The Oak Ridges Moraine: Proposals for the Protection and Management of a Unique Landsape

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3 Proposals for the Protection and Management of a Unique Landscape The Oak Ridges Moraine: Proposals for the Protection and Management of a Unique Landsape This report has been prepared jointly by the Regional Municipalities of Durham, Peel, and York together with our partner Conservation Authorities and municipalities on the Oak Ridges Moraine. The recommendations in this report are intended to improve our understanding of the Moraine and to strengthen existing policy in our Official Plans. The protection and enhancement of the unique landscape is vital to maintaining our quality of life. We can only be successful in this goal with your input and support. Alexander L. Georgieff Nick Tunnacliffe Bryan Tuckey Planning Commissioner Planning Commissioner Planning Commissioner Regional Municipality of Durham Regional Municipality of Peel Regional Municipality of York Received and released for Public consultation by the Planning Committee and/or Councils of the Region of Durham, Region of Peel and Region of York on May 10, The public and stakeholders are invited to attend the public open houses and information meetings listed in the sidebar. 1

4 The Oak Ridges Moraine Table of Contents ERRATA This page has replaced the previous Table of Contents posted on the web site May 28, We regret this inconvenience. Executive Summary 4 Introduction Background Issues The Oak Ridges Moraine Partnership Principles A Call to Action 8 Chapter 2 Groundwater Management Background Issues Analysis Strategic Directions 15 Chapter 3 Natural Heritage Data Management Background Issues Analysis Strategic Directions 21 Chapter 4 Policy Background Policy Context Regional Policy Context Policy Issues and Analysis Strategic Directions 30 Chapter 5 Land Securement Background Issues Analysis Strategic Directions 37 Chapter 6 Next Steps Strategic Directions Public Input 40 2

5 Proposals for the Protection and Management of a Unique Landscape 6.3. Role of Municipalities and Conservation Authorities Role of the Province Continued Monitoring Conclusion 42 Appendix A - Contributing Agencies 43 Appendix B - How to Contact Us 44 3

6 The Oak Ridges Moraine EXECUTIVE SUMMARY The Oak Ridges Moraine is a complex system of natural heritage features, with significant ecological functions that are essential to our quality of life and economy. A partnership led by Durham, Peel and York Regions and including, nine Conservation Authorities, five counties, and other stakeholders have come together to recommend a practical action plan to protect and enhance the Oak Ridges Moraine. This approach builds on existing Regional Official Plans utilizing the 1994 draft Oak Ridges Moraine strategy. Strategic directions are proposed in four areas: groundwater management, natural heritage data management, policy, and land securement. A Moraine-wide approach to improving groundwater data and understanding will support better land use decisions. A Regionally led, co-ordinated natural heritage data management system is recommended, which will require common data standards, improved Moraine-wide mapping, analysis on the state of the Moraine and effective monitoring. Regional Official Plan policies should be co-ordinated and strengthened by filling gaps in five key policy areas: tableland woodlots, functional corridors and linkages, minimum ecological buffers, groundwater protection and landform conservation. The 1997 Provincial Policy Statement should be revised to strengthen natural heritage policies and recognize the Oak Ridges Moraine. A co-ordinated Land Securement Strategy is proposed, using policy, stewardship, monitoring and acquisition to protect the Moraine. Improved policies are not enough. Funding of data systems and land securement by all parties is required. Together we can achieve much more effective protection and enhancement of the Oak Ridges Moraine. Now is the time to act. A symposium and a series of public meetings on the recommended approach are proposed for June Input from the public and stakeholders will help refine the strategic directions in this report and shape recommendations to the Durham, Peel and York Regional Councils. 4

7 Proposals for the Protection and Management of a Unique Landscape Chapter 1 Introduction The Oak Ridges Moraine is considered an important part of the Greater Toronto Area landscape. It is a distinct landform feature, performing essential ecological functions including the provision and maintenance of groundwater resources and natural habitat. The Moraine occupies approximately 21% of the total combined land area for the Regional Municipalities of Durham, Peel, and York. The Moraine extends some 160 kilometres in total from the Niagara Escarpment in the west to Trenton in the east. Along its length the Oak Ridges Moraine varies in width from 3 to 23 kilometres. The Moraine functions as the drainage divide between Lake Ontario to the south and Lake Simcoe and the Kawartha Lakes to the north. A vital part of the Greater Toronto Area s character, the Oak Ridges Moraine is a vast water reservoir and the headwaters of most of our rivers, and it supports the most extensive and diverse wildlife habitat in the Greater Toronto Area. The Moraine also supports a wide variety of uses including agriculture, recreation, aggregate extraction, golf courses, hamlets, villages and urban areas. In large part because of its natural areas, vistas and views, and the strategic location, the Oak Ridges Moraine is also subject to a great deal of development pressure. Despite good intentions, there is no co-ordinated and consistent strategy to protect and enhance the Oak Ridges Moraine. This report proposes strategic directions with specific responsibilities for regional governments, counties, Conservation Authorities, the Province of Ontario and other stakeholders. Source: Ganaraska Region Conservation Authority 1.1. Background In 1998, Durham, Peel and York Regional Councils directed their respective staffs to co-ordinate a joint long-term strategy for the Oak Ridges Moraine. The resulting September 1999 discussion paper, The Oak Ridges Moraine: Towards a Long Term Strategy, described the background, history, and importance of the Oak Ridges Moraine, and discussed in detail the current policy context, the state of natural heritage and hydrogeological data, and land securement programs. The current policy framework for the Oak Ridges Moraine includes a wide variety of documents, including: 1991 Oak Ridges Moraine Interim Implementation Guidelines draft Oak Ridges Moraine Strategy Provincial Policy Statement (PPS) 3 5

8 The Oak Ridges Moraine Regional Official Plans for Durham Peel and York 4, as well as numerous local official plans The existing policy framework needs to be co-ordinated and strengthened in order to provide longterm protection and enhancement of the Oak Ridges Moraine. There was consensus around the 1994 draft Oak Ridges Moraine Strategy. The 1994 draft strategy has been used in the preparation of this report as a basis for examining the existing policy framework Issues A number of issues are addressed in this report: increased development pressures; confusing and sometimes conflicting natural heritage protection policies and implementation; natural heritage and hydrogeological data is abundant but often dated, unconsolidated and difficult to obtain; and the absence of a co-ordinated and funded land securement strategy The Oak Ridges Moraine Partnership The Oak Ridges Moraine is a vast geographical feature that spans numerous municipal, regional and Conservation Authority jurisdictions. Historically these jurisdictions have worked independently. This report is the result of a joint effort to create a coherent strategic direction. The preparation of the paper was co-ordinated by the Durham, Peel and York Regions with extensive input from nine Conservation Authorities, adjacent upper tier municipalities, and provincial staff. The Oak Ridges Moraine partnership has invested a great deal of time and effort to identify issues, analyse options, and propose practical strategic directions. 6

9 Proposals for the Protection and Management of a Unique Landscape 1.4. Principles Public and Stakeholder input has made it clear that a number of principles and assumptions are generally agreed upon. The Oak Ridges Moraine: is one interrelated natural heritage system that is an integral part of the quality of life in the Greater Toronto Area and beyond; requires a co-ordinated multiparty effort to ensure a consistent approach for protection and enhancement; is a complex combination of geology, flora, fauna, and water systems that requires cautious, prudent long-term stewardship; and requires additional scientific research and data co-ordination. Strategic Directions The report is divided into four chapters containing background, analysis, and practical strategic directions for each of the following areas. Groundwater Management The Oak Ridges Moraine acts as a storage reservoir for groundwater, which discharges and feeds our streams, rivers and lakes and supplies clean drinking water to residents. Chapter 2 identifies the interrelationship between groundwater and surface-water features and functions and proposes a co-ordinated and consolidated approach to gathering, analysing and managing hydrogeological data. Better information will help create a clear understanding of the sensitivities of these water systems. Natural Heritage Data Management The need for a co-ordinated approach for data management was advocated in The Oak Ridges Moraine: Towards a Long-term Strategy (1999). Chapter 3 proposes strategic directions to create a co-ordinated natural heritage data management system for the Oak Ridges Moraine that will allow us to better analyse and understand the complexities and sensitivity of the Moraine. Policy Using a natural heritage policy matrix as an analytical tool, Chapter 4 summarizes required data improvements, consistency issues, data gaps and implementation problems that exist in current policy. The approach builds on existing policy in Regional Official Plans. The 1994 draft Oak Ridges Moraine Strategy was used as a basis for policy refinement. The strategic directions identified in this report should be valid for all natural heritage areas of Ontario not just for the Oak Ridges Moraine. 7

10 The Oak Ridges Moraine Land Securement The purpose of a land securement strategy is to define a consistent, co-ordinated approach to securement. Chapter 5 outlines the broad range of securement tools available, which require varying degrees of resource and co-ordination. Land securement is necessary to protect and enhance the core features and functions of the Oak Ridges Moraine A Call to Action This report is intended to focus public and stakeholder debate on practical actions that can be implemented to protect and enhance the Oak Ridges Moraine. Now is the time to expand our partnership to include the public and all stakeholders. The Partnership recommends building on existing policy, data and initiatives to protect and enhance the Oak Ridges Moraine. Public input is needed to refine the strategic directions identified here. In June 2001 a symposium on these Oak Ridges Moraine strategic directions and a series of public meetings will be held to focus on this objective. Stakeholders are invited to respond in writing, via the Internet or directly to the staff of the Regions. This input will be used to fine-tune the strategic directions and prepare recommendations to the Regional Councils of Durham, Peel and York. Other Oak Ridges Moraine municipalities and Conservation Authorities have been invited to endorse this approach. 1 Implementation Guidelines: Provincial Interest on the Oak Ridges Moraine Area of the Greater Toronto Area. June Province of Ontario. 2 The Oak Ridges Moraine Strategy for the Greater Toronto Area: An Ecosystem Approach for Long-Term Protection and Management November Province of Ontario. 3 Policy Statement [on land use planning and development] (issued under Section 3 of the Planning Act) Regional Official Plans for Durham Peel and York 8

11 Proposals for the Protection and Management of a Unique Landscape Chapter 2 Groundwater Management 2.1. Background Water is an essential component of the Oak Ridges Moraine. Much is known about our rivers, lakes and wetlands. The missing link in understanding and policy regarding our water systems is hydrogeology: or our groundwater system and its links with the surface-water system. This chapter focuses on the Oak Ridges Moraine groundwater system and its surface-water interactions Hydrogeology Hydrogeology is a science that describes the movement of water beneath the ground (groundwater) and its interaction or connection with water moving upon the surface in rivers, lakes and streams, and over land. Rainfall and snowmelt seep into the groundwater system recharging it. The amount of infiltration is controlled by factors such as soils or geologic materials, the slope of the ground surface, and the type of vegetation present. Source: Hydrogeologic Evaluation of the Oak Ridges Moraine Area, Background Report 3 Hunter/RavenBeck 9

12 The Oak Ridges Moraine Groundwater seeps into the ground to varying depths and collects in aquifers, which are rock or soil formations with adequate pore spaces to store water and sufficient interconnections between pores to allow groundwater flow. Groundwater can remain stored underground for periods ranging from a few days to thousands of years. Water is discharged from the groundwater system through streams, wetlands, or springs, (called baseflow). It evaporates and transpires from vegetation and is pumped from wells. Source: Lou Wise - Aerographic The hydrogeological features in many parts of the Oak Ridges Moraine allow for significant recharge to the groundwater system. Aquifers within the Moraine provide a source of drinking water for over 250,000 people in the Greater Toronto Area and a water supply for agricultural, industrial, commercial, and recreational uses. Discharge from these aquifers is critical in maintaining baseflow in the 65 watercourses with headwaters on the Moraine. These aquifers also maintain water levels in numerous lakes and wetlands. The Oak Ridges Moraine is an area with valued groundwater resources, but it also attracts land use activities and resource-based uses that could adversely affect the long-term protection of the resource if not properly managed and regulated Earlier Analysis Two sets of general studies are necessary to provide a foundation for protecting groundwater and its associated natural features and uses. The first set of studies provides a basic understanding, or inventory, of the geological and hydrogeological features, groundwater uses, potential sources of contamination, and terrestrial and aquatic habitats. In the 1990s, the Province of Ontario completed a broad hydrogeological review of the Moraine and potential sources of contamination and impacts from land use. The federal government has carried out complementary studies to develop a stronger definition of the Moraine s internal structure in order to provide a better understanding of elements that control groundwater recharge, flow and discharge. University researchers have developed techniques for integrating groundwater and surface-water data at the scale of both site and watershed. The Province completed earlier watershed-based studies of hydrogeological resources in the 1970s for selected basins draining the Moraine. The Province, Conservation Authorities and municipalities have conducted inventories of terrestrial and aquatic habitats. The second set of studies carried out more detailed analysis of the inventoried information, in order to develop recommendations for the long-term management of groundwater resources. 10

13 Proposals for the Protection and Management of a Unique Landscape Wellhead protection plans, aquifer management plans, water budgets, and integrated watershed plans are examples of these studies. Municipalities and Conservation Authorities have begun to carry out these studies, which provide the basis for making informed decisions about land use proposals and rates of resource use. Many different agencies and groups have an interest in groundwater on the Oak Ridges Moraine. They have contributed in various ways to the development of a basic understanding of the resource. However, there has been little effort to evaluate the potential cumulative impacts of land use activities or to developing comprehensive management plans Current Groundwater Management Initiatives In 2000, Durham, Peel and York Regions and the Conservation Authorities with jurisdiction within the Regions boundaries, formed a committee to develop a comprehensive Groundwater Management Strategy for the three Regions. This strategy is being developed in two phases. Phase 1 is nearing completion; it has involved a preliminary assessment of issues and the development of a workplan for Phase 2. Phase 2 will involve the actual development of the strategy and concurrent initiatives for filling highpriority data gaps. Although the Groundwater Management Strategy is being developed for the entire jurisdiction of the three Regions, a central focus will be the Oak Ridges Moraine, making its mandate relevant for incorporation in the groundwater management component of the Oak Ridges Moraine Partnership work. There are groundwater management initiatives under way in other municipalities that lie on the Oak Ridges Moraine. The City of Kawartha Lakes (formerly Victoria County) completed Phase 1, earlier in 2001, of a groundwater protection plan for its water supply wells. Within Dufferin County, the Town of Mono is currently developing a groundwater protection plan and associated watershed-based plans for its municipality. The Ontario Ministry of the Environment and Ontario s Conservation Authorities formed a partnership in 2000 for the establishment of a provincial groundwater-monitoring network. The information collected under this program will provide baseline data about ambient groundwater conditions that will be used as a basis for planning decisions. 11

14 The Oak Ridges Moraine 2.2. Issues Sensitive Groundwater Conditions The Oak Ridges Moraine contains hydrogeological features and functions that support valued groundwater resource uses. These conditions present the following management issues: degree of recharge potential; maintenance of stream baseflows or lake levels; connection with aquatic/terrestrial habitat; provision of assimilative capacity in streams receiving sewage treatment plant effluent; source of water supply for domestic or other uses; and areas of known groundwater contamination. 12

15 Proposals for the Protection and Management of a Unique Landscape Stresses and threats Land use activities and groundwater withdrawals represent another type of groundwater management issue. These are the key stresses and threats to groundwater on the Moraine: urban and rural development pressure; potential for contamination from urban stormwater; demand for groundwater as a source of domestic supply, and for agriculture and other uses; potential for contamination from septic systems, landfills, crop farming, and feedlots; removal of water from landfills, municipal servicing facilities and aggregate extraction sites; demand for groundwater use for golf courses, private ponds, etc.; estate residential development; peat extraction; and sewage treatment plant effluent. Richmond Hill Data and Information Gaps A lack of hydrogeological and related data and information limits the extent to which an effective management strategy can be implemented. Data is absent or incomplete in the following key cateories: records of groundwater use; inventories of potential sources of contamination; streamflow data, particularly for headwater streams; groundwater monitoring data (chemistry and static water levels); watershed-based analysis of water budgets and natural heritage linkages; watershed-based groundwater flow modelling; aquifer management studies; and wellhead protection studies Administrative and Institutional Issues The following administrative and institutional issues have hindered the implementation of effective groundwater management: fragmentation of responsibility for groundwater management; 13

16 The Oak Ridges Moraine lack of co-ordination among agencies; incomplete data-sets and lack of standard evaluative tools; inconsistent policies and practices across jurisdictional boundaries; and lack of public and political awareness of groundwater issues Analysis Source: Lou Wise - Aerographic Priority Areas for Groundwater Management A review of groundwater issues in a given area, provides the basis for determining the required management priorities and approaches. Such an assessment was carried out for each watershed unit within Durham, Peel and York Regions. Each watershed was ranked based on its priority for further groundwater management action, according to the significance of groundwater conditions, the presence of significant stresses or threats, and the significance of data gaps. 7out of 40 watersheds were ranked as having high overall priority, and an additional 13 watersheds were ranked as having medium-high priority. These most sensitive watersheds tended to have a significant portion of their areas on the Oak Ridges Moraine and were under pressure for urban and rural growth. Although some degree of hydrogeological study has been carried out in most of the high-priority watersheds, only about half of them have been extensively studied. Even for those watersheds that have a greater level of information in place, the findings have not been used to develop specific groundwater management policies. While this formal assessment has not been completed for areas of the Moraine outside of the three Regions, it is likely that the same factors were considered by the other municipalities in their decisions to proceed with their groundwater management initiatives, described in Section Current Requirements A number of factors were considered in developing the approach to a groundwater management component of this report: the need for collaboration among the municipalities sharing a common landform and common land use issues to assist in developing consistent policy and practices; the need for co-ordination with ongoing initiatives, such as the York/Peel/Durham Groundwater Management Strategy and the groundwater protection plans of the City of Kawartha Lakes and the Town of Mono, which will provide the basis for this work; partnerships with Conservation Authorities that could take advantage of their watershed focus and 14

17 Proposals for the Protection and Management of a Unique Landscape expertise, particularly for issues of interaction between groundwater and surface-water and associated natural heritage features; the need for collaboration with provincial and federal government agencies, as they hold relevant regulatory powers and maintain core data sets; and the urgency in accelerating work in high-priority areas, even while the strategy is being developed. Based on these considerations, this report recommends the development of an overall Groundwater Management Strategy for the Oak Ridges Moraine and the acceleration of high priority actions. The work will be co-ordinated with the three Region Groundwater Management Study Strategic Directions The following strategic directions are recommended to ensure better understanding and protection of groundwater systems. It is essential to continue to recognize the linkages with surface water systems and terrestrial systems. Hydrogeological Data System A regionally led, co-ordinated system should be created for the Moraine where groundwater data can be warehoused and analyzed. This system could be managed by one of the Conservation Authorities or a university. All available public data should be combined in one accessible format. Common Data Standards All parties should agree upon common standards for data collection to be used by public and private sectors. This initiative should be co-ordinated by the three Regions with other partners. Model Groundwater Management Policies Each regional and local municipality should adopt model policies for groundwater management prepared as part of the three Region Groundwater Strategy. These policies will define groundwater management objectives and associated indicators, measures and targets, so that individual policies are scientifically defensible and so that the effectiveness of their implementation can be measured. Goal of the Groundwater Strategy: To establish consistent policies, data collection, data management standards, and analytical methods for groundwater management and to determine a framework for implementation across the three Regions. Focus on priority watersheds Implementation and decision criteria should be developed on the basis of watershed studies, particularly where the issues involve shallow aquifers and affect interactions between groundwater and surface-water. A program for the completion of integrated watershed studies by Conservation Authorities for priority watersheds, identified by the three Region Groundwater Strategy should be accelerated. 15

18 The Oak Ridges Moraine Watershed analyses should include groundwater flow models, water budgets, and determination of the significance of connections with terrestrial and aquatic habitats. These analyses should result in the development of overall management plans. Recharge and Discharge Areas Significant hydrogeological features, such as key recharge and discharge areas, must be identified and protected in regional Official Plans in order to ensure the maintenance of hydrogeological functions. Performance Standards Criteria should be established through the three Region Groundwater Strategy to define the circumstances upon which sensitive watershed lands should be brought into public ownership for protection in perpetuity. Performance standards are needed for proposed land uses and groundwater withdrawals. Monitoring Programs The three Regions should hire hydrogeologists who will, together, establish a hydrogeology co-ordinating committee with the Conservation Authorities, the Province and other partners. The hydrogeology co-ordinating committee will establish programs for monitoring groundwater and related resource uses. This data will be necessary for tracking the long-term effectiveness of the Groundwater Management Strategy. In the short term, the monitoring efforts will assist in filling critical data gaps and will provide the basis for further analysis necessary for making management decisions. 16

19 Proposals for the Protection and Management of a Unique Landscape Chapter 3 Natural Heritage Data Management 3.1. Background As described in Chapter 4, Durham, Peel, and York Regions have different policies for the protection of the Moraine within their jurisdictions. Similarly, most agencies have different methods and abilities to identify environmental features and functions. In fact, most agencies possess and regularly acquire different types of data to substantiate their policies. The three Regions, the cities, towns, counties, and Conservation Authorities use different terminology to identify natural heritage features. The lack of a co-ordinated approach to data management is one of the weaknesses hindering successful protection of significant and sensitive natural heritage features on the Oak Ridges Moraine. Agreed-upon data standards are also not in place. Implementation of policy is less effective than it might be, because the level of detail needed to accurately reflect the sensitivity of some features has not been fully investigated. From a development applicant s perspective, there is a lack of clarity and consistency of performance criteria. This lack of co-ordination creates difficulties in evaluating the state of the Oak Ridges Moraine or any other shared geographical features in Southern Ontario Goal for Natural Heritage Data Management This chapter provides recommendations to develop a comprehensive natural heritage data management system for the Oak Ridges Moraine that uses common standards and terminology. A standardized level of detail will assure that protective policies are supported and defensible. Further, by achieving common standards, all agencies having jurisdiction on the Moraine will benefit from data sharing opportunities. The effective implementation of environmental policies must be based on a standardized framework of data sets; and these data sets must be of sufficient detail to adequately assess the impact of proposed change on form, function and linkages of environmental features. The natural heritage information should be available to all agencies and stakeholders. The chapter also identifies key data gaps that need to be filled. Produced by: Geomatics Division, Planning and Development Services Department, York Region 17

20 The Oak Ridges Moraine The Ecological Land Classification (ELC) is a standardized organizational framework that was developed to assist in implementing ecosystem-based management initiatives. According to "Ecological Land Classification for Southern Ontario, The ELC is made up of six nested levels. From the largest to the smallest scale they are: Site Region System Community Class Community Series Ecosite Vegetation Type Community Series units break down Community Classes into units that are normally visible and that can typically be recognized from combined mapping and air photo interpretation. Community Series units are the lowest level in the ELC that can be identified without a site visit. Lee, H.T., et al Ecological Land Classification for Southern Ontario: First Approximation and Its Application. Ontario Ministry of Natural Resources Issues The issues identified by the Partnership include: lack of a common natural heritage data management system with attendant data sets, data standards and common definitions; lack of a natural heritage data management system framework that is applicable to lands and watersheds both on and off the Oak Ridges Moraine; lack of a Geographic Informations Systems (GIS) tool for data management and mapping with analytical and predictive capability; lack of consistent formulation and application of natural heritage policy across the Oak Ridges Moraine; and lack of an accessible and dynamic database of environmental information about the Oak Ridges Moraine Analysis Status of Current Initiatives A survey was devised and distributed to Partnership members to determine what data sets are in use by the various partners, what format (digital or paper), these data sets take and to identify gaps in the data. The survey confirmed that a number of Conservation Authorities are undertaking initiatives such as subwatershed plans, monitoring programs or natural hazard mapping, which involve the collection and standardization of natural heritage data. An initiative with the greatest potential for standardizing natural heritage data is either being undertaken or considered by several Conservation Authorities including Credit Valley, Toronto and Region, Central Lake Ontario, Kawartha Region and Ganaraska Region. That initiative is the identification, description and classification of the various vegetation communities within watersheds by using the Ecological Land Classification (ELC) system to the Community Series level. The ELC system, as adopted by the Province and refined for southern Ontario, has a strong scientific basis and a history of accepted use in other jurisdictions spanning several decades. As a standardized system for identifying and classifying ecological land units (for example, forest cover), the Ecological Land Classification can be used as the common base for the formulation of a consistent policy framework for environmental protection for watershed features and functions both on and off the Oak Ridges Moraine. 18

21 Proposals for the Protection and Management of a Unique Landscape All Conservation Authorities have agreed that the Ecological Land Classification (ELC) should be used as the standard for defining terrestrial vegetation, wetland and aquatic communities. The Ecological Land Classification system has a number of levels. The Community Series level was suggested as the standard to achieve initially, as this data can be collected cost-effectively. Conservation authorities are at different stages of completion in their ELC programs. For example, Credit Valley and Central Lake Ontario Conservation Authorities have both completed the ELC at the Community Series level for their respective watersheds. Typically this data is collected from interpreting aerial photographs. Toronto and Region Conservation Authority is at the beginning of translating data at the Vegetation Type level (refer to sidebar on previous page) into the ELC. This level of data has been field-collected. New water management regulations are being formulated as a result of updated provincial legislation. Work to be undertaken by Conservation Authorities to implement these regulations will focus on mapping a number of the features and functions in their areas. This exercise will set consistent standards for those features identified in the legislation, such as waterfront lands, hazardous lands, river or stream valleys, wetlands, and watercourses Data Sets The survey completed by a dozen of the Partnership members used the 1994 draft Oak Ridges Moraine Strategy as its base. It was evident from the survey responses that there is a wide disparity among the data sets that agencies currently have. The most common data that most agencies have (digital or paper) is for Areas of Natural and Scientific Interest (ANSI s), wetlands, woodlands, streams and rivers. Participants pointed out, however, that in no way did this mean that the data sets are complete for these features. In almost all cases, further inventory work is still required. Some key data describing significant portions of the habitat of endangered and threatened species is lacking. Sites meeting this description are identified in the Provincial Policy Statement as locations where development and site alterations will not be permitted. These locations are distinct from significant wildlife habitat or fish habitat, also mentioned in the PPS, but where development may be permitted if no negative impact would occur. Survey responses noted that most agencies have the Ministry of Natural Resources data points indicating historic observations of species of concern but agreed that data on what constitutes the significant portions of their habitat and its location is lacking. Data is also lacking for significant wildlife habitat. Most of the environmental data that has been collected has been assembled through or based on work of either the Ministry of Natural Resources or the Conservation Authorities. The survey results also indicate that attribute data is lacking for most of the features or functions for which information 19

22 The Oak Ridges Moraine was requested. In other words, the data sets often consist of only a mapped location without any description or physical traits to describe the feature or function. There is general agreement that the data sets listed on the survey are all important to collect and maintain, and that several additional data sets such as information on ponds, soils, surficial geology or climate must also be considered for inclusion. Finally, the survey shows a wide disparity in the degree of digital/electronic data available. At the same time all partners are moving towards digital formats, especially in the acquisition of new data. Digital data formats are quite consistent among the partners, with most using either ArcView or ArcInfo programs that are compatible with one another Value of Data Management System Some agencies have other digital data sets that will provide functionality to a natural heritage data management system. These include Ontario Base Mapping, assessment data, property fabric and orthodigital air photos. A system combining these data sets with ELC data (of at least the Community Series level) will evolve into a useful decision-making tool to identify stewardship and restoration or linkage opportunities, to prioritise land securement or acquisition opportunities and to set targets for environmental enhancement and landform conservation. Such a data management system will also be useful as a technical, evaluative tool to assess such things as patch connectivity, shape scores and interior habitat. All of this will help identify significant habitats that must be protected pursuant to the Provincial Policy Statement. These emerging tools are essential in predicting the effects of losses or additions of greenlands or linkages in greenland systems. Although the Community Series data will provide a common base, it alone cannot support a policy framework. Fieldwork at the Ecosite and Vegetative Type levels will more accurately identify environmental features and clarify their extent and significance Data System Improved management and accessibility of the natural heritage data, which would see it made widely and uniformly available to multiple users, is required. Three options were examined: a centralized approach, such as having one agency as the central data repository, would allow access by multiple users to an up-to-date data resource. Suggestions for the most suitable location for such a repository include an agency or an independent educational institution. a dispersed model, where each agency would collect, maintain and keep its own data, but in compatible formats, so that large-scale mapping and analysis can be accommodated on an as-needed basis. 20

23 Proposals for the Protection and Management of a Unique Landscape a hybrid model, where data would be centralized, and site-specific data would be kept at only the local agency responsible for data collection. A hybrid model would provide the most flexible and practical approach to co-ordination of Oak Ridges Moraine data. This type of digital data system will require that one agency or group play a lead role in co-ordinating data compatibility, standards and quality and will require adequate funding from stakeholders Strategic Directions The following strategic directions are recommended to achieve a co-ordinated and consistent approach to natural heritage data management for the entire Oak Ridges Moraine. Data System It is recommended that a regionally led co-ordinated centralised data system be created for the Oak Ridges Moraine. Each local jurisdiction would have control of local data. Accessibility Natural heritage data with the exception of data about vulnerable, threatened and endangered species should be available to all stakeholders. Goal of the Data Management Strategy: To provide for the development of a co-ordinated, standardized ecological, systems-based protocol for collection, management, monitoring and mapping of natural heritage data regarding Oak Ridges Moraine, as the basis for creating uniform policies with high standards of protection for environmental features and functions. Data Standards The Ecological Land Classification (ELC) system at the Community Series level is recommended as the standard. Conservation authorities should prepare a strategy for the completion of the ELC work for the Oak Ridges Moraine portions of their respective jurisdictions on a priority basis. The first priority of data acquisition and/or update, depending upon the requirements of each agency, should be lands on the Oak Ridges Moraine. Arcview/ArcInfo should be used as the common Geographic Information Systems (GIS) standard. Updating information on a regular basis will be essential. Analytical, Predictive and Monitoring Tool: Conservation authorities and municipal governments should develop an analytical and predictive tool to assess the sustainability of greenlands and the most effective addition of areas and linkages. Municipal and Conservation Authority staff should begin to develop a prototype of a regional-scale greenlands system policy framework based on ELC data sets that specifically identify key corridors and linkages. 21

24 The Oak Ridges Moraine Financial Requirements The establishment of a common data management system for the Oak Ridges Moraine will require financial support from all parties. Implementation A technical committee composed of the Conservation Authorities, and provincial, regional, county and local municipal staff should ensure co-ordination and implementation of the data management system. 22

25 Proposals for the Protection and Management of a Unique Landscape Chapter 4 Policy 4.1. Background This analysis focuses on Oak Ridges Moraine policy and offers a brief summary of provincial and regional land use and strategic policy documents for the Moraine. A more complete discussion of these documents may be found in the The Oak Ridges Moraine: Towards a Long-term Strategy Policy Context A number of separate documents form the existing policy framework for the Oak Ridges Moraine. These documents are outlined here Oak Ridges Moraine Interim Guidelines In 1991, Ontario declared a provincial interest in the Oak Ridges Moraine and released Implementation Guidelines as a provisional measure to guide development on the Moraine until the completion of a long-term strategy. For certain development applications (including Official Plan amendments but not including consent applications), the Interim Guidelines articulate areas where no development should occur (such as Core Natural Areas) and for other areas identify studies that are required before development approvals can be considered. The Interim Guidelines have not been finalised. The Province and the upper-tier municipalities continue to apply the Interim Guidelines and review development applications on the Moraine according to their requirements. Source: York Region Draft Oak Ridges Moraine Strategy When the expression of Provincial Interest on the Oak Ridges Moraine was announced in 1991, the Province established a Technical Working Committee to examine the many different issues on the Moraine and formulate a strategy for its protection. Fifteen background studies were completed between 1991 and The information collected through these studies reflected a multidisciplinary approach to planning, which considered the Moraine ecosystem as part of the larger biophysical region. In the spring of 1994, a draft strategy was prepared and circulated for public comment, with the final draft of the The Oak Ridges Moraine Strategy for the Greater Toronto Area (including the 23

26 The Oak Ridges Moraine results of the public consultation) submitted to the Minister of Natural Resources late that year. The strategy received support from a wide variety of stakeholders including the development industry. This report builds on the consensus gained in the preparation of the 1994 draft Oak Ridges Moraine Strategy. The draft strategy identifies three interconnected natural systems existing on the Moraine: Natural Heritage System, Water Resources System, and Landform Conservation System. In addition to identifying these systems and establishing areas where no development should occur, the draft strategy also contains quite detailed policies to guide development in fully serviced and unserviced communities, recreational developments and renewable and non-renewable resources. Although the strategy was essentially complete at the end of 1994 and the Technical Working Committee was disbanded, the 1994 draft strategy was not adopted nor incorporated into the Provincial Policy Statement. The 1994 draft Oak Ridges Moraine Strategy has been used in the preparation of this report as a guide in identifying improvements to existing policy in the Regions Provincial Policy Statement The Provincial Policy Statement (PPS) was issued under the authority of Section 3 of the Planning Act. It provides broad policy direction on matters of Provincial Interest related to land use planning and development. Planning authorities such as regional and local municipalities are required to have regard to Policy Statements issued under the Act when making decisions. The preamble of the current Provincial Policy Statement states that wisely managed and environmentally sound growth is vital to Ontario s ongoing prosperity, and that doing things right the first time can avoid the need for costly remedial measures to correct problems. The complex interrelationships between environmental, economic and social factors in land use planning are the basic principles of the PPS. Of particular relevance to land use change in the Moraine are policies in Sections 2.3, Natural Heritage, and 2.4, Water Quality and Quantity. However, no specific section of the PPS deals with the Oak Ridges Moraine, even though there is no impediment to providing geographically specific references in the PPS. There is an opportunity to add specific references to the Oak Ridges Moraine and to fill natural heritage policy gaps during the Province s 5-year review of the PPS Regional Policy Context In the early 1990s, a new generation of Official Plans were approved for regional and local municipalities in the GTA. These plans contain a higher level of natural heritage identification and protection 24

27 Proposals for the Protection and Management of a Unique Landscape than previous plans and view the natural heritage features and functions of the area as interconnected systems. The Regional Official Plans of Durham, Peel, and York all identify natural environment systems, although the plans apply different titles to them (Major Open Space Systems in Durham, Regional Greenlands System in Peel and York). The basis for system identification is very similar in all three cases. The major differences between these systems are contained in each plan s policy framework. Durham establishes permitted uses within the Major Open Space System (all other uses being prohibited in the absence of an amendment) Peel prohibits development in Core Areas of the Regional Greenlands System. York indicates that an application for development will not be supported unless there is no overall negative effect, as determined through an environmental evaluation Durham Region The Durham Region Official Plan, approved in 1993, establishes a framework for guiding growth and development in the Region to 2021 and provides direction for the preparation of detailed planning documents by the area municipalities. The Plan designates the Oak Ridges Moraine as a component of the Region s Open Space System. The Moraine is specifically identified on Map A, Regional Structure, and in Section 14. The Durham Regional Official Plan recognises the Oak Ridges Moraine, valley systems and waterfronts as the main features of the Major Open Space System. The Durham Plan provides for a continuous open space system to protect and connect the Oak Ridges Moraine, environmentally sensitive areas, waterfront, valley-lands, wooded areas and wildlife sanctuaries. These areas shall be protected for their special natural and scenic features, their roles as predominant landscape elements in the Region and the recreational opportunities that they facilitate. The Plan specifies that the predominant use of land in the Major Open Space System is for conservation, recreation, reforestation, agriculture, and farm related uses. Recreational uses, such as golf courses may only be considered by Official Plan amendments. No new or expanded resource extraction operation is permitted other than by amendment to the Official Plan. Amendments to the Durham Regional Official Plan pertaining to lands located on the Oak Ridges Moraine must adhere to the Provincial Implementation Guidelines for the Oak Ridges Moraine Area of the Greater Toronto Area. Regional Structure Map A to the Plan also identifies the general location of Environmentally Sensitive Areas. The Environment policies of the Plan promote the preservation, conservation and enhancement of the Region s natural environment giving such resources paramount consideration in the planning and development of the Region. The policies further require the preparation of an Environmental Impact Statement where development is in proximity to these areas and require assessment of the potential cumulative impacts on the environment and mitigating measures. 25

28 The Oak Ridges Moraine Peel Region The Regional Municipality of Peel Official Plan was fully approved by the Ontario Municipal Board in August The Moraine in Peel is contained wholly within the Rural System, as identified on Schedule C, Regional Structure, of the plan. Components of the Rural System on the Moraine include one Rural Service Centre (Caledon East), several small rural settlements and the Palgrave Estate Residential Community. The largest component (in land area) of the Rural System on the Moraine is the Rural Area, which is used predominantly for agriculture, forestry, recreation or conservation purposes and rural consents. Approximately 25 percent of the Rural Area are Greenland Core Areas, where development is prohibited. The Moraine is specifically recognized in section of the plan as a Provincially Significant Natural Feature. Development proposals on the Peel portion of the Moraine are required to adhere to the 1991 Interim Guidelines. The Town of Caledon is directed to have policies in its Official Plan to address the Interim Guidelines and policies that protect locally significant environmental features. Additionally, policy of the Regional Official Plan identifies Peel s commitment to integrating into the plan the provisions of the 1994 draft Oak Ridges Moraine Strategy, once the Province approves it York Region The Regional Municipality of York Official Plan, approved in October 1994, is a broad-based policy document with flexibility for area municipalities to undertake detailed planning in local Official Plan documents. The plan is based on the three themes of Sustainable Natural Environment, Economic Vitality and Healthy Communities. The Regional Plan underwent a 5-year review in Chapter 2 of the plan, entitled Sustainable Natural Environment, contains policies and schedules relating to the Regional Greenlands System, Environmental Policy Areas and Wetlands, Forest Cover, Surface and Groundwater Systems, Landform Conservation and the Oak Ridges Moraine. The intent of policies within Chapter 2 is to prohibit development within the Regional Greenlands System and Environmental Policy Areas, unless it can be shown through an environmental evaluation that the development will not have overall negative effect on the functions, attributes or linkages for which the area was identified. Section 2.5 of the Regional Official Plan deals specifically with the Oak Ridges Moraine. The plan relies on compliance with the natural environment policies in the plan. The policies in this section: 26

29 Proposals for the Protection and Management of a Unique Landscape recognize the Moraine as a significant and sensitive landscape within the Region; require that applications for land use change within the Moraine (as shown on the Maps) be considered only after the studies contemplated by the 1991 Interim Guidelines have been undertaken or the application meets the intent of the Interim Guidelines to the satisfaction of Ministry of Natural Resources, Ministry of Municipal Affairs and Housing, and Ministry of the Envireonment; and; indicate that the Region will consider revisions to the its Official Plan when the Province approves and releases an implementation plan for the Oak Ridges Moraine Planning Area Policy Issues and Analysis In order to address the nature and extent of issues, the Partnership undertook a comparative evaluation of policy in the Moraine area, including comparison of the 1994 draft Oak Ridges Moraine Strategy and the three Regional Official Plans. This matrix analysis is available under separate cover. The main policy issues are summarised in this section of the report The Provincial Policy Statement Protection of the Oak Ridges Moraine, as a physiographic feature of the Province, should be strengthened. This will provide consistent support for improved policy in the Regions through the development process, before the Ontario Municipal Board and in the courts. Although there are other important moraines in the Province (such as Oro and Westminster), the analysis in this report focuses on the Oak Ridges Moraine. Policy will be strengthened by including specific reference to the Moraine in the Provincial Policy Statement and by requiring greater identification of natural heritage features, functions and linkages that must be protected and enhanced within the Moraine area. Regional Official Plans (and local plans) must, at a minimum, comply with the PPS, although they may go further in their level of protection. In order to provide the policy support for the protection and enhancement of the Oak Ridges Moraine, the PPS should be amended concurrently and consistently with Regional Official Plans, to provide the hierarchical basis necessary for successful policy planning Status of the Interim Guidelines The status of the 1991 Oak Ridges Moraine Interim Guidelines has been the subject of much discussion since their release. The main difficulty with the guidelines is that their status under the Planning Act is not recognized as a means of articulating Provincial Interest and provincial policy. Further, the nature of certain study requirements in the guidelines is not consistent with current Official Plan policies. 27

30 The Oak Ridges Moraine The Province has required all three Regional Official Plans to identify the Moraine, to incorporate the intent of the Guidelines and to provide mechanisms in the Official Plans for review of development applications against the criteria and studies contemplated by the guidelines. In 1991, the benefit of the Interim Guidelines was to establish a common set of criteria and study requirements over the Moraine area. Since that time, the three Regional Official Plans have incorporated more comprehensive performance or criteria-based planning. The criteria and studies required under the guidelines have been largely subsumed by approved Regional Official Plan policy. The presence of more than one set of policies has the effect of inconsistency of interpretation and duplication of effort when development proponents apply for approval or sign-off from agencies. As an example, Regional Official Plans have strict policies governing estate residential development, while the Interim Guidelines potentially allow such development subject to a comprehensive analysis. Those inconsistencies raise questions about which document has pre-eminence in the event of a conflict between the 1991 Oak Ridges Moraine Interim Guidelines and approved Official Plan policies Co-ordination of Policy Approach by Regions The Oak Ridges Moraine: Towards a Long-term Strategy (1999) recognized the diversity of approaches used by the three Regions in administering land use planning, transportation, and infrastructure planning, and improvements in the Moraine physiographic area. The diversity of approaches does not provide a consistent public policy approach in the Moraine. York Region and Durham Region are currently undertaking Official Plan reviews and updates in accordance with the Planning Act requirements. Peel Region will consider an Official Plan review beginning in The timing is therefore appropriate to identify a consistent and stronger policy set for Official Plans across the Moraine, starting with the three Regions. At the present time, the three Regional Official Plans all contain policies which require the identification of significant features and protection of their functions, attributes and linkages to a greater or lesser extent. As an example, the Peel Official Plan prohibits development in Environmentally Significant Areas, Areas of Natural and Scientific Interest, habitats of and Vulnerable Threatened and Endangered Species, and woodlands greater than 30 hectares in Core Areas. The York Official Plan, permits development if an environmental evaluation indicates the application would have no overall negative effective on the features, functions and attributes for which it was identified. In Durham Region, development other than specifically permitted uses is prohibited. 28

31 Proposals for the Protection and Management of a Unique Landscape Policy Gaps Through analysis of the Official Plans, the Regions and the other members of the Oak Ridges Moraine Partnership have identified five main areas where regional and local official plan policies should be strengthened to achieve a higher measure of protection for natural heritage features and functions on the Moraine. Policies should deal with the identification and protection of tableland woodlots, including the establishment of minimum development buffers from the drip-line of woodlots or forested areas. Protection of the woodlots and public securement of a minimum 10-metre buffer from the dripline is recommended. Policies should establish the principle that corridors are required to link Core Areas. Identification of appropriate criteria, functionality, widths, and securement mechanisms has yet to be finalised. In regard to minimum buffers adjacent to Core Natural Areas, the Partnership proposes that policies: establish a minimum 30-metre buffer from evaluated wetland boundaries; and establish, as a minimum standard, 30-metre buffer from the edge of channel for cold-water streams. Policies should require identification and protection of sensitive hydrogeological features including recharge and discharge areas. Policies should strengthen and harmonize landform conservation to include: protecting vistas and views; and minimising grading. Official Plan land use and environmental policies should be harmonised within the Moraine area. This approach, in combination with a revised Provincial Policy Statement, will provide consistent nomenclature, feature and function identification, performance criteria and implementation. Landform conservation will be achieved through the protection and enhancement of both water resources and natural heritage systems Updating Data and Mapping Up-to-date natural heritage data is key to effective policy implementation. A number of data areas need to be updated. These include Environmentally Significant Area data, which is being updated by some Conservation Authorities. Floodplain mapping, which in many cases is over 30 years old, is especially out of date in urban areas. Research to identify corridors between natural heritage areas is required. More accurate delineation of recharge and discharge areas, wetland complexes and tableland woodlots is required. 29

32 The Oak Ridges Moraine Development Proposals The policy intent of this report is to provide clear direction for the consideration of development proposals. It is recognized that some development can occur on the Moraine, however any development should not have a negative effect on key natural heritage features. Existing development applications will be considered subject to approved policy currently Strategic Directions Many of the policy approaches in the Regional Official Plans are effective in protecting and enhancing the Oak Ridges Moraine and should be retained. This section identifies actions that would further strengthen the natural heritage policy framework in Ontario and specifically within the Oak Ridges Moraine. The 1994 draft Oak Ridges Moraine Strategy has been used as a guide for the policy recommendations in this report. Goal of the Policy Strategy: To prepare a more comprehensive sustainable approach for the protection and enhancement of the natural heritage of the Oak Ridges Moraine. Provincial Policy Statement The Provincial Policy Statement should be amended to support and be consistent with a common policy approach to the Oak Ridges Moraine. The PPS should: refer specifically to the protection and enhancement of glacial moraines and in particular the Oak Ridges Moraine; require identification of corridors and linkages; require hydrogeological studies based on the principle of water balance; protect tableland woodlots; establish minimum 30-metre buffers from key environmental features; and include landform conservation policies to maintain visual and physical form, character and a variety of landscapes. Municipal Policies Municipal policies on natural heritage, water resources and landform conservation should be harmonized and strengthened, starting with Regional Official Plans and proceeding at the same time as preparations and public consultation on changes to the Provincial Policy Statement. Major Policy Gaps Five major natural heritage policy gaps have been identified. Regional Official Plans should be amended to: identify and protect strategic ecological corridors and linkages; 30

33 Proposals for the Protection and Management of a Unique Landscape establish minimum buffers around sensitive features; make landform conservation policies stronger and more consistent; work with partners to identify and protect tableland woodlots; and identify and protect sensitive hydrogeological features. Policy Refinements Existing Regional Official Plans and policies should be amended to: adopt a consistent no-development policy for core natural heritage features; establish a minimum 30-metre buffer for wetlands and Core Natural Areas; generally prohibit development in kettle lake and wetland kettle basins; establish a minimum 30-metre riparian buffer for cold-water streams; publicly secure buffers; identify and protect recharge and discharge areas; adopt a water balance approach for sensitive areas; provide strong support for private land stewardship; maintain water balance in dry kettles; identify and protect headwater streams; require cumulative impact analysis in Environmental Impact Statements; and include consistent landform conservation policies. Implementation Development proposals should include documentation identifying how natural heritage systems and environmental standards, policy and criteria have been addressed. Data Gaps Continuous updating of natural heritage data will lead to more effective policy implementation. Working together, the Regions and the Conservation Authorities should: update Environmentally Significant Area data; update floodplain data, especially in urban areas; complete wetland identification; identify corridors and linkages; identify recharge and discharge areas; 31

34 The Oak Ridges Moraine identify tableland woodlots; and improve habitat data for Vulnerable Threatened and Endangered Species. 32

35 Proposals for the Protection and Management of a Unique Landscape Chapter 5 Land Securement 5.1. Background Mature and old growth forests blanketed much of the Oak Ridges Moraine at the end of the 18th and the beginning of the 19th century. By the end of the 19th century, this forest was almost entirely cleared and much of the land base was converted to agriculture. Clearing and overgrazing of the Oak Ridges Moraine was continued to the point that thousands of acres on the Moraine no longer had any vegetative cover and turned into areas of blowsand. The adjacent photograph shows a blowsand area near Ballantrae in In order to stabilise eroded sandy soils in the area, extensive tree planting took place at the beginning of the 20th century. Pine plantations were used to successfully stop erosion on both public and private lands. These plantations, particularly the York Regional Forests and the Ganaraska Forest, are currently among the largest forest patches on the Oak Ridges Moraine. Following the passage of the Conservation Authorities Act in 1946, newly founded Conservation Authorities, acquired extensive tracts of land across the Oak Ridges Moraine. Well-known conservation areas such as the Ganaraska Forest, Albion Hills and Forks of the Credit provide recreation opportunities and natural heritage protection across the Oak Ridges Moraine. The vast majority of the Oak Ridges Moraine remains in private ownership. Many of these owners are excellent stewards of important natural heritage areas. Property tax incentives, tree planting and forest management advice from public agencies have helped support private land stewardship. Forest cover over the first 70 years of the 1900s increased on the Oak Ridges Moraine. Sine then, however, forest cover appears to be decreasing in many parts of the Moraine. A co-ordinated land securement strategy for the Oak Ridges Moraine will contribute to ensuring that the natural heritage values of the Oak Ridges Moraine are protected and enhanced Issues Key issues identified by the Partnership include: the wide variety of agencies involved in land securement, with little co-ordination; lack of a complete inventory of public land on the Oak Ridges Moraine; 33

36 The Oak Ridges Moraine lack of funding for land securement; lack of an overall strategy for land securement; a need for priority setting to determine which lands will be secured; and questions about financing and administering the management of secured lands Analysis Over the years, Oak Ridges Moraine natural heritage areas have been preserved through a number of means by a wide range of public and private agencies and organizations. Land securement plays a vital role in protecting our natural heritage features and the ecological health of the Moraine. The availability of securement tools is important where the nature of the land is critical to the ecosystem and must remain unaltered in order to protect natural features and continue to perform its natural functions Components of Land Securement Land securement strategy is the protection of key natural heritage features, functions and attributes throughout the Moraine by a range of tools, including but not limited to: planning policy; stewardship; monitoring; and acquisition through bequests, easements, donations or purchase. Planning policy, stewardship and monitoring should be pursued as the first steps in all securement opportunities. The Partnership recognises that it is not necessary, nor feasible, to purchase all Moraine lands identified for securement; therefore, it is important to pursue innovative alternatives to work towards the common goal of protection Public Land Ownership A questionnaire was forwarded to 33 agencies, organizations, Conservation Authorities, local, county and regional municipalities along the Oak Ridges Moraine. The information gathered has been used to prepare a land holdings inventory, and to identify methods of land securement and potential funding sources for inclusion in this report. The Table, page 35, illustrates the amount of land currently owned by public agencies that have responded to the questionnaire. 34

37 Proposals for the Protection and Management of a Unique Landscape 35

38 The Oak Ridges Moraine Policy Land use planning is an important tool in securing land on the Oak Ridges Moraine and acts as the first line of defence. The Planning Act defines the land use controls that can be applied during the development process. It allows for the securement of land by prohibiting, restricting, or regulating land uses. Measures in the Planning Act include: Official Plan designations and zoning provisions, including provisions under Section 34 of the Planning Act, which allows for the protection of sensitive lands and corridors through the approval process for plans of subdivision, consents and site plans. Chapter 4 of this report has more detailed discussion of existing policies. Land securement on the Oak Ridges Moraine will require the strengthening of land use planning policies within regional and local municipal planning documents. Identification of natural heritage features and functions early in the process will help avoid land use planning disputes later Private Land Stewardship The vast majority of the Oak Ridges Moraine is and will remain under private ownership. Careful management of private land is an essential component of any strategy to protect and enhance the Oak Ridges Moraine. Public education programs will help to inform landowners and other stakeholders regarding management practices to protect natural areas located on their land. Under private land stewardship, landowners are encouraged to protect natural areas located on their land, through oral or written agreements with government agencies or other management bodies. Private owners agree to do such things as: maintain and protect natural areas; notify appropriate agencies about planned changes in land use; and notify appropriate agencies about intent to sell. In exchange, the agency can provide certain benefits or initiatives such as: management advice; plaques or certificates of appreciation; and financial incentives where appropriate (such as Conservation Land Tax Rebates). This approach is a relatively simple, low-cost, non-confrontational vehicle to achieve greater landowner awareness and sensitivity and has the capability to cover off large areas. However, agreements with private landowners are largely voluntary and therefore less binding than other methods. Better tools and incentives for stewardship are required, including tax benefit programs, additional funding and recognition of stewards. 36

39 Proposals for the Protection and Management of a Unique Landscape Monitoring In any strategy, it is important to assess how the approach is performing in relation to the goals that have been established. An annual report on the Land Securement Strategy should include an assessment of the successes and failures of the strategy and should look at stewardship, planning policy and properties acquired. Further, the report should make recommendations for improvements to the strategy Acquisition Land acquisition is defined here as obtaining property rights through various methods, singly or in combination bequests and donations; covenants; easements; leases and agreements; exchanges; and purchase/fee simple. In view of the relatively high costs involved in purchasing fee simple property rights (full ownership), purchase is only recommended in cases where: the natural heritage feature and/or its function is at risk of loss or damage; development is permitted and the planning policies have failed to secure lands in public ownership; or it is needed for specific purposes such as a regional trail. Where possible, landowners will be encouraged to donate their property interests. Where property rights must be purchased, the securement tool considered should be the most cost-effective. Acquisitions should be based on agreed criteria (such as sensitivity, linkages, etc.). Approved criteria need to be identified and agreed to by key acquisition partners Strategic Directions The following strategic directions are recommended to ensure a co-ordinated securement land strategy for the Oak Ridges Moraine. 37

40 The Oak Ridges Moraine Policy It is recommended that protection and enhancement through policy be the first approach in securing natural heritage features and properties on the Oak Ridges Moraine. Chapter 4 of this report recommends policy improvements. Goals of the Land Securement Strategy To develop a consistent, co-ordinated approach to land securement activity across the Oak Ridges Moraine. To identify a broad range of securement tools available for protection of the Oak Ridges Moraine lands. Stewardship A coordinated stewardship program should be established and funded by the partners. Its purpose would be to educate landowners about the environmental values of their property and to establish programs to maintain or enhance them. This would include landowner programs, education, incentives and recognition for participants. Acquisition Protocol Acquisition of strategic properties on the Oak Ridges Moraine should be co-ordinated by partners. The establishment of a protocol for consultation and co-ordination before acquisition is critical. The partnership will co-ordinate the criteria and principles for property acquisition. Acquisition includes purchase, donations and transfers of sensitive land through the development process. Funding A coordinated funding program must be put in place to acquire lands which cannot be protected in perpetuity by policy or stewardship. The three Regions will take a lead role with our partners and will bring forward a report on a recommended model by December 31, The report will examine options, but the recommendation will be based on the following principles: Shared responsibility means shared contributions. All levels of government should participate. Government cannot be expected to do this alone. Public money should leverage private sector money and contributions from the general public. The report should consider carefully whether or not there should be a Greater Toronto Area-wide program or one based locally (perhaps based on each of the three Regions or each of the nine Conservation Authorities). It is estimated that an overall annual budget of approximately $5-$10 million is required to fund securement. This amount will need to be internally negotiated each year by each contributing agency. 38

41 Proposals for the Protection and Management of a Unique Landscape Management Costs Management plans are required for all lands acquired, to ensure their long-term health. 39

42 The Oak Ridges Moraine Chapter 6 Next Steps The Oak Ridges Moraine is one of the most prominent physiographic features in Southern Ontario. It performs important water cycle functions, serving as a groundwater recharge/discharge area. The Oak Ridges Moraine makes a valuable contribution to our quality of life and, indirectly, to our economy. In the past, environmental protection policies and program interests have consistently identified the importance of the Moraine. The improvement of our understanding, protection measures and management practices for the Moraine ecosystem features and functions will be enhanced as a result of the implementation of the recommendations in this report. Since the announcement of the expression of Provincial Interest in the Oak Ridges Moraine in 1991, there has been an expectation that overall planning policies would be developed to assist uppertier and lower-tier municipalities in dealing comprehensively with competing interests on the Moraine. Despite the best intentions of all parties and recognition on many fronts that co-ordinated policies and approaches are desirable, the process has not been concluded. The 1991 Oak Ridges Moraine Interim Guidelines do not provide sufficient nor consistent protection for the Oak Ridges Moraine. There is an opportunity to strengthen existing Regional Official Plan Policies using the 1994 draft Oak Ridges Moraine Strategy as a base Strategic Directions Four strategic directions are proposed: Groundwater Management: Improved understanding and information on groundwater systems, and their relationship with surface-water and natural features will support better land use decisions. Natural Heritage Data: Co-ordinated consistent data and mapping will provide the basis for good public policy and effective monitoring. Policy: Co-ordinated revisions to Regional Official Plans and the Provincial Policy statement will strengthen public policy on the Oak Ridges Moraine. Land Securement: A funded Oak Ridges Moraine-wide securement strategy will help co-ordinate stewardship, policy, monitoring, and acquisition efforts Public Input Public discussion and stakeholder consultations are important and necessary to moving forward on the strategic directions outlined in this report. Without acceptance by stakeholders and the public, this initiative cannot be completed nor properly implemented. 40

43 Proposals for the Protection and Management of a Unique Landscape A symposium and a series of public meetings are proposed for June The purpose of the symposium is to heighten public awareness and improve public understanding of the need for a long-term Oak Ridges Moraine Strategy. The symposium will feature speakers on the natural environment and workshops where stakeholders can help refine the strategic directions. Public stakeholders input is also invited in written form or via the Internet for Durham, Peel and York Regions. Special sessions for stakeholders or interest groups can be arranged. The results of this process will be used in order to update and refine the recommendations in this report. 6.3 Role of Municipalities and Conservation Authorities Once public input and refinements to the strategic directions are complete, the Regions in concert with other partners will take a lead role in considering amendments to Regional Official Plans in order to apply a consistent approach to implement the policy recommendations. Schedules to the Official Plans may need to be updated in order that natural core features and greenland systems weave together and appropriately match beyond municipal boundaries. Local municipalities will ensure that their respective Official Plan policies and schedules reflect these recommendations. Conservation authorities in concert with municipal governments will work to strengthen their respective policies and to commit themselves to the achievement of consistent use of terminology and data gathering in order to produce and maintain a comprehensive data management system. Conservation Authorities will also be responsible for implementing new Provincial water management and hazards regulations. Monitoring and a further commitment to updating the system will be critical. 6.4 Role of the Province Long-term protection of the Moraine cannot be achieved by a handful of agencies and municipalities. There must be a commitment by all stakeholders. Significant involvement by the Province is critical. Provincial involvement is required in order to revisit the Provincial Policy Statement, in conjunction with all partners, and to recognize the Oak Ridges Moraine as a landscape feature requiring protection. A provincial commitment through the Ministry of Natural Resources to continue to gather and update information on natural heritage features and functions at a provincial scale would provide valuable input in creating a natural heritage data system. Provincial funding is essential to help finance improved databases, fill information gaps, and assemble existing data. Well records and research on the groundwater regime should be put into a comprehensive groundwater data management system. Through financial assistance and the promotion of public education, the Province is a necessary partner in achieving a Land Securement Strategy. 41

44 The Oak Ridges Moraine 6.5 Continued Monitoring There has been strong agreement to maintain the Oak Ridges Moraine Partnership. This Partnership will act as a review committee and prepare annual State of the Moraine reports to detail progress each year on the strategic directions identified here. The three Regions, in conjunction with the Conservation Authorities and other contributing agencies will play a lead role in coordinating work programs, priorities and in meeting targets. 6.6 Conclusion This report proposes a number of strategic directions in four areas: groundwater management and natural heritage data management, policy, and land securement. Implementation of these strategic directions will significantly advance the protection of the Oak Ridges Moraine. Improved groundwater management, data systems, policies and land securement will provide a higher level of protection. Better natural heritage policies must be combined with an effective growth management strategy that directs development away from the Oak Ridges Moraine. The moraine needs a policy approach that will get out in front of the land development disputes that are all too common. This report also proposes clear, practical actions that can be put in place by regional governments, Conservation Authorities and Partnership members. Clear articulation of what needs to be done is a critical first step. Implementation of these ideas will be the true test of our resolve to protect and enhance the Oak Ridges Moraine. 42

45 Proposals for the Protection and Management of a Unique Landscape Appendix A - Contributing Agencies The following agencies were involved in the preparation of this report. This work included the identification of issues, data sources, analysis, and proposed strategic directions. Regional Municipality of Durham Regional Municipality of Peel Regional Municipality of York Central Lake Ontario Conservation Authority Credit Valley Conservation Authority Ganaraska Region Conservation Authority Kawartha Conservation Authority Lake Simcoe Region Conservation Authority Lower Trent Region Conservation Authority Nottawasaga Valley Conservation Authority Otonabee Conservation Authority Toronto and Region Conservation Authority City of Kawartha Lakes Peterborough County Simcoe County Dufferin County Northhumberland County City of Toronto Oak Ridges Moraine Trust Nature Conservancy of Canada Ministry of the Environment Ministry of Municipal Affairs and Housing Ministry of Natural Resources 43