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HomeMy WebLinkAboutFlood Control & Water Conservation Advisory Board 1975 The Melbro]pclli tatn\ 1I' otrotn\to am\d ~egion C-l C01Menatnom\ Authoni ty MHMlU1rES> Flood Control & Water Cons. Adv. Board Wednesday-October-29-1975 #1/75 The Flood Control and Water Conservation Advisory Board met at the Authority Office, 5 Shoreham Drive, Downsview, on Wednesday, October 29, 1975, commencing at 2:00 p.m. PRESENT WERE Chairman J. Carroll Vice Chairman Wm. R. Herridge, Q.C. Members C.F. Kline Dr. G. Ross Lord J.G. Mottershead H. Westney Chairman of the Authority R.G. Henderson Secretary-Treasurer F.L. Lunn Adm. - FC&WC Division E.F. Sutter Dir. - Planning & Policy W.A. McLean ABSENT WERE Members C.H. Chandler R. Cunningham Dr. M.L. Dobkin F.J. McKechnie G.A. Williams MINUTES The Minutes of Meeting #3/74 were presented. Res. #1 Moved by: C.F. Kline Seconded by: J.G. Mottershead RESOLVED THAT: The Minutes of Meeting #3/74, as presented, be adopted. CARRIED UNANIMOUSLY; STAFF PROGRESS REPORT A Staff Progress Report covering the period January 1 to date covering the status of various Projects of the Authority was presented. A detailed discussion took place having regard to Project W.C.63 - Extension - Plan for Flood Control and Water Conservation, and its present status. Res. #2 Moved by: J.G. Mottershead Seconded by: C.F. Kline RESOLVED 'IHAT: The Staff Progress Report January 1 to date be received with appreciation. CARRIED UNANIMOUSLY; C-2 -2- FLOOD CONTROL AND WATER CONSERVATION - A REVIEW - 1957-1975 A comprehensive review of programmes and policies on Flood Control and Water Conservation, 1957 to 1975 was presented by the staff. Res. #=3 Moved by: J.G. Mottershead Seconded by: Wm. R. Herridge, Q.C. RESOLVED THAT: The review on Flood Control and Water Conservation by the Authority, 1957 to 1975 be received and appended as Schedule "A" of these Minutes. CARRIED UNANIMOUSLY; ONTARIO REGULATION #=735/73 AMENDMENT TO SCHEDULES A staff communication was presented having regard to amendments to Ontario Regulation #735/73 - Regulation made under The Conservation Authorities Act - pill, Construction and Alteration to Waterways. Res. #4 Moved by: J.G. Mottershead Seconded by: Wm. R. Herridge, Q.C. RESOLVED THAT: The staff communication having regard to amendments to ontario Regulation #735/73 - Regulation made under The Conservat- ion Authorities Act - Fill, Construction and Alteration to Waterways, be received; and THE BOARD RECOMMENDS THAT: The staff be authorized and directed to take the necessary steps to amend the Schedules accompanying Ontario Regulation #735/73 - Regulation made under The Conservation Authorities Act - Fill, Construction and Alteration to Waterways, in accordance with the updated mapping as presented to the Flood Control and Water Conservation Advisory Board on October 29, 1975. CARRIED UNANIMOUSLY; ADJOURNMENT On Motion, the Meeting adjourned at 4:05 p.m., October 29. J. Carroll F.L. Lunn Chairman Secretary-Treasurer SCHEDULE "A" C-3 TO: Flood Control and Water Conservation Advisory Board, #1/75. RE: Flood Control and Water Conservation: A Review 1957-1975 INTRODUCTION: At a point in its history when the Authority appears to be at a standstill in its flood control and water conservation work, it is appropriate to take the opportunity to review the programmes and policies which have been pursued in the past and relate these to the goals which the Authority has established for itself. The Metropolitan Toronto and Region Conservation Authority was established in 1957 as an amalgamation of four previous Authorities and, while recognizing the need to set some overall goals and policies for water management, it was also recognized that some work should proceed immediately. Accordingly, in the first couple of years of the Authority's existence, a number of individual water control projects were undertaken covering problem areas indicating extreme priority. Individual Water Control Projects Individual projects undertaken to solve problems at specific locations were numerous and varied. These included the establishment of a pumping station at Goodwood, the acquisition of flood plain lands at various locations on the Hl..nber River, the Etobicoke Creek, the Don River and the Highland Creek. By 1960, the Authority had acquired approximately 1,000 acres, largely along the main valley systems within Metropolitan Toronto. In addition, some projects included channel improvement works to correct damages incurred at the time of Hurricane "Hazel" and to prevent further deterioration of conditions within the valleys. As a background working measure toward the development of a compreh~nsive plan, flood line mapping was prepared for all the main valleys in the area under the Authority's jurisdiction. Plan for Flood Control and Water Conservation During the period 1957-1959, much of the effort of the Authority was devoted to the development of a comprehensive Plan for. Flood Control and Water Conservation throughout its 1,000-square-mi1e area of jurisdiction. The flood control measures recommended in this Plan consisted of a series of dams and reservoirs to impound flood water, the improvement of stream channels at critical points to facilitate the operation of the dams and reservoirs, and the acquisition of certain tracts of vulnerable flood plain land. Flood Control was not the sole purpose of the proposed remedial measures. Four other considerations were of vital importance: C-4 RE: Flood Control & Water Conservation: 2. A Review 1957-l975 ( 1) Regulation of summer flow as a pollution abatement measure; (2 ) Use of reservoirs as artificial recreation lakes; ( 3) Control of bank erosion; ( 4) Provision of a ring of water supply sources around the Metropolitan Toronto area for emergency purposes. Major works proposed under the Plan fall into three categories ( a) dams and reservoirs (b) channel improvements ( c) flood plain and conservation land acquisition The darns included: . ClairevilJ e . Ebenezer . Bolton . Nashville . King Creek . Boyd Finch (G. Ross Lord) " . . Willowdale ; . Snelgrove . Milne . Arthur Percy . Clarkes Hollow . West Hill Channel improvements were proposed on the Humber River at Woodbridge, on the West Don River through the York Mills valley, and on the Black Creek from the vicinity of Jane Street and Wilson Avenue downstream to meet the existing channel at Scarlett Road. With regard to flood plain land, the proposed acquisition programme is indicated on the following table: MASTER PLAN ACREAGES OF FLOOD PLAIN & CONSERVATION LANDS SEMI- TOTAL WATERSHED PUBLIC PRIVATE PRIVATE AUTHORITY ACREAGE Etobicoke 662 1,413 330 8 2,413 Mimico 316 555 132 --- 1,003 Humber 667 1,774 266 271 2,978 Don 1,485 790 700 518 3,493 Rouge 157 1,185 11 40 1,393 Highland 247 570 219 377 1,413 Duffin's 102 1,158 56 --- 1,316 GRAND TOTAL 3,636 7,445 1,714 1,214 14,009 C-5 RE: Flood Control & Water Conservation: 3. A Review 1957-1975 It is important to note that the proposed programme did not rely on a single-purpose approach to water management but, in fact, embraced a variety of approaches to develop a balanced system. It is further important to note that the physical programme of construction of dams, channels and acquisition of land was to be further supplemented by the development of a flood warning and fore- casting system. The policy of The Metropolitan Toronto and Region Conservation Authority with respect to flood control measures is based on the following premises: ( 1) While a complete programme of protective works, based on full development of potential reservoir sites, would be desirable, it is not economically feasible to protect every vulnerable area in such a manner. (2) A programme of protective works without a companion programme of flood land acquisition is undesirable because it could not afford the necessary protection to all areas; and because a disproportionately large share of benefits would accrue, not to the public but to a small number of private owners. ( 3) A programme of flood plain acquisition without a companion programme of protective works is nndesirable because it is not feasible to condemn certain public properties and certain densely developed vulnerable areas. Also, protective works are necessary to permit the full development of any acquired lands as conservation areas and parks. (4 ) Although it is an effective measure, municipal action involving zoning and land-use restriction is limited in its scope of application, because (a) it cannot be readily applied to all existing developments, and (b) it would be inequitable to apply it without compensation in those cases where both long-term and speculative short-term investments have been made in good faith by land developers. Where land is currently being used for purposes other than commercial and housing develop- ment, and where the land is eminently suitable for those purposes (e.g. farming), zoning and land-use restrictions are reasonable measures. (5) Social and economic considerations demand that any reservoir developments should serve multiple purposes, with recreation and summer flow regulation second only to flood control as deciding factors. (6 ) Since the streams are vital to the health and social welfare of the people, and since they constitute one of the few remaining potential conservation areas in a growing urban centre, they should be utilized to provide the maximum benefit for the maximum number of people. Based on the above premises, it is the flood control policy of The Metropolitan Toronto and Region Conservation Authority to pursue a comprehensive programme of flood control measures, consisting of a combination of ( I) the construction of protective multi-purpose dams and reservoirs and protective channel improvements; and (2 ) the C-6 RE: Flood Control & Water Conservation: 4. A Review 1957-l975 acquisition of flood plain land at equitable prices wherever feasible and the zoning and regulation of flood plain lands where acquisition is not feasible or desirable. Further, it is the policy of the Authority to pursue a comprehensive programme of ancillary conserv- ation measures and a programme of development of recreation and park lands in such a way as to maximize and perpetuate the benefits bestowed by nature. With respect to the design of dam spillways, the Authority's policy is as follows: (I) To safeguard downstream communities and human life, all dam spillways must be designed to prevent over- topping and destruction of the dams. All spillways will be designed to carry the maximum possible flow produced by the maximum possible rainfall. (2 ) By the same token, all downstream spillways are designed to carry the maximum possible flow that could result if upstream dams were rendered inoperative by virtue of overfull reservoirs or structural failure, thus making each dam independent of others for safety. While originally projected as a IO-year programme, it is not necessary to detail the impact of the inflationary spiral both in land values and in construction costs to establish that that original objective could not be met. Accordingly, the Authority adopted a 5-year extension to the Plan, known as Project W.C.63, in 19 71, which was to provide funding for the period 1971-1975 inclusive. This project confirmed the previous policies and objectives of the Authority with regard to flood control and was an extension in terms of time and finances only. Again, inflationary pressures led to the commitment of these funds .to the extent that a further extension to the Plan was required. In 1974, the Authority adopted Project W.C.63 Extension to provide funding for the period 1975-1979. Although this project has received the approval of all member municipalities, it is now more than a year since it was submitted to the Province of Ontario for approval and financial support and, as yet, no formal response has been forthcoming. In spite of financial limitations, the Authority has made considerable progress toward the implementation of the Plan, and work completed to date is summarized as follows: DAMS AND RESERVOIRS: Construction has been completed and dams are operational at the Claireville, G. Ross Lord and Milne sites. Under a separate financial assistance programme, the Authority was also able to complete a small dam on the Duffin's Creek at Stouffville. Final engineering and contract documents have been prepared for Snelgrove, Bolton and Arthur Percy, and preliminary engineering has been completed for all the remaining dams. C-7 RE: Flood Control & Water Conservation. 5. A Review 1957-1975 CHANNEL IMPROVEMENTS: Channel improvement works have been completed on the Humber River at Woodbridge and on the West Don River in the York Mills valley, as well as approximately 60% of the channelization of the Black Creek. Final engineering is complete for the remaining portion of the Black Creek channel. LAND ACQUISITION: Land acquisition to December, 1974 is shown on the accompany- ing table. In 1974, the Authority adopted a Revised Master Plan for Flood Plain and Conservation Lands, including a Review and Extension. This revised Master Plan has been submitted to the Ministry of Natural Resources for approval: however, this is not anticipated until the Province has dealt with the request for the Extension to W.C.63. FLOOD WARNING AND FORECASTING: The Authority has established initial components of a flood warning and forecasting system, involv~ng a series of 8 recording rain gauges, 20 recording stream gauges, plus approxi~Jtely 50 manually-read rain gauges located strategically throughout the area. Refinements are continually being considered for this system and, at the present time, consideration is being given to the establish- ment of a radio communications system which would be linked with the Ministry of Natural Resources radio system. REGULATIONS: As a means toward achieving the objectives of land acquisition and management of the valley systems, the Authority has .made regulations under the provisions of the Conservation Authorities Act to control filling, construction and alteration to waterways. The first regulation was adopted by the Authority in 1959 and dealt only with filling below the flood line. Through the years, there have been a number of amendments to the Conservation Authorities Act enabling further amendments to the regulation, leading to the present system which is being administered. Although useful in achieving Authority objectives, it is recognized that the regulation is a temporary expedient at best, and for those areas which have a high priority in the water management programme of the Authority, public ownership is the only satisfactory means of ensuring their protection. PLANNING ,PROCESS: As a further means of achieving Authority objectives, a liaison has been developed with various municipal and provincial agencies involved in the planning process. This liaison ensures C-8 RE: Flood Control and Water Conservation: A Review 1957-1975 6 . an opportunity of reviewing proposals for Official Plans, Zoning By- Laws, plans of subdivision and property severances. Although not 100% successful, the Authority's involvement in this area has, on many occasion.s, helped to influence planning decisions in favour of recognizing the need to protect our waterways and valley systems. EROSION CONTROL: Just as the disaster of Hurricane "Hazel" was a major spur to the development of a flood control programme for the region, it took a disaster in terms of a land slippage in the valley in East York to impress upon the community the need for a major programme in the area of erosion control and river bank stabilization. After several years of a variety of studies and committee deliberations, the Authority was able, in 1973, to adopt a 10-Year Plan and 5-Year Project for Erosion Control and Bank Stabilization in Metropolitan Toronto. This programme has now been operative for approximately one year and already a number of critical problem areas have been corrected and the programme appears to be proving its value. It ~ would be anticipated ~hat this programme will be an ongoing one for many years to come. CONCLUSIONS: From the foregoing, it can be seen that although the Authority appears to be perpetually faced with financial limitations, considerable progress has been made in the area of flood control and water conservation. The Plan, as adopted in 1959, has spelled out in a very rational way the policies and objectives of the Authority in this regard. It has been further supplemented by other policies and programmes, including the Erosion Control Project and the adoption of Regulations. It is supported by comparatively modest Maintenance and Operating programmes. It appears, however, that the Authority has now arrived at a crucial stage, and unless additional capital funding can be made available, to all intents and purposes, we will be out of the vital flood control work which should be one of our main areas of endeavour, except for the carrying out of minor, piecemeal programmes E.F. Sutter, Administrator, Attach. Flood Control and Water Conservation. 29.10.75. EFS/KC. .' . C-9 PIAN FOR Fr.roo CONTroL l\ND t'll\'I'ER CONSEHV7\TIOO , PROGRESS -- DECEMDr~R 31, 1974 ~ _[~n ~ ~p~ PREL. IJ\ND l\CQ' N . ENGINEERING Wl1\.'J'ERSlIED PROJECI' POOP. l\cq' d. '1'0 be I Construction -~ l~--- ~ ~ PLl\N Doc. /74 Acq' d. prel~~~al - obicoke Pl Snelgrove Dam. & Res. X 139 141 Canp. Pro- - qress -- -I P6 Etobicoke Cr. Plcx:xl Plain & Cons. Lands X 149 1,272 - - - mica P7 Mimico Creek Flcx:xl Plain & Cons. Lands X 53 502 - - - ~nber F11 Claireville Dam & Res. X I 1,556 - Canp. Cvmp. Canplete F2 Ebenezer Dam & Res. X 484 253 Canp. - - ~ Bolton Dam & Res. I X 1,542 221 Canp. ~~.~ - __ . _ _ F41 Nashville Dam & Res. X 1,587 350 canpl - L ~ __ --- ~F5 [King Cr. Dam & Res. NO 92 1,107 CCITlf)J --=--1 ----- - *F6 Boyd Darn & Res. X 2,065 20 COI:llPJ - r - _____ F 11 Wcx:xlbridge Channel I 'l P8 r ::::: Fl~. X 78 ---1-C~r Corrp. T .Cc:xnple~e_ ~::'ain & Cons. Lands X 1,495 562 I - - ~m- ___~__ ~~_--=__B~I=31ack Creek Channel X 65 33 Canp. Canp. ~-- --50%- c~-.- ~~ ,n #F7 G. Ross Lord D. & R. X 384 9 Compo Canp. Complete F10 Willavdale Dam & Res. X 264 218 Canp. - - ~_~~~~~~__~I~1 York Mills Channel - Easement Canp. Canp. L- Carplete ~- p9f Don River Flood Plain J _~~___~__~ ~_& Conservation Lands Xl, 052 396 - - - ~_~~_~~_~~ ghland %PIO Highland Creek Flcx:xl Plain & Cons. Lands X 797 188 - - - l~~::___~~~~1 Mi1J1e Dam & Reservoir X 293 - Carp. Canp. I Carplete _ __ PIl Rouge River Flood Plain & Cons. Lands X 1,779 300 - - - ffin P3 Arthur Percy Darn In & Reservoir X 632 44 Compo Fro- - ___ gress +P4 Clarkes HollCM Darn I & Reservoir NO - 600 Compo - 1 ____ - P12 Duffin Creek Flcx:xl Plain & Cons. Lands X 605 550 - - - 15,111 6,766 ReI-'iacc$ "I~ East Branch" Reservoir in order to control additional druinuge area. Finch Dalll & Reservoir has been redesignated the "G. Ross .Lord Dam and Reservoir". 'l11e }'I:.uthority has decided. not to proceed with the West Hill Dam and Reservoir. '!his d<llTl replaces tJle proposed Green River Reservoir, and affords considerably m::>re control of the West Branch of the Duffin Creek.