Natural & Human Hazards/Constraints - Climate Change

Transcription

1 Town of Huntsville Official Plan Review - POLICY BACKGROUND PAPER Natural & Human Hazards/Constraints - Climate Change BACKGROUND: The phenomenon of climate change is thoroughly explained and discussed in the Planning for Climate Change in Muskoka report. The effects of climate change have already been felt across Ontario, as the province is experiencing warming temperatures, changing precipitation patterns, and is facing more extreme weather events with unparalleled damage. These changes in our climate and weather have resulted in a variety of environmental, social and economic impacts. For example, the increasing frequency and intensity of weather extremes poses risks to infrastructure, including transportation, buildings, stormwater, and shorelines. As the geographical location and physical attributes of municipalities vary across the province, the Ontario Centre for Climate Impacts and Adaptation Resources (OCCIAR) and the Ontario Ministry of Natural Resources and Forestry (MNRF) have identified that it is important that each municipality identify how climate variability/change will manifest itself and how those climate hazards will translate into impacts and risks for communities. Climate change continues to bring challenges that municipalities will need to face head-on and manage proactively. According to the United Nations Office for Disaster Risk Reduction, two of the ten essentials for making cities resilient in responding and adapting to climate change include: o the protection of ecosystems and natural buffers; and o application and enforcement of realistic, risk-compliant building regulations and land use planning principles. This involves the identification of safe land for low-income citizens and the upgrading of informal settlements, wherever feasible. POLICY CONTEXT: Provincial Policy Statement (2014): Identifies that healthy, livable and safe communities are sustained by efficient land use patterns; accommodating a mix of affordable residential, institutional, recreational and other uses; avoiding land use patterns which cause environmental, public health and safety concerns and settlement area expansions; promoting land use patterns which minimize land consumption and servicing costs; improving accessibility for persons with disabilities and older persons; ensuring the necessary infrastructure and public services facilities will be available for future needs; and promoting land use patterns that protect biodiversity and consider the impacts of climate change.

2 Land use patterns within settlement areas shall be based on: densities and a mix of land uses which: 3) minimize negative impacts to air quality and climate change, and promote energy efficiency; Infrastructure, electricity generation facilities and transmission and distribution systems, and public service facilities shall be provided in a coordinated, efficient and cost-effective manner that considers impacts from climate change while accommodating projected needs Planning authorities shall support energy conservation and efficiency, improved air quality, reduced greenhouse gas emissions, and climate change adaptation through land use and development patterns which: a) promote compact form and a structure of nodes and corridors; b) promote the use of active transportation and transit in and between residential, employment (including commercial and industrial) and institutional uses and other areas; c) focus major employment, commercial and other travel-intensive land uses on sites which are well served by transit where this exists or is to be developed, or designing these to facilitate the establishment of transit in the future; d) focus freight-intensive land uses to areas well served by major highways, airports, rail facilities and marine facilities; e) improve the mix of employment and housing uses to shorten commute journeys and decrease transportation congestion; f) promote design and orientation which: 1. maximizes energy efficiency and conservation, and considers the mitigating effects of vegetation; and 2. maximizes opportunities for the use of renewable energy systems and alternative energy systems; and g) maximize vegetation within settlement areas, where feasible Planning authorities shall consider the potential impacts of climate change that may increase the risk associated with natural hazards. Current Muskoka Official Plan & Policy Directions Report: F.46, F There are no policies that speak directly to Climate Change in the MOP; however, there are consistent themes throughout in regards to maintaining and enhancing natural resources (F.3) and ensuring growth has minimal impacts on the environment (C.2-4). 34 The MOP should include policies that recognize the need to mitigate and adapt to climate change by fostering resiliency of communities and requiring the consideration of climate change through the planning process, including environmental protection, health and resource considerations. Natural & Human Hazards/Constraints - Climate Change 2

3 First Draft - Muskoka Official Plan: B 18.1 It is the objective of this plan to: f) Adapt to and mitigate the impacts of climate change through the creation of resilient communities; g) Encourage development and land use patterns that consider the impacts of climate change; B 18.9 a) Muskoka s weather is changing. Muskoka is to expect hotter, drier summers with more heat waves and more intense rainfall events, and warmer and milder winters. These changes will impact how the District and Area Municipalities plan for development and redevelopment, infrastructure and the public realm to ensure the area remains resilient to changing weather from economic, health, social, emergency services and environmental perspectives; b) The District recognizes that the creation of resilient communities and ecosystems will be required to address climate change. In doing so, the Districts supports a climate change lens being applied to the review of policy and development applications. Considerations may include but are not limited to: i) Reduction of greenhouse gas emissions; ii) Improvement of air quality; iii) Promotion of compact form; iv) Efforts to limit the dispersal of the population and travel times between housing, employment, and amenities and services; v) Use of green infrastructure; and vi) Promotion of design to: 1. Maximize energy efficiency and conservation including consideration of the mitigating effects of vegetation; and 2. Maximize opportunities for the use of renewable and alternative energy sources and systems. F1.1 b) It is also the objective of this Plan to: x) Minimize the potential for invasive species to impact biodiversity and improve the ability to adapt to and mitigate climate change by fostering resilient ecosystems; F2.4 a) Planning for stormwater management shall: vi) Consider the impacts of climate change. Natural & Human Hazards/Constraints - Climate Change 3

4 K1.5 In considering a draft plan of subdivision or condominium description, regard shall be had, among other matters, to the health, safety, convenience, accessibility for persons with disabilities and welfare of the present and future inhabitants of the municipality and to, d) How the proposed development addresses climate change mitigation and adaptation considerations including but not limited to: Town Strategic Documents: Strategic Plan i) The reduction of greenhouse emissions; ii) The improvement of air quality; iii) Promotion of compact development form; iv) The promotion of green infrastructure; and v) The promotion of design and orientation that maximizes energy efficiency and conservation, and considers the mitigating effects of vegetation and maximizes opportunities for the use of renewable energy systems and alternative energy systems. Natural Environment and Sustainability Goal #1: Demonstrate the Town s commitment to protecting the quality and character of the natural environment. Goal #2: Integrate sustainability principles into planning and development policies and processes. Unity Plan Goal #1 Environment: The community will protect, preserve, restore and enhance the terrestrial and aquatic environments and biodiversity of Huntsville and surrounding area by being responsible stewards of the environment. Goal #5 Land Use Planning: Huntsville will become a model of sustainable community development, by incorporating the principles of smart growth, sustainable design and green buildings into all land use planning decisions. This will include a commitment to the protection and maintenance of Huntsville s rural small town character and vibrant downtown, both of which are valued by the community. Huntsville Official Plan: At present the Official Plan does not contain policies respecting climate change adaptation. Natural & Human Hazards/Constraints - Climate Change 4

5 CONSIDERATIONS: The Planning for Climate Change in Muskoka report suggests that by mid-century increased precipitation during winter months will occur, and the expectation is that much of this will come as rain rather than snow. With much of the winter precipitation flowing downstream during frequent thaws during this season, it has implications for a summer with sustained but reduced flow through our waterways. The reduced availability of water during summer and fall, combined with an expected warmer climate, will mean that by mid-century Muskoka s lakes will be ice-free for longer, will warm up and be more productive during the season, but may also be at greater risk of deteriorating water quality. Algal blooms are likely to become a more frequent event, and there are likely to be subtle but important changes to the ecology of our lakes and to the composition of species that live there. The report s authors also identify that most of the trees in Muskoka are likely to be better suited to locations far to our north by the end of the century, and will be under climatic stress and likely not faring well. The pace of climate change will likely make it necessary to use species suited to a climate that is currently well south of Muskoka in urban planting, landscaping, and in reforestation. The warmer climate and increased atmospheric CO2 should facilitate plant growth; farmland should be more productive so long as water is available in summer and fall. The generally dryer conditions during the growing season will increase the risk of fire, and some of our forests may well be reshaped by new fire regimes. The authors also suggest that the warmer and seasonally drier climate will facilitate the arrival of various insect pests and pathogens that will impact our forests. Potentially more important than new pests and diseases may be the increased risk of heat-related death for elderly and infirm poor people dealing with prolonged summer heat waves in conditions without adequate temperature control. Finally, the authors of the report also note that it is widely recognized that a warming climate will result in more extreme episodes of precipitation whether as blizzards, ice storms or thunder storms. Violent storms, including tornadoes, will likely be more frequent. Flooding, particularly during winter and spring, is likely to be substantially more severe than at present, especially in colder years when a substantial snowpack develops. Likely being cognizant of the impacts of the 2011 Slave Lake fire in northern Alberta, as well as the Timmins, Ontario, fire in 2012, the Province included a wildland fire policy (3.1.8) in the Natural Hazards section of the 2014 PPS. This was the first time such a policy was included in this document. Wildland fires (forest fires) are a natural occurrence and are the second most common natural disaster, after flooding. The level of risk with this hazard is expected to increase with the advent of climate change. SUMMARY: A review of best practices from other municipalities across the province has revealed that the following policy approaches may assist in addressing some of the considerations: Natural & Human Hazards/Constraints - Climate Change 5

6 The Planning for Climate Change in Muskoka recommends that through Official Plan Review processes, and in consultation with MNRF and DMM, area municipalities should ensure that regulations and advice governing built structures in floodplains are appropriate, and based on accurate, up-to-date information on likely patterns of water level fluctuations on our lakes and waterways in coming years. In view of this, the introduction section of the updated environment and hazard/constraint policy section should recognize the concept of climate change and identify that the establishment of a natural heritage system is intended to improve the resilience of ecosystems, protect and promote biodiversity, as well as to manage flood risks at a watershed level. In this regard, natural heritage features should be protected and shoreline areas, watercourses and drainage features should remain naturalized or restored to a naturalized state. To mitigate the effects of flooding (especially in the urban area) development should be required to provide improved stormwater management through protection, enhancement of natural linkages, corridors and shorelines, or construction of new permeable surfaces, run-off control, low impact design (LID) and green infrastructure. Further, where redevelopment occurs, stormwater management systems and infrastructure should be reviewed and probably result in substantial renewal/expansion. The inclusion of policies to address wildland fires, discussed in a separate Policy Background paper, will be required in an updated official plan. Natural & Human Hazards/Constraints - Climate Change 6

7 Town of Huntsville Official Plan Review - POLICY BACKGROUND PAPER Natural & Human Hazards/Constraints - Flooding BACKGROUND: Media coverage of the recent flooding across Canada has highlighted the risks to public health and safety, extensive property damage, and immeasurable social disruption when development in close proximity to water is subject to flooding. For municipalities and governments, flooding events contribute to increased public liability, escalating public costs related to the installation, maintenance, replacement or upgrade of protection works required to protect vulnerable developments, and mounting public expense to address past development decisions. In the Town of Huntsville, the regulatory flood (the flood event established by the province as flood level for which municipalities must plan)identified by the Province is being the greater of: i) The 100 year flood, which is the area that would be flooded, on average, once in 100 years; or ii) the Regional Flood, which is the area that would be flooded by a storm modeled on a particularly intense storm which occurred in Timmins in 1961, and could occur in this area. Typically in Ontario, the Province requires that a One Zone or a Two Zone approach be applied to guide development in the flood plain. Where the One Zone concept is applied the floodway (portion of the flood plain where development and site alteration would cause a danger to public health and safety or property damage) represents the entire contiguous floodplain. Under this approach, no new development, expansion of existing uses and /or site alteration (i.e. filling) should be permitted below the regulatory flood elevation. One exception could be to permit structures necessary for flood and/or erosion control works or structures which by their nature must be located on the shoreline, such as docks or non-habitable boathouses. Flood plain mapping for a downtown section of the Town of Huntsville identifies the regulatory flood elevation which defines the floodplain area. For this area, the province recommends that a One Zone approach be implemented. The Hydrology Study for Major Lakes in the Muskoka River Watershed (1988) was prepared for MNR and Environment Canada. A supplementary wave-runup/offset analysis was prepared in It identifies the regulatory flood elevation for major lakes within the Town of Huntsville. The table in Appendix I contains the stillwater and wave run-up elevations for several major lakes identified above noted 1988 and 1989 studies. The wave run-up elevations identified in the Muskoka Hydrology Studies are based on the maximum fetch on each lake (i.e. the maximum distance over which waves can build). These elevations may, therefore, be excessive for locations subject to a lesser fetch. A site-specific wave run-up calculation could be determined where property owners believe that the general wave run-up calculation is excessive. The Province

8 recommends that any site-specific revisions are determined by an engineer qualified in this field. However, in no case can the One Zone approach flood elevation be lowered below the stillwater flood elevation. A Two Zone approach is only used when a detailed engineered study has determined that certain portions of the floodplain could be safely developed with significant off-site increases in flood-related hazards (that is, without significantly increasing flood elevations or flow velocities on other properties). Under this approach: Because flood depths and/or velocities are considered to be such that they pose a potential threat to life and/or property damage, the floodway is that part of the floodplain where new development, expansion of existing development and/or site alteration should not be permitted. The flood fringe (the outer portion of the flood plain where flood depths are significantly lesser than in the floodway) is that part of the floodplain where it has been demonstrated that new structural development could safely occur without resulting in significantly increased flood-related impacts elsewhere. New development could be permitted within the flood fringe provided that it has safe access, all buildings and additions are adequately flood-proofed, and adequate provisions are made for the safe disposal of sewage. The Big East Flood Damage Reduction Program study (1989) allows for a Two Zone approach to floodplain management in certain locations along the Big East River. This two zone study determined that development and filling in the floodway should be prohibited due to the potential for property damage and the potential for off-site impacts. The only locations in which new development should be permitted within the flood plain were the areas identified as flood fringe. The Big East River Flood Damage Reduction Program mapping was a comprehensive engineering study. The Province requires that alterations to the Regulatory Flood Elevations or Regulatory Floodlines derived from this study should only be carried out where supported by a reviewed detailed engineering study which assesses cumulative impacts. Floodplain management is one of the natural hazard/constraint areas currently identified in the Huntsville Official Plan. Depending on the severity of the hazard, the policies either prohibit or limit permitted development. POLICY CONTEXT: Provincial Policy Statement (2014): Directs development away from lands subject to flooding and erosion Refines direction to prohibit development in a floodway, regardless of high points of land, and areas inaccessible to vehicles and people during times of flooding, unless it has been demonstrated that safe access is available for the nature of the development and the natural hazard. Natural & Human Hazards/Constraints Flooding 2

9 3.1.4 Development may only be permitted in flood prone areas if a special policy area is approved by the province; or only permitted are those uses which by their nature must locate in the floodway Where floodplain mapping exists and a Two Zone concept is applied, development may occur in the flood fringe if the risk can be mitigated (i.e. floodproofing, safe access, no new hazards created) , The Town must consider the impacts of climate change and the potential for increased risk in the context of natural hazards Current Muskoka Official Plan & Policy Directions Report: F.46, F F.48, F Defines terms related to 100 year flood event (floodway, flood fringe, etc.) and illustrates lands on Schedules E & F. Generally directs development away from the floodplain but enables the use of the Two Zone floodplain concept F.56 Prohibits alteration of a flood prone area (filling, etc.) that would significantly alter flood flows F.55, Outlines various agency roles in floodplain identification and maintaining water level control F structures Draft Muskoka Official Plan F1.3 a) Wetlands are important natural resources. The ecological, social and economic benefits that can be attributed to wetlands are substantial. Wetlands maintain and improve water quality; help control flooding; provide habitat for fish and wildlife; provide conditions for a wide variety of vegetation (including rare and unusual species); and contribute to substantial social and economic benefits such as hunting, fishing, wildlife viewing and appreciation of nature in general. F.1.13 a) It is the intent of this Plan to recognize the importance of the ecological function of all watercourses and surface water features, and their associated floodplains, valleys and stream corridors. Watercourses and surface water features are generally shown on the schedules to this Plan. F2.4 b) In order to control flooding, ponding, erosion and sedimentation and to protect water quality and aquatic habitat or other natural habitat which depend on watercourses and other water bodies for their existence, stormwater management plans shall generally be required for any new development consisting of more than four lots or for commercial or industrial developments with large amounts of impervious area. Stormwater management will be undertaken in accordance with the Provincial Ministry with jurisdiction s guidelines (e.g. Stormwater Management Planning and Design Manual, 2003). Natural & Human Hazards/Constraints Flooding 3

10 G4.2 b) Landowners are encouraged to recognize the importance and value of forest resources as a source of wood and non-wood products as well as for their wildlife, recreation, aesthetic, environmental and soil and water conservation capabilities. In this regard, landowners are encouraged to: iii) Maintain and establish tree and shrub cover as appropriate, and in hazardous areas such as steep slopes, major drainage swales, shorelines and flood prone areas, in order to reduce runoff rates and minimize soil erosion; H1.2 Development shall generally be directed to areas outside of: b) Hazardous lands adjacent to river, stream and small inland lake systems which are impacted by flooding hazards and/or erosion hazards or areas at risk for wildland fire; H1.3 a) Hazardous lands are lands that could be unsafe for development due to naturally occurring processes. b) Along river, stream and small inland lake systems, this means the land, including that covered by water, to the furthest landward limit of the flooding hazard or erosion hazard limits. For the purposes of this policy, all of the lakes in the District are considered to be small inland lake systems. H1.5 Development and site alteration shall not be permitted within: a) Areas that would be rendered inaccessible to people and vehicles during times of flooding hazards and/or erosion hazards, unless it has been demonstrated that the site has safe access appropriate for the nature of the development and the natural hazard; and, b) Where a two-zone concept is applied, a floodway regardless of whether the area of inundation contains high points of land not subject to flooding. H1.6 Notwithstanding Section H1.5 of this Plan, development and site alteration may be permitted in certain areas associated with the flooding hazard along river, stream and small inland lake systems: a) In those exceptional situations where a Special Policy Area has been approved. The designation of a Special Policy Area, and any change or modification to the official plan policies, land use designations or boundaries applying to Special Policy Area lands, must be approved by the Ministers of the Provincial Ministries with jurisdiction prior to the approval authority approving such changes or modifications; or, b) Where the development is limited to uses that by their nature must locate within the floodway, including flood and/or erosion control works or minor additions or passive nonstructural uses that do not affect flood flows. Natural & Human Hazards/Constraints Flooding 4

11 H1.7 Development shall not be permitted to locate in hazardous lands and hazardous sites where the use is: a) An institutional use including hospitals, long-term care homes, retirement homes, preschools, school nurseries, day cares and schools; b) An essential emergency service such as that provided by fire, police and ambulance stations and electrical substations; or c) Uses associated with the disposal, manufacture, treatment or storage of hazardous substances. Town Strategic Documents: Strategic Plan Natural Environment and Sustainability Goal #1: Demonstrate the Town s commitment to protecting the quality and character of the natural environment. Goal #2: Integrate sustainability principles into planning and development policies and processes. Unity Plan Goal #5 Land Use Planning: Huntsville will become a model of sustainable community development, by incorporating the principles of smart growth, sustainable design and green buildings into all land use planning decisions. This will include a commitment to the protection and maintenance of Huntsville s rural small town character and vibrant downtown, both of which are valued by the community. Huntsville Official Plan: Directs development away from lands subject to flooding Identifies a Two Zone concept floodplain policy approach for the Big East River , & In One Zone concept floodplains, development is not permitted below the Regulatory Flood Elevation. Wave uprush can be addressed through a site specific study. No new lot creation if inadequate space and access outside of floodplain Where the floodplain has been based on airphoto interpretation, the limits shall be spatially identified in zoning. Natural & Human Hazards/Constraints Flooding 5

12 3.6.7 Openings for development in Brendale Square shall not be below the Regulatory Flood Elevation. CONSIDERATIONS: Climate change is a critical issue for all of Muskoka and will likely manifest itself in more extreme weather events that will result in more intense impacts on hazard lands (i.e. flooding and wildland fires). These types of events could impact private property interests, community infrastructure and safety and insurance rates. Watershed Council has written a background paper on how climate change is anticipated to impact Muskoka. This paper recommends that through Official Plan Review processes, and in consultation with MNRF and DMM, area municipalities should ensure that regulations and advice governing built structures in floodplains are appropriate, and based on accurate, up-to-date information on likely patterns of water level fluctuations on our lakes and waterways in coming years. The provision of floodplain mapping for the Muskoka River through downtown, as well as updated mapping for the Big East River based on modelling of various climate change scenarios, is necessary to assist with policy preparation and emergency planning. The current floodplain planning policies address this matter through specific areas rather than in a more general way. They also do not provide direction to the zoning by-law for seasonal uses in flood prone areas. The Province has identified the need for policy which directs that new lot creation should not be permitted where there is inadequate building space outside the floodway or where access/egress is not safely available during times of flooding. The Province has identified the need for policy which directs that expansion of existing non-conforming uses should generally be prohibited. SUMMARY: A review of best practices from other municipalities across Muskoka has revealed that the following policy approaches may assist in addressing some of the considerations: Update hazard/constraint policies in recognition of and in reference to, climate change. Update floodplain policies to address this issue in more detail and to better inform the zoning by-law. Natural & Human Hazards/Constraints Flooding 6

13 Appendix I Lake Stillwater Flood Elevation (m) 2 Yr. Wave Runup (m) Peninsula Lake Mary Lake Fairy Lake Lake Vernon Fox Lake Lake of Bays Skeleton Lake Buck Lake Devine Lake Clearwater Lake Regulatory Flood Elevation including Wave Run-Up (m) Natural & Human Hazards/Constraints Flooding 7

14 Town of Huntsville Official Plan Review - POLICY BACKGROUND PAPER Natural & Human Hazards/Constraints Steep Slopes BACKGROUND: Lots with steep slopes often present desirable development sites due to the views and panorama offered. Unlike other parts of the province where unstable soils make development on, or on top of, steep slopes hazardous, as the Town is located on the southern edge of the Canadian Shield, slopes are typically underlain with Precambrian rock. Soils are generally sandy and shallow in depth atop the underlying bedrock. As a result, if development on a steep slope is not undertaken carefully, it can result in substantial alteration of the natural landscape, visual intrusion due to the prominence and location of development, interruption of the skyline, erosion, slope instability, a significant increase in storm water run-off which can negatively impact an adjacent property or waterbody and damage to fish and wildlife habitat. Along the shoreline, steep slopes often also present constraints with respect to locating water lines, locating shoreline structures and obtaining access from the water or locating an access route for construction. POLICY CONTEXT: Provincial Policy Statement (2014): Development that is compatible with the rural landscape and can be sustained by rural service levels should be promoted. Current Muskoka Official Plan & Policy Directions Report: F.73 The District interest in Building Hazard Areas relates to ensuring the long term integrity of the area through maintaining water quality; protecting natural areas including both fish and wildlife habitat; and managing the character and visual attractiveness of the landscape. F.74 There are two classifications of Building Hazard Areas with policy applicable to development proposals for each: a) Lands with slopes greater than 20% and up to, but not including 40%, subject to policy F.75 detailed below; and b) Lands with slopes 40% or greater, subject to policy F.76 detailed below. F.75 For class (a) of Building Hazard Areas identified in policy F.74 herein, the local municipality shall require that existing vegetation be substantially retained on all slope faces of 20%, or greater. If vegetation cannot be substantially retained, then a site evaluation report that addresses specific mitigation measures shall be required. In addition, local municipalities may

15 require a site evaluation report. F.76 F.76 For class (b) of Building Hazard Areas identified in policy F.74 herein, analysis of the constraint shall be undertaken either by: a) detailed policy in the local official plan that addresses the issues detailed in policy F.77 herein, or where local policy documentation does not exist; b) the submission and implementation of a satisfactory site evaluation report addressing the same issues. Notwithstanding the generality of the foregoing, a site evaluation report shall not be required for undertakings that satisfy the Environmental Assessment Act. F.77 Where more information regarding the suitability of the lot(s) for development in Areas of Natural Constraint is required, a site evaluation report shall be submitted. An informal meeting with planning staff is recommended to help determine matters to be addressed. Analysis shall address the impact of all the components of the proposal and make recommendations on if and how development can be appropriately accommodated and mitigated. The following provides a checklist of issues to be addressed in a site evaluation report: a) location of building envelopes which meet setback requirements defined in local zoning by-laws; b) adequate area, depth and suitability of soils for supporting an appropriate on-site sewage system; c) the availability of a potable water supply; d) the provision of access to an appropriate standard; e) for properties that are adjacent to waterbodies, suitable water access availability including locations of shoreline structures and pathways that minimize erosion and slope instability; f) maintenance of vegetation on slope faces (for all properties) and front yard setback areas (for properties adjacent to waterbodies to address the visual and environmental integrity of the site; g) construction mitigation measures and stormwater management techniques that address slope stability, soil erosion, surface drainage, ground water infiltration and water quality; h) the protection of significant wildlife habitat, significant wetlands, fisheries and other environmentally sensitive areas for their ecological functions and features; and i) generally address all components of the development proposal and its construction which have potential on-site or off-site impacts. Draft Muskoka Official Plan G4.2 b) Landowners are encouraged to recognize the importance and value of forest resources as a source of wood and non-wood products as well as for their wildlife, recreation, aesthetic, environmental and soil and water conservation capabilities. In this regard, landowners are encouraged to: iii) Maintain and establish tree and shrub cover as appropriate, and in hazardous areas Natural & Human Hazards/Constraints Steep Slopes 2

16 such as steep slopes, major drainage swales, shorelines and flood prone areas, in order to reduce runoff rates and minimize soil erosion; I4.4.1 I4.4.1 d) Natural landscape features such as watercourses, significant heights of land, rock faces or cliffs, waterfalls, rapids, beaches, vistas, panoramas, landmarks, and other similar features shall be conserved to the extent feasible. New development shall generally be located and designed to protect these characteristic features unless the development serves a greater long-term public interest. h) In recognition of the many ways that Area Municipalities have planned for development and redevelopment within Waterfront Areas, it is not the intent of this Plan to be overly prescriptive. However, it is expected that each Area Municipal Official Plan will contain detailed and appropriate policies on the following: ix) Narrow waterbodies; Town Strategic Documents: Strategic Plan Natural Environment and Sustainability Goal #1: Demonstrate the Town s commitment to protecting the quality and character of the natural environment. Goal #2: Integrate sustainability principles into planning and development policies and processes. Unity Plan Goal #5 Land Use Planning: Huntsville will become a model of sustainable community development, by incorporating the principles of smart growth, sustainable design and green buildings into all land use planning decisions. This will include a commitment to the protection and maintenance of Huntsville s rural small town character and vibrant downtown, both of which are valued by the community. Huntsville Official Plan: The conservation of the overall natural landscape, tree cover and vegetation will preserve the natural appearance, character and aesthetics of the area and protect the natural heritage of the Town. Natural features provide economic, environmental and social benefits. They contribute to the conservation of biological diversity, to the maintenance of the quality of the air, land and water, and are critical elements of the quality of life in Huntsville Significant natural landscape features such as watercourses, heights of land, rock faces or cliffs, waterfalls, rapids, beaches, vistas and panoramas, and landmarks should be conserved. Development should be located and designed to protect these features. Where feasible, Natural & Human Hazards/Constraints Steep Slopes 3

17 dedication or acquisition of such land for the purpose of conservation is encouraged. Conservation easements will be promoted to protect these features Development will be set back from areas exhibiting steep slopes or active erosion. The setback distance will be determined on site in consultation with the Town Where development is proposed, the degree of slope and slope stability will be confirmed by the Town through site inspection and/or the review of more detailed information submitted in support of a development proposal. Areas where slopes present a constraint to development may also be identified during site inspections or through the submission or review of additional information Where slopes greater than 20% exist on a property or a portion of a property, natural vegetation will be substantially retained on slopes, before and after construction, particularly those adjacent to a shoreline, on a ridgeline or skyline, in areas where there is minimal soil and vegetative cover, or in areas of unstable slopes or potential erosion The following principles will be implemented for development where slopes are between 30% and 40%: a) development on slopes should blend into the natural landscape without substantial site alteration, particularly blasting; b) development will not be permitted on a slope where it is subject to erosion and would represent a potential hazard to life or property; c) natural environmental features will be protected; d) scenic slope faces and cliffs should be preserved; e) visual impact should be minimized; f) structures will be setback behind the existing tree line; g) lots will have sufficient frontage and area to accommodate the development proposed and should be larger than the minimum lot size permitted; h) road access can be located in a manner which is safe, minimizes visual impact, minimizes site alteration and addresses storm water management during and after construction; i) where only water access is proposed, suitable access will be provided for construction equipment, and where feasible, construction/access corridors should be provided; j) a docking location and an access pathway to the dock is available and identified on a shoreline lot; and k) tolerance for engineered solutions which affect the natural landscape may be greater for property within a designated community Where development is proposed on slopes between 30 and 40%, the Town will undertake a preliminary site inspection and evaluation of the property. Where appropriate, planning tools will be used to implement any necessary mitigation measures. Where necessary, and as determined by the Town, a site evaluation or technical report will be prepared by the proponent to ensure that the property is suitable for development and identify any necessary mitigation measures. All development proposals will, at a minimum, address the following: Natural & Human Hazards/Constraints Steep Slopes 4

18 a) establishment of minimum setbacks from the slope or the top of the bank; b) locations for a shoreline activity area and particularly a dock; c) natural vegetative buffers and vegetation to be retained; d) storm water management and construction mitigation measures; e) location of building envelopes which meet setback requirements defined in the Comprehensive Zoning By-law; f) adequate area, depth and suitability of soils for supporting an appropriate on-site sewage system; g) the availability of a potable water supply; and h) the provision of access to an appropriate standard Where slopes of 40% and greater, or unstable soils exist over the majority of a property, or where development or site alteration is proposed on the portion of a property which has slopes of 40% or greater or unstable soils, a site evaluation or technical report will be required by the Town, to confirm that the lot is suitable to accommodate the development proposed. Any site evaluation or technical report will identify any mitigation measures that are necessary, including those noted in , above Where slopes of 40% and greater, or unstable soils, exist on a portion of a property, a site inspection and preliminary evaluation of the property will be undertaken by the Town. Where development or site alteration will not occur on or affect these slopes or unstable soils, development may proceed Development should be setback at least 15 metres (50 feet) from the top of a defined bank. A greater or lesser setback from the top of the bank may be provided where recommended in site evaluation or a technical report Significant slopes or rock faces may be identified and protected from development The following design principles will be adhered to for development in the Waterfront, as appropriate for the specific use and the area: CONSIDERATIONS: d) rock faces, steep slopes, vistas and panoramas should be preserved and vegetation should be maintained on skylines, ridge lines or adjacent to the top of rock cliffs; These policies apply throughout the Town. When evaluating development proposed on lots which are adjacent to, or abut a waterbody, the steep slope policies are an important consideration for the protection of recreational water quality and fish habitat. Section does not address a number of the principles noted in , such as: o identification of appropriate lot frontages, areas and lot line locations; Natural & Human Hazards/Constraints Steep Slopes 5

19 o location of a suitable septic system envelope; o identification of approximate area of potential site alteration (i.e. blasting) and a review of pre and post grade, as may be required; o establishment of minimum setbacks from the slope or the top of the bank; o appropriate shoreline access routes and pathways; o natural vegetative buffers and vegetation to be retained; and o environmentally sensitive areas or habitat to be protected. SUMMARY: A review of best practices from other municipalities across Muskoka has revealed that the following policy approaches may assist in addressing some of the considerations: These policies should be updated to address inconsistencies. Updated steep slope policies should also address the different character of the Urban Settlement Area as well as Communities. Natural & Human Hazards/Constraints Steep Slopes 6

20 Town of Huntsville Official Plan Review - POLICY BACKGROUND PAPER Natural & Human Hazards/Constraints Wildland Fires BACKGROUND: The province identifies that after flooding, wildland fires (forest fires) are the second most common natural disaster. In addition, 90% of wildland fires are human caused and located within three (3) kilometres of communities. Likely being cognizant of the impacts of the 2011 Slave Lake fire in northern Alberta, as well as the Timmins, Ontario, fire in 2012, the Province included a wildland fire policy (3.1.8) in the Natural Hazards section of the 2014 PPS. This was the first time such a policy was included in this document. When communities expand into forested areas, the Province indicates that the manner in which development occurs can increase the level of risk to human life and the values associated with wildland fires. It is particularly severe where hazardous forest composition and conditions exist. These include high concentrations of coniferous trees in forests or stands, vegetation that has sustained storm, insect or disease damage, and/or areas with abundant understory vegetation and ground fuel accumulation. The level of risk with this issue is anticipated to increase with advent of climate change. Within approximately one month of the Fort McMurray fires occurring in north eastern Alberta, the province requested stakeholder comments on a new document prepared by the Ministry of Natural Resources and Forestry (MNRF) entitled Wildland Fire Risk Assessment and Mitigation: A Guidebook in support of the Provincial Policy Statement, 2014 DRAFT through a posting on the Environmental Registry. This guidebook contains Provincial wildland fire assessment and mitigation standards recommended for use by municipalities to ensure planning decisions are consistent with the PPS. Recognizing that land use planning is a critical part of their framework for managing emergencies, the province, through this guidebook, indicates that to reduce the wildland fire risk and ensure consistency with the PPS, official plan policy will need to recognize wildland fire hazards and require assessments and where necessary, incorporation of mitigation measures on neighbourhood or site basis. POLICY CONTEXT: Provincial Policy Statement (2014): Planning authorities shall consider the potential impacts of climate change that may increase the risk associated with natural hazards Development shall generally be directed to areas outside of lands that are unsafe for development due to the presence of hazardous forest types for wildland fire.

21 Development may however be permitted in lands with hazardous forest types for wildland fire where the risk is mitigated in accordance with wildland fire assessment and mitigation standards. Current Muskoka Official Plan & Policy Directions Report: At present the Muskoka Official Plan does not contain policies respecting wildland fires. First Draft - Muskoka Official Plan: H1.2 Development shall generally be directed to areas outside of: b) Hazardous lands adjacent to river, stream and small inland lake systems which are impacted by flooding hazards and/or erosion hazards or areas at risk for wildland fire; H1.8 a) Development shall generally be directed to areas outside of lands that are unsafe for development due to the presence of hazardous forest types for wildland fire. b) Development may be permitted in lands with hazardous forests types for wildland fire where the risk is mitigated in accordance with wildland fire assessment and mitigation standards. c) The District and/or Area Municipalities may request an assessment undertaken by a qualified professional during the appropriate time of year and using accepted protocols to determine the wildland fire risk and required mitigation measures where development is proposed in areas identified as Extreme, High and Needs Evaluation identified on Appendix. Town Strategic Documents: Strategic Plan Natural Environment and Sustainability Goal #1: Demonstrate the Town s commitment to protecting the quality and character of the natural environment. Goal #2: Integrate sustainability principles into planning and development policies and processes. Unity Plan Goal #1 Environment: The community will protect, preserve, restore and enhance the terrestrial and aquatic environments and biodiversity of Huntsville and surrounding area by being responsible stewards of the environment. Natural & Human Hazards/Constraints Wildland Fires 2

22 Goal #5 Land Use Planning: Huntsville will become a model of sustainable community development, by incorporating the principles of smart growth, sustainable design and green buildings into all land use planning decisions. This will include a commitment to the protection and maintenance of Huntsville s rural small town character and vibrant downtown, both of which are valued by the community. Huntsville Official Plan: At present the Official Plan does not contain policies respecting wildland fires. CONSIDERATIONS: To assist with official plan policy preparation, the guidebook is accompanied by a very coarse level of mapping which identifies potential wildland fire hazard forest areas. Appendix I contains the mapping for the Town. This broad level mapping does not confirm or exclude the presence of hazardous forest types, but may be used as a starting point and consideration be given to the completion of a municipal-wide wildland fire assessment. The province suggests that such an assessment could be based on Fire Smart mapping (i.e. a program delivered through a partnership between the Partners in Protection, a national non-profit agency focused on training and fire risk education, and municipalities). The Fire Chief has confirmed that this mapping has not been prepared for the Town. There would be an expense to prepare such mapping and until it has been prepared, the Town would need to rely on Appendix I as an initial screening tool for this purpose. In the absence of detailed municipal-wide mapping, the approach to confirm wildland fire risk would be the completion of proponent-driven and peer reviewed, sitespecific assessments. Development could proceed with appropriate mitigation, provided that significant natural heritage features or functions are not impacted, or directed away from areas of high to very high risk. The province is suggesting that such site-specific assessments be required for all types of planning applications. Additionally, it is being recommended that long-term monitoring of mitigation measures be put in place because of the dynamic nature of forest ecosystems. The Provincial Implementation Guidebook noted above, has not yet been approved. As most growth would be directed to the Urban Settlement Area and Communities, this new requirement generally applies to rural lot creation and development. Given the forested landscape and nature of development in the Town, a number of development proposals will likely be required to undergo an assessment to demonstrate consistency with the PPS under the proposed guidelines. Another consideration involves identification of qualified professionals to undertake assessments and recommend related mitigation measures. The inclusion of wildland fire policies in an updated official plan is required. Natural & Human Hazards/Constraints Wildland Fires 3