The Regional Municipality of Halton. Chair and Members of the Planning and Public Works Committee

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1 The Regional Municipality of Halton Report To: From: Chair and Members of the Planning and Public Works Committee Peter M. Crockett, P. Eng., Commissioner of Planning and Public Works Date: January 17, 2008 Report No. Re: PPW Lake Ontario Shoreline Algae Action Advisory Committee Final Report - Completion of Mandate RECOMMENDATION 1. THAT the Lake Ontario Shoreline Algae Action Advisory Committee (LOSAAAC) Final Report, January 2008, Document under Separate Cover to Report No. PPW10-08, be received for information. 2. THAT staff be authorized report back to Council in mid-2008 with a review of the recommendations as set out in the LOSAAAC Final Report and a plan for implementation of the recommendations, where appropriate. 3. THAT Council formally dissolve LOSAAAC based on completion of the mandate outlined in Report No. PPW THAT the Regional Chair, on behalf of Regional Council, send a thank you letter to each member of LOSAAAC for their valuable input and advice. 5. THAT the Regional Clerk forward a copy of Report No. PPW10-08 to the 2007 LOSAAAC members, City of Burlington, Town of Oakville, City of Mississauga, and the Ontario Water Works Research Consortium (OWWRC) members (Durham Region, City of Toronto, Peel Region, City of Hamilton, and Niagara Region) for their information. REPORT Purpose The purpose of this report is to table the Final Report prepared by LOSAAAC, Document under Separate Cover to Report PPW This report recommends dissolution of the Committee as agreed with the Committee given that the attached report fulfils the Committee s mandate, goals, and purpose. This report also provides an opportunity to thank the LOSAAAC members for the valuable advice they have provided to Regional Council regarding the attached algae issue. LOSAAAC Chair, Brian Emo, will highlight the document at the Planning and Public Works Committee (PPWC) meeting of January 30,

2 Staff intend to report back to Council in mid-2008 with a review of the recommendations as set out in the Final Report and a plan for implementation of the recommendations where appropriate. Impacts of Nuisance Algae During the summer months, accumulation of rotting algae aesthetically degrades the shoreline of Lake Ontario and produces a foul odour that has a significant adverse impact on quality of life and enjoyment of the lake. Several of Halton s beaches have been closed in recent years due to excessive algae growth, which makes the beaches unsuitable for swimming. Other municipalities along the Lake Ontario shoreline have also experienced similar adverse impacts. The algae primarily responsible for this nuisance is the filamentous algae species Cladophora glomerata (Cladophora) which grows attached to the rocky surfaces on the lake bottom given sufficient light and nutrient supply. The algae detaches from the rocky lakebed in mid-summer and becomes a nuisance when it accumulates and rots along the shoreline. The nuisance algae issue may have financial as well as aesthetic impacts although it is difficult to estimate the economic impact in dollars. For example, the smell from rotting algae may negatively impact local businesses and lake front events such as Burlington s Ribfest held on Labour Day weekend. LOSAAAC Mandate LOSAAAC was created in 2002 with the goal to advise and assist the Region with respect to Lake Ontario algae issues. The Terms of Reference for the committee includes the following scope and purposes: To advise and assist Regional Council in the continuing research and possible solutions to the reduction of the Lake Ontario Algae issue. To support two-way dialogue between the Committee, Halton residents, businesses, Regional staff, and the Planning and Public Works Committee. Create a work plan within the scope and purposes identified above for each year and prepare a report on its activities at the end of term and submit them through staff to the Planning and Public Works Committee of Council. Accomplishments of LOSAAAC Over the past five years, LOSAAAC has worked diligently to support and communicate the results of research into the Lake Ontario algae issue. Progress reports on the Committee s activities and findings were presented to Council in 2003 (Report PPW144-03), 2004 (Report PPW162-04), 2005 (Report PPW40-06), and 2006 (Report CA-76-06). Through Report CA-76-06, Citizen Advisory Committees End of Term Review and Recommendations, LOSAAAC s term was extended to 2007 to allow time to assess the findings of the Ontario Water Works Research Consortium (OWWRC) Algae Research Project and finalize conclusions and recommendations to Regional Council. LOSAAAC has focussed its efforts in three key areas: Physical clean-up of attached algae from the shoreline; 2

3 Funding and monitoring several research projects in order to better understand the cause and potential solutions for the odour and other problems caused by the deposition of detached algae in the shorelines of Lake Ontario; Public education. Physical Clean-up As outlined in Report PPW72-02, Halton Region and the Town of Oakville co-sponsored a program of manual removal of algae from the shoreline from 1999 through 2001 and a Pilot Algae Cleanup Program in A report by the Town of Oakville Parks and Recreation Department dated March 28, 2002, summarized a comprehensive review by Town staff of options for algae cleanup and recommended a pilot study using a combination of harvesting algae mats with a contracted aquatic weed harvester and hand removal of accumulated algae along the shoreline. Unfortunately, as described in Report PPW48-03, most of Halton's shoreline is rocky beaches which makes it extremely difficult to remove washed up algae effectively. The pilot clean-up was very costly and was found to have a minimal effect on removing the overall algae accumulation on the shoreline. Therefore, Town staff recommended against continuing the program on a townwide basis; although they did recommend continuing to clean up algae at the bottom of East Street in Bronte. The Town of Oakville s Harbour Master continues to collect algae from the shoreline using pitch forks and a front end loader with the collected material taken to landfill. Through a resolution passed by Town of Oakville Council on October 1, 2007, Town staff were directed to review and report back on any new or alternative technologies and/or operational methods associated with the ongoing shoreline algae concerns raised by the local residents. Town staff intend to report back to Town of Oakville Council in the Spring of 2008 with the results of the review. City of Burlington and Halton Region staff are participating on the Technical Advisory Committee for this review. Funding and Monitoring of Research Halton Region is a member of the OWWRC, an umbrella organization comprising municipalities that draw municipal water supply from the western end of Lake Ontario (Durham Region, City of Toronto, Peel Region, Halton Region, City of Hamilton, and Niagara Region) and scientists from the Ontario Ministry of the Environment and the National Water Research Institute, with overall coordination by the Ontario Clean Water Agency. Halton Region has provided funding to OWWRC since 2003 as outlined in Report PPW Beginning in 2002, OWWRC retained a team of researchers from the University of Waterloo to undertake a comprehensive program of research into the attached algae issue including the following objectives: 1. Determine whether attached algae biomass is increasing. 2. Establish the sites of excessive growth of noxious species and, if possible, the specific sites that contribute to on-shore complaints. 3. Investigate the causes of increased algae biomass and changes in species composition. 4. Determine the impact of local sources of nutrients, including wastewater plants, on algae biomass production. 3

4 5. Advise on possible control methods. The final research report was released in July 2007 and copies are available in the Councillors Library and Halton s Citizen Reference Library. In general, the conclusion of the work are: Dreissenid (zebra) mussels have re-engineered the near-shore environment (note that the near shore environment generally refers to the area from the shoreline to approximately 10 m depth or approximately 1 km from the shoreline) resulting in expansion of illuminated bottom area to enable Cladophora growth on rocky shorelines resulting in increased total production and more beach fouling. Mussel excretion is now the primary source of soluble reactive phosphorus in the nearshore coastal zone and this is a non-point source of phosphorus distributed over all rocky areas except in shallowest waters. The Cladophora biomass are still limited by availability of phosphorus and so in principle further reduction in coastal phosphorus should lead to reductions in Cladophora production. Conversely, any increase in phosphorus loading, especially if it is a significant increment relative to zebra mussel loadings, could make the Cladophora problem much worse because of the better water clarity compared to the 1970 s and 1980 s. However, point sources do not cause spatially significant increases in nutrients nor high biomasses of Cladophora so reduction in lake wide phosphorus may be necessary to gain benefit. Zebra mussels are the key to the changes in Cladophora abundance and the problem of beach fouling will likely depend on changes in their abundance. Zebra mussels are still relatively new and increased predation by native species or other accidentally introduced species such as Round Goby may reduce their abundance and their influence on Cladophora growth. Public Education A comprehensive public education program called Give our Lake a Break was developed by LOSAAAC to raise awareness of what can be done to protect the health of Lake Ontario. Lake Health Tips brochures, buttons, and tattoos were created for distribution at various community events. LOSAAAC also promoted the Yellow Fish Road program led by Conservation Halton. Overview of the Final Report The Final Report prepared by LOSAAAC members is an excellent summary of the work and findings of the Committee over the past five years, culminating in the following conclusions and recommendations to Council: 1. Commit to Action: Nuisance algae are a blight that negatively impacts many thousands of Halton residents. We recommend Regional Council commit to action to minimize the problem as much as possible with available knowledge and technology, through action locally and in concert with other municipalities and the province on a lake basin-wide basis. 4

5 2. Protection of Near-shore Water Quality: Among scientists concerned with Great Lakes Water Quality issues there is a growing consensus that the Great Lakes Water Quality Agreement management thrust needs to be broadened to include management of the nearshore waters separately from the main bodies of lake water. We recommend Halton Region and Local Municipalities consider the near-shore waters of Lake Ontario an environmentally sensitive area and take every measure to protect the health of these waters especially when undertaking any new development. 3. Reduction of Nutrient Loading: Dreissenid (Zebra and Quagga) mussels filter-feeding activity dominates the supply of soluble phosphorus to nuisance algae causing Cladophora in Lake Ontario, yet the origin of the nutrient is predominantly from discharges of point and nonpoint sources to lake water. We recommend Halton Region advocate that the Ministry of the Environment review and consider reducing the permitted nutrient discharges to Lake Ontario. 4. Optimization of Halton Lake-Based WWTPs: There is a need to offset the increased nutrient loading to Halton lake-based WWTPs from the growth in population these plants serve. We recommend Halton to proceed without delay with the planned optimization of all plants with the object of achieving the 2006 performance of the Skyway plant by Stormwater Management: Stormwater drainage is a significant contributor to nutrient loading to Lake Ontario, and loading from newly urbanized land will be up to seven times higher than previously. We recommend Halton urge Local Municipalities to adopt effective stormwater management policies and plans to reflect current best practice in protecting nearshore waters of Lake Ontario from additional nutrient loading from new urban and infill development. 6. Shoreline Shape Matters: Our study of the Oakville shoreline shows that cove-like shoreline shapes, such as found at East St. Oakville, become collection traps for wind blown algae. We recommend Halton urge Conservation Halton and Local Municipalities to take care to avoid creating such situations when planning future alterations to the shoreline. 7. Monitoring Discharges to Lake Ontario: While we found that discharges to the lake from WWTPs was regularly monitored and reported, we were surprised at the lack of information on what flows into Lake Ontario from streams and storm drains even though they are assumed to be significant sources of nutrient loading. Up-to-date information was obtained through work with Conservation Halton to sample outfalls and later through the Aquafor Beech survey of Halton watersheds. We recommend that Halton Region, Local Municipalities, and Conservation Halton put in place sound policies regarding nearshore water quality management through adoption of policies and procedures to periodically monitor the flows and nutrient loading entering Lake Ontario from point and non-point sources. This should include tracing to determine actual diffusion of these flows. 8. Communication & Education: Informing and educating the public played an important part of LOSAAC s work. We recommend Halton Region commit to a program to inform the public on Lake Health/Algae issues, to include a multi-media presentation on algae and 5

6 source water protection findings for community groups, an accessible web page on algae and source water issues with links to /telephone contacts to report nuisance algae incidents, and including public education on phosphate-free fertilizer. 9. Monitoring Lake Matters: Since 2002 we have frequently come across non-algae issues of interest to Halton Region. We recommend Halton Region provide staff time and resources with responsibility for periodic reporting to Council and the public to keep them informed about the quality of the health of local Lake Ontario waters. 10. Protecting & Cleaning Algae Hot Spots: We recognize the difficulties faced in cleaning affected rocky shorelines but believe the continuing serious problems at beach locations such as East Street need to be addressed. We recommend Halton Region, Oakville, and Burlington request staff to study methods of protecting shorelines from seasonal heavy algae deposits and of removing such deposits from sensitive beach areas where feasible. 11. Local Initiatives: We found that an opportunity exists with phosphate-free fertilizers and dishwasher detergents, which are readily available at reasonable prices, to build on the success achieved in reducing nutrient loading through the ban on phosphates in laundry detergents. We recommend Halton Region and Local Municipalities ban the use of fertilizers and dishwasher detergents that are not phosphate free. Next Steps Staff are currently assessing the recommendations contained in the LOSAAAC Final Report and intend to report back to Council with an implementation plan in mid-2008 in advance of the 2009 Budget. There are a number of existing organizations, initiatives, and programs that may provide an excellent opportunity to address the recommendations in the LOSAAAC Final Report, such as the International Joint Commission Great Lakes Water Quality Agreement review, Environment Canada s Lake Ontario Lakewide Management Plan, Ontario Water Works Research Consortium, Source Protection Planning and Sustainable Halton. For example, staff are currently working with the Ontario Water Works Research Consortium to develop a strategy for addressing the nuisance algae and near shore issues with the intention of presenting this strategy to the Source Protection Committees in As reported in the Toronto Star, on December 18, 2007, the federal government is considering banning phosphates in a wide variety of household and industrial products and have issued a call for proposals for a consultant study to be completed by May The follow-up report will discuss Halton Region s potential role in the nuisance algae issue in the context of these existing organizations, initiatives, and programs. Completion of Mandate The efforts of LOSAAAC over the past five years have culminated in the Final Report (Document under Separate Cover). Dissolution of the Committee was discussed at the LOSAAAC meeting held on November 16, LOSAAAC members agreed that the LOSAAAC Final Report fulfills the Committee Mandate as set out in the Terms of Reference and that the Committee should be dissolved. With the mandate of LOSAAAC having been successfully completed, it is recommended that LOSAAAC be dissolved. 6

7 Staff would like to thank LOSAAAC members for their hard work and dedication to working towards resolution of the nuisance algae issue, which has a significant negative impact on the environment and the economy in Halton Region. It is recommended that the Regional Chair write a letter to LOSAAAC members thanking them for their contribution. FINANCIAL/PROGRAM IMPLICATIONS The financial implications related to the LOSAAAC Final Report will be reviewed and identified in the implementation plan report to be presented to Council in mid RELATIONSHIP TO THE STRATEGIC PLAN This report supports Theme #2 Protect and Enhance our Natural Environment; Goal 4 Protect greenspace and enhance public accessibility, where appropriate, and Goal 5 Enhance protect and maintain quality, quantity and safety of groundwater and surface water. Respectfully submitted, Mary Lou Tanner MCIP RPP Director, Planning and Transportation Peter M. Crockett P. Eng. Commissioner of Planning and Public Works Approved by Pat Moyle Chief Administrative Officer If you have any questions on the content of this report, please contact: Mary Lou Tanner Tel. # 7966 Jacqueline Weston Tel. #