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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 //' ~onseFvailon for The Living City (.)3' .,C - (. ~ RECEIVED .L?,' i ., .'~ '00'7 j"~UVi/..L\/ . i I 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~~ 70 ,,_1.......... 'U~ 03 D ~ 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 ,) <><. 03 'D~ . 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 :;l. 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 fI__id_._ TO ?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 --.'\.." """',.,,: ,"f _,. "-IIi . -Iii".; ..,~:.J. ,,-p ,,,,t.';: " . ::t. c; ::~": r ", . ":\}~j'~ . if" :. ~ '''.. '~ . ( '" :''':,"" '"I [!" ',' " ". ~>, ..... 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L -U-- -,.... .J. ~ LAKE ONTARIO Plannina & Development Department Map 1: Rouge River Watershed Rouge River Watershed ~ ()iXaSourc:~!' c 1e'anl)l:r::nI",rp[)H'~ !nc and jts ;uppli<:>rs All nf1hfs P~~~,v;d. Not 'l plon ,)1 <;U!Vt.>y <: 7006 MPAC;iJM it; -tlmnliers. All nnhls P€'Sr1l'V~d ~bt il pl;}O fit SUl\'(!-1I DATE: DEC. 18, 2007 SCALE: 1 :170,000 PN- City of Pickerin Plannin Map 2: Rouge River Watershed lands in the City of Pickering Rouge River Watershed Ifill:lSourel>S TerMer [rtl:8IlXi'5% ~nr; ;'1M 11'"; <;uppliQ/"'; All minI.. Re';9woo. Nol9 plan of'llJlVO?Y. 2U06 MP/I,C ami it':. ';;l4I' ier<,; M . nt',; R'JsfJrYed Not a an of SurJe tAKE ONTARIO ~ DATE: DEC. 18, 2007 SCALE: 1 :35,000 PN.