HomeMy WebLinkAboutPDS-008-26Staff Report
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Report To: Planning and Development Committee
Date of Meeting: January 19, 2026 Report Number: PDS-008-26
Authored By: Sarah Allin, Principal Planner, Planning and Infrastructure Services
Submitted By: Darryl Lyons, Deputy CAO, Planning and Infrastructure Services
Reviewed By: Mary-Anne Dempster, CAO
By-law Number: Resolution Number:
File Number: PLN 1.1.37
Report Subject: Bill 68: Amendments to the Conservation Authorities Act and an ERO
Posting consulting on the proposed consolidation of Ontario’s 36
conservation authorities into seven regional conservation authorities
Recommendations:
1.That Report PDS-008-26, and any related delegations or communication items, be
received;
2.That Report PDS-008-26, including the Draft Staff Responses forming Attachment 3,
be endorsed as the Municipality’s comments to the Province on the proposal for the
consolidation of Ontario’s 36 conservation authorities into seven regional
conservation authorities (Environmental Registry of Ontario Posting: 025-1257) and
forwarded to the Minister of Environment, Conservation, and Parks; and
3.That all interested parties listed in Report PDS-008-26, be advised of Council’s
decision.
PD-012-26
Municipality of Clarington Page 2
Report PDS-008-26
Report Overview
Plan to Protect Ontario
Act, 2025
Conservation Authorities Act
boundaries and criteria for the consolidation of Ontario’s 36 existing conservation authorities
and topics open for consultation, and (ii) present staff’s
to Council’s ratification,
1. Background
1.1 On November 6, 2025, the Ontario government released Bill 68, the Plan to Protect
Ontario Act, 2025. This report focuses on the amendments to the Conservation
Authorities Act (Schedule 3 of Bill 68) which enable the Province to create the Ontario
Provincial Conservation Agency to oversee conservation authorities and support the
transition to a regional, watershed-based framework for conservation authorities in
Ontario.
1.2 Concurrently, on November 7, 2025, the Province initiated consultation on the proposed
boundaries and criteria for the consolidation of Ontario’s 36 existing conservation
authorities into seven regional conservation authorities via Environmental Registry of
Ontario (ERO) posting ERO #025-1257. Feedback will help inform further changes to
the Conservation Authorities Act that may be introduced later. A 45-day comment
window was provided, ending on December 22, 2025.
Municipality of Clarington Page 3
Report PDS-008-26
1.3 The Province acknowledges that Ontario’s 36 conservation authorities play a vital role in
watershed management and protecting communities from natural hazards like floods.
Conservation authorities deliver programs and services that further the conservation,
restoration, and management of natural resources.
2. Conservation Authority Consolidation Proposal Summary
and Key Comments
2.1 The following section provides a high-level summary of relevant changes introduced by
Bill 68 and key comments. Detailed staff comments on the proposed changes are
provided in Attachment 3.
Bill 68 Changes to the Conservation Authorities Act
2.2 Bill 68 established the Ontario Provincial Conservation Agency, a provincial board -
governed agency, which will now oversee conservation authorities, have power to issue
directions to conservation authorities, and be authorized to establish and require the
payment of fees and take steps to recover its costs and expenses.
2.3 The Ministry of Environment, Conservation, and Parks will provide oversight of the
agency and will also retain policy responsibility for the Conservation Authorities Act and
associated regulations.
Proposal to consolidate conservation authorities
2.4 Information released by the Province to support of the consolidation proposal indicates
the current system of 36 conservation authorities is fragmented, with each conservation
authority following different policies, standards, fees and levels of staffing and technical
capabilities. The current system has resulted in unpredictable and inconsistent
turnaround times for approvals across conservation authorities, creating uncertainty and
delays for builders, landowners and farmers seeking permits, and undermining
conservation authorities’ ability to protect communities from floods and natural hazards.
2.5 The Province proposes to improve the conservation authority system by consolidating
36 existing conservation authorities into seven. The intent is that the boundaries would
still align with watershed boundaries, and would serve to reduce duplication in
administration, free-up resources for frontline conservation, and better align
conservation authorities’ services with provincial priorities on housing, the economy,
infrastructure and climate resilience.
2.6 The Province has stated the proposed seven regional conservation authorities would
continue to focus on managing natural hazards and watershed health, drawing on
decades of local knowledge and partnerships. With better tools and more resources for
front-line staff, the regional conservation authorities would operate with greater
consistency and transparency, deliver faster services to municipalities and permit
applicants.
Municipality of Clarington Page 4
Report PDS-008-26
2.7 Currently, the Municipality of Clarington is primarily located within the jurisdiction of two
conservation authorities: Central Lake Ontario Conservation Authority (CLOCA), and
Ganaraska Region Conservation Authority (GRCA). Small areas along Clarington’s
northern boundary are within the Kawartha Region Conservation Authority (KRCA) and
Otonabee Region Conservation Authority (ORCA), as shown in Attachment 1.
2.8 The changes would place Clarington entirely within the proposed Eastern Lake Ontario
Regional Conservation Authority, which includes watershed s draining into Lake Ontario
in the west, the Bay of Quinte in the east, including the Trent and Cataraqui systems.
This is a vast area that would encompass seven existing conservation authorities, and
over 50 lower- and single-tier municipalities. The proposed extent of the Eastern Lake
Ontario Regional Conservation Authority is shown in Attachment 2.
2.9 The Province has indicated no changes would be proposed to the overall extent of
conservation authority jurisdiction within the Province, and that the following criteria was
applied to determine the proposed boundaries for the regional conservation authorities:
Maintaining watershed-based jurisdictions – aligning with natural hydrological
boundaries to support effective flood and water management, consistent with
drinking water Source Protection Areas and Regions
Relationships between conservation authorities and municipalities – reducing
administrative duplication and overlap for municipalities and conservation authorities
to simplify accountability and strengthen local partnerships
Balancing expertise and capacity across conservation authorities – enhancing
technical skills and resources across conservation authorities to improve service and
program delivery
Service continuity – ensuring uninterrupted delivery of local conservation authority
programs – including flood forecasting and warning, permitting, and source water
protection – through and after consolidation
Key Comments
2.10 Staff responses to the Province’s discussion questions have been drafted by Planning
and Infrastructure Services staff. Responses are included as Attachment 3 to this
report. Key messages are articulated below.
2.11 Staff supports changes that strengthen conservation authorities by ensuring adequate
resources for consistent staffing, technical expertise, and service delivery. This is in
recognition of the vital role conservation authorities play in watershed management,
protecting communities from natural hazards, and delivering programs that further the
conservation, restoration, and management of natural resources.
2.12 Staff also supports the continued use of watershed boundaries and a transition towards
a more predictable, criteria-based permitting system for development or site alteration
within conservation authority regulated areas.
Municipality of Clarington Page 5
Report PDS-008-26
2.13 Staff would not support the proposed consolidation where it would lead to changes in
processes, policies, standards or fees that could hinder the protection of the natural
environment, adversely affect development application processes or timelines, or result
in increased costs for Clarington.
2.14 Staff is concerned about the size and diversity of the proposed Eastern Lake Ontario
Conservation Authority. As a large and fast-growing municipality, Clarington’s growth
forecasts and expected urbanization patterns align more closely with GTA lakeshore
municipalities to the west than with the rural areas to the north and east. The Province is
requested to provide additional details as to how it will ensure all regional authorities are
equally resourced to handle urban and rural contexts.
2.15 Conservation authority staff possess specialized knowledge of local natural heritage,
hydrogeology, and agriculture. Staff is concerned that consolidation risks losing this
expertise and institutional knowledge. The Province is requested to prioritize staff
continuity and retention of local technical capacity throughout the process.
2.16 Staff is concerned that larger boards representing many more municipalities may reduce
local input and generate conflicts over budgeting and program delivery across the vast
regional conservation authority. The Province is requested to clarify how municipal and
stakeholder voices will be maintained under a regional conservation authority
framework.
2.17 Staff looks forward to working collaboratively with the Province to better support
conservation authorities by improving consistency and finding efficiencies in process
while maintaining (i) the valuable local knowledge and technical expertise of
conservation authority staff, and (ii) the established collaborative working relationships
between conservation authorities and municipalities.
3. Financial Considerations
3.1 Financial implications of Bill 68 and the consolidation of Ontario’s conservation
authorities resulting from the ongoing provincial consultation are difficult to assess at
this time, as many details are still under consideration or have not yet been released.
3.2 Staff will continue to monitor the financial implications of these changes and report to
Council as needed.
4. Strategic Plan
4.1 The changes proposed have the potential to impact how Clarington achieves the Lead
priorities of the Strategic Plan to protect and enhance Clarington’s natural heritage
system through collaboration with partners, including conservation authorities, to
achieve a healthy and resilient environment.
Municipality of Clarington Page 6
Report PDS-008-26
5. Climate Change
5.1 Conservation authorities are important partners in working towards go als identified in
Clarington’s Corporate Climate Action Plan, including protecting ecosystems and
diversity, minimizing risks to buildings and properties, minimizing disruption to
operations and services, and building community resilience.
6. Concurrence
6.1 Not Applicable.
7. Conclusion
7.1 The purpose of this report is to (i) provide a high-level summary of the proposed
changes, and topics open for consultation, and (ii) present staff’s draft comments which
were submitted to the Province on December 22, 2025, to meet the commenting
deadline, subject to Council’s ratification.
7.2 The Province has indicated it will be engaging in future consultation on any additional
legislative and regulatory proposals needed to enable the regional consolidation of
conservation authorities. Staff will monitor and report to Council as needed.
7.3 It is respectfully recommended that the Recommendations be adopted as presented.
Staff Contact: Sarah Allin, Principal Planner, sallin@clarington.net or 905-623-3379 ext. 2419
or Lisa Backus, Manager of Community Planning, lbackus@clarington.net or 905 -623-3379
ext. 2413.
Attachments:
Attachment 1 – Map of Conservation Authorities in Clarington
Attachment 2 – Proposed Eastern Lake Ontario Regional Conservation Authority Boundary
(source: Ministry of Environment Conservation and Parks)
Attachment 3 – Draft Staff responses to Consolidating Conservation Authorities Discussion
Questions
Interested Parties:
List of Interested Parties available from Department.
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Courtice
Bowmanville Newcastle
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T O W N S H I P O F S C U G O GT O W N S H I P O F S C U G O G ²
Conservation Authority
Central Lake Ontario Conservation
Ganaraska Region Conservation Authority
Kawartha Region Conservation Authority
Otonabee Region Conservation Authority Lake Ontario
Central Lake Ontario
Conservation Authority
Ganaraska Region
Conservation Authority
Attachment 1 to Report PDS-008-26
11
Map of Proposed Eastern Lake Ontario Regional Conservation Authority
Attachment 2 to Report PDS-008-26
Attachment 3 to Report PDS-008-26
Attachment 3 DRAFT Staff responses to Consolidating Conservation Authorities Discussion Questions
Item
Number
ERO/ORR
Number
Title of
ERO/ORR
Post
Discussion Question Staff Comments
1 025-1257 Proposed
boundaries
for the
regional
consolidation
of Ontario’s
conservation
authorities
What do you see as key factors to support a
successful transition and outcome of regional
conservation authority consolidation?
Dedicated stable Provincial funding to offset costs associated with consolidation as well as funding
for the administration of the Regional Conservation Authority.
All mandatory (Category 1) programs and current service levels must be maintained while avoiding
added administrative burden.
Preserve local technical expertise and institutional knowledge existing within local conservation
authorities; prioritize staff continuity.
Retain local flexibility for meetings and site visits to ensure efficient permit processing.
Uphold existing MOUs to minimize service disruption through the transition.
Conduct a cost-benefit analysis, financial impact assessment, and establish KPIs to assess impacts
on conservation authorities and municipalities and to monitor whether improvements are achieving
desired results.
Consider moving forward with the creation of one regional conservation authority as a pilot project in
order to capture any learnings or efficiencies that could be realized in a larger roll out.
Implement a phased transition, recognizing the substantial time and resources that merging seven
conservation authorities into one large, regional conservation authority (that will cover over 50
municipalities) would require.
2 What opportunities or benefits may come from a
regional conservation authority framework?
More consistent requirements and expectations across conservation authorities. Currently, larger
jurisdictions like Central Lake Ontario Conservation Authority & Toronto and Region Conservation
Authority have well-defined guidelines and expectations, whereas other conservation authority
standards may be less specific and open to the interpretation of the reviewer.
Under a centralized framework there is opportunity for development approvals to be more
standardized and predictable for those seeking permits, etc. however, a standardized approach may
not take into consideration more localized watershed conditions and may represent a change in
practice and process than what the Municipality or a developer has become familiar with.
3 Do you have suggestions for how governance
could be structured at the regional conservation
authority level, including suggestions around board
size, make-up and the municipal representative
appointment process?
The proposed Eastern Lake Ontario Regional Conservation Authority would include over 50
municipalities. Staff is concerned about reduced local representation and requests clarity on how
equitable representation will be maintained while keeping boards functional and efficient.
There is also concern that the future structure will not be as nimble and responsive to local issues,
development approvals, or conservation area management.
Further consultation will be necessary. Municipalities will be very hesitant to fund programs for a
Regional Authority where they do not have direct representation on the Board.
4 How can regional conservation authorities maintain
and strengthen relationships with local
communities and stakeholders?
Maintain local planning and regulation permitting teams, including existing administrative offices,
local Boards, and advisory committees during the transition and going forward.
Maintain local programs and service delivery beyond those that are provincially legislated, such as
Clarington’s Trees for Rural Roads Program, to sustain community engagement and relationships
with stakeholders.