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1.
STORMWATER
MANAGEMENT STRATEGY STAGE 2: POLICIES PHASE 2 DE LA STRATÉGIE DE GESTION DES EAUX
PLUVIALES : POLITIQUES |
PLANNING AND ENVIRONMENT
COMMITTEE recommendations as amended
That Council approve:
1. The
Stormwater Management Policies as detailed in Document 3 to guide the
preparation of Stormwater Management Planning Guidelines.
2. WHEREAS the Stormwater Management Strategy
Stage 2: Policies report has identified that there are increasingly stringent
legislative requirements, especially with respect to development and valley and
stream corridors.
AND WHEREAS the scope of corridors to which the
existing regulations has been applied has been expanded in recent years;
AND WHEREAS the successful implementation of
the strategy will rely on strong communications and collaboration with the
federal and provincial regulatory agencies;
THEREFORE BE IT RESOLVED that the Deputy
City Manager, Planning Transit and the Environment be requested to write to
both the federal and provincial governments on behalf of City Council to
underline the importance of consultations with municipalities regarding changes
to environmental regulations affecting stormwater management and significant
changes to the enforcement practices with respect to such regulations.
AGRICULTURE AND RURAL AFFAIRS
COMMITTEE recommendation
That Council approve:
1. The
Stormwater Management Policies as detailed in Document 3 to guide the
preparation of Stormwater Management Planning Guidelines.
recommandations modifiées du ComitÉ de
L‘URBANISME ET DE L’ENVIRONNEMENT
Que le Conseil
approuve :
1. Les
politiques de gestion des eaux pluviales, décrites en détail dans le document
3, afin d'orienter la formulation de lignes directrices pour la planification
de la gestion des eaux pluviales.
2. ATTENDU QUE le rapport sur la phase
2 de la Stratégie de gestion des eaux pluviales : Politiques a révélé
l’existence d’exigences législatives de plus en plus rigoureuses, notamment en
ce qui concerne l’aménagement et les corridors des ruisseaux et des vallées.
ATTENDU QUE l’étendue des corridors
auxquels s’applique la réglementation existante s’est accrue ces dernières
années;
ATTENDU QUE le succès de la
stratégie dépendra de la qualité des communications et de la collaboration avec
les organismes de réglementation fédéraux et provinciaux;
IL EST RÉSOLU QUE l’on demandera au directeur
municipal adjoint, Urbanisme, Transport en commun et Environnement, d’écrire
aux gouvernements fédéral et provincial au nom du Conseil municipal afin de
souligner l’importance de consulter les municipalités au sujet des
modifications à la réglementation environnementale ayant une incidence sur la
gestion des eaux pluviales et des changements importants aux modes
d’application de ces règlements.
Recommandation du Comité DE
L’AGRICULTURE ET DES QUESTIONS RURALES
Que le Conseil
approuve :
1. Les
politiques de gestion des eaux pluviales, décrites en détail dans le document
3, afin d'orienter la formulation de lignes directrices pour la planification
de la gestion des eaux pluviales.
DocumentatioN
1.
Deputy
City Manager's report Planning, Transit
and the Environment dated
14 June 2007 (ACS2007-PTE-POL-0037).
2.
Extract
of Minutes, 10 July 2007 (Planning and Environment Committee).
Report
to/Rapport au :
Planning and Environment Committee
Comité de l'urbanisme et de
l'environnement
and/et au
Agriculture
and Rural Affairs Committee
Comité de l'agriculture et des questions
rurales
and Council / et au Conseil
14 June 2007 / le 14 juin 2007
Submitted by/Soumis par : Nancy Schepers, Deputy City Manager /
Directrice municipale adjointe,
Planning, Transit and the Environment / Urbanisme,
Transport en commun et Environnement
Contact
Person/Personne Ressource : Vivi Chi, Manager/Gestionnaire, Transportation and
Infrastructure Planning / Planification du transport et de l'infrastructure
(613) 580-2424, ext.21877, Vivi.Chi@Ottawa.ca
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SUBJECT: |
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OBJET : |
PHASE 2
DE LA STRATÉGIE DE GESTION DES EAUX PLUVIALES : POLITIQUES |
REPORT
RECOMMENDATION
That the Planning and Environment Committee and the Agricultural and Rural Affairs Committee approve the Stormwater Management Policies as detailed in Document 3 to guide the preparation of Stormwater Management Planning Guidelines.
RECOMMANDATION DU RAPPORT
Que le Comité de l'urbanisme et de
l'environnement et le Comité de l'agriculture et des questions rurales
approuvent les politiques de gestion des eaux pluviales, décrites en détail
dans le document 3, afin d'orienter la formulation de lignes directrices pour
la planification de la gestion des eaux pluviales.
EXECUTIVE SUMMARY
Assumptions
and Analysis:
The Stormwater Management (SWM) Strategy is being developed to provide a comprehensive, long-term city-wide plan to address the challenges of stormwater management. These challenges include increasingly stringent legislative requirements, continuing growth pressures, growing citizen demands for environmental protection, and the reality of finite financial resources. Addressing these challenges requires an integrated, strategic approach because they cannot effectively be dealt with on an individual or short-term basis.
The
first stage of work to develop the SWM Strategy was completed in the fall of
2006, providing an assessment of existing conditions. Stage 2 is currently
underway and a SWM goal, objectives and SWM policies now have been developed.
The purpose of this report is to bring forward the SWM policies that will guide
the development of SWM Planning Guidelines.
An
overall goal for the SWM Strategy was first developed: To manage stormwater as
a resource while protecting people, property and watercourses from the impacts
of urban runoff.
From
this general goal, and the direction given by the Council-approved Lower Rideau
Watershed Strategy (http://ottawa.ca/calendar/ottawa/citycouncil/pec/2006/10-24/agenda
index58.htm), more specific objectives were then developed under the general
themes of Water Quantity, Water Quality, Groundwater, Valley and Stream
Corridors, Communications, Integrating SWM Planning, and Infrastructure.
The
SWM goal and objectives are intended to reflect both current SWM practices and
approaches at the City as well as potential new directions and new challenges.
Following
from the objectives, the SWM policies were then developed. The policies have
been prepared to recognize three broad categories for which SWM planning needs
to be addressed:
i.
'Greenfield' or newly developing areas (in the urban area,
villages and general rural area);
ii.
Existing development - particularly those areas that developed
without SWM controls; and
iii.
Infill/redevelopment.
Next
Steps:
Taking
direction from the SWM policies, the next and final step in Stage 2 of the SWM
Strategy is to prepare SWM Planning Guidelines. This document will outline the
requirements to best integrate SWM planning into the land use planning process;
will clarify various SWM design issues at the planning level to provide a
consistent approach City-wide, and will further detail how the new directions
promoted by the SWM policies are to be achieved. Stage 3, to commence shortly,
will involve the preparation of a Master Plan that will identify and prioritize
a list of SWM retrofit projects to address both existing problems and mitigate
the impacts of infill/redevelopment.
Financial
Implications:
There are no financial implications at this time. Funding for the preparation of SWM Planning Guidelines and the completion of Stage 3 of the SWM Strategy is available in capital accounts 900985 - Stormwater Master Plan and 902572 - Environmental Assessments. Any financial implications of implementing the SWM Policies, Planning Guidelines and Master Plan will be assessed through the next stages of work and brought forward for approval through the annual budgeting process.
Public
Consultation/Input:
Public
consultation in the development of the SWM goal, objectives and policies has
included the following:
i.
The Technical Advisory Committee (TAC), assembled during Stage
1, has reviewed and commented on the SWM goal, objectives and policies.
ii.
The Public Advisory Committee (PAC), assembled during Stage 1,
has reviewed and commented on the SWM goal, objectives and policies.
iii.
Website: A project website went live in October 2005 and is
updated regularly.
iv.
Stage 2 Open Houses: Four Open Houses were held to present the
draft SWM goal, objectives and policies to the public and request their
comments:
Tuesday, March 20, 2007: Orleans
Wednesday, March 21, 2007: Kanata
Tuesday March 27, 2007: Manotick
Wednesday, March 28, 2007: City Hall
Total attendance for all four Open Houses was 51
people.
v.
Study Mailing List: A mailing list consisting of approximately
200 individuals, community groups, associations, and consultants has been
assembled. Open House notices were distributed to all on the list.
vi.
Development Industry Consultation: The SWM Policies were
presented at the April 19, 2007 meeting of the Rural Development Working Group
and at the May 17, 2007 meeting of the Engineering Liason Sub-Committee.
vii. Advisory Committees: The SWM Policies were presented at the May 10, 2007 meeting of the Environmental Advisory Committee and at the May 15, 2007 meeting of the Rural Issues Advisory Committee:
RÉSUMÉ
Hypothèses et analyse :
La
Stratégie de gestion des eaux pluviales (GEP), actuellement en cours
d'élaboration, vise à établir un plan global à long terme, applicable sur tout
le territoire de la ville, pour répondre aux défis de la gestion des eaux
pluviales. Ces défis comprennent les contraintes de plus en plus sévères imposées
par la législation, les pressions que la croissance ne cesse d'exercer, les
demandes croissantes de protection de l'environnement provenant des citoyens et
la limitation des ressources financières. Ces défis nécessitent une approche
stratégique intégrée, parce qu'ils ne peuvent être relevés efficacement au cas
par cas ou à court terme.
La première phase du travail d'élaboration
de la Stratégie de GEP, achevée à l'automne de 2006, a permis d'évaluer les
conditions existantes. La phase 2, actuellement en cours, a mené à la
formulation des but, objectifs et politiques de la GEP. Le présent rapport a
pour objet de présenter les politiques de GEP qui orienteront la formulation
des lignes directrices de planification de la GEP.
Dans un premier temps, le but général de
la Stratégie de GEP a été défini : gérer les eaux pluviales comme une ressource
tout en protégeant les gens, les biens et les cours d'eau contre les effets des
eaux de ruissellement provenant de la zone urbaine.
Procédant de ce but général et de
l'orientation donnée dans la stratégie de gestion du bassin hydrographique de
la basse Rideau, qui a reçu l'approbation du Conseil
(http://ottawa.ca/calendar/ottawa/citycouncil/pec/2006/10-24/agenda
index58.htm), des objectifs plus précis ont été formulés relativement à
différentes questions générales : quantité d'eau, qualité de l'eau, eau
souterraine, vallées et couloirs de cours d'eau, communications, intégration de
la planification de la GEP et infrastructure.
Les but et objectifs de la GEP ont été formulés
de manière à refléter les pratiques et approches de GEP actuelles de la Ville
et à tenir compte des nouveaux défis et orientations qui pourraient
éventuellement se présenter.
Les politiques de GEP ont ensuite été
élaborées à partir de ces objectifs en fonction de trois grandes catégories
pour lesquelles la planification de la GEP doit être prévue :
- les aménagements complètement nouveaux (dans
la zone urbaine, les villages et la zone rurale générale);
- les aménagements existants, en particulier
dans les secteurs qui ont été aménagés sans contrôles de GEP;
- les aménagements intercalaires et
réaménagements.
Prochaines
étapes :
Dans le sillage des politiques de GEP, la
prochaine et dernière étape de la phase 2 de la Stratégie de GEP consistera à
rédiger les lignes directrices de planification de la GEP. Ce document exposera
les exigences à respecter pour réussir l'intégration de la planification de la
GEP dans le processus de planification de l'utilisation des sols, éclaircira
diverses questions conceptuelles de GEP au niveau de la planification en vue
d'assurer une approche uniforme pour l'ensemble de la ville et précisera
comment les nouvelles orientations préconisées par les politiques de GEP
devront être réalisées. La phase 3, qui débutera sous peu, consistera à
préparer un plan directeur établissant la liste de projets de GEP de
rattrapage, et fixant leur priorité, tant dans le but de résoudre les problèmes
existants qu'en vue d'atténuer les effets des aménagements intercalaires et des
réaménagements.
Répercussions financières :
Pour le
moment, il n'y a pas de répercussions financières. Le financement de la
préparation des lignes directrices de planification de la GEP et de
l'achèvement de la phase 3 de la Stratégie de GEP est prévu à même les comptes
d'immobilisation 900985 (plan directeur des eaux usées) et 902572 (évaluations
environnementales). Les éventuelles répercussions financières de la mise en
œuvre des politiques, des lignes directrices de planification et du plan directeur
de la GEP seront évaluées au cours des prochaines étapes du travail et
présentées pour approbation dans le cadre du processus budgétaire annuel.
Consultation publique / commentaires :
Le
travail de formulation des but, objectifs et politiques de la GEP a donné lieu
aux activités de consultation publique suivantes :
- Un comité de consultation technique (CCT),
constitué à la phase 1, a examiné et commenté les but, objectifs et
politiques de la GEP.
- Un comité de consultation publique (CCP),
constitué à la phase 1, a examiné et commenté les but, objectifs et
politiques de la GEP.
- Le site Web du projet a été lancé en octobre
2005 et est mis à jour périodiquement.
- À la phase 2, quatre réunions « portes
ouvertes » ont été tenues pour présenter l'ébauche des but, objectifs et
politiques de la GEP au public et recueillir ses commentaires :
le
mardi 20 mars 2007 à Orléans;
le
mercredi 21 mars 2007 à Kanata;
le
mardi 27 mars 2007 à Manotick;
le
mercredi 28 mars 2007 à l'hôtel de ville d'Ottawa.
Au
total, 51 personnes ont assisté aux quatre réunions « portes ouvertes ».
- Une liste de diffusion pour le projet
comprenant environ 200 particuliers, groupes communautaires, associations
et consultants a été dressée. Les avis des réunions « portes ouvertes »
ont été envoyés à tous ceux qui y figuraient.
- Consultation de l'industrie de l'aménagement
immobilier : les politiques de GEP ont été présentées le 19 avril 2007 à
la réunion du Groupe de travail sur le développement rural et à celle du
17 mai 2007 du Sous-comité de liaison technique.
- Comités consultatifs : les politiques de GEP
ont été présentées le 10 mai 2007 à la réunion du Comité consultatif sur
l'environnement et le 15 mai 2007 à celle du Comité consultatif sur les
questions rurales.
BACKGROUND
The SWM Strategy is being developed to provide a comprehensive, long-term City-wide plan to address the challenges of stormwater management. These challenges include increasingly stringent legislative requirements, continuing growth pressures, growing citizen demands for environmental protection, and the reality of finite financial resources. Addressing these challenges requires an integrated, strategic approach because they cannot effectively be dealt with on an individual or short-term basis.
The first stage of work to develop the SWM Strategy was completed in the fall of 2006, providing an assessment of existing conditions. Stage 2 is currently underway and a SWM goal, objectives and SWM policies have now been developed. The purpose of this report is to bring forward the SWM policies that will guide the development of SWM Planning Guidelines.
Two information items regarding the SWM Strategy have been previously provided to the Planning and Environment Committee (PEC) and one item has been provided to the Agricultural and Rural Affairs Committee (ARAC). The first item was brought forward to PEC on June 14, 2005 and provided the rationale for developing the SWM Strategy, including a review of how other municipalities are meeting the challenges of stormwater management: http://ottawa.ca/calendar/ ottawa/citycouncil/pec/2005/06-14/ACS2005-PGM-POL-0034.htm. A second information item, providing an overview of Stage 1 findings, was brought forward to PEC on May 23, 2006 and ARAC on May 25, 2006: http://ottawa.ca/calendar/ottawa/ citycouncil/pec/2006/05-23/ACS2006-PGM-POL-0045.htm.
Document 1 provides further detail on the study process:
i. Stage 1, completed in the fall of 2006, focused on summarizing existing conditions by providing a City-wide 'snapshot' of existing SWM efforts and identifying data and information gaps. This required the consolidation of a broad range of existing information covering both the built and natural environments: existing SWM infrastructure, existing stream health, current spending, existing policies and procedures, etc.
ii. Stage 2, now underway, involves the preparation of a SWM goal, objectives and policies that will provide direction in the development of SWM Planning Guidelines (Stage 2) and the Master Plan (Stage 3).
iii. Stage 3, to commence shortly, will involve the preparation of a Master Plan to address SWM planning needs for the existing developed areas and future infill/redevelopment by identifying and prioritizing a list of SWM retrofit projects to address both existing problems and mitigate the impacts of infill/redevelopment.
DISCUSSION
Document
2 provides the framework within which the SWM Policies were prepared.
An
overall goal for the SWM Strategy was first developed: To manage stormwater as
a resource while protecting people, property and watercourses from the impacts
of urban runoff.
From
this general goal, and the direction given by the Council-approved Lower Rideau
Watershed Strategy (http://ottawa.ca/calendar/ottawa/citycouncil/occ/2006/11-22/arac/
ACS2006-PGM-POL-0080.htm), more specific objectives were then developed under
the general themes of Water Quantity, Water Quality, Groundwater, Valley and
Stream Corridors, Communications, Integrating SWM Planning, and Infrastructure.
The final objectives are provided in Table 1.
Table 1: Stormwater Management Objectives
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THEME |
OBJECTIVE |
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Water Quantity |
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Water Quality |
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Valley and Stream Corridors |
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Groundwater |
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Communications |
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Integrated SWM Planning |
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Infrastructure |
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*Non-point source: Refers to contaminants that are diffuse in nature and that cannot be traced to a single source, e.g., from roads, roofs, parking lots, etc. **Point source: Refers to contaminants that can be traced to a single source, e.g., cross-connections, material stockpiles (salt, sand), etc. |
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The SWM goal and objectives are intended to reflect both current SWM practices and approaches at the City as well as potential new directions and new challenges. These new directions are summarized in Table 2:
Table 2: How is Stormwater Management Changing?
CURRENT APPROACH
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NEW DIRECTION |
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Focused more on controlling flooding and peak flows from extreme events |
Considers impacts of more frequent events and emphasizes reducing runoff volume |
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Focused more on water quality control (e.g., bacteria) |
Emphasizes an “ecosystem approach” |
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Focused more on large streams and rivers |
Recognizes the need to protect smaller streams and tributaries |
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Focused on end-of-pipe treatment |
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Focused on managing stormwater in newly developing areas (“greenfield development”) |
Also addresses stormwater management in existing urban areas (“retrofitting”) |
Following from the objectives, the SWM policies were then developed. The policies have been prepared to recognize three broad categories for which SWM planning needs to be addressed:
- 'Greenfield' or newly developing areas (in the urban area, villages and general rural area);
- Existing development - particularly those areas that developed without SWM controls; and
- Infill/redevelopment.
The different characteristics of these three kinds of areas require different SWM planning approaches. In greenfield or newly developing areas, SWM planning is typically informed by the findings of a subwatershed study. Based upon the sensitivities of the receiving watercourse(s) and the opportunities and constraints identified, SWM design criteria are derived and SWM measures (e.g., SWM ponds) are proposed to mitigate the impacts of land use change. For example, blocks of land are set aside for required facilities.
In existing urban areas without SWM controls and where infill/redevelopment may be proposed, the opportunities to implement 'greenfield-type' SWM solutions are limited due to the existing built-up condition. Typically, there is little or no land available for 'end-of-pipe' approaches, especially given the relatively small area of individual infill sites. Nevertheless, these sites must still address SWM requirements to meet existing infrastructure constraints, avoid cumulative impacts and meet regulatory requirements. However, addressing SWM concerns of infill/redevelopment on a site-specific basis can be more costly and less effective than trying to address SWM requirements more comprehensively, i.e., developing an overall SWM retrofit plan that more effectively addresses both existing problems (water quality, erosion, flooding, etc.) at the same time as mitigating the impacts of infill/redevelopment.
Recognizing the different approaches required, SWM policies have been tailored to address both rural and urban greenfield and existing/infill/redevelopment areas. Again, it is also important to note that the policies were written to reflect both existing practices, procedures and programs as well as new directions that are being promoted. The SWM policies are provided in Document 3.
Next Steps:
Taking direction from the SWM
policies, the next and final step in Stage 2 of the SWM Strategy is to prepare
SWM Planning Guidelines. This document will outline the requirements to best
integrate SWM planning into the land use planning process; will clarify various
SWM design issues at the planning level to provide a consistent approach
City-wide, and will further detail how the new directions promoted by the SWM
policies are to be achieved. This document will expand on existing provincial
guidelines, where required, to provide a 'made-in-Ottawa' guideline, tailored
to local conditions. It is anticipated that the SWM Planning Guidelines will be
brought forward to Committees and Council for approval in early 2008.
Stage 3, to commence shortly, will involve the preparation of a Master Plan to address SWM planning needs for the existing developed areas and future infill/redevelopment by identifying and prioritizing a list of SWM retrofit projects to address both existing problems and mitigate the impacts of infill/redevelopment.
ENVIRONMENTAL IMPLICATIONS
SWM policies have been developed to ensure that the impacts of urban development on the health of local rivers and streams are mitigated. The long-term outcome of implementing the SWM policies should be the protection of existing healthy watercourses and the rehabilitation of existing degraded watercourses.
RURAL IMPLICATIONS
Legislative requirements for stormwater management are applicable to land use change in both the urban and rural areas and the SWM policies have been developed to reflect this. The preparation of SWM Planning Guidelines will, however, consider the need to tailor guidelines to address development in the rural area.
CONSULTATION
Public
consultation in the development of the SWM goal, objectives and policies has
included the following:
- Technical Advisory
Committee: The Technical Advisory Committee (TAC), assembled during Stage
1, has reviewed and commented on the SWM goal, objectives and policies.
The TAC is comprised of representatives from the Ministry of the
Environment, the Department of Fisheries and Oceans, local Conservation
Authorities (Rideau Valley, Mississippi Valley and South Nation) the
National Capital Commission, and City staff. The TAC has met twice to date
during Stage 2.
- Public Advisory
Committee: The Public Advisory Committee (PAC), assembled during Stage 1,
has reviewed and commented on the SWM goal, objectives and policies. The
PAC includes 10 citizens, some representing Community Associations or
organizations representing: Ottawa Riverkeeper, the Westboro Beach
Community Association, Friends of the Jock River, the Heron Park Community
Association, the Faircrest Heights Community Association, the Preston
Street BIA, and CREDDO (Conseil régional de l'environnement et du
développment durable de l'Outaouais). The PAC has met twice to date during
Stage 2.
- Website: A project
website went live in October 2005 and is updated regularly.
- Stage 2 Open
Houses: Four Open Houses were held to present the draft SWM goal,
objective and policies to the public and request their comments:
Tuesday, March 20, 2007: Orleans
Wednesday, March 21, 2007: Kanata
Tuesday March 27, 2007: Manotick
Wednesday, March 28, 2007: City Hall
Total attendance for all four Open Houses was 51
people. Document 4 provides a summary of the comments provided by attendants at
the Open Houses along with City staff responses.
- Study Mailing List:
A mailing list consisting of approximately 200 individuals, community
groups, associations, and consultants has been assembled. Open House
notices were distributed to all on the list.
- Development
Industry Consultation: The SWM Policies were presented at the April 19,
2007 meeting of the Rural Development Working Group. This group questioned
the need for policies/guidelines for the rural area, with the suggestion
that existing regulations are already onerous. A concern was also
expressed that an urban standard should not be applied to the rural area.
The SWM Policies were also presented at the May 17, 2007 meeting of the Engineering Liason Sub-Committee.This group noted that the guidelines (to be developed from the policies) should ensure clarity and aim to reduce overlap in the SWM planning and approvals process. There is also a need to clarify what is required or expected in the urban area vs. the rural area.
- Environmental
Advisory Committee: The SWM Policies were presented at the May 10, 2007
meeting of the Environmental Advisory Committee. Members commented that
there needs to be better integration of biological concerns; that the
design of SWM facilities should incorporate design features to discourage
beaver activity in the facilities; and that there is a need to address the
impacts of uncontrolled storm sewer outfalls into the Ottawa River.
- Rural Issues Advisory Committee: The SWM Policies were presented at the May 15, 2007 meeting of the Rural Issues Advisory Committee. Members noted concerns regarding the application of urban standards to the rural area.
FINANCIAL IMPLICATIONS
There are no financial implications at this time. Funding for the preparation of SWM Planning Guidelines and the completion of Stage 3 of the SWM Strategy is available in capital accounts 900985 - Stormwater Master Plan and 902572 - Environmental Assessments. Any financial implications of implementing the SWM Policies, Planning Guidelines and Master Plan will be assessed through the next stages of work and brought forward for approval through the annual budgeting process.
SUPPORTING DOCUMENTATION
Document 2 Stormwater Management Policy Framework
Document 3 Stormwater Management Policies
Document 4 Comments Received at Open Houses
DISPOSITION
Staff will prepare SWM Planning Guidelines as per the direction set by the SWM Policies.
