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Report To: General Government Committee
Date of Meeting: September 25, 2017
Report Number: CAO -009-17 Resolution:
File Number: By-law Number:
Report Subject: CEDAR CREST BEACH UPDATE
Recommendations:
1. That Report CAO -009-17 be received; and
2. THAT the cost to complete the study commissioned by CLOCA in 2004 — the Port
Darlington (West Shore) Damage Centre Study - be financed from the
Westside/Bowmanville Marsh Reserve Fund with an upset limit of $50,000.
Municipality of Clarington
Resort CAO -009-17
Report Overview
Paae 2
The purpose of this Report is to provide an update on the status of the shoreline erosion and
flood mitigation resolutions passed by Council in 2017 other than Resolution GG -259-17
passed on May 8, 2017 which dealt with the preparation of a comprehensive waterfront
emergency plan. That matter will be addressed in a separate report (ESD -007-17).
1. Background
1.1 In response to concerns raised by residents and recent flooding events, Council has
directed staff to take certain action and investigate possible future courses of action.
Council's directions are set out in the following resolutions:
Resolution # Date Subject
GG -263-17 May 8 Cedar Crest Beach Shoreline Protection - Water and Septic
Conditions
C-134-17 May 23 Cedar Crest Beach Flooding — Request for Report in Actions
Taken
C-135-17 May 23 Emergency Planning - Information Session and Updating of
By-law 99-161
GG -356-17 June 19 Cedar Crest Beach Erosion Mitigation
GG -357-17 June 19 Request to Strike Committee to Review Mitigation and Safety
Plan for Great Lakes and St. Lawrence Seaway Communities
C-203-17 July 3 Cedar Crest Beach Erosion Control Engineering Solution
1.2 Full copies of these Resolutions are set out in Attachment 1.
Municipality of Clarington
Resort CAO -009-17
2. Discussion
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Cedar Crest Beach Shoreline Protection - Water and Septic Conditions (GG -263-17)
2.1 This Resolution required,
That potable water and washrooms be provided until the water and septic
conditions improve at Cedar Crest Beach; and
That, unless one has already been held to comment on this specific issue, a
meeting with the Durham Region, Clarington Emergency Services, Clarington
Operations and Durham Region Health Department be held to comment on the
issue of clean water, well and septic remediation for residents in the Cedar Crest
Beach Area.
2.2 Both parts of this resolution were addressed in Report ESD -004-17.
Cedar Crest Beach Flooding — Request for Report in Actions Taken (C-134-17)
2.3 Resolution C-134-17 directed "that the Director of Emergency & Fire Services report
back with a full report outlining actions taken with respect to the flooding in Cedar Crest
Beach Area from April 25, 2017 until the water levels return to normal or June 30, 2017,
whichever comes first with reference to the provisions and applications of Emergency
Services Emergency Plan."
2.4 Report ESD -004-17 dated July 3, 2017 responded to this request.
2.5 Since the date of Report ESD -004-17, in addition to the other matters reported in this
Report and in Report ESD -007-17, the following has occurred:
x Staff have removed all the sandbags on the road 'marsh side only'. This
means that any bags on residential properties, both lakeside and the front
door roadside, will not be dealt with until the spring when the entire area
will be re-evaluated. To prepare for winter snow removal, the pile of sand
on the marsh side of Cedar Crest Beach Road in front of the lot owned by
the Municipality along with the skids, unused bags and shovels were
moved to the animal shelter for winter storage.
x The emergency was declared to be terminated.
x Rented equipment (mini excavator and portable pump) was removed.
Municipality of Clarington
Report CAO -009-17 Page 4
X Operations opened the beach head outfall at the Cedar Crest Beach Road
a total of 39 times from the start in May to the end of August. Staff
continue to monitor the area for changes in water levels or threat of
flooding from the marsh and take appropriate action if needed.
Emergency Planning - Information Session and Updating of By-law 99-161 (C-135-17)
2.6 This Resolution provided,
That Staff arrange an information session for Councillors regarding emergency
planning and emergency management; and
That Staff consider updates to By-law 99-161, including clear direction on the
roles and responsibilities of members of Council; and
That staff report back on what communications should be provided to Members
of Council.
2.7 Report ESD -004-17 dated July 3, 2017 (pages 10 -11) responded to all parts of
Resolution #C-135-17.
Cedar Crest Beach Erosion Mitigation (GG -356-17)
2.8 This resolution directed "that a Coastal Engineering Study be undertaken for Cedar
Crest Beach shoreline erosion mitigation funded through a cost sharing agreement, as
outlined on Page 22 of Report EGD -015-17." Report EGD -015-17 suggested that a cost
sharing agreement "could be used to fund both the design and supporting studies that
would be required to complete the erosion mitigation works and the cost of the works
themselves."
2.9 Municipal staff have been working closely with Central Lake Ontario Conservation
Authority staff to determine how best to respond to this resolution. We have agreed that
a necessary first step is the completion of a study that was prepared in draft by Aqua
Solutions (June Sullivan, P. Eng.) in 2004 — the Port Darlington (West Shore) Damage
Centre Study (the "Sullivan Study"). Attached to this Report (Attachment 2) is a copy of
CLOCA's report to its Board of Directors dated September 19, 2017 that addresses
issues respecting Lake Ontario Shoreline Management at Port Darlington. It describes
in some detail the nature and extent of the work that was undertaken to prepare the
draft Sullivan Study and recommends its completion. CLOCA's Board approved the
report at its meeting on September 19, 2017.
Municipality of Clarington
Resort CAO -009-17
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2.10 Staff recommend that funds for the completion of the Sullivan Study (upset limit of
$50,000) be drawn from the Westside/Bowmanville Marsh Reserve Fund. This reserve
fund was set up as the result of the Principles of Understanding between Blue Circle (St.
Marys Cement), the Municipality and CLOCA in 1997. Briefly, the Principles of
Understanding were the result of a negotiated settlement by the Honourable David
Crombie to allow for the reconfiguration of the Westside Marsh, donation of lands to
CLOCA, relocation of the Waterfront Trail, and acquisition and development of Cove
Road by the Municipality. Prior to this agreement, the quarry licence held by Blue Circle
would have allowed for its destruction by extraction of the aggregate resources. The
Westside/Bowmanville Marsh Reserve Fund was set up for development and
implementation of the Westside Marsh Management Plan. CLOCA has drawn down the
funds, implementing improvements that matched the total dollar value of the seed
money in the fund. During the time it took to develop and implement the Management
Plan, the reserve fund accrued interest. It is this interest that would fund the completion
of the Sullivan Study.
2.11 Completion of the Sullivan Study will provide a current assessment of the situation and
will inform Council, CLOCA, residents and other stakeholders respecting possible future
courses of action related to shoreline management. As identified in the CLOCA's Board
report dated September 19, 2017, "implementation options could include policy and
regulatory changes/improvements to direct physical interventions related to land
acquisitions and capital works projects or a combination of both. Any publicly -initiated
physical projects would likely be an "undertaking" within the meaning of the
Environmental Assessment Act and would therefore need to follow the Class
Environmental Assessment for Remedial Flood and Erosion Control Projects.
Implementation agents could include: senior levels of government, the Region of
Durham or Municipality of Clarington, CLOCA, individual or groups of landowners or a
combination, and similarly, possible funding sources for the undertaking will need to be
investigated." Depending on the preferred alternative there may be several other
approvals required (e.g. federal legislation such as the Fisheries Act, Navigable
Waters Protection Act, Migratory Birds Convention Act, Endangered Species Act and
the provincial Conservation Authorities Act.)
2.12 A related component of any decision going forward respecting Cedar Crest Beach Road
and the surrounding area will be the broader issue of shoreline management across
Lake Ontario including the portion of Lake Ontario that is within Clarington
(approximately 35 kilometres). Given the current high water levels and a desire to
better understand the impacts on climate change through current scientific knowledge,
the conservation authorities that participated in the original 1990 Lake Ontario Shoreline
Management Plan by Sandwell Swan Wooster Inc. (CLOCA, GRCA and Lower Trent
Conservation Authority) are working together to update this study and update the
Municipality of Clarington
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Paae 6
shoreline management policies used by conservation authorities and
municipalities. This work is described in more detail in CLOCA's September 19, 2017
report and GRCA's report of September 21, 2017 (Attachment 3). This study is
estimated to cost $300,000 with half of the funds coming from the National Disaster
Mitigation Program. The Municipality's role will be to participate in a technical advisory
capacity. Like the original report, the new report will make recommendations that could
find their way into the updated conservation authority regulations, updated official plans
and zoning by-laws, and land acquisition strategies of both the conservation authorities
and lakeshore municipalities.
Request to Strike Committee to Review Mitigation and Safety Plan for Great Lakes and
St. Lawrence Seaway Communities (GG -357-17)
2.13 This resolution directed that "the provincial and federal governments be requested to
strike a committee to review mitigation and safety plans for the communities fronting the
Great Lakes and St Lawrence Seaway' and that "Clarington be invited to participate on
the committee".
2.14 A letter was sent from Mayor Foster to the Honourable Ralph Goodale, the Federal
Minister of Public Safety and Emergency Preparedness on August 1, 2017 requesting
that such committee be struck. There has been no response to this letter.
2.15 Several provincial ministries were invited to participate in discussions respecting
waterfront planning. The responses are discussed below.
Cedar Crest Beach Erosion Control Engineering Solution (C-203-17)
2.16 This Resolution deals with many of the same issues that were raised in Resolution GG -
356 -17 to the extent that it requests that "the federal and provincial government, and
CLOCA to work together to develop an entire waterfront plan including the Port
Darlington channel, and the beach waterfront, and work towards a cost sharing
agreement for the study and work." However, it also directs staff to set up a working
committee consisting of representatives of the federal and provincial governments,
CLOCA, St. Marys Cement, the Municipality and residents "to clarify jurisdictional roles
and responsibilities and secure funding and contribution agreements, such that a viable
shoreline erosion control and beach restoration plan can be implemented as soon as
possible" and that staff "present the plan to Council by October 2017".
2.17 Staff have invited representatives from the provincial government (including the
Municipal Programs and Analytics Branch of Ontario Ministry of Municipal Affairs that
screens funding decisions respecting the federal Department of Public Safety's National
Disaster Mitigation Program), St. Marys Cement, CLOCA and the community to meet to
Municipality of Clarington
Resort CAO -009-17
Paae 7
discuss not only jurisdictional issues and funding possibilities respecting shoreline
erosion as suggested by Resolution C-203-17 but also flooding issues. It just makes
sense when representatives from all of these groups are together to discuss related
issues. The general response we have received from provincial representatives is that
the result we are all after is best achieved through CLOCA. At this point, the working
committee is therefore comprised of representatives from the Municipality, St. Marys
Cement, CLOCA and the community.
2.18 Determining jurisdictional roles and responsibilities will not be an onerous task for the
committee. Determining proponency and funding sources for any remedial work that
may be identified in the completed Sullivan Study will be its greatest challenge.
2.19 There was a meeting on August 25, 2017 that was arranged by St. Marys and attended
by representatives of the community and the Municipality. Sarah Delicate, a local
resident who attended the meeting, communicated to her neighbours that "the goal of
the meeting was to open -up positive dialogue and to make everyone's position
regarding the shoreline erosion understood. All participants felt that this meeting was
very positive and productive. St. Marys and residents will be part of the ongoing
municipal working group regarding shoreline protection." She also stated that "there
has been a commitment on all sides to work on strengthening trust relationships,
fostering respectful dialogue and increasing communication and transparency." These
comments accurately summarize the purpose of the meeting and its main outcomes.
2.20 A subsequent meeting took place on September 11, 2017 to review and discuss the
intended function and the actual operation of the overflow channel. Representatives
from St. Marys Cement, area residents, Municipal staff, CLOCA staff, as well as
representatives from Dillon Consulting and Marshall Macklin Monaghan (now WSP) who
designed and constructed the overflow channel were in attendance. Information was
exchanged, but more work needs to be done to address concerns regarding how the
channel is functioning.
2.21 The next meeting has been scheduled for October 26, 2017.
3. Conclusion
3.1 The first step in the "plan" that Council has referenced in Resolution C-203-17 is to see
that the Sullivan Study is completed. Subsequent steps will depend upon the outcome
of that work. With assistance from our conservation authorities and other levels of
government, we will then look at short-term and long-term options to address erosion
and flooding concerns. We will also be looking at the cost implications of any proposed
actions.
Municipality of Clarington
Report CAO -009-17 Page 8
3.2 Staff will keep Council updated on the status of the various initiatives discussed in this
Report.
4. Strategic Plan Application
Not applicable.
Submitted by:
Andrew C. Allison, B. Comm, LL.B.
Chief Administrative Officer
Attachment 1 — Resolutions
Attachment 2 — CLOCA Report dated September 19, 2017
Attachment 3 — GRCA Report dated September 21, 2017
Attachment No. 1 to
Report CAO -009-17
Comprehensive Waterfront Emergency Plans
Resolution #GG -259-17
Moved by Councillor Traill, seconded by Councillor Neal
That Staff report back on the creation of a comprehensive waterfront emergency plan for each
Clarington waterfront area including (but not limited to): property safeguarding procedures and
protocols, volunteer coordination, involvement of third party agencies, in-home assessments,
evacuation criteria and strategies, and communication strategies for same.
Cedar Crest Beach Shoreline Protection — Water and Septic Conditions
Resolution #GG -263-17
Moved by Councillor Traill, seconded by Councillor Woo
That potable water and washrooms be provided until the water and septic conditions improve
at Cedar Crest Beach; and
That, unless one has already been held to comment on this specific issue, a meeting with the
Durham Region, Clarington Emergency Services, Clarington Operations and Durham Region
Health Department be held to comment on the issue of clean water, well and septic
remediation for residents in the Cedar Crest Beach Area.
Cedar Crest Beach Flooding — Request for Report on Actions Taken
Resolution #C-134-17
Moved by Councillor Traill, seconded by Councillor Woo
That the Director of Emergency & Fire Services report back with a full report outlining actions
taken with respect to the flooding in Cedar Crest Beach Area from April 25, 2017 until the
water levels return to normal or June 30, 2017, whichever comes first with reference to the
provisions and applications of Emergency Services Emergency Plan.
Emergency Planning - Information Session and Updating of By-law 99-161
Resolution #C-135-17
Moved by Councillor Neal, seconded by Councillor Cooke
That Staff arrange an information session for Councillors regarding emergency planning and
emergency management; and
That Staff consider updates to By-law 99-161, including clear direction on the roles and
responsibilities of members of Council; and
Attachment No. 1 to
Report CAO -009-17
That staff report back on what communications should be provided to Members of Council
EGD -015-17 Cedar Crest Beach Erosion Mitigation
Resolution #GG -356-17
Moved by Mayor Foster, seconded by Councillor Traill
That Report EGD -015-17 be received;
That a Coastal Engineering Study be undertaken for Cedar Crest Beach shoreline erosion
mitigation funded through a cost sharing agreement, as outlined on Page 22 of Report EGD -
015 -17;
That all interested parties listed in Report EGD -015-17 and any delegations be advised of
Council's decision.
Request to Strike Committee to Review Mitigation and Safety Plan for Great Lakes and
St. Lawrence Seaway Communities
Resolution #GG -357-17
Moved by Mayor Foster, seconded by Councillor Woo
Whereas Lake Ontario is a valuable regional, national and international resource;
Whereas federal governments of the United States and Canada and the International Joint
Commission have, in partnership with the States and Provinces, a joint interest in the
management of Lake Ontario;
Whereas the management of the lake levels falls within this joint interest;
Whereas the flooding experienced by the residents of Cedar Crest Beach in the Municipality of
Clarington has resulted in effecting residents' safety and has caused significant property
damage;
Whereas the Corporation of the Municipality of Clarington has expended significant staffing
resources and financial resources in aiding the area residents and ensuring their safety;
Whereas the Federal Government and the Provincial Governments provide financial
assistance programs in restoration of damages in the event of Lake Ontario shoreline flooding;
And whereas it is conceivable and reasonable to anticipate future flooding as was experienced
in the spring of 2017;
Attachment No. 1 to
Report CAO -009-17
Now therefore be it resolved that the provincial and federal governments be requested to strike
a committee to review mitigation and safety plans for the communities fronting the Great Lakes
and St Lawrence Seaway; and
That the Municipality of Clarington be invited to participate on the committee to allow for input
in the review of this plan.
Cedar Crest Beach Erosion Control Engineering Solution
Resolution #C-203-17
Moved by Councillor Traill, seconded by Councillor Woo
Whereas Council has considered Report EGD -015-17 setting out options for addressing
erosion control in the Cedar Crest Beach area;
Whereas the Municipality of Clarington acknowledges that erosion in this area has caused
significant damage and needs to be addressed as a matter of urgency given the increasing
severity and frequency of lake storm events;
Whereas Council has heard from residents of the community requesting Municipal leadership
to help find and implement a solution to mitigate shoreline erosion and promote beach
restoration, notwithstanding that the residents understand a solution will not prevent flooding;
Now therefore be it resolved, that the Municipality of Clarington request the federal and
provincial government, and CLOCA to work together to develop an entire waterfront plan
including the Port Darlington channel, and the beach waterfront, and work towards a cost
sharing agreement for the study and work;
That St. Marys and other interested parties be invited to participate;
That staff be directed to call these parties together with representatives of the resident
community to form a working committee to clarify jurisdictional roles and responsibilities and
secure funding and contribution agreements, such that a viable shoreline erosion control and
beach restoration plan can be implemented as soon as possible; and
That Staff and working committee representatives present the plan to Council by October
2017.
APPROVED BY C.A.O.
Purpose
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RECOMMENDATIONS:
THAT staff take the necessary actions to complete the Port Darlington (West Shore) Damage Centre Study in
consultation with the requested working committee as soon as practicable,
THAT the firm of Aqua Solutions be retained to complete the study work as per the previously approved Terms of
Reference, amended to address issues associated with Climate Change, recent historic water levels, Sediment
Transport, Current Provincial Policy Direction, Updated Mapping and further assessment of potential options to
address risks associated with natural hazards;
THA T CL OCA staff be directed to report back to the Board of Directors with the completed study with options for
implementation in conformity with the recommendations of the study and provincial Great Lakes shoreline natural
hazard management policy;
THAT the Council of the Municipality of Clarington be so advised in response to Resolution C-203-17.
54EE
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Attachment 1
Attachment 2
Lake Ontario Shoreline Management flan
December, 1990
Page Ti
12.0 CONCLUSIONS AND RECOMMENDATIONS
Based upon the analysis carried out through this study, a number of conclusions have
been drawn and appropriate recommendations are listed below. in total, these
recommendations provide policies to be used by the relevant conservation authorities
and municipalities in managing the shoreline area.
1. Municipalities should recognize the hazard land characteristics of the shoreline, its
aesthetic features and public amenities through appropriate official plan and zoning
provisions.
2. Measures should be taken to protect environmentally sensitive areas along the
shoreline. In particular, development proposals should not destroy or conflict with
the protection of these sensitive features. The impacts of protecting updrift areas
on the environmentally sensitive features must be assessed before approving
protective works.
3. Acquisition of the shoreline should be considered by the appropriate agencies,
where feasible and practical, because it is generally the most effective means of
minimizing private property damage and risk to life resulting from shoreline hazards.
It can also protect the public amenity and recreational value of the shoreline.
4. As a minimum, when acquisition is utilized as an alternative to shore protection, the
area acquired should extend to the limits of the erosion and/or flooding setback of
the area in question, with additional bluff lands to be set aside for open space
purposes as may be required by the relevant approval agencies.
5. Acquisition of additional lands to protect sensitive areas or for recreational and
aesthetic purposes should be considered by appropriate agencies as necessary
and as budgets permit.
6. The implementation of shoreline protection structures must be examined on a site
specific basis with regard given to potential impacts on adjacent and downdrift
areas. Specific recommendations are given for various reaches in Table 12.1.
7. Prior to the implementation of any major shoreline structure, including any where it
is proposed that setback limits be reduced, site specific coastal engineering studies
must be completed to demonstrate their long term effectiveness and to identify
Epotential impacts on updrift and downdrift properties. These studies must
conclusively demonstrate to the satisfaction of the approving agencies that the
proposed structure will function as intended.
Lake Ontario Shoreline Management Plan
December, 1990
Page 72
£t. Conservation Authorities through the province should establish "fill" and
"construction" regulations for the shoreline which will be structured to allow
authorities to control filling and construction within the setback limits and
construction of shoreline protection works.
G, Prior to the establishment of any conservation authority capital works programs
within the damage centres, further coastal engineering studies should be completed
to further refine the design of proposed works.
10. Conservation Authorities should continue to operate the existing shoreline
monitoring stations and establish those additional stations as defined in this report.
11. Site specific recommendations as to the applicability, or not, of implementing shore
protection structures should be referred to in Table 10.1.
Attachment 3
Lake Ontario Shoreline Management Plan
December, 1990
Page 42
8.0 DAMAGE CEhIiRE� fC�nt'd}
8.1.3 Citv of Oshawa Lot 8, Concession BF
Damage Centre C3 Mg 2.3 (Reach #10)
The shoreline west of Lakeview park rises to form a steep bluff which
protrudes into the lake. A number of houses are located on the headland
which extends westward for approximately 100 metres before the shoreline
drops off again. Because this feature protrudes into the lake, it is a natural
focal point for wave energy.
Some filling has been done in the past and concrete slabs provide some
protection. However, unless the shoreline is properly protected, it will
continue to erode. It should also be noted that a long-term acquisition
program is being pursued by the City of Oshawa subject to budgetary
conditions.
8.1.4 Pori Darlington Beach
Damage Centre C4 (Map 2.7 (Reach #17)
The beach west of fort Darlington can be described as a sand spit backed
by marshland, located at the mouth of Bowmanville Creek and adjacent to
Westside Creek. The marshland is a designated environmentally sensitive
area. Approximately 50 houses are located on this spit (Cedar Crest Beach
Cottage Development) which has a maximum elevation of approximately
76.5 metres IGLD. The area is at risk from flooding of the river as well as
from flooding due to wave activity on Lake Ontario.
The major problem with protecting this shoreline is the cost Because the
shoreline must be protected from both sides the cost is at least double what
it would normally be and this may be too much for most property owners.
Ideally, the properties should be protected from river flooding by a clay dyke.
On the lakeward face, a beach widening scheme should be implemented.
This would involve importing and placing sand on the beach and containing
the sand between hardpoints or behind offshore breakwaters. Detailed
studies would be required to ensure that widening of the beach would not
lead to a siltation problem in the harbour approach channel.
There is currently an acquisition plan that covers a part of this beach. The
appropriate agency may consider acquisition of the entire beach area.
Attachment 4
Attachment 5
CONNECTION
US Army National Guard members deploy a water -filled cofferdam by Sodus Point, New York, to help control Lake
Ontario floodwaters. Credit: US Army National Guard
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Lake Ontario Water Level Forecast
73.6
This prohalistic forecastis produced primarily from histoticat 11900-2008) watersupply scenarios- Results representwater 241.0
levels that would be exceeded 5%, 50% &95% of the time if similar wet, average $& dry conditions (respectively) were to occur.
73.3 C
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73.6
This prohalistic forecastis produced primarily from histoticat 11900-2008) watersupply scenarios- Results representwater 241.0
levels that would be exceeded 5%, 50% &95% of the time if similar wet, average $& dry conditions (respectively) were to occur.
73.3 C
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A W W D F K P H Q
R H SC,R0-009A117
STAFF REPORT — September 21, 2017
TO: Chair and Members of the Full Authority
RE: Lake Ontario Shoreline Management Plan for Lower Trent
Region, Ganaraska Region and Central Lake Ontario
Conservation Authorities
Purpose
The purpose of this report is to inform the Ganaraska Region Conservation
Authority (GRCA) Board of Directors of the proposed development of a Lake
Ontario Shoreline Management Plan for the Lower Trent Region, Ganaraska
Region and Central Lake Ontario Conservation Authority (CLOCA) shoreline, and
to seek Board endorsement to proceed with a funding application under the
National Disaster Mitigation Program for the project.
Background
During a period of high Great Lakes water levels, the provincial government
appointed a Shoreline Management Review Committee in 1986 to study the long-
term management of the Great Lakes shoreline. In October 1986, in response to
the committee's report, the ministers of Municipal Affairs and Natural Resources
designated conservation authorities "as agencies responsible for the
implementation and administration of [provincial] policies" related to flooding and
erosion hazards. Further, the province directed that mapping should be undertaken
to identify shoreline hazard areas and that such mapping and shoreline
management planning should be undertaken by conservation authorities.
In response, GRCA, in partnership with the Lower Trent Region Conservation
Authority (LTRCA) and CLOCA, commissioned a coastal engineering study to
provide shoreline management direction for their respective reaches of Lake
Ontario Shoreline. The consulting firm of Sandwell Swan Wooster Inc. was
retained to prepare the Lake Ontario Shoreline Management Plan, which was
completed in December 1990 (Sandwell Report).
The Sandwell Report: inventoried existing structures on the shoreline; reviewed
coastal processes on the shoreline; defined flood and erosion limits for the study
area; identified concentrations of natural hazards in conflict with existing
development in specific shoreline `Damage Centres'; reviewed environmentally
sensitive areas; shoreline protection concepts and land use considerations.
GRCA Regulatory Authority
GRCA's regulatory powers under Section 28 of the Conservation Authorities Act
prior to 2006, as implemented through the former Ontario Regulation 168, were
not specifically designed for the Great Lakes shoreline and focused on flooding
hazards associated with riverine systems. Under the former Regulation, the tests
Staff Report: Lake Ontario Shoreline Management Plan Page 2
for approval did not include dynamic beaches and were limited to "the control of
flooding or pollution or the conservation of land."
In the spring of 2006, with the enactment of GRCA's current regulation, Ontario
Regulation 168/06 - Development, Interference with Wetlands and Alterations to
Shorelines and Watercourses, GRCA's regulatory powers were enhanced to deal
specifically with Great Lakes shoreline hazards and to more closely align with
provincial natural hazard management imperatives established under the Planning
Act and Provincial Policy Statement. Ontario Regulation 168/06 established a
prohibition on development in the absence of a permit on all lands adjacent or
close to the shoreline of Lake Ontario. Presently, GRCA has the ability to evaluate
development proposals against the following expanded set of statutory tests: "the
control of flooding, erosion, dynamic beaches, pollution or the conservation of
land". The Sandwell report has provided the Lake Ontario flood and erosion limits
required for our regulation, determination of shoreline damage centres, and
recommendations for managing development within hazardous shoreline areas.
The Sandwell study is now 27 years old, and although it continues to be a valuable
tool and an often used reference, an update to the Shoreline Management plan is
required. Since the completion of the Sandwell report, there has been physical
changes to our shoreline including 27 years of shoreline erosion and adjustment,
numerous protection works on both private and public lands, municipal acquisitions
within shoreline damage centres and replacement of residential lots with municipal
parkland, and additional development on private lands.
In recent times, there have also been developments with Lake Ontario water levels.
The International Joint Commission has established a new Lake Ontario water
level plan that will allow for slightly more fluctuation in Lake Ontario water levels.
Unusual weather led to the breaking of previous records and we recently
established unprecedented high water levels. Climate change predictions for our
region foresee warmer, wetter, wilder weather, which now needs to be a
consideration in management of our shoreline. Fortunately, we also now have
technological advances, including better digital imagery, that will improve the plan
from the 1990 version.
The update to the shoreline management plan has been considered by GRCA for
some time.
The Study
The intent of this project is to create a coordinated approach to shoreline
management planning for the entire length (approximately 135 km) of the north
shore of the Lake Ontario Shoreline within the County of Northumberland and the
Regional Municipality of Durham within the boundaries of the three Conservation
Authorities. The portion of Durham Region, covered by the Toronto Region
Conservation Authority (TRCA), is addressed through shoreline management
Staff Report: Lake Ontario Shoreline Management Plan Page 3
plans prepared by TRCA. This technical study will be developed as a single project
with supervision and administration by all three Conservation Authorities.
While consistency along the LTRCA, GRCA and CLOCA shoreline is desired,
some reaches of the shoreline are unique and will require unique
recommendations. Additionally, a plan of this scope eliminates the retention of
multiple consultants, and streamlines meeting and administrative costs; translating
into real cost savings.
The benefits of a coordinated 3 Conservation Authority shoreline management
plan would include:
1. Recognition of littoral cells. Coastal processes that cross municipal and
watershed boundaries.
2. An up-to-date study of the Northumberland County and Durham Region
shoreline (outside of the TRCA jurisdictional area) would provide a more
accurate investigation into the dynamics of the entire extent of the shoreline
rather than sectional or watershed views.
3. Provision for a consistent management approach throughout the Regional
Municipality of Durham and Northumberland County. The consultant will
review existing management plans abutting the study area to ensure
consistency across municipal jurisdictions. The Plan will provide consistent
direction for managing shoreline issues on private lands.
4. A joint plan could be incorporated into the Northumberland County and
Durham Region Official Plans to be reviewed and be updated every five
years. The technical assumptions would be reviewed regularly to ensure
that they are still appropriate for use.
Funding
The estimated cost of completing the Shoreline Management plan is $300,000.
This cost includes work by a coastal engineering company to:
x review background material,
x conduct field work,
x complete technical analysis and modelling,
x report all findings and recommendations,
x prepare mapping,
x incorporate public input.
The three Conservation Authorities are submitting an application under the 4th
intake of National Disaster Mitigation Program (NDMP), and if successful, will be
able to recover 50% of the project cost through the federal grant. The NDMP is a
Public Safety Canada investment of $200 million to address rising flood risks and
costs, and build the foundation for informed mitigation investments that could
reduce, or even negate, the effects of flood events in the future. The
Staff Report: Lake Ontario Shoreline Management Plan Page 4
announcement of successful applications is scheduled for early 2018, and projects
in the NDMP must be completed within two years.
The Three Conservation Authorities, GRCA, CLOCA and LTRCA will be
responsible for one third of the study cost beyond the grant funding. GRCA will
include this item in our 2018 budget as a special request for municipal funding.
CLOCA
$
50,000.00
GRCA
$
50,000.00
LTRCA
$
50,000.00
N DMP
$
150,000.00
Total Funding:
$
300,000.00
With the completion of the Shoreline Management Plan, each Conservation
Authority will have the technical component for shoreline management. To fully
utilize the Plan, the Study findings need to integrate into core programs, by adding
natural heritage information, and incorporating study findings into regulations and
planning, flood forecasting and warning, stewardship, and education programs.
Municipalities will also be able to incorporate the Study findings into individual
municipal official plans, zoning by-laws, shoreline plans, and strategies. The
integration of the plan by conservation authorities and municipalities will be future
phases of shoreline management, and should be considered for future work
planning and budgeting.
RECOMMENDATION:
THAT this Staff Report be received for information, and that the Board of Directors
endorse the submission of a funding proposal to the National Disaster Mitigation
Program for the Lake Ontario Shoreline Management Plan for Lower Trent Region,
Ganaraska Region and Central Lake Ontario Conservation Authorities.
Prepared by:
Recommended by:
Mark Peacock, P. Eng.
Director, Watershed Services
Linda J. Laliberte, CPA, CGA
CAO / Secretary -Treasurer