HomeMy WebLinkAboutFlood Control & Water Conservation Advisory Board 1973
T1h\~ M~1bro1P>onn 1ta\~ 1r <G>1rOm\ to a\m\{tft ~~giio~
<Co~s~rva.1tiiom\ .A\ u1t1h\orn fey C-l
MllNtUTlE5>
Flood Control & Water Cons. Adv. Board Wed-Feb-28-l973 #1/73
.------ -.. - .- ._.
The Flood Control and Water Conservation Advisory Board met at the
Authority Office, 5 Shoreham Drive, Downsview, on Wednesday, February
28, 1973, commencing at 2:00 p.m.
PRESENT WERE
Chairman J.G. Mottershead
Vice-Chairman F.J. McKechnie
Members R. Cunningham
wm. R. Herridge, Q.C.
C.F. Kline
F.D. Mi1us
F.R. Perkins
K.G. Waters
Authority Vice-Chairman R.G. Henderson
Secretary-Treasurer F .L. Lunn
Director of Operations K.G. Higgs
Adm. - FC&WC Division E.F. Sutter
ABSENT WERE
Members C.A. Balsdon
P.V. Godfrey
Dr. G. Ross Lord
V. Yerex .
MINUTES
The Minutes of Meeting #2/72 were presented.
Res. #1 Moved by: C.F. Kline
Seconded by: K.G. Waters
RESOLVED THAT: The Minutes of Meeting #2/72, as'presented, be
adopted.
CARRIED UNANIMOUSLY;
STAFF PROGRESS REPORT
The Staff Progress Report to February 2G, 1972, was presented and
discussed.
Res. #2 Moved by: F.R. Perkins
Seconded by: R. Cunningham
RESOLVED THAT: The Staff Progress Report for the period to date be
received and filed.
CARRIED UNAN.IMOUSLYi
REVIEW OF PROJECT W.C.G3
EXTENSION - P~N FOR FLOOD
CONTROL & WATER CONSERVATION
A Staff communication reviewing Project W.C.G3 - Extension, Plan
for Flood Control and Water Conservation was presented and discussed.
Res. #3 Moved by: C.F. Kline
Seconded by: F.D. Milus
RESOLVED THAT: The review of Project W.C.G3 - Extension, Plan for
Flood Control and Water Conservation be received and appended as
Schedule "A" of these Minutesi and
C-2 -2-
THE BOARD RECOMMENDS THAT: The recommendations contained in the
Staff Report - Review of Project W.C.G3, Extension - Plan for
Flood Control and Water Conservation, as set forth herein, be
adopted:
(a) THAT the Government of Ontario be requested to make cash
flow allocation for the construction of the Bolton, Snelgrove
and Arthur Percy Dams in the period 1973 to 1975 inclusive;
(b) THAT the remaining uncommitted funds in Section II of the
Fund Allocation be utilized for finalizing the acquisition
of lands in connection with the Finch and the Bolton Dam and
Reservoir projects to the exclusion of all other major
reservoirs:
(c) THAT the priorities for the remaining uncommitted funds in
Section III of the Project be designated as follows:
(i) acquisition of Flood Plain and Conservation Lands in
the Lower Duffin Creek Valley:
(ii) land acquisition - Snelgrove Dam and Reservoir;
(iii) Arthur Percy Dam and Reservoir:
(iv) should there still be any funds remaining, these may
be allocated to isolated flood plain .and conservation
land acquisitions within the framework of the existing
Master Plan:
(d) THAT the Staff proceed with the preparation of a further
extension to the Plan for Flood Control and Water Conservation;
(e) THAT all possible alternative sources of funding be investigated
in order to expedite the implementation of the Authority's Plan
for Flood Control.
CARRIED UNANIMOUSLY;
MANAGEMENT OF FLOOD PLAIN
AND CONSERVATION LANDS
A Staff communication having regard to the Management of Flood Plain
and Conservation Lands was presented.
Res. #4 Moved by: F.J. McKechnie
Seconded by: F.R. Perkins
RESOLVED THAT: The Staff communication outlining the Management of
Flood Plain and Conservation Lands be received and appended, as
amended, as Schedule "B" of these Minutes: and
THE BOARD RECOMMENDS THA T: The recommendations contained in the
Staff Report - Management of Flood Plain and Conservation Lands, as
set forth herein, be adopted: .
(a) THAT the Authority utilize every opportunity to accelerate the
programme of land acquisition as it relates to Flood Plain and
Conservation Lands along the major valley~ of the watercourses
within the region under our jurisdiction:
(b) THAT the Authority seek any necessary amendments to The
Conservation Authorities Act to enable a strengthening of the
regulatory powers relative to the placing or dumping of fill,
construction, and alteration to waterways:
(c) THAT the Authority continue and accelerate its programme of
co-ordination with local municipalities relative to the zoning
and regulation of use of flood plain and conservation lands;
-3- C-3
(d) THAT the Authority solicit9r do advise the Staff as to what
additional regulations might be enacted to protect the
Authority, pending amendments to The Act presently being
sought.
CARRIED UNANIMOUSLY:
PLEASANT VALLEY TOURIST CAMP
A Staff communication was presented having regard to Pleasant Valley
,Tourist Camp.
Res. #5 Moved by: F.J. McKechnie
Seconded by: R. Cunningham
RESOLVED THAT: The Staff communication having regard to Pleasant
Valley Tourist Camp be received: and
THE BOARD RECOMMENDS THAT: The recommendation contained in the
Staff Report - Restricted Area By-law 10,203, Town of Mississauga -
Pleasant Valley Tourist Camp, as set forth herein, be adopted:
THAT the recommendations of the Staff, contained in letter dated
January 30, 1968, to the Department of Energy and Resources
Management, be confirmed.
CARRIED UNANIMOUSLY;
IT WAS AGREED THAT the next meeting of the Board be held, as
scheduled, on April 10, 1973, but to commence at 10:00 a.m., rather
than 2:00 p.m.
ADJOURNMENT
On Motion, the Meeting adjourned at 4:55 p.m., February 28.
J.G. Mottershead F .L. Lunn
Chairman Secretary-Treasurer
C-4
SCHEDULE "A"
Review of Project N.C.-63 --
Extension - plan for Flood Control
and Water Conservation:
BACKGROUND:
In June of 1961, the Authority passed a resolution adopting, as
a Scheme of the Authority, a Plan for Flood Control and Water
Conservation which was, at that time, approved by the Goverrunents of
Ontario and Canada. The project envisaged the construction of a
series of dams and reservoirs in the upstream areas of the main drain-
age systems passing through the area under the Authority's jurisdiction,
combined with certain channel improvements and the acquisition of
flood-vulnerable lands in the main downstream valley areas. The Plan,
as approved in 1961, anticipated the completion of the various works in
the total system by 1971.
It was not possible, however, to complete the' implementation of
all the proposals in the Plan, due in large measure to rising costs,
particularly of land and construction. Accordingly, in 1971, the
Authority adopted Project W.C.-63 - itA Project for the Extension of the
Plan for Flood Control and Water Conservation". This Project
confirmed the policies of the Authority with respect to flood control
measures, and reconfirmed the basic Projects to be implemented in the
total system. The Extension referred primarily to an extension in
terms of time and of additional financing.
Table I indicated the progress for the Plan to December 31,
1970.
Project W.C.-63 makes provision for financing of work for the
period 1971 to 1975 inclusive, and the-following is a summary of work
proposed for the period under the terms of the Project:
F~nch Dam and Reservoir
While the Plan for Flood Control recommended three dams and
reservoirs on the West Don River, a subsequent engineering study
indicates that the same total storage capacity can be provided more
economically by increasing the size of the Finch Dam and eliminating
the Haviland and Westminster structures. Direct savings result from
a reduced acreage of land to be acquired and from the construction of
only one instead of three spillway structures, each of which would have
required nearly the same capacity.
The proposed damsite is on the West Don River approximately
1,000 feet north of Finch Avenue. The dam will be an earthfill
struc~ure, 65 feet in height, with spillway works including a gated
concrete chute for flood flows and a low-level discharge tube for
regular flows. Among the sections of the drainage area to receive
direct flood protection are the York Mills valley and the Ontario
science Centre. A permanent pool of nearly fifty acres will provide
same potential for public recreation.
121ton Dam and Reservoir
The proposed Bolton Dam on the Main Humber River will occupy
Parts of Lots 10 and 11, Concession 6, Albion Township, about half-a-
mile northwest of the Village of Bolton. The dam is to be a rolled
earth structure, with a concrete spillway section. The dam will be
C-5
TABLE I
PLAN FOR FLOOD CONTROL & WATER CONSERVATION
PROGRESS - DECEMBER 31. 1970
PRE. LAND ACQUISITION ENGINEERING
WATERSHED PROJECT PROP. Acquired To be CONSTRUCTION
PLAN Dec.1970 Acquired Prelim~nary Final
Etobi.coke PI Snelgrove Dam & Res. X III 192 r complet;! - I -
P6 Etobicoke Creek Flood
Plain & Cons. Lands X 77 1,163 - - -
Mimico P7 Mimico Creek Flood
Plain & Cons. Lands X 4 554 - - -
Humber Fl Claireville Dam. & Res. X 1,554 12 Complete Compo Complete
F2 Ebenezer Dam & Res. X 321 416 Complete - -
F3 Bolton Dam & Res. X 1,369 231 Complete - -
F4 Nashville Dam & Res. X 1,084 502 Complete - -
--
F5 King Creek Dam & Res. No 92 1,108 Complete - -
'. .
---
*F6 Boyd Dam & Reservoir X 2,065 15 Complete - -
Fll Woodbridge Channel
Improvement X 77 - Complete Compo Complete
P8 Humber Flood Plain
& Cons. Lands X 1,277 742 - - ...
Bl Black Creek Channel X 60 38 Complete Compo 50% C6mp.
Don *F7 Finch Dam & Reservoir X 297 120 Complete Compo -
FIO Willowdale Dam & Res. X 251 259 Complete - ''''.;
. . ~ . :..i ,;,L.......
F12 York Mills Channel - Ea ement Complete Compo Complet'e
.. -
P9 Don River Flood Plain
& Congo Lands X 745 580 - - -
Highland %PIO Highland Creek Flood
Creek Plain & Cons. Lands X 786 126 - - -
Rouge P2 Milne Dam & Reservoir X 293 - Complete Compo Complete
Pll Rouge River Flood
Plain & Cons. Lands X 1,257 1,007 - - -
Duffin P3 Arthur Percy Dam
& Reservoir X 610 50 Complete - -
tIlP4 Clarkes Hollow Dam
& Reservoir 1\[0 - 600 Complete - -
P12 Duffin Creek Flood
Plain & Cons. Land X 568 680 - - -
12,898 8,395
· Replaces "Lower East Branch" Reservoir in order to control additional
drainage area.
I Amended as result of Watershed Study to an enlarged structure replacing
the previously proposed Finch, Haviland and Westminster Reservoirs.
~ The Authority has decided not to proceed with the West Hill Dam & Reservoir.
_ This dam replaces the proposed Green River Reservoir, anq affords
considerably more control of the West Branch of the Duffin Creek.
C-6
RE: Review of Project W.C.-63: 2.
95 feet high, with a maximum reservoir depth of 90 feet at the dam.
This dam will produce a reservoir with a maximum surface area of 700
acres and a maximum storage capacity of 24,400 acre feet. This
storage will afford direct flood protection for the Village of Bolton
and the Village of Woodbridge, and will further augment control of
flood flows downstream of Thistletown through Metropolitan Toronto.
This reservoir will also afford some potential for recreation on a
passive basis, as outlined in the Plan for Ancillary Measures.
Arthur Percy Dam and Reservoir
The proposed Arthur Percy Dam is to be constructed on the East
Branch of the Duffin Creek near the southerly limit of the Greenwood
Conservation Area. The dam is to be an earth-fill structure with a
low-level service spillway constructed in the earth embankment near
the Creek bed, and a high-level auxiliary spillway on the high ground
at the abutments. The dam will be 65 feet high. The resultant
reservoir will have a storage capacity of 5,500 acre feet, a maximum
reservoir area of 210 acres, and a permanent recreation pool of about
100 acres.
Construction of the Arthur Percy Dam will afford a measure of
protection for the Village of Pickering and adjacent Pickering Town-
ship lands by controlling the flood flows from the East Branch of the
.Duffin Creek. The permanent lake will provide the basis for a major
recreational facility in the eastern portion of the region under the
jurisdiction of the Authority.
Snelarove Dam and Reservoir
The Snelgrove Dam and Reservoir is proposed for the Etobicoke
Creek, some 4 miles north of Brampton on the east side of Highway
No. 10 near Snelgrove.
The potential storage capacity of 4,500 acre feet will provide
some measure of downstream flood protection, will be of considerable
value in the augmentation of summer flow, and be available for limited
recreational use. The dam will be 44 feet high and will be a rolled
earth structure with concrete spillway section for regulation of
reservoir level.
Reservoir Lands
Reservoir land acquisition is to proceed with priority being
given to finalizing the purchase of those lands currently under
expropriation. The next priority will be given to the acquisition
of those lands necessary to complete the construction of the FinCh,
Bolton, Arthur Percy and Snelgrove Reservoirs.
Other reservoir lands may be acquired within the framework of
funds remaining in any given year, with emphasi's being placed on the
Ebenezer site.
Table II indicates the provisions for financing as
tncorpora~ed in the Project.
C-7
TABLE II
.
0 0 0 0 .
0 0 0 0 .. Q)
~ . . . . CI) ~
0 0 \0 \0 > Q) to
~ &n &n r-- r-- o..t Q) ~ RS
N qo r-- qo (/) ~ ~
E-t .. .. .. .. ::3
\0 &n 0\ .... r..t .. ~'g
&n &n lil r-- U ~ ~
0 CO qo ~ c: .... 0 ~ t
.. .. .. .. ...t o..t
~ r-- lil qo ) ~ RS RS
~ &n c: CI) ~
0 r-- ~ CI) >- ~
0\ m e ca
.... 0 (/) 0
0 0 0 u m ~ CI)
0 0 0 0 CI) ~
lil . . . ~ CI) (/) ~
r-- 0 \0 \0 'fi m RS
0\ I In r-- N .... ca Q) c::
r-I I qo N r-- r-- >- o..t
I .. .. .. 0\ ~ '0
I &n ("II r-- r-I 0 CI) 6 '0
In .... N ~:f.J N CI)
~ In 0 ~ ~~ m CI) ...t .t '0
.. .. .. inr--.... ~ ~ r-I ::3
.... .... ~ 0 ("II~~ &n&n RS RS r-I
0 .... Q) .c: g. ~ U
>- m c:
(I) o..t o..t
(I) (/) ~
0 0 0 0 I I I I I I ~ - (I) 0 II)
0 0 0 0 ~~ ~ 0.-1
. . . .
qo 0 0 0 0 0 0 trI.... ~ ~
.... lil 0 0 In ca...t ...t c: ~ ~ 0.-1
0\ N 0 In r-- 'i~ ~ o..t ,g 0 ~
.... .. .. .. .. ftS ~ (I) (I)
'1:1' O. .... In fa~ ~ ~. c:: ~ c::
\0 0 .... ~ c: '0 ~ 0 (I)
("II \0 0\ CO 00 0 o..t .Q
.. .. ~ ~ 0
.... ("II ~~ ~ U Q) ~ ~ ~
0 o 0 0 o~ t: 0 0
c.. '0
~~ ~ 0 o Q) ~
~ ,t'S:::S::: ~; Jot Jot '0 c:
(I) CI) ~ c.. o..t Q)
0 0 0 0 ..t tee .~ a · > a
0 0 0 0 ~ ro trI Q) 0
M . . . . o Jot Jot o Jot .rot c:: .c: Jot 0
.... 0 0 0' 0 z ~CI)~ z~ fi .... ~ c.. o..t
0'\ 0 0 0 0 ~ ~
r-I 0 0 0 0 ~ ~88 ~8 ...t c: ro Jot
.. .. .. .. ..., ~ 0.-1 RS 8.
qo 0 ("II \0 0 (I)
\0 0 .... M c: m >- fi
N \0 0\ CO ~ (I) Q) Jot
.. .. .. II) .Q ...t 0
.... ("II 1I1 0 ~ ~ Q)
0 .rot u (/) o..t U t:
II) RS r-I Q)
ns Q) ftS \.4
.Q fi '0 c.. ..-1
II .. .. CI) o..t 0 .
0 0 0 0 trI ..... ("II ~ ~ u ~
0 0 0 0 c: ..., ftS o..t .... c:
. . 0 . .... ~ ~ ~ 0 s c:: RS I
N 0 0 0 0 ~ i c..
.... 0 0 0 0 H H H (I) o..t o..t
0\ 0 0 0 0 .... f3 f3 f3 ~ m u trI
.... .. .. .. .. .... ftS CI) Jot o..t RS
qo 0 ("II \0 0 rr:I ~ rr:I i '0 i ~ fa
\0 0 .... M ..., en en en
("II \0 0'\ CO D' 2:
.. .. CI) to c:
r-I ("II 'fi ~ o..t 2: (I) to
(I). o..t .! fi Q)
Q) u
8 Q) fi \.4
II) II) a ::s
...t (I) 0
0 0 0 0 ro RS ...t 0 II)
0 0 0 0 Q) ~ ..., ..., '0 Q)
. . . . CD .. .... Q) ell:
.0 0 0 0 0 CD ~ .... '0 II)
.... 0 0 0 0 g. CI) ca Q) ftS i
.... 0 0 0 0 .... ~ c: .Q
0'\ .. .. .. .. ~ .... fD 0
.... qo 0 N \0 c.. ..t Z CJ o..t fI)
\0 0 .... M .... .... .... RS ~
("II \0 0\ co m '" ~ i Jot
.. .. .... 8. .. Jot
.... ("II c.. ~ ~
0 0 0 (I). 8' t.
Jot '" ...t rr:I
...t Et ....
~ ! '" IH
c.. 0
i orot
~ e .. u ...,
.... ("II ~ I c: CI) o..t c:
~ .... .&:; .... Jot ~ Q)
~ ~ ~ fI) .... .... r-I 0 ,e
"I g .... ~ ftS IH ....
H H .... ~ CI) ~
~ ~ ~ rr:I Q) ! fi \.4 '0 8.
CI) CI) o..t
rr:I ra1 I'll ~ t: CI) .c: orot ~ ftS Q)
en en en "' E-c :. II) 0
C-8
RE: Review of Project W.C:-63: 3.
FLOOD PLAIN AND CONSERVATION LANDS:
On February 9, 1962, the Authority adopted a Master Plan
for Flood Plain and Conservation Lands, which Master plan was
approved by the Province of ontario. on August 20, 1962. This Master
Plan was an elaboration of a Policy Statement pertaining to Flood
Plain and Conservation Lands as adopted by the Authority on May 12,
1961. In this policy statement, flood plain lands were defined as
including the area adjoining the river or stream which has been or
may hereafter be covered by flood water. Conservation lands as
applied to the lower sections of the main valley systems means' all
lands included in the main valley systems from one crest of the
valley to the opposite crest and which contain within them steep
valley slopes, low-lying marshy areas, flood plain lands, f100dways
and river beds. It is further the policy of The Metropolitan
Toronto and Region Conservation Authority to acquire flood plain and
conservation lands in the downstream sections of the main valley
systems under the jurisdiction of the Authority.
.
Acquisitions within this category would be in accordance
with funds available from year to year and from within the framework
of the Master Plan. Emphasis would be placed on those areas which
would 'consolidate or complete acquisition programmes for such areas
as the Lower Rouge valley and the West Branch of the Humber River.
PRESENT STATUS:
"
Work has proceeded under the Project to the extent that in
this, the third year of the Extension, construction is nearing
completion for the Finch Dam and Reservoir. Final Engineering is in
progress for the Bolton, Arthur Percy and Snelgrove Dams and
Reservoirs and will be complete to the point that tenders could be
called prior to the end of the current year. Land acquisition has
also been proceeding apace.
Table III is a detailed breakdown of the present sta~us of
" the overall Plan.
In light of physical progress, spending - of course - has
proceeded, and Table IV provides a summary of the current status of
the financial aspects of the Plan.
SUMMARY AND CONCLUSIONS:
In summary, Project W.C.-63 is now in Year 3 of a projected
S-year programme. Engineering work is proceeding on schedule, as
iso construction of the Finch Dam and Reservoir. The acquisition of
lands is proceeding as negotiations can be consumma~ed, and much of
ebe land acquisition programme is dependent on such properties
'~in9 available and the Authority having adequate funding available
".t the appropriate time.
Proceeding with the construction of additional dams will be
eontingent on two factors:
(a) The Province of Ontario making sufficient capital
monies available in the cash flow allocation to
permit construction of any current assistant
programme;
TABLE III C-9
PLAN FOR FLOOD CONTROL & WATER CONSERVATION
\
PROGRESS - DECEMBER 31, 1972
------- - -
~ PRE. LAND ACQ'N.
WATERSHED PROJECT PROP. Acq'd. To be ENGINEERING CONSTRUCTION
PLAN Dec/72 Acq'd. prel. F!na1
In
~1:obicoke P1 Snelgrove Dam & Res. X 113 167 Comp. ~i= -
P6 Etobicoke Cr. Flood \
Plain & Cons. Lands X 135 1,286 - - " -
timico P7 Mimico Creek Flood
Plain & Cons. Lands X 4 551 - - -
iiumber Fl Clairevi11e D. & R. X 1,527 12 Comp. Comp. Comp.
I _
~
F2 Ebenezer Dam & Res. X 484 253 Comp. - -
F3 Bolton Dam & Res. X '..1,509 200 Comp. In I
Pro- -
cess
\
F4 Nashville D. & R. X 1,492 409 Comp. - -
-
F5 King Cr. Dam & Res. No 92 1,107 Comp. - -
*F6 Boyd Dam & Res. X 2,065 20 comp~ - -
Woodbridge Channei :
Fll
Improvement X 77 - Comp. Comp. Compo
P8 Humber River Flood r
Plain & ~ons. ~~ds X 1,375 682 - - -
Black Cr. Charinei -
Bl X 62 36 Comp. Comp. 50% Cornp.
Don :lF7 Finch Dam & Re~. l X 369 124 Compo Compo -
n
F10 willowdale D. & R. X 262 2~0 Comp. 0_ -
F12 York Mills Channel - Easement Comp. Comp. Compo
---
p9 Don River Flood
Plain & Cons. Lands X 984 464 - - -
-
It'thland %P10 Highland Cr. Plooa
Plain & Cons. Lands X 785 200 - - -
-
ROuqe p2 Milne Dam & Res. X 293 - Camp. Comp. Compo
pll Rouge River Flood
Plain & Cons. Lands X 1,430 500 - - -
~. In
-.efin P3 Arthur Percy D. & R. X 613 35 Comp. -
Pro-
cess
-
~4 o Clarkes Hollow
.. Dam & Reservoir No - 600 Comp. - -
p12 Duffin Creek Plood \
Plain & Cons. Lands X 601 554 - - -
,". ~..
.'
14,272 7,420
.. Replaces "Lower East: Branch" Reservoir in order t:o cont:rol additional
drainage area.
. Amended as result of Watershed St:udy t:o an enlarged struct:ure replacing
~he previously proposed, Finch, Havitand and westminster Reservoirs.
" The Authority has decided not to proceed wi'th the West Hill Dam & Res.
~ This dam replaces the proposed Green River Reservoir, and affords
considerably more control of the West Branch of 'the Duffin creek.
C-10 TABLE IV
FINANCING OF FLOOD CONTROL PLAN & EXTENSION (1971-75)
TO DECEMBER 31. 1972
TOTAL
FUNDS SPENT TOTAL
WC-63 /71-/72 COMMITTED REMAINING
section #1 1,056,250. 528,125. 528,125. 11
Section #2 7,855,450. 5,324,087. 2,133,800. 397,563.
Section #3 5,459,776. 2,538,066. 1,116,500. 1,805,210.
TOTAL 14,371,476. 8,390,278. 3,778,425. 2,202,773.
C-ll
RE: Review of Project W.C.-63: 4.
(b) The Authority being able to complete and fund the
acquisition of the lands necessary for such dams
and reservoirs. In this regard, i~ would appear
likely that at least two of the remaining three
structures will commence construction prior to the
end of 1975. It will be obvious from the
financial summary to date, however, that it is
doubtful that all the objectives of the Project
can be met in the 5-year period.
RECOMMENDATIONS:
With regard to the implementation of Project W.C.-63 - "A
Projec~ for the Extension of the Plan for Flood Con~rol and Water
Conservation II , the following recommendations are made:
1. THAT the Government of ontario be requested to make cash
flow allocation for the construction of the Bolton,
Snelgrove and Arthur Percy Dams in the period 1973 to
1975 inclusive;
2. THAT the remaining uncommitted funds in Section II of the
Fund Allocation be utilized for finalizing the acquisition
of lands in connection with the Finch and the Bolton Dam
and Reservoir projects to the exclusion of all other major
reservoirs:
1
3. THAT the priorities for the remaining uncommitted funds in
Section III of the Project be designated as follows:
(a) acquisition of Flood Plain and Conservation Lands in
the Lower Duffin Creek valley;
(b) land acquisition - Snelgrove Dam and Reservoir:
(c) Arthur Percy Dam and Reservoir;
(d) should there still be any funds remaining, these may
be allocated to isolated flood plain and conservation
land ac~uisitions within the framework of the exist-
. ing Mastel!' Plan;
4. THAT the Staff proceed with the preparation of a further
extension to the Plan for Flood Control and Water
Conservation;
s. THAT all possible alternative sources of funding be
investigated in order to expedite the implementation of the
Authority's Plan for Flood Control.
,
\
i
I
t
~
I
\
I
/
"
(.
\
26.2.73. i
\
\.l
,
'.
I
I
C-12
SCHEDULE "B"
Management of Flood Plain and
Conservation Lands:
INTRODUCTION:
The Metropolitan Toronto and Region Conservation Authority has
undertaken an extensive- programme for the management of flood plain
lands as an integral part of a comprehensive Flood Control Plan. The
purpose- of this report is to review this proc;ramme in its entirety.
'l'he report outlines the rationale of flood plain land man8C38lD8nt,.ane
the historical development of the programme in the Me1:ropolitan
'1'oronto region.
The policies of the Authority that have guided this phase of
its work; the outline of the legislative controls; the acquisition
of flood plain lands; and how the programme is financed, are
included.
CHARACTERISTICS OF THE WATERSHEDS UNDER
THE ~ISDICTION OF THE_M.TGR~C.A&:
The Metropolitan Toronto and Region Conservation Authority has
jurisdiction over one thousand square miles including the drainage
]:)asins of the Etobicoke Creek, Mimico Creek, Humber River, Don River,
Highland Creek, Rouge River, Petticoat Creek, Duffin Creek and
Carruthers Creek. These river valleys are characterized'by' s~eep
gradients with an absence of natural storage areas, and as a result,
floods are a regular occurrence, caused by:
(i) spring E'loods -- snow melt (sometimes accompanied by
warm spring rai..lS and complicated by ice movement);
. (ii) Severe Summer thunderstorms;
(iii) Hurricane storms in late Z\ugust to october, which
regul~rly affect parts of ontario.
All of these river valleys have - under natural conditions -
developed flood plains. The flood plains of the valleys consist of
1:hose areas adjoining the river or stream which have been, or may
hereafter be covered by flood water.
Man's occupancy of the natural storage areas of rivers has
resulted in damages from floods causing loss of life, loss of goods
and disruption to communities. Invasion of flood plain lands by man
has created the need for a variety of flood control measures. The
need for such programmes is gre'ater in areas of intensive urban~
ization such as Metropolitan Toronto
Historically, the flood plains of the rivers in the Toronto
region have been subject to encroachment from the earliest t~es of
settlement. The early pioneers developed the resources of the river
for the production of power for operating mills, and communities were
spawned around these mills. The Town of Bramp~on, Villages of
Bolton, Woodbridge, Stouffville and Pickering are examples of
encroachment on flood pla:tn lands which date back to the pioneer
period. Many comml~ities in Metropolitan Toronto -- such as Weston,
Lamb1:on Mills, Summervill.e and York M.:ll1s are early encroachments
that have been embraced in urban growtho
C-13
REi Management: of Flood Plain and 2.
Conservation Lands:
1" h.. "'-_ ~__.l. . ~- .r.~..
The historical record of floods of these early communities is
,~ll documented and substantiates that the flood plains of the rivers
ln the Metropolitnn region have, always been subject to inundation,
and this phenomena will continue to occur. In fact, the rate of
~caurrence and intensity of floods will increase as natural storage
areas are replaced by. houses, industries and pavements.
The more recent encroachments on flood plains have been much
less justified than the pioneer developments, and are mainly the
results ,of poor planning and inadequate legislative controls.
Examples of these encroachments were the cottages at the mouth of 'the
8tobicoke Creek., at Lon.g Branch; the Raymore Dri.ve area on the HlDnber
River; the cottage development of the Highland, Rouge and Duffin
creeks -- part of which have now been removed, or are in the process
of acquisition ,and removal. Encroachments of the flood plains is
still taking place and will unquestionably continue to take place
with the rapid expansion of Metropolitan Toronto.
These encroachments, however, are of a somewhat different
nature and are taking place as a result of thorough studies, and are
subject to legislative controls. These encroachments consist of
roads, sewers" bridges, parks, telephon'e and gas lines and other
essential urban services.
The Metropolitan Toronto and Region Conservation huthority
~s developed logica~ and rational policies for the management of
flood plain lands as an integral part of a comprehensive Flood Control
'lan and has co-operated closely with the various munieipalities,
Planning Boards and Government agencies in the development and
~lementation of this programme.
Sll..JA,TIONALE OF FLOOD PLl'loIN ; 1. J.\J1\GEMENT :
The need for the management of flood plain lands cannot be
disputed. Trad.i,tion~lly, the approach to flood damage abatement has
been to construct dams, levees, and improve channels that would
~otect investment on the flood plains from flood waters. The United
States has spent billions of dollars in the traditional approach to
flood controls and yet the annual damages as a r~sult of flooding
have continued to rise. The problem is further complicated by the
concentration of greater and greater numbers of people in urban
centres, which results in still further encroachment on flood plain
lands. There is growing concern in the United States that the
traditional approach to flood control is not adequate and management
o~ flood plain lands is absolutely essential.
Wise flood plain management involves the best use of the
~ards and resources as an integral part of the development of the
tegion. Multi-purpose dams and reservoirs, other flood protective
'~e~ures and regulated use of areas marginal to the stream and
t6eervolrs must all be considered.
While the upstream storage reservoirs will be effective in
:::UCing maximum flood flaws, there are not sufficient upstream
':1' rage sites to ~rovide complete flood control ~o protect ,those l.ands
._9inal to t.he r3.vers downstream of the reserV03.rs.
Costly channel improvements will enable the protection' of
'$~~ain critical areas which h~ve already ~een developed for ur~an
. . ~
. .
C";'14
REr Management of Flood Plain and 3.
Conservation Lands:
. . ......1
I . ........ . l' 41... A_
uses. These costly channel improvements can only be justified where
it can be proved that the cost of the acquisition of the flood plains
is considerably in excess of the cost of protective channels or whe~e,
by the construction of channel improvements, new development can ta~e
place to produce increase in assessment which will exceed the cost of
~e flood control works. The Etobicoke Creek at Brampton, Black
creek at Jane and Wilson, and the Don River at York Mills, are
examples of justified channel improvements. In the majority of
cases, the most economic solution to the flood control problem is the
acquisition of the flood plain lands.
The preservation of flood plain lands in the downstream
portion of the valleys is an essential phase of the huthority.s over-
all Flood Control Progr anttne. ~s an example, the Humber River valley,
with six flood control dams completed and in operation, and certain
channel improvements completed, will still be required to store and
safely pass a minimum of thirty-five percent of the flood flows
resulting from the Standard Project Storm centred on the watershed
upstream of Thlst1eto'.m.
The ontario Government and the Conservation authorities have
shown an enlightened approach to the management of flood plain lands
through legislation and programmes, and are an example for many
agencies in the United states to fol10w~
The problem ~f and need for flood plain management in Metro-
politan Toronto, as in other urban centres, is complicated by the
tremendous growth of population, as illustrated in the succeeding
tablet
Inc. Over
Metropt'litan Increase Over Previous
Toronto Previous Y~ M.T.ReC.1\" Year
1954* Population 1,289,333 avo - - -
1955* II 1,289,333 avo * - PRIOR TO FORM1\TION OF MTRCA
1956* n 1,289,333 av. - - -
1957 n 1,311,336 22,003 1,469,422 -
1958 n 1,380,775 69,439 1,549,610 80,188
1959 n 1,429,207 48,432 1,612,521 62,911
1960 .. 1,487,348 58,141 1,679,339 66,818
1961 .. 1,527,105 39,757 1,727,870 48,531
1962 n 1,566,231 39,126 1,777,857 49,987
1963 n 1,608,503 42,272 1,833,304 55,447
1964 II 1,677,708 69,205 1,917,415 84,111
Ontario M.TeR..Co1\__
Population-------1963 6,494,000 1,833,304
Population-------1964 6,637,000 1,917,415
The foregoing shows that the increase of 84,111 in the area
under the jurisdiction of the M.T.R.e.A. for the years 1963-
1964 accounted for 58.82% of the overall provincial increase
in population.
The projected population of 2,500,000 by 1980, and 4,000,000
by the year 2000 appears certain of achievement, and illustrates the
need for some intelligent planning in this region.
C-15
RE: Management of Flood plain and 4.
Conservation Lands:
Development in the Metropolitan Toronto area can take place
in many directions, but there is continual pressure on flood plain
and valley lands. This is due to their inherent qualities from an
aesthetic point of view and from the fact that - except for the flood
hazar~ - they are desirable places to live. It has been the
decision of the ~uthority, recognizing the attractiveness of the
valley lands, that they should be made available to a large extent
for public use. The same qualities are attracting the private person
to the valley lands for his home or apartment building, and are
attracting the public at large to the valleys for recreational
purposes.
THE DEVELOPMENT OF THE PROGRraMME OF FLOOD PLZ\IN Ll\ND
MnNl\GEMENT IN THE METROPOLIT1\N TORONTO REGION:
(a) Prior to Formation of M.T.R.C.~. - 1957
The Conservation Reports prepared by the ontario Government
for the four previous Authorities in the Metropolitan Toronto region,
dating back to as early as 1948, all recommended control of the use
of flood plain lands and, indeed, the earliest - the Humber Report
1948 - was quite clear in its recommendation:
- That encroachment on the natural flood channel
of the river be prevented by proper planning;
and - the R.D.H.P. Report - 1956:
- That, where practical, dwellings within the flood
plains be expropriated and the lands retained for
recreat~ona1 purposes;
- That no further encroachments of the flood plains
be permitted without being carefully investigated
from the standpoint of the flood hazard and their
probable effect upon the passage of flood flo\.,s;
The ~uthorities in the Toronto region in their initial years
d.id not - \fith the exception of the Etobicoke-Mimico, who constructed
the Br~pton Channel and improvements at Long Branch - undertake any
significant flood control measures. The HUlJlber Authority, in the
early 1950's, did consider dams and reservoirs on the West Branch of
'the Humber River, but these works did not proceed.
The occurrence of Hurricane Hazel in October 1954, with the
resulting loss of 81 lives and $25,000,000. damage, provided a
dramatic illustration of the need for Flood Control Measures in the
Metropolitan Toronto region.
The Province of Ontario took the first steps in such a Flood
Control Programme immediately following Hurricane Hazel, when the
Flood, Homes & Building ~ssistance Board was established. The Board
was initially established to provide financial assistance for
properties which suffered damages or were destroyed. The terms were
later broadened and the Board was authorized to acquire f10od-
vulnerable homes. In the Metropolitan Toronto region, the Board
paid damages and acquired lands to the following extent:
C-16
RE: Management of ~lood Plain a~d 5.
Conservation Lands:
D;\M."\GES P :.ID PROPERTY ~CQUIRED
M.T.R.C.l\. ::t $ Jr. $
',r -
Metro Toronto 184 163,095. 349 1,633,723.
Bolton 11 4,073. - -
Ring Township 193 l36,612n 80 143,829.
Vaughan Tannship 36 30,029. 21 107,800.,
Woodbridge 51 39,972.. 40 174 , 1.QQ.:..
TOT 1\L 475 423,781. 490 2,089,452.
The Federal Government contributed 5()o~ of structural damage
costs and 50% of acquisition costs, exclusive of land.
The Report of the Floods, Homes & Building ~ssistance Board,
in its conclusions, recommended:
- that further lands be acquired and that careful
control be exercised over the issuance of
building permits in flood-vulnerable areas;
The Conservation ~uthoritie5 Branch of the Department of
Planning and Development took the initiative in obtaining valuable
flood data immediately following Hurricane Hazel. High "later marks
were. established on all the main rivers in the Metropolitan Toronto
region. Flood line maps were acquired for the Humber River at a
s'cale of 200 I to 111 ;,.lith 5-foot contour intervals, and the flood
lines of Hurricane Hazel 'ITere indicated on these maps.
The Humber Valley Conservation ~uthority obtained copies of
these maps and forwarded them to all of the member municipalities of
the :~u thor i ty , requesting the municipalities to pass by-laws under.
the Planning ~ct prohibiting the construction of buildings in these
flood-vulnerable areas. This action','/as taken early in 1955.. The
first municipality to pass such a by-law was the To~m of Weston, and
this was followed by the Tot:lnship of Etobicoke, and has since been
fol10'lled by some other municipalities in t.he Metropolitan Toronto
region. Not all of the municipalities, hovlever, did pass such by-
laws, which has caused serious problems at later dates.
The Humber Valley Conservation ~uthority in 1955 presented a
Brief to the Federal and provincial Governments, recommending the
construction ,of dams and reservoirs, and channel improvements on the
Humber River. The brief did not incorporate a programme for the
acquisition of flood plain land. The Plan was never implemented.
The Humber Valley Conservation :.uthority, however, did proceed on a
limited scale in the establishment of a Programme for the Management
of Flood Plain Lands. The first ,step in this programme, as
previously mentioned, was the requesting of municipalities to pass
by-laws prohibiting development belo\l the Hurricane Hazel flood
levels.
The next step in the programme "Nas the acquisition of flood
plain lands in the Village of 'Woodbridge, the Township of Vaughan and
in the Township of King. The ~uthority adopted Schemes, and under
agreement with the municipalities and the province, the title to the
lands that had been acquired by The Floods, Homes & Building ~ssist-
ance Board in these areas was transferred to the ~uthority. In 1956,
C-17
RE: Management of Flood Plain and 6.
Conservation Lands:
the ~uthority undertook the preliminary study of flood control
measures for the Humber Valley and engaged the consulting firm of
James F. MacLaren Limited. This Engineering Report recommended
that flood control measures in the Humber Valley should consist of
three elements:
- the construction of large dams and reservoirs
where satisfactory sites were available;
- channelization in the lower sections of the
Humber Valley;
- the acquisition of flood plain lands in the
lower valleys;
The Rouge-Ouffin-Highland-Petticoat Creek Conservation
Authority, soon after its establishment in 1956, initiated the first
Scheme for the acquisition of flood plain lands in the lower Highland
Creek Valley.
The works and reports of the four Conservation ~uthorities in
the Metropolitan Toronto region prior to 1957, formed the basis for
the establishment of a comprehensive Plan and Policy for Flood
Control in the Metropolitan Toronto region.
(b) Since Formation of M.T.R.Con. - 1957:
(i) Ear1v Flood Control ProQramme
The Metropolitan Toronto and Region Conservation Authority,
soon after its establishment in 1957, immediately concerned
itself with the development of a comprehensive Plan for
Flood Control.
The initial step that was taken consisted of obtaining flood
line mapping for all of the rivers under the jurisdiction of
the AuthoritYe These were done on a similar basis to those
originally prepared by the ontario Government for the Humber
River. These maps have been of inestimable value in the
development and administration of the Flood Plain Management
Programme.
The authority, in co-operation with Metropolitan Toronto,
also initiated Schemes for the acquisition of flood plain
lands - notably, in the lower Humber, the Don valley and in
the lower " Highland Creek. These initial Schemes were
financed on the basis of 50% grant from the Province of
Ontario and 50% from Metropolitan Toronto. ~ total of
1,176 acres of Flood Plain Lands was acquired under these
Programmes.
The Authority also proceeded with some additional elements
of a comprehensive Flood Control Plan, and constructed
channel improvements on the Black Creek, Etobicoke Creek,
Don River, Humber River, and a Pumping Station at Goodwood,
and also commenced a programme of establishing and improving
a Flood Warning and Forecasting System.
C-18
RE: Management of Flood Plain 7.
and Conservation Lands:
~
(ii) ReClU1ations
Recognizing that eJcisting lagislation did not enable
municipalities to adequately control encroachments,
particul.arly by 'I;/ay of filling of flood plain lands,
the ~uthority sought and obtained permissive legislation
enabling it to regulate the placing or dumping of fill
on flood plain lands. Regulations in accordance with
this amendment to the Conservation ~uthoritics ~ct were
adopted by the iluthority in 1960, and their enforcament
has enabled the ~uthority to control the placing or
dumping of fill in flood-vulnerable araas under the
jurisdiction of the ~uthority.
Currently, the fiuthority has regulations whereby it
exercises control over the placing or dumping of fill in
any area which it has specifically designated, and it
may also control the construction of buildings or
structures of any kind belo\l the flood level resulting
from a regional storm, and may also regulate the
relocation of creeks, streams and watercourses within the
area under its jurisdiction. These regulations have
been effective in assisting the ~uthority to achieve its
objectives for the proper management of flood plain lands:
however, there are some inherent weaknesses which can only
be strengthened with further amendments to the enabling
legislation. Even ~...i th further amendment, it must be
acknowledged that, as with municipal zoning, this
expedient, at best, is only a temporary measure, and at
some point in time, the ~uthority must proceed with the
acquisition of th.ose flood plain and valley lands which
are an integral part of the total programme.
(iii) statement of Policy
The :\uthority, in 1961, adopted a statement of Policy on
Flood Plain and Conservation Lands. This statement was
published and circulated to the member municipalities and
planning board. The Policy \.Ii th respect to the
acquisition of flood plain and conservation lands, as stated
in this Report, is set forth herewith:
The policy of the Metropolitan Toronto & Region
Conservation ~uthority is to acquire the flood plain
and conservation lands in the do~mstream sections of
the main valley systems under the jurisdiction of
the 1i.uthority. The ~uthority is of the opinion that
for adequate control of these lands for flood control
and conservation purposes, it is essential that they
be owned by a public agency such as the ~uthority.
The ownership of these lands, theretore, ensures
their proper use in order that the objectives of the
fiuthority can be achieved. The flood plain and
conservation lands in public o\~ership can be used
for other than flood control and conservation
purposes for they provide an opportunity for the
provision of public open space and recreation
facilities that are an essential feature of every
urban development. The .?'~uthority hq,s acquired major
C-19
RE: Management of Flood Plain 8.
and Conservation Lands:
-----------------------
- - ------
acreages of flood plain and conservation lands in
the main valleys within Metropolitan Toronto, and
proposes the extension of this Plan to cover the
lower reaches of all the major watercourses under
the jurisdiction of the ~uthority. These lands
have been acquired under what is known as Water
Control Schemes. The Schemes set forth the lands
to be acquired; the estimated cost of the
acquisition; the purpose for which the lands were
to be used; and the scheduling of acquisition.
The majority of ~1ater Control Schemes adopted to
date have been in the Municipality of Metropolitan
Toronto, and th~s municipality has been designated
as the benefiting municipality and required to pay
5~1o of the cost of the acquisition of flood plain
lands. The Province of Ontario contributes the
remaining 5~1o of the cost. Under the provisions
of the agreement entered into on June 14th, 1961,
between the huthority and the Province of Ontario,
the ~uthority will acquire an additional 7,600
acres of flood plain land over the next ten years.
The cost of this land will be shared equally
between the Authority and the Province.
In addition to the acquisition of flood plain and
conservation lands, the ;\uthority is responsible
for the undertaking of conservation measures
required for the control of stream bank erosion
and for the development of watercourses for flood
control purposeso Some Water Control Schemes
include these works as part of the Scheme, whereas
others are undertaken as additional Schemes after
the lands have been acquired and development for
recreation purposes has been completed.
In many instances, municipally-owned lands are
included in ~'later Control Schemes. The policy of
the 1\uthority and the Province of Ontario is that
where municipally-owned lands are within a Scheme,
they must be transferred to the ~uthority for a
nominal sum.. The Province of Ontario will not pay
grants for municipa1ly-owned lands included in
Water Control Schemes. Most municipalities within
Metropolitan Toronto and, in several instances,
outside Metro, have co-operated with the fiuthority
in the transfer of these lands to the nuthority.
The ~uthority asumes all survey and legal costs
involved in the transfer of municipally-owned
lands.
(iv) Flood Control Plan .
In the meantime, the ~uthority was developing a 'compre-
hensive Flood Control Plan and Policy for the region under
its jurisdiction. The Plan \"las adopted by the .t\uthority
on september 2nd, 1959. Th~ Flood Control Policy as
stated in this Plan is as fol~ows:
C-20
RE: Management of Flood Plain 9.
and Conservation Lands:
"Based on the above premises, it is the Flood
Control Policy of the Metropolitan Toronto &
Region Conservation ~uthority to pursue a
comprehensive Programme of Flood Control
Measures consisting of a combination of
(1) the construction of protective multi-
purpose dams and reservoirs and
protective channel improvements; and
(2) the 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 Z\uthority to
pursue a comprehensive programme of nncillary
Conservation Measures and a programme of develop-
ment of recreation and park lands in such a way
as to maximize and perpetuate the benefits
bestm'/ed by nature."
In June of 1961, the 7\uthority signed an agreement with
the Province of ontario and the Province signed an agree-
ment with the Government of Canada for the carrying out
of the Flood Control Plan.
Due to rising costs, it was not possible to implement all
the'measures originally projected in the Plan which had
been intended to be completed by 1971: hO\\7ever, the
authority has adopted an Extension to the original Plan,
kno'~ as Project W.CD-G3, which provides for financing of
additional \\7orks within the framework of the same flood
control policies covering the period 1971-1975. It is
acknowledged that even with this extension, not all the
works originally envisaged can be completed, and a further
extension will be necessary to cover the period after 1975.
(v) Master Plan for Flood Plain
and Conservation Lands:
The authority adopted a Master Plan for Flood Plain and
Conservation Lands at Meeting No.1, held on February 9th,
1962. The Plan was submitted to the Province of Ontario
for approval in principle, and thus has been 'the basis of
the 7\uthority Flood Plain Land ~cquisition. The following
is a summary of the pertinent sections of this report:
all land falling within the definition of flood
plain and conservation lands has been mapped and
classified in one of the following classifications
based on the ovmership:
(a) ~uthoritV~wned Lands -- lands already
acquired by the Z\uthority in connection
with the Water Control Schemes;
C-2l
RE: Management of Flood Plain 10.
and Conservation Lands:
- - --- -- -~
(b) Public Lands -- all puplicly-o\~ed lands
other than those already acquired by the
~uthority -- this includes lands o\~ed
by municipalities and departments or
agencies of the Province of ontario and
the Government of Canada:
(c) Semi-Private Lands -- all lands held by
private corporations such as hospitals
and golf courses, which are nvailable
for open space type of use by some seg-
ment of the general public. Under their
present use, these lands are not proposed
for acquisi,tion;
(d) Private Lands -- all lands under private
ownership ':lhich are proposed for
acquisition for flood control and
conservation purposes;
The following table provides a breakdo.1n of the acreage
of each of the four categories of property on a water-
shed basis:
Hi'.STER PL-1oN
i'.CREi'.GES OF FLOOD PLi'.IN ~D CONSERV~TION LnNDS
SEHI- TOT ;u,
~11\TERSHED PUBLIC PRIVi\.TE PRIV.~i.TE 1\UTHORITY ;\CREli.GE
Etobicoke 662 1,413 330 8 2,413
Mimico 316 555 132 --- 1,003
Humber 667 1,774 265 271 2,978
Don 1,485 790 700 518 3,493
Rouge 157 1,105 11 40 1,393
Highland 247 570 219 377 1,413
Duffin 102 1,158 56 --- 1,316
TOTi\L 3,636 7,445 1,714- 1,214 14,009
L~D ~CQUISITION
(in acres)
:\CQUIRED YET TO BE
TO Di\.TE ~\CQUIRED
Etobicoke Creek F.P.L. 135 1,286
Mimico Creek 4 551
*Humber River 1,375 682
Don River 984 4,64
Highland Creek 735 200
Rouge River 1,430 500
Duffin Creek 601 554
TOTlu, 5, 31t~ 4,237
*300 acres approximately of the Black Creek Flood Plain
Land included.
C-22
RE: Management of Flood Plain 11.
and Conservation Lands:
It is estimated that there are a minimum of 60,000 acres
of flood plain lands subject to periodic inundation in
the area under the jurisdiction of the Metropolitan Toronto
and Region Conservation ~uthorityo It can be seen that
the Authority only proposed to acquire approximately 12% of
this total acreage under its Plan for Flood Control. ;\
few additional acres of flood plain land have been
acquired as parts of Conservat~on nIeas. The majority of
the flood plain lands in the region will have to be
controlled by regulations in order to ensure adequate
protection 0
The Authority's Land i\cquisition Programme and policies are
facilitated by co-operation with the municipalities in
processing of plans of subdivision, zoning by-laws and
official plans. The Draft Metropolitan Toronto Official
Plan has incorporated the ~uthority's Land ~cquisition
Programme and Policies.
The Authority has been able, in co-operation with the
municipalities, to effect economies in its main ACquisition
Programme as a result of co-ordination and co-operation
with municipalities; instead of a number of agencies
acquiring lands for various purposes, such assewer easements,
road widenings, etc. , the ~uthority acquires the land and
then transfers the required portion to the proper agency.
The Technic'al i\dvisory Committee on Parks & Conservation,
consisting of the following:
Commissioner of Planning - Municipality of 1\1etro. Toronto
Commissioner of Works - Municipality of Metro. Toronto
Commissioner of Roads - Municipality of Metro. Toronto
Commissioner of Parks - Municipality of Metro. Toronto
Director of Operations - Metropolitan Toronto and Region
Conservation ~uthority
is the principle co-ordinating agency with respect to The
Municipality of Metropolitan Toronto.
staff are currently in the process of carrying out a
complete revie'\1' of the I-1aster Plan for Flood Plain and
Conservation Land ~cquisition. This review includes a
pre~ise detailing of progress made to date, a refinement
of the limits of the Master Plan based on certain minor
amendments which have taken place over the ensuing 12-
year period, a series of recommendations with regard to
the inclusion of additional lands under an amended Master
Plan for future consideration, and the establishment of
criteria for priorities in determining how funds will be
allocated in future for acquisition of such lands. It
is anticipated that this review 'will be completed by the
middle of the current, year.
. ., .
. C-23
, ,
RE: Management'of Flood Plain l~.
and Conservation Lands:
-------
BENEFITS RESULTING FROM AUTHORITY PROG~~~
(a) Flood Control
The logic of the ~uthority's Programme of the Management of
Flood Plain Lands has already been illustrated on a number
of occasions since Hurricane Hazel. In the spring floods
of 1965, many of the flood plain lands that have been
acquired by the ~uthority were subject to flooding. Each
spring in previous years, it was inevitable that the
residents in the lo~rer Highland Cre~c would be flooded and
they would be isolated from the rest of the community.
with the removal of all of these houses, and the develop-
ment of the Metropolitan Park, there no longer is a
recurrence of this problem. There are many other instances
where e}{amplcs of progress illu3trate the benefits to be
gained from the programme. On the other hand, there are
still flood-vulnerable areas ~uch as the lower Rouge River
and lower Duffin Creek, wher0. all of the flood plain lands
have not as yet been secured and where there arc still
residents who are subject to periodic flooding. .i\s the
Metropoli tan Toronto region con-tinues to gro\l, the incidence
of flooding is going to increase, and it is absolutely
essential .that the programme for the management of flood
plain lands as it is presently conceived be completed at the
earliest time possible and, indeed, as the region continues
to grOVI, unquestionably the programme \'/ill have to grm'l
correspondingly.
(b) Recreation
The benefits of the flood plain management programme, how-
ever, are not limited only to providing protection from
flooding. The ~uthority and Metropolitan Toronto very
early foresa~7 the potential of using these flood plain lands
for public recreation purposes. The programme vias
initiated in co-operation \/ith Metropolitan Toronto whereby
the flood plain lands acquired by the .'\uthori ty 'lIould be
developed by Metropolitan Toronto for public recreation.
Metropolitan Toronto pays the full cost of this development
and administers and maintains the recreation programme at no
cost to the Province. The ~uthority protects its interests
and the interest of the Province in the flood control
aspects of the programme by insisting that all plans of
development of the Metropolitan Parks Department must be
approved by the ~uthority to ensure that the flood
capacities of the valley systems are not jeopardized by the
park development. The Municipality of Metropolitan
Toronto spent several millions of dollars in the development
of recreational facilities on these flood plain lands.
The tremendous growth in the need for, and use of, outdoor
recreation facilities is well documented. It is fortunate,
indeed, that as a result of the co-ordination of the
planning on a regional basis in the Metropolitan Toronto
region that valuable outdoor recreation facilities are being
provided as a by-product of the.flood plain management
programme. Unquestionably, if these outdoor rec~eation
facilities' were not provided in this manner, the, Province
- .
-. . .
C-24
RE: Management of Flood Plain 13.
and Conservation Lands:
.
itself, in order to cope with this problem, would have to
spend its 0'110 funds for the development of major park
facilities in the Metropolitan Toronto region.
(c) Co-ordination with Municipalities
The fiuthority has also co-operated with the municipalities
as a result of its land acquisition programmes. Road
widenings, sewer easements, drainage easements and other
rights-ofo~1ay have been transferred to the municipalities
at nominal costs. This programme, effectively co-ordinated
with the municipalities, has resulted in increased efficiency
in the acquisition of land, and has also reduced the in-
convenience to the individual land-owner who might normally
be selling his land to a multiplicity of agencies. The
huthority has also made available its lands where it has
been practical from a flood control and conservation stand-
point for the development of sanitary landfill sites, and
also areas for the disposal of sludge as part of the
Pollution Control Programme in the Metropolitan region. One
of the greatest single problems facing the Metropolitan
Toronto region at the present time is the disposal of
wastes, and the ~uthority is actively involved with the
municipalities in attempting to find a satisfactory solution
to this problem.
(d) Increased Municipal Development
nnother benefit of the flood plain management programme that
is not immediately evident but, nevertheless, does exist, is
the increased development adjacent to the major valley
systems, ~1ith the resultant increased assessment for the
municipality. The ;\'uthority has observed that \.,here major
valley systems have been. acquired and placed in public
ownership, private development is convinced that these lands
will remain for all time as attractive open space, and
consequently their development adjacent to these valleys is
protected. There are a number of instances where high-
density developments are locating adjacent to these systems.
SUMMARY AND CONCLUSIONS:
The management of flood plain lands as an integral part of a
comprehensive Flood Control Plan is absolutely essential in the
Metropolitan Toronto region -- one of the fa~test-growing urban areas
on the North nmerican continent.
The Metropolitan Toronto and Region Conservation huthority,
in co-operation with the municipalities and the Government of the
Province of Ontario, has developed rational policies and a logical
programme for the management of flood plain lands in the Metro-
politan Toronto region, consisting of ....
- regulations controlling the dumping of fill and
construction on flood plain lands;
- a programme of acquisition that is essential to
ensure that flood plain lands will not be
encroached upon in the future;
.' C-25
RE: Management of Flood Plain 14.
and Conservation Lands:
-~~-- ---
- an ancillary progr~me for the development of flood
plain lands for outdoor recreation;
The programme for acquisition is proceeding in accordance
with a rational plan, and it would appear that the major limitation
to progress in connection with such acquisition is related entirely
to the availability of capital funding, both in the short term and
the more distant future.
The ancillary programme for the development of flood plain
lands for outdoor recreation is proceeding apace, both under the
auspices of the ~uthority's Land Management Division and through
a~eements with municipalities, such as The Municipality of Metro-
politan Toronto, Town of Brampton, etc.
Regulations for controlling the dumping of fill and of
construction on flood plain lands are ackno\/ledged to be only one
interim measure and a tool to be used toward the lo~g-term objective
of controlling the bulk of the major flood plain and valley lands
within the region. Judicious administration of the regulatory
powers by way of the issuance of permits will facilitate the long-
term objectives of the ~uthority, and it is essential to retain the
discretionary aspect of the regulatory power.
It is apparent, however, that there are still some weak-
nesses within the regulations, and these can only be st~engthened if
certain amendments are made to the Conservation Authorities ~ct, the
enabling legislation under which the regulations have been made.
0
RECOMMEND1\TIONS:
(i) THAT the Authority utilize every opportunity to accelerate
the programme of land acquisition as it relates to Flood
Plain and Conservation Lands along the major valleys of
the watercourses within the region under our jurisdiction;
(ii), THAT the ~uthority seek any necessary amendments to the
Conservation Authorities Act to enable a strengthening of
the ,regulatory powers relative to the placing ,or dumping
of fill, construction, and alteration to waterways;
(iii) THAT the Authority continue and accelerate its programme of
co-ordination with local municipalities relative to the
zoning and regulation of use of flood plain and
conservation lands.
(iv,) THAT the Authority solicitor do advise the Staff as to what
additional regulations might be enacted to protect the
Authority, pending. amendments to The Act presently being
sought.
~S..~..,73.
..
T1h\~ Metroponiita\m\ Torom\to am\dl ~~giom\
, <Com\se"atio~ A\Ul1t1h\ority -.'!
C-26
Mll~lUTIE,S
Flood Control & Water Cons. Adv. Board Thurs-Apr-l2-1973 #2/73
The Flood control and Water Conservation Advisory Board met at the
Authority Office, 5 Shoreham Drive, Downsview, on Thursday, April 12,
1973, commencing at 1:30 p.m.
PRESENT WERE
Vice-chairman F.J. McKechnie
Members C.A. Balsdon
R. Cunningham
Wm. R. Herridge, W.C.
C.F. Kline
Dr. G. Ross Lord
F.D. Milus'
F.R. Perkins
Authority Chairman F.A. Wade
Adm. - FC&WC Division E.F. sutter
Ministry of t~e Envirorunent B. Ward
I
ABSENT WERE
Chairman J.G. Mottershead
Members P.V. Godfrey
K.G. Waters
V. Yerex
MINUTES
The Minutes of Meeting *1/73 were presented.
Res. t2. Moved by: R. Cunningham
Seconded by: C.Ao Balsdon
RESOLVED THAT: The Minutes of Meeting #1/73, as. presented, be adopted.
CARRIED UN1\NIMOUS,LY;
STAFF PROGRESS REPORT
Mr. Sutter presented a verbal report on current projects of the Flood
Control and Water Conservation Division.
TOUR
-
At 2:00 p.m., a tour of Authority projects commenced, which included the
following:
Stop *1: Finch Dam
n 2: West Don River at Bathurst street
n 3: Emery Creek channel improvement
n 4: C1airevi11e Dam
II 5: Mimico Creek channel improvement, Malton
n 6: Brampton Stilling Basin
n 7: Snelgrove Dam site
The tour returned to the Authority office at 5:00 p.m., and the meeting
was adjourned.
F.J. McKechnie F.L. Lunn
Vioe-chairman Secretary~reasurer
The Metropolitan Toronto aad ~egioa
Conservation Authority C-27
MINUTES
Flood Control & Water Cons. Adv. Board Wed-October-3l-l973 #3/73
The Flood Control and Water Conservation Advisory Board met at the
Authority Office, 5 Shoreham Drive, Downsview, on Wednesday, October
31, 1973, commencing at 2:00 p.m.
PRESENT WERE
Chairman J.G. Mottershead
Vice-Chairman F.J. McKechnie
Members C.A. Balsdon
R.H. Cunningham
wm. R. Herridge, Q.C.
C.F. Kline
Dr. G. Ross Lord
F.D. Milus
F.R. Perkins
K.G. Waters
V. Yerex
Authority Chairman F .A. Wade
Authority Vice-Chairman R.G. Henderson
. Secretary-Treasurer F .L. Lunn
Director of Operations K.G. Higgs
Adm. - FC&WC Division E.F. Sutter
Engineer J.C. Mather
Ministry of Natural Resources M. Lewis
Jas. F. MacLaren Limited A. Brodie
M.M. Dillon Limited [J. Lorant
[D. Strelchuk
ABSENT
Member P.V. Godfrey
MINUTES
The Minutes of Meeting #2/73 were presented.
Res. #7 Moved by: C.F. Kline
Seconded by: F.R. Perkins
RESOLVED THAT: The Minutes of Meeting #2/73, as presented, be
adopted.
CARRIED UNANIMOUSLY:
STAFF PROGRESS REPORT
Mr. Sutter presented a Staff Progress Report, to date.
Res. #8 Moved by: C.A. Balsdon
Seconded by: F.J. McKechnie
RESOLVED '!HAT: The Staff Progress Report, as presented, be received
and filed.
CARRIED UNANIMOUSLY:
Priority of Co~struction
- PropOsed Dams
Res. #9 Moved by: C.F. Kline
Seconded by: K.G. ",aters
RESOLVED THAT: The Staff review the present priorities of proposed
dams and report to the next meeting of the Board.
CARRIED UNANIMOUSL~
C-28 -2-
PROJECT W.C.60 - EROSION CONTROL
AND BANK STABILIZATION IN METRO-
POLITAN TORONTO - 10 YEAR PROGRAMME
AND 5 YEAR PROJECT
Mr. Sutter presented a Brief on Project W.C.60 - "Erosion Control
and Bank Stabilization in Metropolitan Toronto - 10 Year Programme
and 5 Year Project", dated November-1973.
Res. #10 Moved by: C.F. Kline
Seconded by: F.J. McKechnie
RESOLVED THAT: The Brief on Project W.C. 70 - Erosion Control and
Bank Stabilization in Metropolitan Toronto - 10 Year Programme and
5 Year Project, dated November-1973, be received and approved; and
THE BOARD RECOMMENDS THA T: Project W.C.60 - Erosion Control and
Bank Stabilization in Metropolitan Toront9 - 10 Year Programme and
5 Year Project, be adopted, and the following action be taken:
(a) The Municipality of Metropolitan Toronto be designated as
benefiting municipality;
(b) The Minister of Natural Resources be requested to approve of
the Project and of a grant of 50% of the cost thereof;
(c) When approved, the appropriate Authority officials be
authorized to take 'whatever action is required in connection
with the Project, including the execution of any necessary
documents.
CARRIED UNANIMOUSLY;
PRELIMINARY ENGINEERING STUDY
EROSION CONTROL - BLACK CREEK
THROUGH OAKDALE GOLF COURSE
Mr. Sutter presented the Preliminary Engineering Study prepared by
James F. ~acLaren Limited, for Erosion Control Measures for the
Black Creek through the Oakda1e Golf Course.
Res. #11 Moved by: F .A. Wade
Seconded by: W.R. Herridge
RESOLVED '!HAT: The Preliminary Engineering Report - "Erosion
Control - Black Creek through Oakdale Golf Course", as prepared by
James F. MacLaren Limited, be received: and
THE BOARD RECOMMENDS THAT: Copies of the Preliminary Engineering
Report "Erosion Control - Black Creek through Oakdale Golf Course",
be forwarded to The Municipality of Metropolitan Toronto and to
the Ministry of Natural Resources: and further in this connection,
if re~ested by The Municipality of Metropolitan Toronto, the
following action be taken: ,
A Project for Erosion Control Measures on the Black Creek
through the Oakdale Golf Course, at an estimated cost of
$100,000.00, be adopted: and
(a) The Municipality of Metropolitan Toronto be designated
the benefiting municipality:
(b) The Ministry of Natural Resources be requested to approve
of the Project and of a grant of 50% of the cost thereof;
(c) When approved, the appropriate Authority officials be
authorized to take whatever action is required in
connection with the Project, including the execution of
any necessary documents.
CARRIED UNANIMOUSLY;
I
,
..
-3- C-29
PREL~INARY ENGINEERING REPORT
EAST DON RIVER BETWEEN YORK
MILLS ROAD AND IAWRENCE AVENUE
Mr. Sutter presented the Preliminary Engineering Study prepared by
Marshall, Macklin, Monaghan Limited, Consulting Engineers, for
Erosion Control and Slope stability on the East Don River fram York
Mills Road to Lawrence Avenue.
Res. #12 Moved by: K.G. Waters
Seconded by: C.A. Balsdon
RESOLVED THAT: The Preliminary Engineering Report for Erosion
Control and Slope stability on the East Don River from York Mills
Road to Lawrence Avenue, as prepared by the Consulting Engineers,
Marshall, Macklin, Monaghan Limited, be received; and
~E BOARD RECOMMENDS 'l'JIAT: Copies of the Preliminary Engineering
Report for Erosion Control and Slope Stability on the East Don
River from York Mills Road to Lawrence Avenue, be forwarded to
The Municipality of Metropolitan Toronto and to the Ministry of
Natural Resources; and further in this connection, if requested
by The Municipality of Metropolitan Toronto, the following action
be taken:
A Project for Erosion Control and Slope Stability on
the East Don River .from York Mills Road to Lawrence
Avenue, at an estimated cost of $350,000.00, be
adopted; and
(a) The Municipality of Metropolitan Toronto be designated
the benefiting municipality:
(b) The Ministry of Natural Resources be requested to
approve of ,the Project and of a grant of 50% of the
cost thereof:
(c) When approved, the appropriate Authority officials
be authorized to take whatever action is required
in connection with the Project, including the
,execution of any necessary documents.
I CARRIED UNANIMOUSLY;
PROJECT P.l - SNELGROVE DAM
AND RESERVOIR
FUNCTIONAL DESIGN REPORT
Mr. J. Lorant and Mr. D. Strelchuk of M.M. Dillon Limited, Consult-
ing Engineers, presented a Functional Design Report for Project P~l,
Snelgrove Dam and Reservoir.
Res. #13 Moved by: F.J. McKechnie
Seconded by: Dr. G. Ross Lord
RESOLVED THAT: The Functional Report for Project P.l, Snelgrove
Dam and Reservoir, as presented by M.M. Dillon Limited, Consulting
Engineers, be received and accepted, subject to the receipt and
approval of the final report by the Executive Committee: and,
THE BOARD RECOMMENDS THAT: When approved by the Executive Committee,
maps of the Functional Report for Project P.1, Snelgrove Dam and
Reservoir, as prepared by M.M. Dillon Limited, Consulting Engineers,
be submitted to the appropriate municipal officials and to the
Ministry of Natural Resources for review and approval; and further
in this connection
When the necessary approval, have been received~ the Consulting
Engineers, M.M. Dillon Limited, be authorized I and directed to
prepare contract drawings and specifications for Project P.1,
Snelgrove Dam and Reservoir.
CARRIED UNANIMOUSLY;
C-30 -4-
WIICOX rAKE OUTLET - RICHMOND HILL
FIDODING PROBLEM
A Staff communication was presented advising that discussions have
been held with officials of The Town of Richmond Hill concerning
the problem of flooding on the H~er River east of Yonge Street
at the outlet of Wilcox Lake. The matter was discu$sed at some
length.
Res. #14 Moved by: F.R. Perkins
Seconded by: W.R. Herridge
RESOLVED THAT: The Staff Repprt and communications on a flooding
problem at the outlet .of Wilcox Lake on the Humber River be
received: and
. , The Staff ~e directed to carryon
THE 'BOARD RECOMMENDS THAT: further discussions with officia~s of the Regional Municipality
of York and The Town of ~iclunond H-ill: and further in this
connection, if reque~ted by the Regional Municipality of York
(Richmond Hill), the following a'ction be taken:
.
A Project to Control Flooding in the upper re9ians of
the Humber River adjacent to the outlet of Wilcox Lake,
at an estimated cost of $25,000.00, not including land
costs, be adopted; and
(a) The Regional Municipality of York (Richmond Hill) be
designated the ,benefiting municipality:
(b) The Ministry of Natural Resources be requested to
approve of the Project and of a grant of 50% of
the cost thereof:
(c) When approved, the appropriate Authority officials
be authorized to take whatever action is required
in connection with the Project, including the
execution of any necessary documents.
CARRIED UNANIMOUSLY;
FLOOD WARNING AND FORECASTING SYSTEM
TELEMARI< EQUIPMENT FOR RECORDING
STREAM GAUGES
A Staff communication was presented advising that the Ministry of
Natural Resources has requested that the present flood warning and
forecasting system be improved by the installation of Telemark
Equipment at recording stream gauges throughout the region, as
follows:
(a) Humber River - Rutherford Road
(b) West Don River at York Mills (Donino Avenue)
(c) Duffin Creek at Pickering
(d) Rouge River - West Branch at Markham
(e) Etobicoke Creek at Parkridge Road
(f) Humber River at Weston (Lawrence Avenue)
(g) Don River - East Branch at Don Mills (York Mills Road)
(h) ,West Humber at Highway #7
(i) Highland Creek at Kingston Road
(j) Black Creek at Scarlett Road
(k) Don River at Pottery Road
(1) Mimico Creek near Bloor Street
The estimated cost of installing the Telemark equipment is $2,500.00
per location.
Res. #15 Moved by: Dr. G. Ross Lord
Seconded by: R.H. Cunningham
RESOLVED '!HAT: The Staff communication on Flood Warning and Fore-
casting System - Telemark Equipment for Recording Stream Gauges
be received; and ·
-5- C-3l
THE BOARD RECOMMENDS '!HAT: Budget provision be made for the instal-
lation of Telemark Equipment at the various recording stream gauge
locations, on the basis of two installations per year, commencing
in 1974, at an estimated cost per location of $2,500.00.
CARRIED UNANIMOUSLY:
ADJOURNMENT
On Motion, the Meeting adjourned at 4:15 p.m., October 31.
J.G. Mottershead . F .L. Lunn
Chairman Secretary-Treasurer