HomeMy WebLinkAboutPD 03-08
Citlf o~
REPORT TO
PLANNING & DEVELOPMENT
COMMITTEE
Report Number: PO 03-08
Date: January 7,2008
'" 64
From:
Neil Carroll
Director, Planning & Development
Subject:
Rouge River Watershed Plan - Final Draft
Report of the Rouge Watershed Task Force 2007
Toronto and Region Conservation Authority
Recommendation:
1. That Report PO 03-08 of the Director, Planning & Development regarding the
Rouge River Watershed Plan - Final Draft, be received;
2. That the Final Draft "Rouge River Watershed Plan - Towards a Healthy and
Sustainable Future" of the Rouge Watershed Task Force be received;
3. That Council support in principle the proposed strategies, management
philosophy and implementation recommendations set out in the "Rouge River
Watershed Plan";
4. That Council authorize staff to work with staff of Toronto Region Conservation
Authority (TRCA), Rouge Park, the Region of Durham and other municipalities,
residents and stakeholders, as appropriate, to support the proposed
implementation measures, including considering participation in the anticipated
Rouge River Implementation Committee;
5. That Council request staff to include appropriate policies to recognize the
Rouge River Watershed Plan in the Pickering Official Plan through the City's
Official Plan Review; and
6. Further, that a copy of Report PO 03-08, along with Council's recommendation
thereon, be forwarded to TRCA, the Region of York, the Town of Markham, the
City of Toronto, the Town of Richmond Hill, the Town of Whitchurch-Stouffville
and the Region of Durham for information.
Executive Summary: The Rouge River Watershed Plan is the draft report of the
Rouge Watershed Task Force, resulting from a 2 Yz year process. The Task Force,
coordinated by the TRCA and Rouge Park Alliance, comprises elected and appointed
members from the seven watershed municipalities, environmental groups and other
interested people. The Task Force had strong TRCA staff support, state-of-the-art
scientific analysis, municipal staff support and extensive public and industry
consultation.
Report PD 03-08
January 7, 2008
Subject: Rouge River Watershed Plan - Final Draft
Page 2
65
The Rouge River watershed is still relatively undeveloped with the Rouge Park located
at the south end, urban development occupying most of the mid-reaches and mainly
undeveloped lands in the upper reaches of the watershed. Although currently healthy,
the Rouge River watershed is now showing signs of stress due to the effects of urban
development. In light of these signs, the Rouge River Watershed Plan recommends a
comprehensive set of strategies to address the negative impacts of existing
development and promote sustainable development practices for future development.
The proposed strategies identified in the Rouge River Watershed Plan - Final Draft fall
into three broad themes: establishment of a targeted terrestrial natural heritage system;
sustainable approaches to further urban development (including infrastructure,
transportation and resource use); and recognition and development of a regional open
space system. The Rouge River Watershed Plan - Final Draft includes goals, principles,
objectives, specific targets and 137 implementation recommendations that address a
broad range of environmental protection issues.
Only a small fraction of the Rouge watershed falls within Pickering (see Map 1) and the
opportunities are limited for actions and initiatives in Pickering to have significant effect
on the health of the watershed. However, the Rouge Park is a significant public asset
that should be protected. Accordingly, it is recommended the City support, in principle,
the findings and recommendations of the Rouge River Watershed Plan - Final Draft.
Appropriate policies can be implemented in the City's Official Plan to recognize this
Watershed Plan through the Pickering Official Plan Review.
Financial Implications: None Applicable
Sustainability Implications: This Watershed Plan is a valuable resource in achieving
a healthy environment in the Rouge watershed. It presents a broad-based evaluation
of the existing state of the lands and waters comprising the watershed of the
Rouge River and proposes a set of policies and implementation measures to maintain
and improve the current healthy state of the watershed.
The Plan recognizes the importance of implementing sustainable urban form,
infrastructure and transportation in the newly developing areas of the watershed. The
Plan further advances methods to include the residents, businesses and employees to
participate as stewards of the watershed to assist in maintaining the Rouge watershed
in a healthy condition into the future. It also includes strategies to involve all sectors of
the economy and society in its universal approach to sustainability at the local level of
the Rouge River watershed.
Report PD 03-08
January 7,2008
Subject: Rouge River Watershed Plan - Final Draft
66
Page 3
1.0 BackQround:
1.1 The health of the Rouge River watershed is currently at a crossroads with
alternate directions to either allow the growing environmental degradation
to continue or select a new pathway to a healthy watershed.
Since its commencement in early 2004, the Rouge Watershed Task Force has
conducted extensive scientific studies, ground breaking modelling and empirical
social science research to produce a set of strategies to maintain the
sustainability of groundwater, surface water, stream form, aquatic system,
terrestrial system, air quality, climate change, cultural heritage, nature-based
recreation, sustainable land and resource use systems.
Through the studies and Task Force discussions, the conclusion was reached
that the Rouge River watershed is currently at a crossroads, with pressures for
continued 'unsustainable' development leading to the tipping point of irreversible
degradation to the environment or an opportunity to "do the right thing" by
applying sustainable standards to new buildings, infrastructure, transportation,
energy and water management projects to support healthy natural communities
and a higher quality of life.
A copy of the letter from TRCA requesting comments on the Final Draft Rouge
Watershed Plan and the Executive Summary from the Plan are provided as
Attachments #1 and #2.
2.0 Discussion
2.1 Although only a small portion of the land area of Pickering is located within
the Rouge River watershed, the City should support the proposed
management philosophy and general strategies of the Rouge River
Watershed Plan - Final Draft as a sustainable initiative.
Most of the Rouge River watershed lies in the Town of Markham (see Map 1:
Rouge River Watershed). The part that lies in Pickering is located downstream
in the watershed along the western boundary of Pickering between Lake Ontario
and Twyn Rivers Drive (see Map 2: Rouge River Watershed lands in the City of
Pickering). In Pickering, the Rouge watershed lands lying outside of the valley of
the Rouge River and Little Rouge Creek are already developed for urban uses.
The watershed plan provides broad general direction through its overall goal, or
management philosophy:
"To work towards a healthy and sustainable Rouge watershed by
protecting, restoring and enhancing its ecological and cultural integrity
within the context of a regional natural heritage system."
Report PO 03-08
January 7,2008
Subject: Rouge River Watershed Plan - Final Draft
Page 4
67
The study found signs that harmful changes were exceeding the carrying
capacity of the natural systems. Modelling studies of different potential
management scenarios revealed that best development practices and
management techniques could maintain and in some cases enhance current
conditions with new sustainable development practices, continued evaluation
and assessment in order to achieve watershed objectives and targets with
adjustments where necessary.
It was concluded that the pathway to a healthy watershed should be based on
strategies to protect and enhance valued resources, regenerate damaged
systems and build more sustainable communities. The strategies focus on three
themes:
1. Establishing the targeted natural heritage system in the watershed by
protecting valued assets, securing additional lands, regenerating
degraded areas and improving stewardship of public and private lands;
2. Building sustainable communities by taking key steps to reduce
imperviousness, maintain/restore water balance, facilitate energy
conservation, reduce vehicle use and protect cultural heritage
features; and,
3. Recognizing and developing a regional open space system offering
recreational opportunities based on Rouge Park with connections to
regional trails, conservation areas and major municipal parks.
Since the portion of the watershed within Pickering is such a small part of the
overall watershed and the lands in Pickering are either developed with existing
communities or are already part of Rouge Park, opportunities to have a major
impact on the Rouge River watershed through implementation of the
recommended changes are relatively minor. Nevertheless, the City of Pickering
should support, in principle, the Rouge River Watershed Plan - Final Draft as it
furthers sustainability in the watershed.
2.2 The City should also participate in the subsequent implementation and
monitoring strategies for the Rouge River watershed.
The Draft Plan provides general directions and strategies as well as a list of 137
recommended actions to be undertaken by TRCA, senior governments,
municipalities, Rouge Park and other partner agencies, the private sector and
the public. They will be informed, engaged and motivated to participate in new
directions to lead to a future with healthy natural systems, a rich natural and
cultural heritage supporting a higher quality of life for the communities of the
Rouge River watershed.
It is also proposed that a Rouge River Implementation Committee be established
to guide implementation of the Plan on an ongoing basis. Key Watershed
stakeholders will be invited to participate. At the time the Committee is being
established, the City can consider its participation, given staff resources.
Report PD 03-08
January 7,2008
Subject: Rouge River Watershed Plan - Final Draft
Page 5
6 ~ne of the implementation strategies is providing appropriate policy support in
municipal official plans. As part of the Pickering Official Plan Review, the City
has already identified the need to address the Duffins and Carruthers Watershed
Plan. Staff will now add the Rouge River Watershed Plan to this process.
Attachments:
1. Letter from TRCA requesting comments, dated November 6, 2007
2. Executive Summary to Rouge Park Watershed Plan - Final Draft
Maps:
1 . Map 1: Rouge River Watershed
2. Map 2: Rouge River Watershed lands in Pickering
Prepared By:
Approved I Endorsed By:
N~
Director, Planning & De3velopment
4-t:--t ~
-/-V~?C.Z{'.~S~2;i'~'-l-1 )'l -
Steve Gaunt, MCIP, RPP
Senior Planner
ca~M6&:
Manager, Policy
SG:jf
Attachments
Copy: Chief Administrative Officer
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~onseFvailon
for The Living City
(.)3' .,C
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RECEIVED
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69
November 6, 2007
CITY Of" PICKERING
PLANNH\JG 8< DEVELOPMENT
DEPARTMENT
Tom Melymuk
City of Pickering
Office of Sustainability
Pickering Civic Centre, One The Esplanade
Pickering, Ontario, L 1 V 6K7
Dear Torn
RE: Consultation on Final Draft Rouge River Watershed Plan
Enclosed, please find a copy of the Rouge Watershed Task Force's Final Draft Rouge River
Watershed Plan, which incorporates revisions in response to comments received on the first
draft plan, circulated in November, 2006, and minor edits for consistency with background
documents. By copy of this letter, we have also sent copies of the Plan to other staff who have
previously been involved in this study.
We request your comments and approval in principle of the Final Draft Plan by January 15,
2008. Assuming support for the plan, it is our intent to seek approval of the plan by the Toronto
and Region Conservation Authority Board at its March 28, 2008 meeting and direction to
request that municipalities and other partners subsequently adopt the plan and commit to its
implementation.
Government review session
To facilitate your review, you and other staft in your municipality are invited to attend a half day
meeting for municipal, provincial and federal government staff, where we will present a brief
overview of the plan, key implementation directions, and a proposed multi-stakeholder model
for implementation oversight, with time for discussion. The meeting is set for:
Mqnday, November 26, 2007 (9:30 to 1:00)
Black Creek Pioneer Village Visitor's Centre (South Theatre)
1000 Murray F~oss Parkway, Downsview
Please confirm your attendance by Ib1m~.-c.!~~0'{emb~r 22. 2007 with Sylvia Waters by phone
(416) 661-6600 ext. 5330 or by email ats\^Late~s@trca.on.ca.
We would also be pleased to come to your office or Council to deliver a presentation or
otherwise participate in discussions to facilitate your review.
PU91i.g~?en HOLJse~
For your information, three public open houses are planned to facilitate public review and
dialogue about the watershed plan, implementation priorities, and the proposed multi.
stakeholder model for implementation oversight:
/vlem!Jer of Conservation Ontario
'-~-'-"'''''~-~h~~I';;;~~''~~:;~~:''I;:)W~~;';; (;~~:;;~~;-~~ S4~;;:60;-~.AX (:~;;-:\:~:=:~::::-._--- i~~
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RECEiVED
,in\' "; .)".,'"'r
;\~U 1/ I L LulJl
Monday, November 26, 2007 (6-9 pm)
West Rouge Community Centre
270 Rouge Hills Drive, Scarborough
CITY OF P~CKERlNG
PLANNING & DEVELOPMENT
DEPARTMENT
Tuesday, November 27, 2007 (6-9 pm)
Town of Whitchurch-Stouffville, 4th Floor Council Chambers
31' Sandiford Drive, Stouffville
Wednesday, November 28, 2007 (6-9 pm)
Town of Markham - Anthony Roman Centre
101 Town Centre Blvd., Markham
Availability of Supporting Documents
Additional copies of the Watershed Plan and supporting documents (e.g. State of the
Watershed Report, Scenario Modelling and Analysis Report, etc.) can be downloaded from the
TRCA web site (www.trca.on.ca). or will be made available upon request. Please contact Sylvia
Waters by phone at (416) 661-6600 ext. 5330 or by email atswaters@trca.on.ca. All
documents are considered to be "final draft"; we welcome comments.
We sincerely regret the lengthy delay in moving to this last phase in the watershed planning
study, however we chose to postpone further consultation on the final draft watershed plan
until we could complete all technical documents supporting the plan.
I would li~\e to take this opportunity to extend my appreciation for your previous involvement in
this important study, and I look forward to working with you on the finalization of the watershed
plan. If you have any questions, please contact me by phone at (416) 661-6600 ext. 5253 or by
email atsmeek@trca.on.ca.
Yours sincerely,
xI~a;;(A ~V}&JL...
Sonya Meek
Manager, Watershed Planning
Ecology Division
Enel.
ee. Neil Carroll, Planning & Development
;2
03 (}~
EXECUTIVE SUMMARY
71
The Rouge River watershed is an extraordinary resource in Southern Ontario, treasured and
enjoyed by residents and visitors alike. It spans 336 km2 of land and water in the Regions of
York and Durham, Cities of Toronto and Pickering, and Towns of Markham, Richmond Hill and
Whitchurch Stouffville. It includes all the lands that drain to the Rouge River and its tributaries,
including the Little Rouge River, starting in the hills of the Oak Ridges Moraine and flowing
south to Lake Ontario (see Figure 1-1).
Why do we need this watershed plan? If you live, work or play in the Rouge River watershed,
you depend on its health in a number of ways. The Rouge watershed is a source of your
drinking water -- whether you rely on wells or water from Lake Ontario. Unpaved land absorbs
water from rain and snowfall to replenish groundwater and streams and reduce the negative
impacts of flooding and erosion. Healthy aquatic and terrestrial habitats support diverse
communities of plants and animals. Agricultural lands provide local sources of food and green
spaces provide recreation opportunities. A rich human heritage affords links to the past that
enrich and inform our lives today. The natural beauty of the forests, meadows, farmlands,
wetlands, rivers and creeks provides urban dwellers with solace, renewal and contact with
nature.
Increasing concerns about the health of our cities and countryside, the safety of our drinking
water and the futw8 of the Oak Ridges Moraine have lead to a number of initiatives towards
sustainable living in Ontario, the Greater Toronto Area (GTA) and the Great Lakes Region.
Actions taken in the Rouge watershed can provide a model for actions in other watersheds, as
well as influence the environmental health of larger systems.
This watershed plan was prepared by a multi-stakeholder task force that Includes
representatives from all levels of government agencies, private businesses, not-for-profit
organizations and the public and is coordinated by TRCA and Rouge Park (see Appendix C).
The plan has a strong technical foundation, based on decades of monitoring of environmental
conditions combined with a leading edge approach to modelling of potential future conditions.
A series of management summits was held to convene experts who could help identify best
practices and recommendations to achieve the objectives of the Rouge Watershed Task Force.
The guiding framework for this watershed plan comprises an overall goal, a set of principles,
nine goals and 22 objectives with specific targets. Our overall goal is:
To work towards a healthy and sustainable Rouge watershed by protecting, restoring
and enhancing its ecological and cultural integrity within the context of a regional
natural heritage system.
Our goals, objectives and targets address:
. Groundwater
. Surface water
. Stream form
. Aquatic system
. Terrestrial system
. Air quality and climate change
Final Draft Rouge River Waters/7ed Plan - 2007
iii
72
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. Cultural heritage
. Nature-based recreation
.. Sustainable land and resource use
One of the foundations of this plan is the Rouge River State of the Watershed Report, 2007
which provides a wealth of recent information about natural and cultural resources and human
activities in the watershed. land use in the Rouge watershed today is approximately 40% rural,
35% urban, 24% natural cover and 1% open water. The lower watershed is dominated by
Rouge Park, with a small but well established area of urban development to the west. The
middle and western parts are experiencing rapid urban expansion and have sparse natural
cover except in Rouge Park. The upper and eastern portions of the watershed are primarily
rural and agricultural with some smail towns and villages.
The Rouge watershed represents a rich inheritance for current and future communities. The
Little Rouge River watershed is still relatively undeveloped with considerable natural cover and
a water balance typical of a rural watershed. The aquatic systems in the upper Little Rouge and
parts of the Main Rouge are healthy enough to support cold- and cool-water communities
including spedes of concern such as reds ide dace and brook trout. Natural habitats support a
high diversity of plants and animals, including many that are rare or at risk (such as the
nationally threatened Jefferson salamander, provincially significant Cooper's hawk and
regionally rare one flower cancer-root). Major blocks of publicly owned lands have been
reserved for conservation and greenspace purposes, most notably the 41 square kilometre
Rouge Park. The Rouge watershed also has a rich cultural heritage, including many
archaeological and historic sites, land:3capes, stories and artifacts from earlier inhabitants as
well as the diverse cultures of present day communities.
Unfortunately, there are signs of stress. Decades of urban development have resulted in
harmful changes that exceed the carrying capacity of natural systems. These changes include
increased surface runoff, more water pollution, greater annual flow volumes in rivers and
. streams, increased erosion and sedimentation, channel instability, loss of biodiversity, and
greater incidence of smog. They are signs that the ability of the air, land and water to absorb
the negative impacts of human activities is strained and cannot be sustained over the long term
. unless fundamental changes are made. Rehabilitation of infrastructure and restoration of
natural habitats to address these issues is underway, but these measures are expensive and
time consuming.
To help us understand how the watershed might react to changes in land use, environmental
management and climate in the future, we undertook a multi-faceted process of analysis and
synthesis. This included modelling studies to compare eight potential scenarios, combined
with examination of existing conditions and trends in the watershed, a review of watershed
research in other areas, and the best professional judgement of a range of experts in many
fields.
What can we expect in future? We discovered that if future development proceeds with current
approaches to community design and stormwater management, it will not be possible to
maintain current watershed conditions, let alone improve them. If development practices are
changed to use the best foreseeable community designs and management techniques, it may
be possible to maintain and in some cases enhance current conditions. However many of the
new designs and technologies for sustainable urban development are still evolving and being
Final Draft Rouge River Watershed Plan - 2007
iv
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03-og"
73
tested so we recommend that where permitted, development should proceed with caution.
Evaluation should be undertaken, witll extensive and meaningful public consultation, to assess
how well watershed objectives and targets are being met and recommend adjustments to
development practices when necessary.
Fortunately, the Rouge watershed offers many unique opportunities, including the assembly
and renaturalization of lands as part of Rouge Park and the continuation of agriculture on
public and private lands. Watershed municipalities are already working to address the negative
impacts of existing developments and are among the leaders in promoting sustainable
practices. These opportunities provide valuable tools to help address concerns with current
watershed conditions, manage impacts from future land use changes and adapt to the
uncertainties associated with global climate change.
The pathway to a healthy watershed that emerged from this analysis is based on a
comprehensive and inter-dependent set of strategies that will protect and enhance valued
resources, regenerate damaged systems, and build 'more sustainable communities. These
strategies encompass three broad themes:
1) Establish the targeted terrestrial natural heritage system: Figure 5-2 illustrates an expanded
natural heritage system that provides multiple benefits, including biodiversity and habitats,
water balance maintenance and restoration, opportunities for nature-based recreation,
improved quality of life, and greater resilience to urban growth and climate change. It can
be accomplished by protecting existing valued assets, securing additional lands,
regenerating degraded areas and improving stewardship of public and private lands.
2) Build sustainable communities: We have identified more sustainable approaches to urban
form, infrastructure, transportation and resource use that will contribute to overall improved
quality of life. They should be applied to new communities, as well as to the intensification
or redevelopment of existing ones. Some of the key features include reduced
imperviousness, measures to maintain or restore water balance, design features to facilitate
sustainable choices (e.g. energy conservation, reduced vehicle use, support for local
agricultural products) and protection and adaptive re-use of cultural heritage features.,
Development, where permitted, should proceed at a pace and extent that allows sufficient
time to adopt, test and evaluate the effectiveness of new technologies and to make
adjustments if the results do not meet our objectives and targets for the watershed.
3) Recognize and develop a regional open space system: The Rouge watershed has the basis
for a significant, inter-connected regional open space system including Rouge Park and
regional trails, conservation areas and major municipal parks. We recommend that this
system be further developed to reach its potential to provide nature-based recreation
experiences for a growing population, support for healthy communities, interpretation of
natural and cultural heritage, linkages with local neighbourhoods and connections to
surrounding watersheds.
An important prerequisite for action will be to increase awareness among watershed residents,
businesses, developers and agencies of the importance of the watershed, its water cycles,
natural systems and cultural heritage. We recommend a long-term outreach program to
provide information and understanding, explain how people can act on this knowledge, and
inspire action. Our social marketing study, Action Plan for Sustainable Practices, showed that
Final Draft Rouge River Watershed Plan - 2007
V
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?13', QJ:
74
there is a modest basis of understanding and support for sustainability, but the public needs
more specific information, marketin~J campaigns and assistance tt) inspire action. It also
highlighted a number of issues that reduce opportunities for businesses to adopt sustainable
practices, therefore we plan to remove barriers and provide incentives for the business
community.
The coordinated effor1s of government agencies and community leaders are also crucial to the
success of this watershed plan. They have many complementary tools available, including
plans and policies, permits and regulations, enforcement, infrastructure operations and
maintenance, stewardship and regeneration programs, and education and awareness
initiatives. More details about how these existing tools can be used to help implement the
watershed plan are provided in the Implementation Guide.
We are standing at a crossroads. In one direction lies a future modelled on the past, with
continued losses of environmental quality, biodiversity and cultural heritage along with
considerable costs to address the health, social and economic consequences of degraded
E'mVirO,lmental conditions. In the other direction is a future with healthy natural systems and a
rich natural and cultural heritage, supporting a higher quality of life for our communities. This
plan outlines the key steps to achieve the best possible future for ourselves and our
grandchildren. We hope you will support it and become a partner in its implementation.
Final Draft Rouge River Watershed Plan - 2007
vi
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Plannina & Development Department
Map 1: Rouge River Watershed
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