walkerton Inquiry's Part 2 Report, A Strategy for Safe Drinking Water, was released by the Ontario Government in May 2002 and contains 93 recommendations for improved public policy and programs that will ensure the safety of Ontario's drinking water supply. The Report focuses considerable attention on the importance of protecting drinking water sources as the first step in a multi-barrier approach to drinking water supply management. Specifically, the Report calls for the preparation of watershed-based source protection plans and outlines the role of conservation authorities in this effort. Drinking water sources within the Duffins Creek and Carruthers Creek watersheds include both lake-based (urban portions of the City of Pickering and the Town of Ajax) and groundwater based supplies. The regional municipalities of Peet, York and Durham have been assembling information to address components of groundwater source protection, and the TRCA is committed to a program of coordinating the integration of all of this information within an integrated watershed management and source protection plan. The preparation of source protection plans for watersheds that are predominantly served by Lake Ontario may require a slightly different approach than areas influenced mostly by local sources. Although the Duffins Creek and Carruthers Creek watersheds affect the nearshore Lake Ontario environment, contaminant sources also adse from upstream in the Great Lakes Basin and from "imported" sources, such as atmospheric deposition. The Toronto and Region Conservation Authority is working with Conservation Ontario and its representatives on the Provincial Advisory Committee that has been established to recommend a framework for the preparation of Source Protection Plans in Ontado. 9 Oak Ridges Moraine Act and Conservation Plan After a six month moratorium that froze development on the Oak Ridges Moraine, and during which time a strategy was developed and public consultation undertaken, (Bill 122, The Oak Ridges Moraine Conservation Act) was passed in the Ontario Legislature and received Royal Assent on December 14, 2001. On April 22, 2002 the Oak Ridges Moraine Conservation P an was approved and filed as a M nisters Regulation (O. Reg. 140/02). The purpose of the Plan is to provide land use and resource management planning direction to ensure the protection and ecological and hydrological integrity of the Oak Ridges Moraine. The Conservation Plan provides for four land use designations. The first two are Natural Core Areas and Natural Linkage Areas, where very limited new land uses are being permitted. The Countryside Areas are largely identified for agricultural, rural, recreational and resource areas and finally the Settlement Areas are restricted to existing urban or settlement area boundaries. Municipalities are directed in the plan to recognize these land use designations, setbacks, and further study requirements in their Official Plans and zoning by-laws within set timeframes. In addition, it requires that detailed water management studies (i.e., watershed plans, water budgets and conservation plans) be completed and their results be incorporated into municipal Official Plans before any major development proposals may be approved. In summary, the Conservation Plan was written and designed to be implemented by municipal governments. Many of the requirements of the Plan involve tasks or studies that Conservation Authorities have traditionally undertaken for their member municipalities. Prior to the enactment of the Oak Ridges Moraine Act and Plan, the nine Conservation Authorities with watersheds on the Oak Ridges Moraine formed a coalition to advocate for the protection of the Moraine. This Conservation Authorities Moraine Coalition has prepared a proposal to be submitted to its member municipalities outlining the aspects of the Conservation Plan which could be delivered by Conservation Authorities. The preparation of watershed plans like this one, water budgets and mapping of environmental features are among the items being proposed by the Coalition. This Watershed Plan will be successful if it remains a living document, one that is revisited and implemented when and where appropriate. We will know that we have made a difference if we strive to meet multiple objectives during implementation and continue to further understanding of the technical work that supports management strategies and their direction. What is Success? As we move forward and evolve with the times and the places that are unique to these two watersheds we should be able to look back and say that we have: Protected and enhanced the natural systems and sustainability of communities within the Duffins Creek and Carruthers Creek watersheds; · Strengthened foundations for managing the watersheds using a formal monitoring and reporting system in place; · Improved water quality in Carruthers Creek and Duffins Creek for improved habitats and the provision of safe drinking water; 10 G Increased our knowledge of human and natural heritage resources in these watersheds and developed educational and outreach programs that support and apply this new knowledge base in the two watersheds and beyond; · Provided opportunities for watershed residents and stakeholders to have a greater say in how these watersheds are used and managed; Expanded our knowledge and refined our planning and management practices to sustain these river systems. Built on existing and established new watershed partnerships that reflect the importance of the Duffins Creek and Carruthers Creek watersheds in the Regional Municipalities of Durham and York and beyond; · Encouraged private landowners to manage and exercise good stewardship of their lands to promote watershed sustainability. Good decision making is based on sound science and an accurate, reliable knowledge base. This Watershed Plan identifies a series of actions that are based on sound science. These actions have emerged as a result of detailed analysis and consultation. For practical purposes, these management strategies are to be initiated and monitored over the next five years. Many of these actions will be completed during this time. For those actions that require implementation over a longer time period, significant progress will be made during the next five years and a foundation established for continued action. Pedodic reviews of this watershed plan are an integral component of TRCA's watershed management process allowing for: systematic improvements to the plan, the incorporation of new scientific understandings of the watersheds and emerging initiatives such as "sustainability". At the same time, the original assumptions of the watershed plan, if necessary can be adjusted. Timing of major reviews should be coordinated with the release of Watershed Report Cards, or advanced, if unanticipated major changes in land use occur. Many individuals and groups have collaborated to develop this strategy. Many more will be involved in its implementation. But its success hinges on the vigor with which each partner pursues the vision, management philosophy and accompanying management strategies. Two healthy, dynamic and sustainable watersheds are attainable for Duffins Creek and Carruthers Creek. 11