Report to: Development Services Committee Report Date: Jan 15, 2008

SUBJECT: Final Draft Rouge River Watershed Plan

PREPARED BY: Lilli Duoba, Senior Project Coordinator, Environmental Planning &

Rouge Park, extension 7925

Learie Miller Senior Environmental Planner, extension 6922

RECOMMENDATION

That the staff report entitled “Final Draft Rouge River Watershed Plan” dated January 15, 2008, be received;

And That the Town commend the Rouge River Watershed Task Force, the Toronto and Region Conservation Authority and the Rouge Park Alliance for their efforts in the preparation of a innovative, comprehensive and action orientated Watershed Plan;

And That Council indicate support in principle for the Rouge River Watershed Plan, as a broad strategic planning tool to help guide decision making in the Rouge watershed;

And That this staff report be forwarded to the Toronto Conservation Authority as input into Final Draft Rouge River Watershed Plan, and to the Region of York and the Rouge Park Alliance;

And That staff report back on the Rouge River Watershed Plan Implementation Strategy (when available);

And That staff continue to work co-operatively with the Toronto and Region Conservation Authority, Rouge Park, the Region of York and other municipalities, agencies, residents and stakeholders, as appropriate, to implement the Rouge River Watershed Plan within the Town of Markham;

AND FURTHER THAT staff be authorized to do all things necessary to give effect to this resolution.

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PURPOSE

The purpose of this report is to provide Council with a summary of the Final Draft Rouge River Watershed Plan, to inform Council of the management recommendations, implementation strategies and roles and responsibilities established for the municipality with respect to the Rouge River Watershed Plan and to identify and provide formal input on the Watershed Plan to the Toronto and Region Conservation Authority (TRCA).

EXECUTIVE SUMMARY

The purpose of the Rouge River Watershed Plan is to provide an integrated, customized management framework for natural systems protection, restoration, environmental education, outdoor recreation and cultural and heritage planning activities. The Rouge River Watershed is 336 sq km in extent encompassing a significant area of the Town of Markham (approximately 169 sq km) and includes all the lands that drain to the Rouge River and its tributaries including the Little Rouge River from the Oak Ridges Moraine and flowing south into Lake Ontario.

The Rouge Watershed Plan recommends management strategies around the themes of water, nature and people. The Plan is to be followed by an Implementation Strategy that is not yet available for review. Although the Rouge Watershed Implementation Strategy will identify specific priorities and recommended implementation actions of the watershed partners, the Watershed Plan does identify the protection of the TRCA targeted terrestrial natural heritage system, sustainable community design and the development of a regional open space system as the three general priority theme areas. The Watershed Plan identifies many actions already completed or underway by Markham. As well, the plan identifies future actions that will require funding resources and prioritization. The Rouge River Watershed Implementation Strategy has not yet been released by the TRCA but will be an important resource in establishing an implementation framework and identifying priorities and a funding process. The Rouge Watershed Implementation Strategy will be brought to Council once released by the TRCA.

BACKGROUND

A watershed plan is a document developed cooperatively by government agencies, environmental agencies and stakeholders including watershed residents and landowners. The watershed plan is generally used by all agencies and stakeholders involved in land use decision making as a guide for decisions relating to managing human activities that affect water, land/water interactions, aquatic life and aquatic resources within a particular watershed.

The Rouge River Watershed is 336 sq km in extent, encompassing a significant area of the Town of Markham (approximately 169 sq km), and includes all the lands that drain to the Rouge River and its tributaries including Little Rouge River from the Oak Ridges Moraine and flowing south into Lake Ontario. Most of the Town’s non-urban area is contained within the Rouge watershed. The watershed also comprises smaller areas of the Cities of Toronto and Pickering and the Towns of Richmond Hill and Whitchurch-Stouffville (see Appendix ‘A’). The lower portion of the watershed is well vegetated as it is protected by the Rouge Park. In contrast, the upper areas support a significant amount of agricultural activity while the middle reaches are undergoing urbanization.

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The Rouge watershed is the most easterly of six Toronto Region watersheds identified by Canada, the United States and the International Joint Commission as an Area of Concern on the Great Lakes, where remedial action is being undertaken to restore environmental quality. This plan represents the second major watershed planning initiative undertaken for the Rouge watershed, the first being the Comprehensive Basin Management Strategy for the Rouge Watershed undertaken by the Metropolitan Toronto and Region Conservation Authority (MTRCA) in 1990. The Plan relies heavily on technical information, based on years of monitoring environmental conditions combined with a leading edge approach to modeling of potential future conditions.

The Rouge Watershed Plan fits within a broad context of plans and programs in the Great Lakes Region, Ontario and the Greater Toronto Area. These include the Oak Ridges Moraine Plan (ORMCP, 2002) which requires municipalities to incorporate the requirements of watershed plans into their official plans before any major development on the Moraine can be approved. The Provincial Greenbelt Plan (2005) recognizes the importance of the Rouge watershed as a vital ecological corridor linking the environmental systems of Lake Ontario to the Oak Ridges Moraine in the GTA. It is also expected that the watershed plan will help municipalities as they undertake their growth planning exercises in response to the Provincial Growth Plan for the Greater Golden Horseshoe (Places to Grow 2006).

The purpose of the watershed strategy is to provide an integrated, customized management framework for natural systems protection, restoration, environmental education, outdoor recreation and cultural and heritage planning activities.

TRCA/ROUGE PARKALLIANCE PLANNING PROCESS

The Rouge Watershed Planning exercise was initiated in 2003 by the Toronto and Region Conservation Authority and Rouge Park Alliance.

The Watershed Plan was prepared by a multi-stakeholder task force (Rouge Watershed Task Force) that included representatives from all levels of government, agencies, private businesses, not-for-profit organizations and the public, and was coordinated by the Toronto Region Conservation Authority (TRCA) and the Rouge Park. A series of management summits were held to convene experts who could identify best practices and make recommendations to achieve the task force objectives. In addition, meetings were held with agencies, other watershed partners and the public to review issues and seek feedback on the plan’s recommendations.

The Watershed Plan was finalized by the Rouge Watershed Task Force in November 2006 and submitted to the TRCA. The plan was released by the TRCA for formal circulation and comment in November 2007. A TRCA session was held with municipal staff on November 26, 2007. A number of public information meetings were held throughout the Watershed area including a meeting at the Civic Centre in Markham on November 28, 2007. The TRCA has requested comments on the draft plan by mid January and are targeting March for approval of the Watershed Plan by the TRCA. The Rouge River Watershed Implementation Strategy was not

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released concurrent with the Watershed Plan, but is expected to be released early in 2008. While the Watershed Plan contains the broad policy statements, the Implementation Strategy will

identify specific implementation priorities and expectations for Markham relative to staffing and

financial resources needed to implement the actions identified in the Watershed Plan.

THE WATERSHED PLAN

Apart from the State of the Watershed Report (2007), the plan also embraced a number of other studies undertaken over the years for the Rouge Watershed. These include the following:

· Comprehensive Basin Management Strategy for the Rouge River Watershed (MTRCA, 1990);

· Toronto and Region Remedial Action Plan (OMOE 1994);

· Toronto Wet Weather Flow Management Master Plan (City of Toronto, 2003);

· Rouge Park Management Plan and Rouge Park North Management Plans (OMNR, 1994; Rouge Park Alliance, 2001).

Many of the goals, visions and targets which were discussed in these previous studies were considered in the updated management framework established in the watershed planning study.

The Rouge Watershed Plan is structured into three components. The first component evaluates current physical conditions and issues affecting the watershed including climate, geology and landform, surface and groundwater and climate change. Biological conditions such as aquatic and terrestrial systems, as well as social conditions such as cultural heritage, resource use and land use were also evaluated. The second component includes a modelling review of eight existing and future scenarios which describe the watershed response to different land use and environmental management strategies. The last component identifies management strategies and actions to maintain and improve watershed conditions over the long-term assuming the implementation of the Provincial Growth Plan and additional urban development in the watershed area..

The Rouge River Watershed Plan recommends management strategies around the themes of water, nature and people. The following three general theme areas are identified as priorities:

1. Establish a targeted terrestrial natural heritage system

2. Build sustainable communities

3. Recognize and develop the regional open space system

Specific guidance on the implementation of the management plan and priorities for the implementation partners within the watershed, have been identified as forming part of the Rouge River Watershed Implementation Strategy. At the time of the writing of this report, the TRCA had not released the Implementation Strategy which is a separate document intended to provide specific direction to watershed partners and stakeholders. The Implementation Strategy is an important component of the Watershed Plan as it will be the document that identifies responsibilities for the actions impacting Markham and suggest projects to be funded. Given the potential financial implications, a further report on this matter will be brought forward to Council for consideration, when the implementation strategy is released.

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The Watershed Plan is an integrated management tool and assumes a partnership approach in the implementation of the Plan. The Executive Summary for the Watershed Plan for the Rouge Watershed is attached as Appendix ‘B’.

DISCUSSION

General Comments

The Watershed Plan provides guidance

Overall, the Rouge Watershed Plan is a comprehensive, innovative and multi-jurisdictional approach to watershed management. The Plan incorporated a modelling program to assess current and anticipated impacts to the watershed based on different approaches to land use planning, stormwater management and climate change. The modelling indicated that erosion and water quality impact to watercourses resulting from current development practices could have long-term detrimental impacts to receiving and downstream watercourses. The recommendations in the Watershed Plan are aimed at assisting municipalities with preparing growth management strategies in a manner which will reduce watershed impacts.

Implementation of the Watershed Plan is already underway

Many of the recommendations of the Rouge River Watershed Plan are currently being implemented by Markham. The following list identifies actions specifically identified in the Watershed Plan that the Town has already embraced and committed resources to:

1. Protecting Small Streams Features….

The Town endorsed the Small Streams Study which identifies a management program for small drainage features which do not meet the TRCA definition of watercourse. These features often contribute ecological function and base flow and the Small Streams Study is recognized by the Watershed Plan as a significant ecological planning tool.

2. Updating Stormwater Management Guidelines….

Notwithstanding the high standards provided for in the Town of Markham Stormwater Management Guidelines, updates are currently underway to integrate the Small Streams Study concepts and ensure that the next generation of stormwater management facilities can adapt to new innovations, technologies and best management practices related to groundwater and base flow management issues.

3. Protecting Natural Heritage Features….

The Town’s Environmental Policy Review and Consolidation Study is underway to recommend policies for the long-term protection a Natural Heritage Network and Greenway system which will address lands identified through the TRCA Terrestrial Natural Heritage System Strategy, as well as enhancement areas to secure linkages and nodes. The Town is also preparing a Tree Preservation By-law.

4. Enhancing Natural Heritage Features…..

The Town has approved a Watercourse Erosion Restoration Implementation Plan and has identified the top 30 watercourse erosion sites in the Town which will be funded in a phased manner over time. The Town is preparing an ambitious tree planting

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strategy ‘Trees for Tomorrow’ aimed at planting a significant amount of new trees in the Town of Markham.

5. A Comprehensive Sustainability Strategy……

The Town is undertaking the preparation of a ‘Greenprint Plan’ which will address an integrated sustainability plan for the Town. The Town is also undertaking a study

to identify alternative standards for sustainable community design. Approved Sustainability and Performance Measures have been adopted for Markham Centre. The Town also provides project funding to staff and community groups through the Environmental Sustainability Fund.

6. Updating regulations, standards and by-laws…..

The Town will be reviewing the site alteration by-law as part of the implementation strategy for the Small Streams Study. In keeping with the TRCA updates in flood plain mapping, the Town has adopted an amendment reflecting a revised Special Policy Area boundary. The Town has recently passed a pesticide by-law that regulates the outdoor use of pesticides on all public and private property which will come into full force and effect on January 1, 2008.

7. Taking care of existing infrastructure….

The Town is undertaking an Inventory of At-risk Infrastructure.

8. Operational procedures reduce risk….
The Town has a Salt Management Plan.

9. Addressing clean air, energy conservation and climate change….

The Town has a Transportation Demand Management Program. Since, 2004, the Town has included hybrid car purchases in its fleet inventory. The Town has a Smog Alert Plan. The Town is a partner in the Federation of Canadian Municipalities’ Partners for Climate Protection and is undertaking a community and corporate greenhouse gas inventory. The Town has established the Markham Energy Conservation Office for the purpose of developing community and business energy efficiency initiatives in order to save money, decrease demand, enhance the local energy supply by reducing its dependency on the grid, and reduce greenhouse gas emissions.

10. Leadership in waste management……

Markham leads all of Canada in waste diversion. Mission Green is an ongoing effort to create even further efficiencies in waste management.

11. Managing nature based recreation…..

Markham is nearing completion of its Bicycle and Pathway and Trails Master Plan Studies to create a long-term strategy and implementation plan for cycling routes, paths and trails throughout the Town.

12. Investing in planned growth …..

Markham has approved a planning process to address the requirements of the Growth Plan for a Directed Growth Strategy, including undertaking a number of studies related to population projections, housing, employment, agriculture, environment, transportation and servicing.

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Implementation of the Watershed Plan requires additional resources over time

There are many implementation recommendations in the Rouge River Watershed Plan which will require additional resources to implement. The Implementation Strategy (not yet released) will help Markham establish short and long term priorities and identify funding requirements to move forward on these initiatives. A few examples of these initiatives are:

1. Additional stormwater retrofits in the urban area to increase infiltration

2. Land securement (purchase) of lands to support a natural heritage system, natural stream form and groundwater recharge areas

3. Long term funding and maintenance plans for stormwater infrastructure

4. Enhanced crossings over watercourses to protect channel form and wildlife movement

5. Innovative and enhanced municipal infrastructure design

Watershed Plan should update the municipal examples to ensure accuracy…..

The Rouge River Watershed Plan provides selective examples of municipalities who are engaged in initiatives that support certain themes. Unfortunately, this selective approach, while celebrating the achievement of some municipalities, neglects important examples and information that inform the actions of municipalities in a particular theme area. For example, the Plan identifies Markham’s Mission Green program as an attempt to reduce waste to 60%. Markham has the highest diversion rates in all of Canada of 69%, and as such has reviewed and increased its initial waste reduction target of 70% to 75%. Markham received the highest award, Platinum award recognition, from the Recycling Council of Ontario in 2007.

Some Watershed Plan recommendations need to be balanced with other priorities

Some recommendations provided in the Watershed Plan would have to be considered and balanced with other municipal priorities. For example, the Watershed Plan recommends that future development be phased within each subwatershed to limit the extent of exposed soil at a given time to manage erosion. This recommendation suggests small pockets of future development occur across the Town instead of in concentrated and planned areas. The phasing of development in also considered in the context of servicing, land uses, community facilities, transportation and other important municipal priorities. Issues related to exposed soil may be managed in a different manner to permit the orderly phasing of any future development.

Specific Comments

The Rouge River Watershed Plan has been circulated to departments internally and the technical comments will be provided to the TRCA for consideration. Staff comments are comprised mostly of updated information regarding Town programs. Other departments have also provided comments regarding the financial and staffing resources needed to deliver a number of the implementation initiatives. The implementation of priority activities in the Rouge River Watershed Plan would be identified in the Implementation Strategy and brought forward for potential funding through the Implementation Committee (to be determined by the TRCA). Staff will bring forward necessary reports and recommendations regarding the implementation of the Rouge River Watershed Plan as further information become available.

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IMPLEMENTATION

The Rouge River Watershed Plan is a broad policy document that identifies strategic actions for improving the watershed but does not assign partnership and stakeholder responsibilities, priorities or financial requirements to deliver the recommendations. The Implementation Strategy for the Rouge Watershed Plan is being prepared as a companion document to the Rouge Watershed Plan. The Rouge Watershed Plan Implementation Strategy is expected to identify a 10 year Implementation program, implementation priorities and implementation structure. Once the Implementation Strategy is released, the Town will have a better understanding of what is

expected of the Town, in what time frame and at what cost. The Implementation Strategy was not released by the TRCA concurrent with the Rouge River Watershed Plan and a further report on this matter will be brought forward in the future.

FINANCIAL TEMPLATE

The implementation of the Rouge River Watershed Plan is multi-faceted and some actions are already funded and underway through other initiatives. Specific funding requests that are not identified through other initiatives will need to be identified through future budgets. There has been no request for additional funding at this time.

ENVIRONMENTAL CONSIDERATIONS

The Rouge Watershed Plan supports the Town Corporate Strategic Plan, Engage 21^st Century Markham environmental protection goals.

BUSINESS UNITS CONSULTED AND AFFECTED

The Rouge River Watershed Plan was circulated internally to the Engineering, Operations, Parks and Open Space departments and their comments, where provided, have been incorporated.

CONCLUSION

The Toronto and Region Conservation Authority and the Rouge Park are to be commended for the progress made in the preparation of the Watershed Plan. The document provides a strong basis for protection of the watershed and offers an integrated management approach. Staff recommends that the Town support the Final Draft Rouge Watershed Plan in principle and bring back a final report on the recommended implementation strategy and recommendations once further information is made available.

ATTACHMENTS

Appendix ‘A’: Map showing Watershed Plan Boundary

Appendix ‘B’: Executive Summary: Rouge River Watershed Plan

Appendix ‘C’: Rouge Watershed Plan Summary of Recommendations

File Path: Q:\Development\Planning\MISC\MI460 RPA\Rouge Watershed Task Force\DSC January 2008.doc

______________________________ ________________________________

Valerie Shuttleworth, M.C.I.P., R.P.P Jim Baird, M.C.I.P, R.P.P

Director of Planning and Urban Design Commissioner of Development Services