HomeMy WebLinkAboutPD 25-03
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REPORT TO
PLANNING COMMITEE
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Report Number: PO 25-03
Date: May 26, 2003
From:
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:
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;
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;
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.
3.
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 PO 25-03
Date: May 26, 2003
O~i
Subject: Duffins/Carrutthers Watershed Plan
Page 2
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 'Watershed 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 Backç,round:
1.1 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 Councillor Pickles as the City of Pickering representative and Regional
Councillor Johnson as the alternate representative.
0 4 Report PO 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 PO 25-03
Date: May 26, 2003
o:s
Subject: Duffins/Carrutthers Watershed Plan
Page 4
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.
1.2
The Task Forces undertook extensive public consultation.
Stakeholder consultation began in the spring 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.
1.3 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.
Or,
b
Report PO 25-03
Date: May 26, 2003
Subject: Ouffins/Carrutthers Watershed Plan
Page 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 Ouffins 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.
1.4 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:
UDuffins 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. "
1.5 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 PO 25-03
Date: May 26, 2003
0.. ~1
. I
Subject: Duffins/Carrutthers Watershed Plan
Page 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.
1.6 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 PO 25-03
Date: May 26,2003
Subject: Duffins/Carrutthers Watershed Plan
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 the approved
Official Plans); and,
. future land use with achievement of enhanced natural cover.
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 PO 25-03
Date: May 26,2003
09
Subject: Ouffins/Carrutthers Watershed Plan
Page 8
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 I.
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 lamely technical clarifications and corrections detailed in
Appendix I to Report Number PO 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.
2.1 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 I 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".
1 0 Report PO 25-03
Date: May 26,2003
Subject: Duffins/Carrutthers Watershed Plan
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
Date: May 26,2003
11
Subject: Duffins/Carrutthers Watershed Plan
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 "A Watershed Plan for Duffins Creek
and Carruthers Creek"
Attachments:
1.
Executive Summary of Watershed Plan
Prepared By:
Approved I Endorsed By:
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Steve Gaunt, MCIP, RPP
Planner II
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?PP
Q.Í1Íg & Development
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. .7kz4..u t) éJu--
Catherine Rose,
Manager, Policy
SG:jf
Attachments
Copy: Chief Administrative Officer
Division Head, Corporate Projects & Policy
Recommended for the consideration of
Pickering City Council
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12
APPENDIX I TO
REPORT NUMBER PD 25-03
TECHNICAL AMENDMENTS TO "A WATERSHED PLAN FOR
DUFFINS CREEK AND CARRUTHERS CREEK"
Appendix I: Technical Amendments To "A Watershed Plan For Duffins Creek and 13
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 su itable 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 PO 25-03
14
Subject: Technical Amendments to "A Watershed Plan for
Ouffins 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' I TO
REPORT' PO 25 - (),3
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 world, 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 aI/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.
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Two Task Forces and One Plan
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.
Vision
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.
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17
ATTACHMENT' t TO
REPORT tJ PO 25 - Ü3
Management Philosophy
The vision for the Duffins Creek and Carruthers Creek watersheds is supported by a
management philosophy that promotes five key elements.
Net Gain
.
Improve upon existing features and functions throughout the watersheds.
.
Use the unique opportunities provided by extensive public land holdings in the watersheds.
Environment First
.
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.
Balance Land Use
.
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 ensuring integrity of watershed functions.
Human Health & Safety
.
Recognize linkages between human health and the health of the environment.
.
Minimize risk to human health and safety.
Everyone Counts - Ownership, Commitment and Follow Through
.
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.
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,,- I TO
REPORT I PO 25 -. o~
Technical Foundation for the Plan
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).
4
IH
5YflACHMENi "'--~- .TO
HEPOR"' # I'D . 2-5 - 03
Management Approach
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.
.
.
.
.
Goals, Objectives, and Baseline Report Card
A set of eight goals and twenty-five objectives make up the overall management strategy of this
Watershed Plan (Table E-1). 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).
5
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Ten Integral Management Actions
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.
2. 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.
5. Eliminate the remaining point source of pollUtion (Le. Stouffville Water Pollution Control
Plant) and manage non-point sources of pollution, in particular storm water 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.
7. 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 watersheds
and the strong link between human heritage, watershed recreation and human and
environmental health.
6
21
Multiple Benefits of Natural Cover
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.
Implementation Framework
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
2
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 offacilitating 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.
8
C),:"~.
1---
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)
2lt
( Toward Fulfillment of New Provincial Directions
The release of this report could not come at a better time as it complements recent recommendations
of the WalkertoÎ1lnquiry, 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 Duffins 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 Peel, 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 arise 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 Ontario.
9
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t,.)
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 Plan was approved and filed as a
Ministers Regulation (0. 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.
,Working Together for the Future Duffins and Carruthers Watersheds
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 sustainabilíty 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
(I) r;
f.., .
..
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.
Periodic 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