The Living City

168 Pages·2013·7.99 MB·English

®
The Living City
Policies
for Planning and Development in the
Watersheds of the Toronto and Region
Conservation Authority
DRAFT
January 25, 2013
1 Introduction
1 Introduction
1.1 Purpose and Scope 2
1.2 Associated Technical Guidelines and Updates to the Document 3
1.3 Applicability and How to Read this Document 3
2 The Toronto Region
2.1 TRCA’s Jurisdiction 5
2.2 TRCA’s Watersheds and Waterfront at a Glance 7
2.3 Issues, Challenges and Opportunities 9
3 Legislative Foundation
3.1 Conservation Authorities Act 12
3.2 Planning Act and Environmental Assessment Acts 14
4 TRCA History and Evolution to The Living City
4.1 Historic Overview 22
5 The Living City
5.1 Vision 29
5.2 Mission 29
5.3 Strategic Objectives 29
5.4 Principles 31
Paths to Achieving The Living City:
6
Policies for Sustainable Communities
6.1 Introduction 33
6.2 Climate Change 33
6.3 Energy 35
6.4 Transportation 36
6.5 Green Buildings 38
6.6 Near-Urban Agriculture 39
6.7 Green Infrastructure 41
6.8 Ecological Design 42
6.9 Cultural Heritage 44
6.10 Environmental Education and Stewardship 47
II The Living City Policies
DRAFT
Introduction 1
7 Policies for Environmental Planning
7.1 Introduction 52
7.2 Landscapes of the Toronto Region 54
7.3 Environmental Protection Policies 61
7.4 Environmental Management Policies 69
7.5 Plan Input and Plan Review (Implementation) 92
Policies for the Administration of TRCA’s Development,
8 Interference with Wetlands and Alterations to Shorelines
and Watercourses Regulation
8.1 Introduction 98
8.2 D evelopment, Interference with Wetlands and Alterations to Shorelines
and Watercourses Regulation 98
8.3 Policy Framework 100
8.4 General Regulation Policies 101
8.5 Valley and Stream Corridors 106
8.6 D evelopment within the Flood, Erosion, and Dynamic Beach Hazards
of the Lake Ontario Shoreline 113
8.7 D evelopment and Interference within Wetlands and Others Areas
(Area Of Interference) 117
8.8 Interference with a Watercourse 119
8.9 Infrastructure Policies 121
8.10 Recreational Use Policies 124
8.11 Water Taking and Dewatering Discharge 126
8.12 Fill Placement, Excavation and/or Grade Modif cation Policies 126
8.13 Implementation and Compliance 127
Municipal Policies for Approved Special Policy
Appendix A
Areas and Two Zone Areas 129
Appendix B Illustrative Examples of the Natural System 134
Appendix C Def ning the Limit of Regulated Areas 138
Glossary Def nitions of terms used in the document 144
References Sources used in the development of the document 159
The Living City Policies 1
DRAFT
1 Introduction
1 Introduction
1.1 Purpose and Scope 2
1.2 Associated Technical Guidelines and Updates to the Document 3
1.3 Applicability and How to Read this Document 3
1
1.1 Purpose and Scope The LCP refl ects and clarifi es the current practice of
TRCA’s role as a watershed and shoreline manager,
regulator, commenting agency, service provider,
In many different capacities, Toronto and Region and landowner in the context of the planning and
Conservation Authority (TRCA) partners in a variety development process. These roles refl ect many new
of initiatives with municipal, provincial and federal directions that have developed since the VSCMP was
governments, corporations, grass roots community fi rst formulated and adopted in 1994.
groups, and others to help achieve our goals in
support of a greener, cleaner, healthier place to live.
Among TRCA’s various functions is to promote and
help implement sustainable community development
by advising stakeholders and regulating activities in
the planning and development process. The Living
City Policies for Planning and Development in the
Watersheds of TRCA (The LCP) contains the principles,
goals, objectives, and policies that guide and administer
TRCA’s planning and regulatory responsibilities.
The Valley and Stream Corridor Management Program
(VSCMP) served as TRCA’s main policy document for
planning and regulation from October 1994 to (date
to be inserted). The LCP supersedes Sections 1 through
4 of the VSCMP while still incorporating its valuable
foundation of principles and policy intent. In addition,
2 The Living City Policies
DRAFT
Introduction 1
In brief, The LCP will serve to: time, the Board also endorsed that TRCA staff be given the
authority to make any necessary updates to the Manual
• R efl ect new or updated requirements in federal, to refl ect any procedural issues related to legislative
provincial, and municipal legislation, policies, and change or technical updates related to current practices.
agreements affecting conservation authorities in This is distinct from any necessary updates to The LCP,
general, and TRCA in particular; which will be done with the appropriate public notice and
• I ndicate to all stakeholders TRCA’s overall vision, consultation, including public circulation, public meetings
mission, strategic objectives and corresponding as appropriate, and Authority Board approval.
goals, objectives, principles and policies for
planning and development;
• R efl ect the latest science revealed through the
most recent TRCA integrated watershed plans
and other TRCA research, such as: a systems
approach to natural heritage protection; innovative
approaches in water management; promoting
adaptive management; the consideration of
cumulative impacts; and maximizing ecosystem
services in both the natural and built environments.
• A dvocate for The Living City in order to
complement our mandated regulatory and plan
review roles in the planning and development
process;
• I mplement policies for TRCA’s updated section
28 Regulation (Development, Interference with
Wetlands and Alterations to Shorelines and
Watercourses);
• C larify and implement TRCA responsibilities for
Lake Ontario shoreline/waterfront management; 1.3 A pplicability and How to Read
• A dd policy emphasis to the restoration, this Document
remediation, and enhancement of existing water
and natural heritage systems in response to
provincial planning directions geared to urban The LCP is issued under the authority of Section 20 of
redevelopment and intensifi cation. the Conservation Authorities Act and were endorsed by
TRCA’s Authority Board on (insert date of approval) (see
Authority Board Resolution on p. i). The LCP document
1.2 A ssociated Technical Guidelines applies to all applications, matters, or proceedings
and Updates to the Document submitted to TRCA on or after (insert date). The LCP does
not apply to any applications, matters or proceedings
submitted to TRCA before (insert date) that are still in
Many times in The LCP, readers are directed to TRCA’s the review process; nonetheless, best efforts should be
Planning and Development Procedural Manual. made by all stakeholders involved in these fi les to meet
The Manual identifi es the procedural and technical the policies and principles of The LCP.
requirements that need to be met when seeking planning,
regulatory, or other forms of approvals from TRCA. It also Except for references to statutes that are italicized, all
contains appendices with TRCA technical checklists and italicized terms in this document are defi ned in the
guidelines periodically referred to throughout The LCP as Glossary. For other terms, the normal meaning of the
TRCA Standards. The Procedural Manual was endorsed by word applies. Of particular distinction is the term,
TRCA’s Board in 2008 under resolution #A196/07. At that development, which has a different meaning under
The Living City Policies 3
DRAFT
1 Introduction
the Planning Act than in the Conservation Authorities G lossary - Definitions of terms used in the
Act. Therefore, when development is used in the document
Environmental Planning Section (7.0), the Provincial
Policy Statement defi nition applies. Conversely, when R eferences - Sources used in the development of
development is used in the Regulation Section (8.0), the document
the Conservation Authorities Act defi nition applies.
A ppendix A - Municipal Policies for Approved
The Living City Policies for Planning and Development, Special Policy Areas and Two Zone Areas
are organized as follows:
A ppendix B – Illustrative Examples of the Natural
1 Introduction System
P urpose, scope, guidelines, updates, and how
to read this document A ppendix C - Defining the Limit of Regulated
Areas
2 The Toronto Region
A description of TRCA’s jurisdiction The LCP is more than a set of individual policies. It
is intended to be read in its entirety and all relevant
3 Legislative Foundation policies are to be applied to each situation. While
A n overview of TRCA’s mandate as outlined in specific policies sometimes refer to other policies
legislation, regulation, and agreements for ease of use, these cross-references emphasize
the need for reading The LCP as a comprehensive
4 T RCA History and Evolution to The and integrated suite of policies. Also of note is that
Living City sidebars with text are provided throughout the
D escribes the evolution and adaptation of document for information only and do not constitute
TRCA’s roles and responsibilities over time policy. Policies are shaded in blue and are preceded by
the phrase, “It is the policy of TRCA.”
5 The Living City
T he Living City vision, mission, strategic The policies for the planning (Section 7) and
objectives, and the corresponding principles regulatory processes (Section 8) are set out separately,
for planning and development unlike the integrated format of the VSCMP, in order
to improve clarity on TRCA’s role in the development
6 P aths to Achieving The Living City: approvals process.
Policies for Sustainable Communities
P olicies for TRCA’s advocacy role in the Finally, it should be stated that other legislation,
process of building sustainable communities regulations, and/or approvals may apply to development
proposals reviewed under The LCP. Review under this
7 Policies for Environmental Planning document does not address the approval requirements
P olicies for TRCA’s role as a public of other potentially affected agencies.
commenting body in the planning and
development process
8 P olicies for the Administration of
the Development, Interference with
Wetlands and Alterations to Shorelines
and Watercourses Regulation
P olicies for TRCA’s regulatory review and
approval process
4 The Living City Policies
DRAFT
The Toronto Region 2
2 The Toronto Region
2.1 TRCA’s Jurisdiction 5
2.2 TRCA’s Watersheds and Waterfront at a Glance 7
2.3 Isues, Chalenges and Oportunities 29
2.1 TRCA’s Jurisdiction The jurisdiction also includes small areas that drain
directly to Lake Ontario, such as Frenchman’s Bay. The
Lake Ontario shoreline portion of TRCA’s jurisdiction
Under the Conservation Authorities Act, TRCA has spans approximately 60 kilometres from Marie Curtis
regulatory jurisdiction over nine watersheds and a Park in the west, to the Ajax waterfront in the east, and
portion of the Lake Ontario shoreline. Containing all or extends into Lake Ontario to a point defi ned by the
parts of eighteen different municipalities, it is one of the Territorial Division Act. However, it excludes some of the
largest of the 36 conservation authorities in Ontario and central waterfront that is under the jurisdiction of the
is certainly among the most urbanized with the highest Toronto Port Authority.
population and population density. Draining from
the Oak Ridges Moraine, Peel Plains, South Slope, and Figure 2.1 illustrates TRCA’s jurisdiction and labels its six
Iroquois Sand Plain, TRCA’s watersheds are: participating or member municipalities:
• Etobicoke Creek • City of Toronto
• Mimico Creek • Regional Municipality of Durham
• Humber River • Regional Municipality of Peel
• Don River • Regional Municipality of York
• Highland Creek • Township of Adjala-Tosorontio
• Rouge River • Town of Mono
• Petticoat Creek
• Duffi ns Creek
• Carruthers Creek
The Living City Policies 5
DRAFT
2 The Toronto Region
6 The Living City Policies
‚³
‚³
‚³
‚³
‚³
‚³
‚³
‚³
‚³
‚³
‚³
‚³
‚³
O A K
Caledon
P E E L
Brampton
PO10
4 1 0
4 0 7
Milton
H A L T O N
40 3
Mississauga
QEW
Toronto Outer Harbour
4 0 1
28
D U F F E R I N S I M C O E
Adjala-Tosorontio
Mono
PO9
Mono Mills
O
Palgrave E S
G
D
I
Caledon East R King Aurora M
Goodwood
Bolton Nobleton
King City ROidagkes Whitchurch-Stouffville Uxbridge
40 0
Sandhill Hu
Wmabter sRhievder Ric hHmilol nd
40 4
PO4S8 toufvile D U R H A M
Kleinburg Claremont
Rouge River Watershed
Maple Duffins Creek Watershed
Woodbridge Vaughan Y O R K Unionville Markham POP7 ickering Greenwood
40 7
PO7 Don River Watershed Petticoat
40 7 Thornhill Creek
Watershed
Bramalea
TRCA_[
Mimico Creek Head Office
WatersheMdalton Ajax
40 1 HigWhalatnerds hCerdeek 40 1 CaCrrueethke rs
40 9 Watershed
Etobicoke Creek T O R O N T O FrencBhamy an's
Watershed
42 7
Legend
Humber Bay Oak Ridges Moraine Greenbelt Plan Boundary
Watershed Boundary Niagara Escarpment Planning Area
TorHoanrtboo Iunrner Lake Iroquois Shoreline Urban Areas - Existing and Approved (TRCA Jurisdiction)
River / Stream Rural Areas (TRCA Jurisdiction)
Local Municipal Boundary Urban Areas
Regional Municipal Boundary Rural Areas
L A K E O N T A R I O Figure 2.1: TRCA Jurisdiction 0 5 10Kilometres
N
I
A
R
E
We s t
DRAFT
The Toronto Region 2
The following twelve local municipalities that are of the three regional municipalities, just less than half
located either wholly or partly within the jurisdiction are of the jurisdiction remains rural and agricultural. The
also labelled in Figure 2.1: jurisdiction lies in an ecological zone of transition
straddling two forest regions: the Great Lakes-St.
• Town of Caledon Lawrence forest in the north, and the Carolinian forest in
• City of Brampton the south. Natural cover is mainly deciduous and mixed
• City of Mississauga forest, interspersed with smaller tracts of wetland, native
• Township of King meadow, and Great Lakes coastal habitats.
• Town of Aurora
• City of Vaughan Prior to European settlement and clearing for agriculture,
• Town of Richmond Hill it is estimated that forest covered approximately 90 per
• Town of Whitchurch-Stouffville cent of southern Ontario, including TRCA watersheds.
• City of Markham Today, natural spaces in the TRCA jurisdiction are
• Township of Uxbridge largely confi ned to the deeply-incised valley systems
• City of Pickering of the urban landscape and the rural and agricultural
• Town of Ajax landscapes of the northern portions of the watersheds.
In comparison to downstream reaches that are
predominantly urban and urbanizing, the natural
2.2 T RCA’s Watersheds at a Glance landscape of TRCA’s rural areas is generally characterized
by headwater streams, wider, shallower valley corridors,
TRCA’s jurisdiction is as diverse as it is large. Landscapes and more wetlands. The natural cover that is found in the
and land uses vary widely across our watersheds, from rural areas is especially important to protect for the long
the headwaters to the Lake Ontario shoreline. Although term, given that the highest groundwater recharge rates
the Toronto region takes in the most urbanized core and headwaters, vital to downstream reaches, are found
of the City of Toronto and the surrounding suburbs here. Other than the Oak Ridges Moraine and a small
Lake Ontario waterfront trail Bond Lake
Caledon East Boardwalk Scarborough Bluffs
The Living City Policies 7
DRAFT
2 The Toronto Region
portion of the Niagara Escarpment, remnant natural Moreover, there is diversity across TRCA’s jurisdiction in
habitats and landforms that help shape the character of terms of geophysical, land use, and policy characteristics,
TRCA’s jurisdiction include: such as:
• T he nine rivers and their tributaries, much of • H eadwater areas, subject to provincial land use
whose valleylands function as vital green corridors plans such as the Greenbelt, Oak Ridges Moraine,
within the urbanized area, including the Humber and Niagara Escarpment plans (see Figure 2.1)
River which is a designated Canadian Heritage which contain pockets of urbanized areas, but
River; are mainly natural and rural or agricultural, with
• R ouge Park, the second largest urban natural that character protected in varying degrees by
heritage park in North America, and now a corresponding provincial legislation;
National Park; • A gricultural and rural areas south of the Moraine
• T he shoreline of post-glacial Lake Iroquois, a major and Greenbelt, and outside of lands currently
rise in elevation that extends from west to east designated for urban development—the so-called
across the region, inland from Lake Ontario. The “whitebelt” lands from the provincial Growth Plan
Lake Iroquois Shoreline delineates the shoreline for the Greater Golden Horseshoe;
of ancestral Lake Ontario formed approximately • Urbanizing areas, consisting of lands that are
12,500 years ago when lake levels were up to 60 within designated urban or settlement areas,
metres higher than the present lake level. In many which are currently being developed or are
areas, urban development occupies both above committed to development; and fi nally,
and below the Shoreline feature. Yet, in its eastern • B uilt out areas including the City of Toronto and
reaches, due to its often sandy nature, signifi cant the southern portions of the surrounding regional
height and steep slopes, the actual narrow linear municipalities of York, Peel and Durham, which are
feature has not been extensively developed; subject to the Growth Plan and will experience
• T he Scarborough Bluffs, Toronto Islands, the major redevelopment and intensification in the
mouth of the Don River (where major fl ood coming decades.
remediation and restoration of the natural mouth
of the River is taking place); and other Lake As one of the most rapidly growing and ethnically
Ontario beaches and bluffs, and coastal marshes in diverse city-regions in North America, TRCA’s
the Duffi ns, Carruthers and Humber watersheds; jurisdiction was home to some 3.4 million people
• F orests and wetlands in the provincially in 2011 (Conservation Ontario, 2012), compared to
designated Greenbelt lands that are adequate to approximately 1.2 million in 1951. The impacts of the
support fl ora and fauna species and communities urbanization taking place to accommodate this growth
characteristic of the region before European are evidenced in historical Ontario Ministry of Natural
settlement, some of which are now rare or Resources records, settler reports, and other sources,
endangered; which show that over 120 species, including elk, bobcat,
• T allgrass prairie and oak savannah communities, atlantic salmon, yellow bullhead, wood turtle, calypso
now rare in North America, such as those in High orchid, and indian paintbrush, are no longer found in
Park in the City of Toronto; the region. This happened primarily through the direct
• T he urban forest, or urban canopy, consisting loss of natural cover, due fi rst to the conversion of forest
of valleyland and tableland trees, street, park, lands to agricultural uses and later to urbanization. The
and yard trees all in an urban setting, which remaining natural cover was affected through changes
make an important contribution to the beauty in water quantity and quality, soil compaction, invasive
and ecological function of the urban landscape; plants, and recreational use.
the older ravine system, under pressure from
increasing population due to intensifi cation
targets, is bolstered by this green infrastructure.
8 The Living City Policies
DRAFT