HomeMy WebLinkAboutPD-143-93
THE CORPORATION OF THE MUNICIPALITY OF CLARINGTON
DN: RESOURCE.GPA
Meeting: General Purpose and Administration Committee File #
Date: Monday, October 18, 1993 Res.
PD-143-93 PLN 17.2 #
#: File #:
(1
Subject: CONSERVATION AUTHORITY SUBMISSIONS ON RESTRUCTURING RESOURCE
MANAGEMENT IN ONTARIO
Recommendations:
It is respectfully recommended that the General Purpose and
Administration Committee recommend to Council the following:
1. THAT Report PD-143-93 be received;
2. THAT Report PD-143-93 be forwarded to the Minister of Natural
Resources, the Association of Conservation Authorities of
ontario (ACAO), the Central Lake ontario Conservation
Authority, the Ganaraska Region Conservation Authority, the
Kawartha Region Conservation Authority and the Region of
Durham Planning Department as the position of the Municipality
of Clar ington on the two reports prepared by the ACAO on
'Restructuring Resource Management in ontario'.
1. BACKGROUND
1.1 Through the months of May, June and July 1993, Council
considered a number of correspondence items from the
Kawartha Region Conservation Authority (KRCA), the
Ganaraska Region Conservation Authority (GRCA), and the
Central Lake ontario Conservation Authority (CLOCA).
These letters requested the following of Council
(Attachment No's 1 - 4:
. Council's support of a discussion paper prepared by
the Association of Conservation Authorities of
ontario (ACAO) entitled 'Restructuring Resource
Management in ontario - A Blueprint for Success';
and
. Council's comments on a discussion paper entitled
'Restructuring Resource Management in ontario -
540 ....2
RECYCLED PAPIER
PAPER RECYCLE
ll,I5 IS PR!NTEDON RECYCI.ED PAPER
REPORT NO. PD-143-93
PAGE 2
1.2
2.
2.1
2.1.1
2.1.2
Documenting the Opportunity', prepared by the ACAO
as a follow-up to the 'Blueprint for Success'
discussion paper.
council resolved to refer both documents to the Director
of Planning and Development for review and the
preparation of a report. Summaries of the documents
prepared by the ACAO, as well as Staff's comments, are
presented herein.
SUMMARY OF ACAO DISCUSSION PAPERS
Restruoturing Resouroe Manaqement in ontario A
Blueprint for Sucoess
This discussion paper was submitted to the Minister of
Natural Resources in May 1993. It noted that various
provincial ministries, municipalities and conservation
authorities are all responsible to some degree for
resource management. This structure results in both
overlaps and gaps in the management of the province's
natural resources, and a waste of limited public funds.
As well, resource management is currently not ecosystem
based.
The position outlined in the paper is that significant
changes in the fundamental organization of agency
responsibilities can achieve necessary reductions in
funding without j eopardiz ing the natural environment.
Conservation authorities are suggested as the best
agencies to coordinate and implement integrated resource
management on a watershed basis. In fact, the paper
concludes that the management of all aspects of the
ecosystem should be provided under one jurisdiction
covering an entire watershed, and that Conservation
Authorities should either have the central role or be
eliminated and replaced with another agency with a
watershed based area of jurisdiction.
541
REPORT NO. PD-143-93
PAGE 3
2.1.3
2.1.4
2.2
2.2.1
2.2.2
The paper makes the following recommendations:
Resource management should be restructured so that
it is planned and implemented on a watershed basis;
Provincial Ministries should focus on the strategic
planning aspects of resource management, including
legislation, policy, research and provincial scale
planning;
The water related mandates of the Ministry of
Natural Resources and the Ministry of Environment
and Energy should be combined into a single
ministry;
The relevant implementation functions of provincial
agencies should be transferred to conservation
authorities, including the preparation of watershed
plans.
The paper also notes that municipalities, as the
principal partners of conservation authorities, must be
active participants in watershed planning studies
coordinated by the Authority. Once watershed scale
studies are complete , municipalities would be responsible
for incorporating watershed requirements into municipal
planning documents and projects.
Restruoturing Resouroes Manaqement in ontario
Dooumentinq the opportunity
This discussion paper was submitted to the Minister of
Natural Resources in June 1993, in response to the
Minister's request to the ACAO to provide further detail
on the concepts put forth in the 'Blueprint' paper.
The paper focused on a number of areas of duplication in
resource management. However, of particular significance
to the Municipality is the paper's discussion of
watershed planning and drainage and the relationship to
....4
542
REPORT NO. PD-143-93
PAGE 4
2.2.3
2 . 2 .4.
2.2.5
the land use planning process. The paper noted that the
Ministry of Natural Resources, the Ministry of
Environment and Energy and conservation authorities all
comment to municipalities on drainage proposals related
to the development of land.
Each agency reviews the same proposal from a slightly
different perspective (ie. water quality, fisheries,
wetlands and flooding).
This parallel review is not only wasteful of limited
public funds, it also promotes and perpetuates the
fragmented management of the province's natural
resources. As well, since agency concerns are slightly
different, substantial delays and considerable cost to
both the proponent and the taxpayer can be incurred in
resolving these conflicting interests.
The paper states that the lack of integrated provincial
policies and watershed plans hinders the resolution of
these conflicts. The participation in local decision
making by the province could be eliminated if clear
policies were developed, with the implementation of
provincial policies being delegated to restructured
conservation authorities. Authorities would assume the
role of the central agency for managing resources on a
watershed basis. This would include undertaking
watershed planning, and encouraging the adoption of
recommendations from watershed plans into municipal
planning documents.
The paper envisions municipalities participating in
watershed planning and provincial policy development, and
using their powers of land use control to implement the
recommendations of watershed plans and strategies.
....5
543
REPORT NO. PD-143-93
PAGE 5
2.2.6
3 .
3.1
3.2
3.2.1
3.2.2
The paper indicated that conservation authorities intend
on immediately initiating a consultation process with
other stakeholders including municipalities,
environmental interest groups and the public.
STAFF COMMENTS
The reports prepared by the ACAO make many valid points
with respect to the current system of managing the
province's natural resources. Staff agree with the
position of the ACAO that resource management must be
made more efficient, especially given the current fiscal
environment and pressure from both the public and senior
levels of government to better incorporate environmental
considerations into the land use planning process. In
this regard, specific aspects of the ACAO submissions are
discussed below.
watershed Planning
Staff concur with the position of the ACAO that natural
resources should be managed on a watershed eco-system
basis. The concept of watershed planning has been
explored through the Municipality's current Official Plan
Review. This review has indicated watershed planning
offers many opportunities to make land use planning more
sensitive and responsive to the natural environment.
However, Staff are concerned that the ACAO reports do not
sufficiently acknowledge the importance of the
relationship between land use and the functioning of
watershed ecosystems, and the municipal role in
regulating land use. Municipalities must be full
participants with conservation authorities in any
watershed planning process to allow watershed planning
imperati ves to be reconciled with municipal land use
objectives. In this regard, the relationship between
....6
544
REPORT NO. PD-143-93
PAGE 6
3.3
3.3.1
3.3.2
3.3.3
municipalities and conservation authorities would need to
be reviewed and redefined.
Restruoturing of Agenoy Mandates
From the Municipality's perspective, the inefficiencies
in the current system of resource management are most
apparent in the review of development applications. Both
MNR and MOE have limited staff responsible for very large
areas within the GTA, which results in substantial delays
in the submission of their comments on applications. As
well, Ministry staff have limited local knowledge and
because of time constraints and distance, frequently
cannot visit a site prior to formulating comments on a
development proposal. Staff agree that many of these
ineff iciencies could be overcome by consolidating the
review and approval authority for development
applications with conservation authorities, which are
locally based.
A transfer of these responsibilities to conservation
authori ties must be undertaken in the context of a
fundamental restructuring of agency mandates Such a
restructuring of agency mandates could help to resolve
many of the existing gaps and overlaps in resource
management. In this regard, the creation of a new
ministry to reflect water-related issues has some merit.
However, the consolidation into one of the existing
ministries would be preferable.
Staff also are concerned with the ACAO's apparent
posi tion that any restructuring of agency mandates should
consolidate most significant decision making for resource
management with conservation authorities, while
marginalizing the decision making role of other
agencies, including municipalities. This could have
. . . . 7
545
REPORT NO. PD-143-93
PAGE 7
3.3.4
3.3.5
4.
4.1
4.2
significant implications for a municipality's ability to
plan land use within its boundaries. As well, decisions
made by a conservation authority to achieve its watershed
management objectives could result in increased
responsibilities and costs being borne by a municipality
- for example the maintenance of stormwater management
facilities.
It is apparent that many complex issues would need to be
addressed in order to implement a fundamental
restructuring of the resource management system as
suggested by the ACAO. These include required amendments
to provincial legislation and the transfer of funding and
personnel from provincial agencies to conservation
authorities. These and other yet unidentified issues
will complicate the matter of agency restructuring.
staff note that the ACAO papers were not circulated to
the Association of Municipalities of ontario (AMO) for
comment. Given the ACAO's position regarding the need
for a fundamental restructuring of the roles and
responsibilities of provincial ministries, municipalities
and conservation authorities, the comments of AMO should
be solicited.
CONCLUSIONS
All of the complex issues related to improving the
current system of managing the province's natural
resources have yet to be identified or fully explored.
Therefore, it is difficult at this point in time for the
Municipality of Clarington to provide a full endorsement
of the ACAO submissions.
However, the Municipality does endorse the concept of a
stream-lined and improved system for managing the natural
546
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REPORT NO. PD-143-93
PAGE 8
environment. In this regard, the ACAO submissions should
be used by the provincial government, municipalities and
conservation authorities as a first step in implementing
an improved system for resource management.
Respectfully submitted,
dr ~
Franklin Wu, M.C.I.P.
Director of Planning
and Development
JAS*FW*cc
*Attach
8 October 1993
547
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I Kenrei Park Road
R.R.\l:l
Lindsay, Ontario
K9V 4Rl
I
705-328-2271
iFax: 705-328-2286
11-800-668-KRCA
lIrPorated on October 3~, 1979
Iwa- Munkipa1itks:
JnshiP of Bex1ey
. ge of Bobcaygeon
wnship of Brock
rhip of Cavan
[~hip of Eldon
~nship of Emily.
wnship of Fenelon
Ige of Fenelon Falls
Itships of Galway &
lendish
rhip of Harvey.
If of Lindsay
IIDShip of Manvers
vnship of Mariposa
lOfNewcastle'
- e of Omemee
vnship of Ops
jtship of Scugog ,
tship of Somerville
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Attachment # 1
COUNCIL DIRECTION
May 17, 1993
0'-10
..... TO:
ontario~onservation a~ Environmental Interests
"'-""
As a member of the Association of Conservation Authorities
of Ontario; the Kawartha Region Conservation Authority is
pleased to provide you with a copy of a discussion paper
entitled, "Restructuring Resource Manaqement in ontario A
Blueprint for Success'~. The future of resources manage-
ment in Ontario has reached a crossroads. Society can no.
longer afford to maintain the current institutional struc-
tures that promote inefficient and, at times, ineffective
resources management programming' and delivery.
This discussion paper has been prepared by the
Conservation Authorities of Ontario. It is a call to all'
conservation and environmental interests to form a
stronger partnership. We invite you to table you thoughts
and ideas on the kinds of changes needed to ensure
improved management and protection of our threatened
watershed resources and environment.
The Conservation Authorities of Ontario believe that, by
focusing on change, improvements to the current system
will evolve - by the people and for the 'people - through
direct local assumption of responsibility for conserving
and protecting local environments.
Let us know what you think. eas r 31st,
1993 to either the ACAO'co-ordinator of this-discuss~on
paper: Vicki Barron, General Manager .
Credit Valley Conservation Authority
1255 Derry Road West
Meadowvale, Ontario
L5N 6R4
:-
ICTel. [416 J670-1615 Fax [416 f6T0"-2210'
or locally to:
Ian D. Macnab, General Manager
Kawartha Region Conservation Authority
Kenrei Park Rd., R. ~. #1
Lindsay, Ontario K9V 4R1
Tel. [705]328-2271 Fax [705]32S-2286
Your thoughts and ideas are important if we are.to succeed'
'n bringing positive change to resources manageme~t.
Yours very truly,
[6. NJ ZI f1
~~~
B 1 AVH
Ian D. Macnab
General Manager
IDM/pk
Att'.
548
Kenrei Park Road
R.R.\l:l
Lindsay, Ontario
K9V 4R1
705-328-2271
Fax: 705-328-2286
1-800-668-KRCA
Incorporated on October 31,1979
Member MunicipalitUs:
Township of Bex1ey
Village of Bobcaygeon
Township of Brock
Township of Cavan
Township of Eldon
Township of Emily
Township of Fenelon
Village of Fenelon Falls
Townships of Galway &
Cavendish
Township of Harvey,
Town of Lindsay
Township of Manvers
Township,of Mariposa
Town of Newcastle'
Village of Omemee
Township of Ops
Township of Scugog
Township of Somerville
Village of Sturgeon Point
Township of Verulam
@ recycl"d paper
Attachment #2
COUNCIL DIRECTION 0-5
JUL IZ 10 54 AM '93
July 8, 1993 \
MEMO
TO: KRCA Members
KRCA Member Municipalities
RE: Restruoturing Resources Management in ontario
"Documenting the Opportunity"
Dear Members and Member 'Municipalities:
The above referenced document was prepared by the
Association. of Conservation Authorities of ontario's
Policy Task Force. "Documenting the Opportunity". is at
follow-up to the ACAO "Blueprint for Success" which was
circulated to you in May.
"Documenting the Opportunity" was delivered to the
Ministers of Natural Resources, Environment and Energy,
Agriculture and Food, and Municipal Affairs, as well as
Mr. Laughren, and Premier Rae on June 15th both to their
of~ice and in the House by Peter North. It was
distributed to all members of the legislature on
June 23rd.
We would welcome any comments tbat you have on
"Documenting the Opportunity".
Yours very truly,
Encl.
D1ST~TION
CLERK .L~
-----......
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ORIGINAL TO'.
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Ii' gana1Q:ika REGION CONSERVATION AUTHORITY
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~"W'ii PO 80X328. PORTHOPE. ONTARIO L 1A31N4 . TELEPHONE (416) 885-8173. FAX (416) 885-9824
Attachment #3
141002
0-10
May 25, 1993
Mr. L. Kosteff
Chief Administrative Officer
Town of Newcastle
40 Temperance Street
Bowmanville, ON LIC 3A6
Dear Mr. Kosteff:
RE: Restructuring Resource Management in Ontario
.. A Blucpr'int fOr Suc~ess
As you are aware, all government organizations were requested by Premier Rae to "share" in
our deficit reduction for 1993. The Ganaraska Region Conservation Authority believes that We
must contribute fairly to the deficit reduction. However, in April ConserVation Authorities were
adviSed that our "share" would represent a 22 % decrease in our budget for 1993. Given that
our fiscal year begins January I, this cut has the impact of a 32 % constraint.
;; In total, the Ganaraska Region Conservation Authority has lost $225,000 of its $1.000,000
bUdget. Of m~or concern is the loss of the Conservation Land Tax Rebate Program; a program
which assists Our agency in paying its taxes on the 11 ,000 acres ofland w~ch we hold for the
public. The loss of ~his rebate was done without consultation by the provincial government and'
without first eliminating duplication within the government in relation to resource management
and conservation delivery. ' ,
Despite this, our Association of Conservation Authorities of Ontario CACAO) has responded to
Premier Rae's question - "How can we make the public service work more efficiently?" _ in a
proactive and positive manner: We have developed a document entitled :Restructuring
Resource Management in Ontario - A Blueprint tor Success. This paper was ,recently
delivered to Premier Rae as well as the Ministers of Natural Resourges, Environment and
Energy, Agriculture and Food, and Municipal Affairs. We are no enclosing a copy of this
dOCument for your review and endorsement.
~.
~~
. tlr b?~
.../2
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550
- WE RECYCLE-
"
COUNCIL DIRECTION
Attachment#'4
0-2
>-
/-..
JUL 12 S 116 AH '93
CENTRAL LAKE ONTARIO CONSERVATION AUTHORITY
100WHITING AVENUE, OSHAWA, ONTARIO L 1 H 3T3 TEL: (416) 579-0411
FAX: (416) 579-0994
REF NO.
July 6, 1993.
Mayor Hamre and Members of Council,
The Corporation of The Town of Clarington,
40 Temperance street,
Bowmanville, Ontario
LIC 3A6
~~@;~U~[@
J U L 8 1993
TOWN OF NEWCASTLE
MA YOR'S OFFJCE
Mayor and Members of Council:
The attached document entitled "Restructuring Resource
Management in Ontario - A Blueprint for Success" has been endorsed
by this Authority as its position on the future of Conservation
Authorities in this province.
This document has been prepared by the Conservation Authorities
of Ontario' to address the current inefficiencies wrought by the
existing institutional structures and interministerial division of
responsibili ties, and to promote more effective resource management
and program delivery through a stronger local focus on environmental
responsibilities.
This document expounds on the many strengths of Conservation
Authorities:
the municipal/provincial partnership;
a watershed jurisdictional basis;
resource planning and management on ecosystem principles;
unmatched efficiency in program delivery - i.e. value for money;
responsiveness to local needs;
connections with environmentalists, naturalists, educational
advisors, and other special interest groups;
local accountability for their policies, practices, and
expenditures.
and concludes that these strengths are the most appropriate foundations
for constructing a holistic resource management entity.
cont'd.. .2
551
CENTRAL LAKE ONTARIO CONSERVATION AUTHORITY
Mayor and Members of Council
July 6, 1993
Page 2
The 'Blueprint' is advanced as a living, evolutionary document
intended to provide the best public service.
The Authority solicits Council's support of this document as
our local partner.
encl.
WMC/jmb
Yours tr~
~e~
Chief Administrative Officer_
,- DIS.~~~IJJ~'O-N
I CLERK - --
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