TOWN OF AJAX
REPORT
Report To:
General Government Committee
Submitted By:
Paul Allore, MCIP, RPP
Director of Planning and Development Services
Prepared By:
Barbara Hodgins, MCIP, RPP
Development Approvals Co-ordinator
Planning and Development Services
Subject:
Duffin Creek Water Pollution Control Plant Information Update
W ard(s):
All
Date of M eeting:
November 24, 2005
References:
Strategic Plan: Environmental Awareness
Recommendations:
1.
That Council advise the Minister of the Environment and the Regions of York and
Durham that the Town of Ajax has a direct interest in the Environmental
Assessment (EA) being conducted by the Regions to expand the Duffin Creek Water
Pollution Control Plant (WPCP), given the proximity of this project to the Ajax
community (within one kilometre) and its position relative to our community
(upwind and upstream);
2.
That Council request the Regions to provide to Town staff the detailed information
produced through Phases 1 to 4 of the EA process, including but not limited to:
a)
the proposed design and operation of the expanded WPCP, particularly how
the release of untreated and partially treated sewage into Lake Ontario will
be prevented (especially during periods of heavy precipitation);
b)
potential air and water emissions, the Federal and Provincial environmental
standards and any higher standards being applied voluntarily by the
proponents;
c)
background water quality information and the existing and predicted coastal
conditions in Lake Ontario;
d)
the findings of the peer reviewers; and
e)
the Environmental Study Report (ESR);
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3.
That Council request the Regions of York and Durham to release the Environmental
Study Report (ESR) , including all technical information and all peer reviewers’
findings, to Town staff for review over a period of not less than 180 days, to allow for
a thorough technical review and reporting back to Council with findings and
recommendations;
4.
That Council request the Minister of the Environment to provide sufficient funds to
the Town of Ajax to peer review the ESR and related information;
5.
That Council request the Regions take a more proactive community consultation
program about the findings of the EA process prior to completion of Phase 4 of this
EA process;
6.
That Council express to Durham Region the concern that the existing Duffin Creek
WPCP may be contributing to the escalating frequency of beach closures at Rotary
Park (100% in 2005);
7.
That Council request the Region of Durham to provide sufficient funding to the
Regional Health Department in the 2006 budget to investigate and identify sources of
bacterial pollution (e.g. human, waterfowl) causing the beach at Rotary Park to be
closed due to poor water quality and recommend how the Region, the Town and
others can effectively address the problems; and
8.
That a copy of this report be sent by the Clerk to the Honourable Laurel C. Broten,
Ontario Minister of the Environment and the Clerks of the Regional Municipalities
of York, Durham, the Cities of Pickering and Oshawa, the Town of Whitby and the
Municipality of Clarington.
Background:
The purposes of this report are to:
1.
provide an update on the status of the Municipal Class Environmental Assessment (EA)
being conducted jointly by the Regions of York and Durham to expand the Duffin Creek
Water Pollution Control Plant (WPCP);
2.
identify the Town’s planning framework for the Lake Ontario waterfront and water
resources; and
3.
express concerns about the EA process and the potential environmental impacts of this
large-scale infrastructure project on the Ajax community, its waterfront and resources.
The existing Duffin Creek WPCP is one of the larger sewage treatment facilities in Canada. It
was constructed in 1974 on land located in the City of Pickering, just to the west of the Town of
Ajax (refer to Attachment 1). Built to consolidate and replace a series of small sewage treatment
plants sited along tributaries in York and Durham Regions, this WPCP was located near the Lake
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Ontario shoreline to take advantage of the lake’s assimilative capacity to support existing
development and projected urban growth in the Regions for approximately 25 years.
In 1975, multi-stage construction of the Duffin Creek WPCP was approved, with an ultimate
capacity of approximately 727,000 million litres/day (727 MLD). The first stage of the WPCP
was designed to treat an average sewage flow of 364 MLD. The facility operates year-round (24
hours/day, 7 days/week). As of April 2005, the WPCP’s capacity was increased to 420 MLD.
The existing Duffin Creek WPCP is located at the outlet of the York Durham Sewage System
(YDSS), also known as “the Big Pipe”. The YDSS is a network of pipes and pumping stations
conveying sewage flows, stormwater runoff, leachate and other substances from its extensive
catchment area (sewershed) that converges at the Duffin Creek WPCP. Sewage flows from many
watersheds are introduced into the Big Pipe by various means.
Over the last 25 years, the YDSS has been expanding incrementally through various EA
processes. At present, its sewershed includes the Towns of Ajax, Whitchurch-Stouffville, East
Gwillimbury, Newmarket, Aurora, Richmond Hill and Markham, the City of Pickering as well as
parts of the Cities of Toronto and Vaughan. Additional components of the YDSS are currently
being expanded, such as an extension to service King City (refer to Attachment 2). One ongoing
EA process not illustrated on the Attachment would, if approved, extend the YDSS northward to
capture sewage flows from the Lake Simcoe drainage basin (e.g. Holland Landing).
Municipal Class Environmental Assessment (Schedule C) Process
In 2004, the Regions of York and Durham commenced a “Schedule C”1 Municipal Class
Environmental Assessment (EA) process for the purpose of developing a preferred design concept
for the existing Duffin Creek WPCP to expand its current 420 MLD capacity to 630 MLD. For
Durham Region, this project will support growth and development within the Ajax urban area as
well as the City of Pickering, including Seaton and the Future Pickering Airport.
The EA process is proceeding through the traditional five phase EA process, as follows:
Phase 1 -
Problems, deficiencies or opportunities have been identified and issues developed;
Phase 2 -
Alternatives to address issues have been identified and a preferred solution
established;
Phase 3 -
Alternate methods of implementing the preferred solution have been identified and
a preferred method established;
Phase 4 -
Relevant information, including study rationale, environmental considerations,
consultation process and recommendations, compiled into an Environmental Study
1
Municipal infrastructure projects categorized as “Schedule C” undertakings have the potential for
significant environmental effects and are required to follow the planning and design process specified under the
Municipal Class Environmental Assessment.
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Report (ESR) to be made available for 30 days for review by municipalities and
other interested parties; and
Phase 5 -
Implement the preferred method of addressing the issues and monitoring for
adherence to environmental provisions and commitments.
At this time, Phases 1 to 3 have been completed. Phase 4, a critical stage in the process when the
findings of the previous phases and technical information are made available, is nearing
completion. The Minister of the Environment has required that the technical reports for this Class
EA be independently peer reviewed. The Regions expect to complete this EA process by the end
of 2005 to facilitate construction of the project by 2010.
Two workshops were held for the public in October 2004 and February 2005, one in Pickering
and the second one at the WPCP. Two separate workshops were held for staff of the existing
WPCP in late February 2005.
Ajax Official Plan (2000)
The Ajax Official Plan (AOP) is based on a philosophy that supports managed, sustainable
growth, the provision of a high quality of life for its residents and the protection of its natural
heritage system, including the Lake Ontario waterfront, through consideration of potential
environmental impacts in the evaluation of proposed development.
The AOP takes an ecosystem-based approach to planning and development, with the achievement
of sustainable development a primary long-term objective. Protection of the Lake Ontario
waterfront and water resources is a major component of the AOP’s Greenlands Framework. The
Framework is based on the belief that the quality of life in Ajax will be enhanced by the
establishment and maintenance of a network that links environmental resources and recreational
areas within and beyond the boundaries of the Town.
Among its many objectives, the AOP seeks to incorporate the concept of sustainability into all
facets of municipal infrastructure development and land use planning decisions. It also strives to
promote a clean, green, accessible, connected Lake Ontario waterfront ( a core area of the Town’s
natural heritage system) and provide diverse recreational opportunities.
The AOP endorses the binational efforts to improve the quality of Lake Ontario and recognizes
that Ajax has a role to play in meeting international water quality objectives. It is AOP policy to
protect surface water, groundwater and Lake Ontario, which is the source of the Town’s drinking
water. To this end, the Town is undertaking measures to address outputs from creek mouths and
storm sewers from sources within Ajax into Lake Ontario.
Ajax Waterfront Management Plan (2005)
Ajax’s waterfront extends for approximately 5 kilometres along the Lake Ontario shoreline. It is
one of the longest stretches of uninterrupted, publicly owned waterfront on the north shore of
Lake Ontario. The vast majority of the more than 400 hectares of Ajax waterfront land is in
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public ownership. This year, the Town endorsed a Waterfront Plan that established a 10-year
framework for future improvements, management strategies and projects.
The Waterfront Plan identified poor water quality as an issue, especially at Rotary Park beach
which, at the time of writing the Plan, was closed 79% of the time (i.e. it was the second worst in
the Greater Toronto Area). Through the Town’s public consultation process, clean beaches were
identified as a priority to the community. Notably, this issue was also identified in the Town’s
1995 Waterfront Management Plan
Discussion:
Staff have concerns about the current EA process. To date, some information has been provided
to the Town about the proposed expansion of the Duffin Creek WPCP. The Regions have issued
Phase 1 and 2 reports providing high-level overviews.
However, the technical details remain outstanding, and will only be made available upon the
completion of peer reviews of the supportive technical information and the compilation of the
Environmental Study Report. Therefore, it is difficult at this time for staff to determine whether
additional safeguards are required to protect against any environmental impacts.
The Duffin Creek WPCP facility, upon completion, will treat the wastes generated by more than 1
million people and will be the largest facility in Durham Region. Given the larger volumes of
sewage to be treated, including sewage piped in from the expanding YDSS catchment area and
hauled in by truck from other sources (described in the recent Durham Region Biosolids Master
Plan2 and Septage Management Strategy3), there is concern that the proposed facility may not be
technologically capable of “neutralizing” all wastes received, and may therefore release greater
volumes and mixtures of waterborne and airborne emissions into the surrounding environs.
Waterborne Emissions
It is important to protect the water quality of Lake Ontario. It is the primary source of drinking
water for residents of Ajax and most of Durham Region. Generally, lakewater flows from west to
east along the Ajax waterfront. The beach at Rotary Park is located within one kilometre of the
existing WPCP. In one form of treatment, liquid waste is treated at the WPCP and then dispersed
into Lake Ontario through a pipe that presently extends one kilometre offshore. The Ajax Water
Supply Plant (WSP), constructed within the last decade, is situated approximately 3 kilometres to
the east of the WPCP. The WSP supplies drinking water to support growth and development
(residential, commercial and industrial uses) within designated urban areas in the Town of Ajax
and the City of Pickering.
The 2003 Duffin Creek Watershed Plan identified that beaches to the west of Rotary Park,
including the Rouge Beach and Bluffer’s Park Beach, were posted for more than half of the
2
Biosolids Master Plan. Regional Municipality of Durham. August 2005.
3
Septage Management Strategy. Regional Municipality of Durham. August 2005.
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Subject:
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swimming season in 1999 as a result of bacterial levels. The Plan concluded that such postings
“are evidence of the movement of nearshore currents and the impact this has on waterfront
bacterial levels”4. By 2005, the beach at Rotary Park was being posted by the Durham Region
Health Department throughout the entire swimming season.
In the absence of any technical information to the contrary, staff question whether waterborne
effluent emissions from the existing WPCP may be combining with outflows from Duffin Creek
and contributing to the frequency of beach postings. Any proposed expansion to the WPCP will
need to take these conditions into proper account. Therefore, it is very important that the detailed
technical report on coastal conditions and the peer reviewers findings be provided to Town staff
for review.
To safeguard water quality in Lake Ontario in accordance with the provisions of the 2005
Provincial Policy Statement and other Provincial initiatives, it may also be necessary for the
Minister of the Environment to prescribe higher performance standards and monitoring/remedial
requirements in the Certificates of Approval for the WPCP.
This EA process should be designed to avoid adverse impacts on the water quality of Lake
Ontario. As a waterfront community, the Town of Ajax needs assurance that the design, operation
and maintenance of the expanded WPCP will prevent untreated or insufficiently treated
waterborne emissions, including overflows during high precipitation events, from being released
into Lake Ontario under any circumstances.
Airborne Emissions
Presently, the Duffin Creek WPCP is designed to use two incinerators to burn de-watered (solid)
wastes at very high temperatures. This treatment process produces by-products: particulates
emitted into the air and ash material to be reused or landfilled. This WPCP is being designed to
incinerate increased volumes of biosolids, as they cannot be spread onto the rural land base as
extensively due to limitations established by the Nutrient Management Act and regulations.
Staff do not know whether sufficient study of the “regional airshed” has been conducted in this
EA process to take into account existing background air quality and various wind directions. This
process will need to determine the array of particulates to be released, as the expanded WPCP will
be accepting a wider range of wastes.
The incineration process also creates an “ash” by-product that must be hauled off-site for reuse or
disposal. When a contract is in place, ash will be hauled to a cement plant for reuse. At present,
ash from the Duffin Creek WPCP is being hauled to a Michigan landfill. If access to that landfill
is closed, ash can be trucked to an alternate site near Ottawa as a contingency or interim measure.
From the minutes of the public workshop with WPCP staff5, held on February 21, 2005, WPCP
4
A Watershed Plan for the Duffins Creek and Carruthers Creek. Toronto and Region Conservation.
August 2003.
5
Duffin Creek W PCP Staff W orkshop. Durham Region W ebsite. February 21, 2005.
Subject:
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staff expressed concern about the dispersion of dry ash as it is transported.
The design and operation of the WPCP should ensure that types of contaminants introduced into
the facility in sludge, biosolids and septage will be “treated” to the point at which they are no
longer harmful nor released into the air in amounts or combinations that would threaten public
health. It is not clear whether current MOE standards for air quality will be sufficient to safeguard
Ajax residents from the potential air emissions of this particular WPCP, and should be addressed
in this EA.
Truck activity generates air emissions that can impact the Ajax community. The existing and
proposed haulage routes for trucks accessing the facility have not been identified. Accordingly,
additional information is needed regarding existing haulage routes and the environmental
implications to the Ajax community. For example, the impacts of diesel emissions and ash
dispersion from truck traffic related to the WPCP site should be assessed through this EA process.
The Province has established higher standards for air emissions under its “Five-Point Plan for
Cleaner Air”6 that includes setting new air standards for 29 harmful pollutants, including
carcinogens and toxins that could pose a threat to human health, and updating its 30-plus year-old
air dispersion models. It may be appropriate for the Minister of the Environment to consider
prescribing higher performance standards and monitoring/remedial requirements in the
Certificates of Approval for the Duffin Creek WPCP and possibly related truck traffic to assist in
protecting, improving and restoring air quality in accordance with Provincial policy and
initiatives.
Proximity to the Ajax Community
The Duffin Creek WPCP is situated less than 1 kilometre upwind of the Ajax urban area and
upcurrent from the Ajax waterfront.
A recent Federal study7 examined the current status of municipal wastewater treatment facilities
and identified trends and emerging issues. It noted that population growth and continued
urbanization will continue to increase the quantity of wastewater discharged to WPCPs for
treatment. The study noted that traditional WPCPs are designed to remove settleable solids and
floating scums, fine suspended solids, oxygen-consuming material and nitrogen and/or
phosphorus. Some WPCPs also remove other contaminants, such as heavy metals and organic
chemicals. Public expectations are predicted to increase demand on municipalities to provide
greater levels of treatment for wastes.
The study states that the toxicity of municipal wastewater is dependent on a variety of factors,
including the size and characteristics of the sewershed, the type and efficiency of treatment and
disinfection processes, and the physical, chemical and biological characteristics of the receiving
6
Ministry of the Environment. Media Backgrounder. June 21, 2004.
7
Threats to Sources of Drinking W ater and Aquatic Ecosystem Health in Canada. Environment
Canada. 2001.
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waters. Some chemicals remain dissolved in water. Other chemicals attach to sediments in the
receiving environment. The distribution of these chemicals may therefore differ considerably
from more soluble compounds which will tend to move with the effluent plume. Also, some
chemicals may tend to bioaccumulate in organisms and move through the food web.
As an example, pharmaceuticals and personal care products (e.g. antibiotics, anti-inflammatory
drugs and antiseptics) have been detected in municipal wastewater, according to the study. The
array of pharmaceuticals in use will continue to diversify and grow with an aging population and
rapid developments in the pharmaceutical industry. However, scientific knowledge of the
environmental transformation, fate or effects of these compounds is limited and the implications
of exposure to these complex mixtures remains unknown.
Further to this, the possibility of unplanned or accidental spills into the YDSS increases the risk to
local residents and the aquatic ecosystem. It is very important for the treatment facility at the
Duffin Creek WPCP to be designed and operated to prevent as many contaminants and chemicals
as possible from reaching Lake Ontario.
It would not be acceptable to permit harmful substances that may pose health risks to be emitted
from the WPCP into the waters that flow to local beaches and along the shoreline. The health and
well-being of the residents of the Town of Ajax and other lakefront communities must be
protected for the duration of this WPCP’s operations.
Offshore Infrastructure and the Aquatic Environment
The existing outflow pipe and effluent diffuser for the existing Duffin Creek WPCP extends one
kilometre offshore into Lake Ontario. Regional staff have advised the WPCP expansion has
generated the need for an extension of the effluent outfall pipe (i.e. one additional kilometre
offshore). It is expected that information explaining the need and rationale for the outlet pipe
extension, its technical design and potential impacts will be provided during the ongoing EA
process.
According to Durham Regional Works Department staff, the outflow pipe extension project may
be subject to a separate Federal EA immediately upon completion of this Municipal Class EA
process. Little information has been provided on this aspect of the process. Staff believe that an
assessment must be undertaken to evaluate the impacts of extending the WPCP’s effluent
dispersion pipe farther into Lake Ontario relative to thermal and other emissions from the
Pickering Nuclear Plant as well as the Ajax Water Supply Plant.
Cumulative Impacts
This EA process should have considered cumulative environmental impacts. Not far to the west
of the Ajax community lies the City of Toronto, with more than 2.5 million residents and many
more millions projected to arrive by 2050.
Duffin Creek W ater Pollution Control Plant Information Update
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A recent Toronto and Region Conservation publication8, updating activities commenced in 1994
to remediate sources of pollution affecting water quality along the Toronto waterfront, identified
the number one source of water pollution as “the stormwater that overwhelms sewers and streams
every time we get a heavy rain. Stormwater flushes a dangerous mix of raw sewage, oils and
gasoline, hazardous chemicals, sediments and other waste straight into Lake Ontario and the
streams that feed it”. The Toronto and Region watersheds will continue to exert tremendous
environmental pressure on Lake Ontario and its ecosystems.
Contaminants in stormwater from other sources, such as creek mouths and stormwater outfalls,
may be aggravating water quality conditions along the Ajax waterfront, resulting in beach
postings. Therefore, it is important that the EA process ensure that not only water quality
conditions in the immediate vicinity of the existing Duffin Creek WPCP are considered, but also
background conditions created by the cumulative impacts of contributions from other sources.
This EA process should also include examination of the project’s location relative to other
infrastructure projects, such as the Pickering Nuclear Plant and its thermal emissions, as well as
the Ajax Water Supply Plant.
It is not evident from this EA process that sufficient baseline data has been collected and assessed
within a broad study area using current sciences and technologies.
It is expected the EA process will provide assurance that thermal and other emissions from the
existing and fully operational Pickering Nuclear Plant into Lake Ontario waters, combined with
emissions from the existing and the expanded Duffin Creek WPCP, will not degrade water quality
along the Ajax waterfront or adversely affect the quality of water entering the Ajax Water Supply
Plant.
Public Consultation
The current EA process’ approach to public consultation has elicited minimal input from Ajax
residents. As noted, two public workshops were held, one at the Pickering Recreation Complex
and the other at the WPCP. According to workshop minutes, a total of 33 persons may have
attended. One participant questioned whether attendees had sufficient expertise to comment on
such a complex project.
Staff are of the view that a more comprehensive public consultation process, similar to that
undertaken for the Ajax water supply plant, should take place during the next few months as a
critical component of this EA process, since more detailed technical information will be available
(the ESR, technical information and peer review findings).
Therefore, staff suggest that prior to formal release of these documents in the context of the
established EA process, the information should be released to Town staff and the public for
review over a period of not less than 180 days. During this period, the Region should disseminate
its findings and conduct further public consultation. Staff are recommending that Council request
the MOE to provide sufficient funding to conduct any necessary peer reviews. Town staff will
8
Toronto and Region Remedial Action Plan Update. Toronto and Region Conservation. May 2005.
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review the information, consider the public input and prepare a report back to Council with
recommendations that will be forwarded to the Minister of the Environment and the Regions.
Beach Postings
In 2005, the beach at Rotary Park was posted for 100% of the swimming season. The frequency
of beach postings has been increasing over the past decade. Durham Region Health Department
staff indicated that no action has been initiated to undertake to determine the sources or causes of
higher levels of bacterial contaminants. A comparison of the timing and location of water
sampling results and climatic conditions may reveal a correlation between temperature, heavy
rainfall events and higher than normal levels of bacteria along the lakefront.
Staff recommend that Council request Durham Region Council to provide sufficient funding to
the Regional Health Department in the 2006 budget to investigate and identify sources of
pollution causing the beach at Rotary Park to be posted, and provide recommendations on how the
Region, the Town and others can effectively addresses these problems. Environment Canada has
scientists tracing the origins of bacterial sources at pilot projects across Canada, including the
Humber River watershed. Perhaps their scientific resources could be enlisted to assist the Region
in this investigation.
Once the sources of contamination have been identified, the Region and the Town will be in a
better position to deal with the problem at the source(s) in a cost-effective manner.
Financial Implications:
Consulting assistance may be required to assess the information provided by the Regions in the
Phase 4 Environmental Study Report and supporting technical reports.
Communication Issues:
Durham Regional Works Department staff will be making a presentation on the Environmental
Assessment process and answering questions at the Council meeting on November 28th. The Regions
should be communicating regularly with Ajax residents to present project details and solicit advice
as they proceed through the remainder of the EA process.
Conclusions:
Many people and businesses rely upon Lake Ontario as their primary source of water (95% of
Durham Region), not only for drinking water but other purposes. The Minister of the
Environment should establish higher environmental standards for this Lake Ontario-based WPCP
and others. Such standards should be designed to work in concert with MOE’s watershed-based
source water protection plans to protect and improve water quality in Lake Ontario.
Staff question the “sustainability” of continuing expansion to the Duffin Creek WPCP and the
YDSS based on the assumption that Lake Ontario has the assimilative capacity to receive the
effluents generated by projected growth without jeopardizing the quality of life of existing and
future residents of waterfront communities.
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It is questionable whether the existing applicable Provincial standards can sufficiently mitigate all
potentially adverse emissions from the Duffin Creek WPCP. It may be necessary for the Minister
of the Environment (MOE) to establish and prescribe higher environmental standards for the
MOE Certificates of Approval which will govern the construction and long-term operation,
maintenance and upgrading of the Duffin Creek WPCP to better protect the quality of our water
and air resources.
As of yet, staff cannot determine whether the results of this EA process will be consistent with the
Provincial Policy Statement or supportive of the objectives of the Ajax Official Plan and Ajax’s
Waterfront Management Plan. A comprehensive and proper review of all information must be
conducted, including a focused consultation process by the Regions to inform the public of their
findings. This will enable all levels of government to arrive at a suitable decision regarding the
proposed WPCP expansion that will protect the interests of present and future residents of Ajax
and our resources in the long-term.
Upon completion of a comprehensive public consultation process, a review of the requisite
technical information, and completion of any necessary peer reviews, staff will bring forward a
report to Council for consideration. Until these concerns have been addressed to the satisfaction
of Town Council, the Regions should refrain from moving forward and publishing a Notice of
Completion for this EA process.
Therefore, it is recommended that Council advise the Minister of the Environment, the Regions
and other downwind and downstream municipalities that the Town of Ajax has a direct interest in
the proposed expansion to the Duffin Creek WPCP, given the location of this project relative to
the Town of Ajax.
Barbara Hodgins, MCIP, RPP
Development Approvals Co-ordinator, Planning and Development Services
Paul Allore, MCIP, RPP
Director of Planning and Development Services