Report to: Development Services Committee Date of Meeting: February 19, 2008

SUBJECT: Little Rouge Corridor Management Plan

PREPARED BY: Lilli Duoba, Senior Project Coordinator, Environmental

Planning & Rouge Park, extension 7925

RECOMMENDATION:

That the staff report entitled draft “Little Rouge Corridor Management Plan” dated February 19, 2008, be received;

And That Council express support for the Little Rouge Corridor Management Plan as a broad based park planning guideline, but encourage the Rouge Park to consider comments made in this information report;

And That the Rouge Park be requested to prepare and maintain a financial implementation strategy, identifying private and public funding opportunities, as well as economic opportunities within the Park to implement and sustain the Park as a public resource;

And That Council request the Rouge Park Alliance to ensure the Plan retains sufficient flexibility to respond to recreational and economic opportunities which could support the profile and funding of the regional park system;

And That Council urge the Rouge Park Alliance to continue to seek private, corporate and senior government funding sources, including a Trust Fund to accept private donations, for the implementation of the Rouge Park, recognizing the significant costs to deliver the regional park infrastructure and ongoing operation costs;

And That Council request the Rouge Park Alliance in its 5 year review of the Little Rouge Corridor Management Plan, to assess if the allocation of funding for the delivery of the Little Rouge Corridor Park is sufficient to deliver the park infrastructure and ongoing operations in a reasonable and timely manner;

And That the ongoing Town of Markham Rouge Park grant of $25,000 per year be directed to implementation of the Little Rouge Corridor Park or Bob Hunter Memorial Park from account 25-210 0024, and that the Rouge Park continue to provide the Town with a year end report on expenditure of the grant;

And That consistent with the paramount actions identified in the Rouge Watershed Plan, the Rouge Park be requested to prioritize the implementation and funding activities of the Little Rouge Corridor to recognize and develop the public use and trails component of the Regional Open Space System;

And That the park uses proposed in the Little Rouge Corridor Management Plan be considered in the Greenbelt Conformity process to ensure that the uses are permissible, and consistent with the provisions of the Greenbelt Plan;

And That Council request the Rouge Park staff to provide written communications with Town staff in the Planning Department and the Operations and Asset Management Group regarding implementation activities on Town owned lands and implementation activities requiring Town permits and approvals;

And That this staff report be forwarded to the Rouge Park Alliance, the Toronto and Region Conservation Authority and the Region of York as the Town’s input into the Final Little Rouge Corridor Management Plan;

And That staff continue to work co-operatively with the Rouge Park Alliance, and the Toronto and Region Conservation Authority, York Region, the Province of Ontario, residents and stakeholders, as appropriate to implement the Little Rouge Creek Management Plan;

And that Staff be authorized and directed to do all things necessary to give effect to this resolution.

EXECUTIVE SUMMARY:

The Little Rouge Creek Management Plan (LRCMP) is a document identifying the management actions and priorities relative to natural heritage, cultural heritage, recreational use and education and interpretation of the Rouge Park lands straddling the Little Rouge Creek from Steeles Avenue to north of 16^th Avenue. The LRCMP recommends delivery of the Rouge Park infrastructure and ongoing operations and maintenance through a partnership participation model. Markham is a key participant in this model. To date, a long-term financial strategy has not been prepared for the Rouge Park. A financial strategy is essential for the Town to understand expectations with respect to the future funding of Rouge Park. Staff are recommending some minor changes to the LRCMP to ensure the LRCMP is sufficiently flexible to adapt to economic and recreational opportunities and that the nature-based recreational uses are planned in a manner to benefit Markham residents. In support of the paramount actions identified in the Rouge River Watershed Plan, staff recommend that the Rouge Park prioritize the development of the public use component of the Little Rouge Corridor for the Regional Open Space System.

The Little Rouge Corridor Management Plan area generally includes a 600 metre corridor of lands centred around the Little Rouge Creek from Steeles Avenue to north of 16^th Ave. The lands comprise 544 hectares (1,344 acres) conveyed by the Province of Ontario to the Toronto and Region Conservation Authority and the Town of Markham. The Town received approximately 92 hectares which include the valley and a 10 metre buffer generally north of Highway 7. The lands are shown on Appendix ‘A’.

In early 2005, the Rouge Park Alliance and the Toronto Region Conservation Authority commenced the Little Rouge Corridor Management Plan study. The Town of Markham has contributed funding in the amount of $15,000 to assist in the preparation of the Little Rouge Corridor Management Plan. Town staff have participated on the Little Rouge Corridor Steering Committee.

The Little Rouge Corridor lands are designated AGRICULTURE, OPEN SPACE and HAZARD LANDS in the Town’s Official Plan. The lands also form part of the Provincial Greenbelt Plan and are identified as Protected Countryside and predominantly Natural Heritage System. The Town is reviewing the prime and rural agricultural classifications through the Town’s Environmental Policy Review and Consolidation Study to ensure that the park uses contemplated by the Little Rouge Corridor Management Plan can be permitted through the Town’s Greenbelt conformity exercise.

The Hamlet communities of Locust Hill and Cedar Grove are partially located within the Little Rouge Corridor boundary. A privately held parcel of land on 16^th Avenue creates a gap within the corridor separating a parcel at Ninth Line from the linear corridor. The Bob Hunter Memorial Park adjoins the Little Rouge Creek corridor on the west side of the corridor south of Highway 407. East of the corridor are Provincially owned lands which have been identified by the Province as lands to be retained by the Province but managed for Rouge Park purposes.

On November 29, 2005 Council received a report on an earlier draft of the Little Rouge Corridor Management Plan and provided specific recommendations and detailed comments on the Management Plan to the Rouge Park Alliance. The resolution of Council and report Appendix representing staff comments are attached as Appendix ‘B’ and ‘C’ respectively.

On November 23, 2007, the Rouge Park Alliance released the Little Rouge Creek Management Plan for review and endorsation by the Rouge Park Alliance partners.

Little Rouge Corridor – Park Themes

The vision for the Rouge Park is first and foremost a natural heritage park for the protection and enhancement of its ecosystem. A significant portion of the Rouge Park, centred along the watercourse, is recommended for ecological restoration purposes, consistent with the policy approach identified in Markham’s Official Plan Amendment No. 140 (Rouge North Management Area).

The other important aspect of the Rouge Park is promoting the appreciation and enjoyment of the public lands for interpretation and recreational purposes. The public use component of the Management Plan is primarily a north south trail system with additional small scale recreational and public uses contained within the Cedar Grove and Locust Hill communities. The Plan also identified an agricultural reserve adjacent to the Cornell community on the west side of the creek south of 16^th Avenue. The LRCMP does not identify any requirements or restrictions for acceptable types of agricultural activity or consideration of the Agricultural Code of Practice. Given the proximity to residential urban uses, the LRCMP should clarify appropriate agricultural activities to ensure the impacts to the adjoining residential community are minimized. A remnant triangular parcel of land west of Reesor Road and south of 16^th Avenue is identified as a ‘Managed Area’ which is intended to be developed for a park related commercial use. However, potential use of this land is limited to those contemplated for prime agricultural land as contained in the Greenbelt Plan. Without a change in the provisions of the Greenbelt Plan the economic opportunities available for this site would therefore be quite limited.

A summary of the Little Rouge Creek recommendations is attached as Appendix ‘D’. The Master Plan map is attached as Appendix ‘E’.

LITTLE ROUGE CORRIDOR – COUNCIL AND STAFF COMMENTS

The Council recommendations and staff report recommendations provided to the Rouge Park Alliance on the preliminary LRCMP draft are attached as Appendices ‘B’ and ‘C’ respectively to this report. The Council report and staff comments provided as input into the Little Rouge Corridor Management Plan identified several important issues for consideration. The key issues raised by the Town and Rouge Park Alliance response are identified as follows:

Enhance the Public Use Component

Town Comment

The Town requested that the LRCMP significantly enhance the public use component of the Management Plan to reflect the regional function of the Rouge Park and provide a legacy of appropriate low impact recreational and public uses that will elevate the Rouge Park profile and public enjoyment, and create more opportunities for funding and stewardship. Of particular importance, is the need for an improved multi-use and all season trail system that is integrated with the urban communities of Cornell and Box Grove, a variety of public use opportunities to enhance and support the Rouge Park, and a ‘Rouge Park’ legacy interpretive, visitor or education centre to provide a focus for the Rouge Park and support it’s educational and interpretive objectives. Smaller interpretive facilities in existing heritage buildings may also be pursued by private or community groups. Staff requested that a direct trail connection from Cornell into the Rouge Park be provided, and that large scale family picnicking, potential small scale camping and a dog off leash area also be considered.

Rouge Alliance

The revised Little Rouge Creek Management Plan reflects the following changes:

· The north-south trail north of Highway 7 continues to be located on the east side of the creek with access points for the Cornell community only provided at Highway 7 and 16^th Avenue. However, the LRCMP now includes a provision that, if the Agricultural heritage area is not viable over the long–term, an east west trail connection could be considered.

· The plan does not make provision for a larger ‘legacy’ interpretive centre or enhanced public use areas for larger community gatherings, such as group picnic areas and informal play areas. However, the neighbouring Bob Hunter Park provides a core area of trails and small picnic areas along 14^th Avenue. The large group picnic area is Milne Park is heavily used and there may be greater demands for these uses in the future.

· The plan does not support small-scale camping for educational and revenue generation purposes, citing that the use is already permitted south of Steeles Avenue and managed by the City of Toronto. Activities such as small scale camping were proposed to generate discussion and ideas on economic opportunities within the park.

· A dog off-leash area within the Rouge Park is not supported by the Plan, yet there continues to be a need for this facility in the Town’s east end.

· The plan identifies that trails are not a permitted use in the Nature Reserve Zone. This zone generally cradles the creek and comprises 38% of the corridor lands. The plan does make provision for looped trails and access to the creek for viewing and fishing. The creek is the spine for the Rouge Park and adequate access to the water’s edge should be provided in several locations to ensure unplanned pathways are not carved into the landscape at inappropriate locations in an attempt to access the watercourse. The Plan identifies that these may be permitted in non-sensitive locations, but greater flexibility is still needed to ensure that the park is able to properly protect the truly sensitive areas by allowing access in other areas.

Staff in the Urban Design Department continue to support the trail location on the west side of the Little Rouge Creek to support usage and access by Markham residents. If the Rouge Park Alliance is not prepared to support the trail location, pedestrian creek crossings should be provided at mid-block locations. Trail heads should be closer together and more direction provided in the plan regarding planned trail loops to manage public use. Staff recommends that access and intensity of programming in the park be greater on the west side to meet the demand for nature-based recreation opportunities serving residents in the adjacent urban area.

A Sustainable Source of Funding

Town Comments

The Town requested that the Rouge Park Alliance identify and incorporate a means within the park to secure a reliable and long-term source of funding to support the capital and long-term management of the park. The funding source for the park currently comprises the rents received from the leased properties and funding from the Rouge Park partners. A triangular parcel of land at Reesor Road and 16^th is identified in the Plan as a potential park-related source of revenue, but no specific implementation plan is proposed for the parcel and any use for this parcel would need to comply with the requirements of the Greenbelt Plan. Council had also requested that a Phased Financial Strategy be prepared. Although the Town can support the Little Rouge Creek Management Plan as a concept plan, without a funding strategy to implement the vision, there is no certainty regarding what can be achieved, what the long term financial burden may be for funding partners, or how quickly the park will be realized as a public amenity and space.

Rouge Park Alliance Response

To date, the Rouge Park Alliance has not identified a funding strategy but the plan does identify that this is a priority issue that should be dealt with in a timely manner. The plan identifies that partnership funding will be an important component of the delivery of the Park and that Markham, the Region of York and the TRCA are proposed to be the primary funding partners.

Given the limited funding available, high costs for both capital projects and operating expenses of the Rouge Park, and the relatively unstable nature of lease rental income, staff recommend that Council reiterate the Town’s request to review the opportunities to use a portion of the land base within the park for a commercial/retail/educational/ venture to generate a sustainable source of long-term income for the Rouge Park. Staff also recommend that Council request that without a confirmed funding strategy, the Rouge Park Alliance ensure that the Little Rouge Corridor Management Plan retain the flexibility within the land use categories to respond to economic opportunities that may arise to help support the funding of the Rouge Park. Other than the triangular parcel, at 16^th Avenue and Reesor Road, which may not be viable for an economic use under the provisions of the Greenbelt Plan, little opportunity to generate sustainable revenue is proposed in the Management Plan.

LITTLE ROUGE CORRIDOR - SPECIFIC REPORT COMMENTS

Section 2.2.3 Municipal Plans

The document identifies the LRC study lands as being in conformity with the Greenbelt Plan through adoption of OPA No. 140. OPA No. 140 identifies the Greenbelt boundary but does not constitute the conformity exercise. The Greenbelt conformity exercise will be implemented through the Town’s Environmental Policy Review and Consolidation Study.

Section 3.1 Vision, Goal, Objectives and Planning Principles

The Rouge Park Objectives do not identify ‘Cultural Objectives’ which are noted in both the Rouge Park and Rouge North Management Plans. We also note, that the Town’s OPA. No 140 added a ‘Land Securement’ objective which has not been reflected in the draft LRCMP.

Section 4.2.3 Heritage Zone

The LRCMP identified compatible commercial uses in heritage buildings such as Bed and Breakfast establishments, agri-tourism operations, furniture making and artisans. The Town is required to demonstrate conformity with the Greenbelt Plan and will review these uses within the Greenbelt conformity exercise to ensure such uses may be permitted. The Town may also need to amend the Official Plan to permit the uses contemplated within the Rouge Park within the Hamlet policies.

Section 5.7.1 Park Operations and Section 8.4.1 Existing Funding Partners

The LRCMP identifies that there is no agreement for maintaining or managing Rouge Park lands in York Region. This information is incorrect. There is a current agreement with the Town of Markham and TRCA for the Milne lands. The lands are owned by the TRCA but managed by the Town, with some parking and group picnic shelter revenues. The TRCA Rouge Park lands in Toronto are managed by the City of Toronto, with some revenue secured through the campgrounds.

Section 8.4.2 Financial Contributions of the lease Portfolio

The reference for the Town of Markham leased properties should identify 3 leaseholds, not one. The LRCMP recommends that the disposition or sale of Rouge Park lands into private ownership is counter to the intent of the dedication of lands and has not been considered a viable option. Staff in the Legal Department have received direction from Council to review this matter and will bring forward a report on this shortly.

Markham Operations Department

Comments from the Town Operations Department are attached as Appendix ‘F’. Staff also recommend that the Rouge Park be requested to provide the Town with information regarding implementation activities and projects in the Rouge Park in order that staff can assess the need for any Town permit, approvals and requirements e.g. (Site alteration, addition or removal of fill, access to Town lands) in a timely and streamlined manner. Town staff will work with the Rouge Park to identify internal staff contacts and the types of activities requiring Town input or approvals.