RECOMMENDATION:
That
the Development Services Commission report dated June 1, 2004, entitled “Preliminary Comments on the Hydro One Electrical
Supply Proposal (Parkway Belt
Transmission Corridor, north to northern York Region) under the Class
Environmental Assessment Process”, be
received; and,
That
Hydro One be advised that the Council of the Town of Markham has very serious concerns with the possible routing
option under consideration in the Town of Markham, and requires that the following actions be
undertaken by Hydro One prior to its determination of a preferred alternative:
1. That Hydro One
undertake, as part of the Class Environmental Assessment Process, a fully
documented identification and assessment of all possible routes and options for
expanded power transmission capacity to northern York Region, including the use
of other transmission corridors supplying northern York Region, the use of
existing and proposed Ministry of Transportation corridors such as Highway’s
404, 400 and future 427, pursuing new corridors on rural lands, and any other
viable alternatives;
2.
That Hydro One, in
evaluating all alternatives, give greater
consideration to environmental, social and economic impacts on existing urban
areas and established residential communities, and a lesser consideration to
the factor of cost;
3.
That in the event that any
further analysis of the possible routing
option in the Town of Markham is required in order for this option to be
“screened out” by Hydro One, that such analysis include, among other matters,
consideration of:
a)
A full inventory and
assessment of natural features and functions that would be potentially affected
by construction activities and transmission
corridor operations;
b)
An assessment of the impact
of the proposal on the intended use of the Hydro One transmission corridor for
a future trail system activity linkage, as part of the Greenway System identified
in the Official Plan;
c)
An assessment of the visual impact of the power transmission
towers in an established urban environment (within the residential communities
of Markham Centre, Buttonville, Cachet Woods, Cachet Estates/Jennings Gate,
Cathedral Community, and Victoria Square), including an assessment of the potential economic impact on homeowners
and the loss of enjoyment of residential
yards that are in proximity to the hydro corridors;
d)
Review, with Transport Canada,
the compliance of tower transmission heights with respect to Transport Canada Airport
zoning regulations (existing Buttonville and future Pickering
airports);
e)
Provide information on the
effects of electromagnetic fields on human health; disclose the relative EMF
strength emanating from the existing power line compared with the proposed 230
kV line; and, identify mitigating measures that would ensure that any proposed
changes in transmission capacity will not increase the public’s exposure to
electromagnetic fields; and
That the Town Clerk forward a copy of this
report and Council’s resolution to Hydro One, and request that the Town be
added to the project’s contact list; and
That the Town Clerk advise the Premier of Ontario, the Minister of the
Environment, Markham Area MPPs Tony Wong, Frank
Klees and Mario Racco, the Region of York, the York Region District School
Board, and the York Catholic District School Board, of Council’s concerns and
comments on this matter.
PURPOSE:
Hydro One is undertaking a Class Environmental
Assessment (EA) for a project that would expand power transmission capacity to
northern York Region. One of the options
under consideration for the project consists of increasing electricity
transmission capacity in an existing Hydro transmission corridor in the Town of
Markham as shown on Attachment #2. The
purpose of this report is to provide an overview of the Hydro One proposal,
explain the approval process and identify issues and concerns relating to the
viability and potential impacts of the Markham option.
BACKGROUND:
Hydro One is an electricity transmission and distribution company
(wholly owned by the Province of Ontario), transmitting up
to 97% of the electricity from various generation sources to customers and
local utilities in Ontario. Electrical power is transmitted across the
province through high voltage transmission lines (500kV, 230kV and 115kV). Within York Region, Hydro One transmits
electricity to local utilities, including Markham Hydro. Markham Hydro then distributes the electrical
power to homes and businesses in Markham.
In early 2004, Hydro One published a document titled “Transmission
Solutions, a Ten Year Transmission Plan for the Province of Ontario, 2004 – 2013”
which outlines their plan for transmission of electricity in Ontario for the next ten
years. Hydro One’s background report
identified the need for improved electricity delivery in York Region. A project of particular interest to the Town
is the proposed establishment of a new 230kV power line that will run from the existing
main lines within the Parkway Belt Transmission Corridor (which run east-west
adjacent to Highway 407 in Markham), north to
northern York Region.
To address this, two possible north-south routes have been identified by
Hydro One – a Vaughan option (44
kilometres long) and a Markham option (24
kilometres long). Both are within
existing corridors which terminate in Newmarket at the Armitage
Transformer Station (see Attachment #1 – Hydro One
Proposed Corridors for Increased Power Transmission to North York Region). The proposed 230 kV power line is subject to
Environmental Assessment and Ontario Energy Board approval.
Proposed expansion of Markham corridor
As shown on Attachment #2,
the Markham option identified by Hydro One is an existing hydro
corridor situated generally mid-block between Woodbine Avenue and Warden Avenue, running from just south of Hwy. 407 up beyond
the municipal boundary. Currently, the
section south of 16th
Avenue
transmits power at the 230kV level, with a 115kV line
north of 16th
Avenue
(staff have been advised that the existing 115kV line is actually distributing
28kV).
This existing transmission
corridor runs through urban lands in Markham, including the Markham Centre mixed use area, and
established residential communities including Buttonville, Cachet Woods, Cachet
Estates/Jennings Gate, Cathedral Community and Victoria Square.
The Hydro One proposal for
the section south of 16th Avenue is to reconstruct existing towers to an upgraded
style with a similar height. North of 16th Avenue, Hydro One is proposing to increase power
transmission capacity from 115kV to 230kV.
This would require the use of towers that are 60 – 70 feet taller than
existing structures. Two types of towers
are proposed, as shown on Attachment #3.
Multiple approvals are required
For this project, Hydro One
is required to undertake a Class Environmental Assessment (EA) for “Minor
Transmission Facilities”. At the
completion of the EA process, Hydro One must also obtain approval from the
Ontario Energy Board (OEB). In addition,
they require approval from the Electricity Market Operator (IMO). Both the EA process and the OEB process
provide for public input. The IMO
approval is more technical in nature and does not provide for public input.
Class Environmental Assessment process
The Environmental Assessment
Act is administered by the Ministry of Environment (MOE). It provides decision making and public input
processes that must be followed before public infrastructure projects can be
undertaken. The intent of the Class
Environmental Assessment (EA)
process is to ensure that impacts associated with the construction and
operation of a project are environmentally acceptable. The flow chart (Attachment #4) lays out the
steps in the process.
Simply stated, a Class EA
involves:
- the identification and assessment of alternatives
for the infrastructure project
- public consultation on the alternatives (the
current stage of the Hydro One EA)
- identification of a preferred alternative, along with
mitigative measures to minimize impacts such as environmental, social,
etc.
- public consultation on the preferred alternative
and mitigation strategy, and
- reporting on the preferred alternative
A Class EA is a
“self-assessment” process led by the proponent (in this case Hydro One). Provided that MOE’s process is properly
followed and issues identified through consultation are adequately addressed,
the project can receive environmental approval.
MOE only becomes part of the process when an individual or group opposes
the project and requests a “bump-up” to an individual EA – which would require
evaluation of a broader range of options to a greater depth of study. An individual EA can be a much longer and
more extensive process.
Status of the Hydro One Environmental Assessment
In accordance with the Class
EA process, Hydro One is conducting a public consultation program. The first public information centre was held
at various venues during the last week of April and the first week in May –
including an April 28th meeting in the Town of Markham. Hydro One
provided a set of display boards which identified the need for the project,
identified alternative routes and designs, indicated
the process they would be following, and requested the public to comment on the
project. Currently, Hydro One remains
focused on assessing the Vaughan and Markham alternatives, as shown on
Attachment # 1.
Future public information
centres have yet to be scheduled. Hydro
One advises they originally intended to hold the second session in June. However, a date has yet to be set in order to
allow more time for informal consultation with members of the public,
interested groups and public agencies (e.g. School Boards). Once these consultations are completed, Hydro
One will present their preferred option.
The public will have an opportunity to comment further at that
time.
Upon completion of the
consultation process, Hydro One will prepare an Environmental Study Report
which will be filed with the Ministry of Environment. The report will outline the project, process
and outcome. Hydro One will notify all
interested parties including the public, stakeholders and agencies that 30 days
are available to review the report and provide comments. At this stage, any member of the public can
request that MOE “bump-up” the project to an individual EA. Requests must include written submissions
outlining inadequately addressed issues.
If no bump-up is requested within the 30 day period, Hydro One will have
Ministry of Environment approval to start the project.
If a “bump-up” is requested,
Hydro One will have an opportunity to address the requestor. If the issues cannot be resolved, the
Minister of Environment will review the Environmental Study Report and the
reasons for the bump-up request, and make a decision. The Minister can either indicate that the
objection is not warranted thereby granting environmental approval, or direct
the proponent to undertake an individual EA.
The outcome of an individual EA requires the approval of a third-party
Consolidated Hearing Board through a public hearing
Role of the Ontario Energy
Board
Upon the completion of the EA
process, Hydro One must also acquire approval from the Ontario Energy Board
(OEB). Through its process, the OEB
reviews the proposed transmission project within the context of how the project
may impact the price, reliability, availability and quality of
electricity.
To acquire this approval,
Hydro One will file an application with OEB.
Hydro One will then notify interested parties and the general public of
the application. Any party will have an
opportunity to participate in the OEB’s review process, which includes
submission of evidence, interrogation of other parties’ evidence, and a
hearing. Upon the completion of this
process, OEB reviews all submissions and issues a decision. With OEB approval, Hydro One will be in a
position to construct the project.
The Town and Region have no approval authority in EA
or OEB processes
Under the current provincial
legislation for Class EA and OEB processes, the Town of Markham and Region of York hold the status of commenting
agencies – they are not regulatory approval agencies. Site plan approval and building permits are
not required for Hydro transmission towers.
Hydro One did not require warning clauses in
subdivision agreements
As required by the Planning
Act, Hydro One is provided copies of plans and applications for new
subdivisions that abut their corridors and facilities. This provides an opportunity for Hydro One to
review and comment on the applications – comments could include a request that
new home owners be notified of the proximity of power transmission corridors,
as well as the prospects of changes to the corridors in the future. Such warning clauses in agreements were
required in the past by Hydro along certain sections of Hydro corridors in Markham.
Staff reviewed several
subdivision agreements for newer residential developments in the vicinity of
the subject Hydro corridor in the Town of Markham. Hydro did
request certain technical requirements relating to such matters as fencing and
grading, which are addressed in the subdivision agreements. However, Hydro did not request any specific
notice or warning requirements to be included in the agreements reviewed.
DISCUSSION:
Staff have reviewed the background
reports prepared by Hydro One, attended the April 28th public
information session, liaised with other municipalities, and consulted with
experts in the power transmission industry.
Based upon these reviews and consultations, we have identified several
main issues and concerns that must be addressed as Hydro One proceeds under the
Environmental Assessment process, namely: ensuring that all potential options
are thoroughly explored; assessing the aesthetic and environmental impacts
during and following construction; and, providing a scientifically sound and
conclusive statement regarding the relationship between electromagnetic fields
and the proposed changes to the power transmission corridor, and any possible
affects on human health.
Hydro One must pursue all
reasonable options
As noted earlier, Hydro One has focused its efforts in this Class EA
process on only two options – the Vaughan and Markham alternatives. However we note that both these options run
through built-up urban areas, immediately adjacent to established residential
communities.
We recommend in the strongest of terms that Hydro One, as part of the
formal EA process, be required to consider other possible options that could
involve less of an impact on urban residential communities. Other possible options identified to date for
expanded power transmission capacity to northern York Region could include
other existing transmission corridors supplying northern York Region (such as
corridors north of Newmarket), the use of existing and proposed Ministry of
Transportation corridors such as Highway’s 404, 400 and future 427, pursuing
new corridors on rural lands, and any other viable alternatives.
Hydro One should identify and investigate these and any other viable
alternatives as part of the current Environmental Assessment process.
The
effects of EMF remain unknown
Every electronic device emits electromagnetic
fields (EMF), including clock radios, cell phones, computers and power
transmission lines. Concerns have been
raised for several decades regarding the potential health risks associated with
exposure to EMF. York Region undertook a
review of the matter eight years ago, and determined that despite a remarkably
large body of research, the scientific community offers contradictory and
typically inconclusive results on the effects of EMF on human health. This lack of consensus is further evidenced
in the efforts of the World Health Organization, which initiated an international
review of EMF effects in 1996 and has yet to release a singularly conclusive
position.
Members of the public living in the residential
communities adjacent to the Hydro transmission corridor shown on Attachment #2
have been expressing to Hydro One, Members of Council and the School Boards
serious concerns in regard to the possible health effects of the proposal,
given the close proximity of the corridor to homes, schools and parks.
Possible EMF impacts are a sensitive matter
worthy of further review, and the proponent should be obligated to respond to
the public’s concerns in a meaningful manner.
This would include Hydro One providing information on the effects of
electromagnetic fields on human health, disclosing the relative EMF field
strengths associated with 28kV, 115kV and 230 kV power lines, and identifying
mitigating measures that would ensure that any proposed changes in transmission
capacity will not increase the public’s exposure to electromagnetic fields.
Social
and economic impacts must be considered in the review of alternatives
Power transmission towers present a visual
intrusion into the urban landscape. For
the section of corridor running north from 16th Avenue, the Hydro
One proposal would require the replacement of the existing towers with
structures that are 60 – 70 feet taller and potentially broader as well. The introduction of larger towers can worsen
the already poor aesthetic impact of transmission corridors, present a further
domination of the landscape, and possibly lead to negative economic impacts on
homeowners as well as loss of enjoyment of residential yards in proximity to
the corridor. For these reasons, visual
impact of the alternatives must be considered in the EA, along with
related social and economic concerns.
Confirm
compliance with airport zoning regulations
Federal zoning regulations are in place to
restrict the height of structures in the vicinity of Buttonville Airport. At the locations in proximity to flight
paths, the maximum permissible height may conflict with the height of the 230kV
towers proposed by Hydro One. The Markham
transmission corridor is also affected by draft regulations recently issued by
Transport Canada for the Pickering Airport. Although these additional
height restrictions are unknown at this time, the onus is on Hydro One to
confirm that it complies with all airport zoning regulations of Transport Canada.
Concerns exist that
construction activity may have environmental impacts
Maintenance of power transmission corridors typically limits the extent
of significant tree growth, but varied undergrowth
does emerge over time. These areas
become suitable for habitat and nesting grounds for a large variety of small
mammals, birds, reptiles, etc. They can
also serve as vital terrestrial corridors linking core habitat areas.
Construction activity associated with the
erection of any new Hydro towers would degrade the habitat value of the
transmission corridors. Regardless of
the alternative selected, a full inventory and assessment of natural features
is required, as well as a mitigation strategy to minimize the impacts of
construction.
Ongoing maintenance and operating impacts of an
intensified hydro corridor are also of concern, relating to such matters as the
increased potential for use by Hydro One of pesticides and herbicides.
Markham Official Plan identifies Hydro Corridors as Activity
Links in Greenway System
Section 2.2.2.3 of the Official Plan supports
the development of a linked Greenway System to support ecological functions,
provide access to natural areas and to provide continuous trails across the
municipality and linking to Regional systems.
The Greenway System is shown conceptually on Appendix Map 1 – GREENWAY
SYSTEM of the Official Plan.
Section 2.2.2.12 Activity Linkages of the
Official Plan provides that the “Town encourages and will work cooperatively
with Ontario Hydro to gradually establish trail links on sections of the Hydro
rights-of -way …”.
The subject transmission corridor is shown as
an intended “activity linkage” on the Greenway System map. Hydro One should be required to prepare an
assessment of the impact of the proposal on the intended use of the Hydro One
transmission corridor for a future pedestrian and bicycle path linkage, as part
of the Greenway System identified in the Official Plan.
FINANCIAL CONSIDERATIONS:
At this point in the EA, Hydro One continues to
assess the various options. Once a
preferred option has been selected, staff will report back to Council with
recommendations pertaining to the selection and provide information on any
potential financial impacts.
ENVIRONMENTAL CONSIDERATIONS:
As detailed in the discussion section of this
report, construction activity associated with the project may degrade natural
flora and fauna. Staff
recommend that Hydro One prepare a full inventory and assessment of
natural features within the corridors, as well as a mitigation strategy to
minimize the impacts of construction.
The impacts of the proposal on the activity linkages/Greenway Systems
policies of the Official Plan are also of concern.
BUSINESS UNITS CONSULTED AND AFFECTED:
All affected departments will be involved in
the review of Hydro One’s preferred option, once that information is released.
ATTACHMENTS:
Attachment #1 – Hydro One Proposed Corridors for Increased Power
Transmission to North York Region
Attachment #2 – Hydro One Proposal for Existing Markham
Corridor
Attachment #3 – Illustrations of Proposed Transmission Towers
Attachment #4 – Class Environmental Assessment Study Process
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Valerie Shuttleworth, M.C.I.P., R.P.P.
Director of Planning & Urban Design
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Alan Brown, C.E.T.
Director of Engineering
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Jim Baird, M.C.I.P., R.P.P.
Commissioner of Development Services
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