upper york sewage solutions project update

Report No. 5 of the Environmental Services Committee
Regional Council Meeting of June 27, 2013
4
UPPER YORK SEWAGE SOLUTIONS PROJECT UPDATE – PROJECT 74270,
PROPOSED MITIGATION RELATED TO IMPLEMENTATION OF PREFERRED
SOLUTION – SUPPLEMENTAL INFORMATION
The Environmental Services Committee recommends the following:
1.
Referral of the communication from Erin Mahoney, Commissioner,
Environmental Services, dated June 19, 2013 to a Fall 2013 Committee
meeting;
2.
Inclusion of a commitment in the Environmental Assessment report to
continually monitor ice formation at the treated water discharge in
consultation with the Lake Simcoe Region Conservation Authority; and
3.
Inclusion of sufficient funds in the Upper York Sewage Solutions project
to implement water cooling technologies as warranted.
(The communication referred to in this clause is attached to this report.)
Environmental Services
MEMORANDUM
TO:
Members of Environmental Service Committee
FROM:
Erin Mahoney
Commissioner, Environmental Services
DATE:
June 19, 2013
RE:
Upper York Sewage Solutions Project Update – Project 74270
Proposed Mitigation Related to Implementation of Preferred Solution Supplemental Information
The purpose of this memo is to provide supplemental information to Environmental Services
Committee regarding the Upper York Sewage Solutions project.
At its meeting of May 8, 2013, Environmental Services Committee recommended the adoption
of the Upper York Sewage Solutions Project Update report from the Commissioner of
Environmental Services. In relation to this report, Committee further recommended that staff
provide details on mitigation options regarding impacts to the East Holland River ice formation
at the treated water discharge outfall. At its meeting on May 16, 2013, Council amended this
clause (Clause No. 4 of Report No. 4 of the Environmental Services Committee) as follows:
1. The amendment of the following recommendation:
Staff are requested to provide details on mitigation options and possible solutions
regarding impacts to the East Holland River ice formation at the treated water
discharge outfall.
2. The addition of the following recommendation:
Staff are directed to hold an additional open house and public meeting in the Town of
Georgina.
As outlined in the May 8 Environmental Services Committee report, key concerns were
expressed during public consultation on the recommended outfall location regarding impacts to
winter activities on the East Holland River caused by potential future ice melt from treated water
discharge. Accordingly, the study team developed specific mitigation measures to address these
concerns by way of providing an outdoor community ice pad for public skating, as well as
collaborating with the local Holland Landing Snowmobile Club to facilitate implementation of a
new north/south connection between two existing snowmobile trail systems. Since preparation of
the report, however, additional concerns have been expressed by a group of residents in East
Gwillimbury whose individual properties back directly onto the East Holland River just
downstream of the recommended outfall location.
Through dedicated meetings with the group of residents, the Region’s project team understands
their primary issues to be:
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1. All potential outfall locations have not been adequately assessed
2. Negative perception the outfall will create about the community as a whole
3. Lack of ice cover may make maintenance activities on private docks, boathouses and
shoreline protective structures more difficult or expensive
4. Potential mitigation option to recover heat from the treated water discharge has not been fully
explored
In addition, Council at its meeting of May 16, 2013 requested further information regarding the
rationale for the recommended locations of the phosphorus offsets within the study area. This is
addressed below under Issue 5.
Further details and responses to all of these issues are as follows:
Issue 1:
All potential outfall locations have not been adequately assessed
Response:
The recommended outfall location at Queensville Sideroad on the east side of the East Holland
River immediately south of the Queensville Sideroad bridge was established based on a
comprehensive scientific study and extensive public consultation, including an assessment of
seven locations (see Attachment 1) in accordance with a broad range of environmental, social
and technical evaluation criteria. A detailed assessment of all seven potential treated water
discharge outfall locations has been completed and a summary has been presented to the public.
Discussion points from this assessment, which focus on the purpose of this memorandum, are
provided below (full assessment details will be documented in the final Environmental
Assessment report).
East Holland River at Queensville Sideroad (Recommended Location)
• Conveyance infrastructure from the Lake Simcoe Water Reclamation Centre to the outfall
can be contained within existing Regional road rights of way and be accomplished by a fullgravity system, which is the most environmentally sustainable solution with the lowest
carbon footprint resulting in reduced capital, operation, maintenance and energy costs.
• Aquatic habitat and summer recreational uses in East Holland River, extending to its
confluence with West Holland River, will realize significant environmental benefit from the
discharge of high-quality treated water along the entire six to seven kilometres downstream
portion of the river.
• Potential impacts to winter ice formation in East Holland River caused by discharge will be
minimal and localized to the discharge area east of the river upon plant start-up, anticipated
in 2018/2019, and would gradually increase towards the river as the plant services planned
growth and treated water discharge increases to the river. Complete ice melt (i.e., open water)
could occur up to approximately a kilometre downstream of the outfall by 2031.
• Throughout the course of the Environmental Assessment study, the project team has
observed that reliable formation of winter ice on the East Holland River has not been realized
in two of the last four years due to mild winters. Lake Simcoe Region Conservation
Authority and other science experts anticipate this trend will continue and worsen in coming
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decades regardless of the location of the treated water discharge outfall. This will be further
exacerbated by increased urbanization approved for this area.
Localized impacts to winter recreational activities on East Holland River can be mitigated by
creating an outdoor ice pad for community skating at the local Parkway Parkette (ice pad to
be owned/operated by the Town of East Gwillimbury) as well as collaborating with the local
Holland Landing Snowmobile Club to facilitate implementation of a new north/south
connection between two existing snowmobile trail systems.
Soldiers’ Bay at Queensville Sideroad
• Conveyance infrastructure from the Lake Simcoe Water Reclamation Centre to the outfall
can be contained within existing rights of way and be accomplished by a full-gravity system,
which is the most environmentally sustainable solution with the lowest carbon footprint
resulting in reduced capital, operation, maintenance and energy costs.
• While the East Holland River would realize similar aquatic habitat and summer recreational
use benefits as above, the sensitive natural, cultural and/or heritage aspects of Soldiers’ Bay
could be negatively impacted as follows:
o Soldiers’ Bay has known cultural heritage/archaeological resources around the bay, such
as Fort Gwillimbury/Holland’s Landing Depot.
o Soldiers’ Bay has a high level of sedimentation, is extremely shallow (two to three feet
deep) and is densely vegetated to water surface.
o Soldiers’ Bay has potential as a fish spawning/nursery area.
• Impacts to winter ice formation would occur within similar timeframes as above, however,
would extend across the entire area of Soldiers’ Bay, as well as a shorter section of East
Holland River downstream of the mouth of Soldiers’ Bay.
Split discharge at Queensville Sideroad between East Holland River and Soldiers’ Bay
• Conveyance infrastructure from the Lake Simcoe Water Reclamation Centre to the outfall
can be contained within existing rights of way and be accomplished by a full-gravity system
which is the most environmentally sustainable solution with lowest carbon footprint and
results in reduced capital, operation, maintenance and energy costs.
• East Holland River would realize aquatic habitat and summer recreational use benefits,
however, the sensitive natural, cultural and/or heritage aspects of Soldiers’ Bay could be
negatively impacted, even by this reduced amount of flow as follows:
o Soldiers’ Bay has known cultural heritage/archaeological resources around the bay such
as Fort Gwillimbury/Holland’s Landing Depot.
o Soldiers’ Bay has a high level of sedimentation, is extremely shallow (two to three feet
deep), and is densely vegetated to water surface.
o Soldiers’ Bay has potential as a fish spawning/nursery area.
• Impacts to winter ice formation would occur, downstream of both outfalls within East
Holland River and Soldiers’ Bay.
East Holland River at Holborn Road
• More challenging conveyance infrastructure to construct due to geotechnical conditions and
need to dewater during construction.
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•
•
•
•
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Relatively shorter section of the East Holland River will benefit from the high-quality treated
water from an aquatic habitat and summer recreational use perspective.
Construction of piped outfall will impact approximately 25,000 square metres of historically
undisturbed Provincially Significant Wetland.
Approval from Lake Simcoe Region Conservation Authority requires:
o Justification that no other viable alternative exists.
o Wetland and ecosystem compensation.
o No negative impacts to natural features or their ecological function in accordance with
Provincial Policy Statement as reflected in local and Regional official plans.
Use of existing open-channel drain will result in additional phosphorus load into the East
Holland River since the clean water is discharged through a nutrient-rich wetland.
Impacts to winter ice formation would occur downstream of outfall within East Holland
River and require mitigation by way of additional snowmobile trail connections.
East Holland River at Future Bradford Bypass
• Bradford Bypass Environmental Assessment has been approved, however, not in current
Ministry of Transportation expansion plans (including post 2016 long-term planning).
• Requires easement from private landowners.
• Requires approval from Ministry of Transportation (high risk of non-approval).
• Shorter section of the East Holland River will benefit from the high-quality treated water
from an aquatic habitat and summer recreational use perspective.
• Impacts to winter ice formation would occur downstream of outfall within East Holland
River and require mitigation by way of additional snowmobile trail connections.
East Holland River south of Queensville Sideroad at Hydro Corridor, Holland Landing Lagoon
outfall or Doane Road
• Longer (over four kilometers) and more complex conveyance infrastructure requiring
pumping resulting in greater capital, operating, maintenance and energy costs.
• Hydro Corridor location requires additional permitting and easement from Hydro One (high
risk of non-approval).
• Holland Landing Lagoon and Doane Road locations require riverbank erosion protection.
• Impacts to winter ice formation with East Holland River would occur affecting as many as 71
residences downstream of the outfall and require mitigation by way of additional snowmobile
trail connections.
Table 1 provides a high-level summary of the benefits outlined in the above discussion points to
provide a comparison of the treated water discharge outfall location options.
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Table 1
Treated Water Discharge Outfall Locations
Summary Benefits
Treated water
discharge
location
Minimize
lifecycle cost
of linear
infrastructure
Minimize
natural,
cultural and
heritage
environmental
impacts
Eliminates
impacts to
winter
recreational
uses
Maximizes
aquatic
habitat in
East Holland
River
Minimizes
risk of
required
easements
and permits
East Holland
River at
Queensville
Sideroad
9
9
8
9
9
Soldiers’ Bay at
Queensville
Sideroad
9
8
8
8
9
East Holland
River at Holborn
Road
8
8
8
8
8
East Holland
River at Future
Bradford Bypass
9
9
8
8
8
East Holland
River at Hydro
Corridor
8
9
8
8
8
East Holland
River at Holland
Landing Lagoon
Outfall
8
8
8
8
9
East Holland
River at Doane
Road
8
8
8
8
9
Preferred Outfall Location
In summary, the preferred outfall location is East Holland River at Queensville Sideroad
discharge because this option provides for sustainable energy management (full-gravity system
that requires no pumping), conveyance infrastructure is within Regional road rights of way, and
high-quality treated water provides significant year-round environmental benefits to aquatic
habitat and summertime recreational water benefits to the confluence with the West Holland
River.
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Issue 2:
Negative perception the outfall will create about community as a whole
Response:
The treated discharge will be highly pure water of far better quality than currently exists in the
East Holland River today. All technical and environmental studies have confirmed that water
clarity and aquatic habitat will be improved in the six to seven kilometre portion of the river
downstream of the outfall which will result in significantly enhanced environmental and
recreational benefits year round, especially in spring, summer and fall. Lake Simcoe Region
Conservation Authority staff has reviewed these studies and concurs with the environmental
benefits to the East Holland River.
Issue 3:
Lack of ice cover may make maintenance activities on private docks, boathouses and shoreline
protective structures more difficult or expensive
Response:
Many of the 35 to 45 residential waterfront properties north of the Queensville Sideroad bridge
have privately owned structures in the East Holland River such as docks (approximately 18 to
20), boathouses (some five to seven visible) and shoreline erosion protection. According to the
residents, maintenance on these structures is sometimes conducted when the river is frozen and
capable of supporting equipment required to undertake maintenance activities. In addition, the
ice cover provides bearing for any temporary shoring of any docks and boat houses. The project
team has conducted some preliminary investigations on this issue and notes the following:
• Construction of these types of in-water structures are prohibited by today’s regulations,
however, existing structures can be maintained under “grandfathering” provisions.
• As impacts to ice formation caused by the treated water discharge are not likely to occur until
2020, sufficient time exists to implement prior preventative maintenance measures.
• As noted above, studies indicate that recent changes in weather trends, as well as impacts
from local urbanization, will prevent winter ice formation on the East Holland River even in
the absence of the treated water discharge outfall. Lake Simcoe Region Conservation
Authority confirms these trends and agrees that ice cover on the river may not safely support
recreational activities moving forward.
• While it is recognized that carrying out some maintenance activities during frozen conditions
may be more cost effective, working from the shore to avoid impact to the river and other
such maintenance options during non-frozen conditions do exist. For either scenario,
regulatory permits would likely be required when equipment is used for such near-water/inwater/on-ice works.
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Issue 4:
Potential mitigation option to recover heat from the treated water discharge has not been fully
explored
Response:
Initial studies completed on the proposed Lake Simcoe Water Reclamation Centre indicated that
during the winter months the treated water discharge will be, on average, four to five degrees
Celsius higher than East Holland River temperature. This average temperature difference will
assimilate, but initially will result in potential ice melt in the river, the extent of which will vary
depending on climate conditions. In recognition of this impact, the study team conducted
preliminary investigations on recovering heat from the discharge water to a level that would
reduce or possibly eliminate river ice melt beyond the initial melt local to the area around the
point where the discharge enters the river. These investigations concluded the following:
• Energy that could be recovered from the discharge to sustainably heat the buildings onsite
would have an insignificant (less than one degree Celsius) reduction on the treated water
temperature.
• Substantial additional capital and energy costs are required to further cool the effluent with
no potential to reuse the recovered heat. This approach will increase the energy
management/carbon footprint of the facility.
• A capital investment of $4 to 6 million plus annual operating costs between $400,000 and
$750,000 per year is required for chilling technologies to reliably reduce the effluent
temperature by four to five degrees Celsius. Capital investment for the community ice pad
would be in the order of $500,000 with minimal annual operating costs.
• The performance of less expensive technologies such as cooling towers is unreliable because
they are dependent on outside air temperature.
• Since steadily flowing water will not freeze, energy generated by the discharge flow of this
volume of water would cause localized ice melt even if the water were cooled at the Lake
Simcoe Water Reclamation Centre.
Many plants across the country discharge treated effluent to local rivers without incident.
However, other mitigation measures were explored in greater detail resulting in the identification
of those presented in the May 8 Environmental Services Committee report (i.e., provision of
community ice pad and snowmobile trail connections).
The concept of heat recovery would be most successful with a District Energy Heating System;
that is, a community holistically designed to accept and use this resource as an example of
sustainable living. Such a community concept exists for much of the area north of Queensville
Sideroad, however, the timing for this has not been established. Until that time, the resources
required to recover heat by cooling the treated water from the Lake Simcoe Water Reclamation
Centre would be wasted since the facility itself could only use a fraction of the heat.
Additionally, lowering the temperature of treated water by an average of four to five degrees
Celsius will not mitigate against open water at the point where the discharge enters the river.
Heat recovery for the purposes of this individual environmental assessment offers no benefit in
terms of cost or eliminating open water in the winter and could serve to defeat the purpose of the
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Lake Simcoe Water Reclamation Centre to provide phosphorus-reduced clean treated water to
improve the quality of the highly degraded East Holland River.
The Environmental Assessment report will include a commitment to continually monitor ice
formation at the treated water discharge in consultation with the Lake Simcoe Region
Conservation Authority. Moving forward, the Upper York Sewage Solutions project will include
sufficient budget to implement heat recovery technologies as warranted.
Reclaiming water for irrigation of sod farms and golf courses or for industrial processes by high
water users is a cornerstone of innovation inherent in the Upper York Sewage Solutions project.
A reliable supply of high-quality treated water would reduce or remove dependency on ground or
surface water supplies currently governed by Permits To Take Water; a significant and
sustainable step in protecting valuable water resources. The Region will continue to work with
the Ministry of the Environment to advance water reuse and anticipates that water reuse will help
divert water from the outfall for reuse opportunities and potentially further mitigate perceived
impacts.
Issue 5 (raised by Council May 16, 2013):
Rationale for the recommended locations of the phosphorus off-sets in the Study Area.
Response:
Discussions with the Ministry of the Environment to date have determined that most proposed
phosphorus off-sets should be achieved within the East Holland River sub-watershed upstream of
the Lake Simcoe Water Reclamation Centre treated water discharge outfall. The rationale is that
the further upstream the remediated ponds are, the greater the benefit will be. Specifically:
• Retrofitting older stormwater management ponds within the East Holland River subwatershed to provide quality and quantity control of stormwater removes phosphorus from
entering the river at the minimum ratio of two units of phosphorus removed for each single
unit of phosphorus added.
• From the point of discharge, the combination of less phosphorus and the high quality of the
treated water will serve to improve the clarity and quality of the East Holland River for six to
seven kilometers to the point of confluence with the West Holland River.
The Lake Simcoe Phosphorus Reduction Strategy is designed to achieve a reduction in the
annual load of phosphorus to Lake Simcoe from all sources, as depicted in Figure 1 below, from
72 tonnes per year to 44 tonnes per year (i.e., reduction goal of 28 tonnes per year). The Upper
York Sewage Solution’s phosphorus off-setting strategy will provide a net reduction of as much
as 300 kilograms per year of phosphorus. As such, when considering the net effect on Lake
Simcoe as a whole, 300 kilograms per year equates to 1 per cent of the reduction goal as required
by the Lake Simcoe Phosphorus Reduction Strategy. In contrast, 300 kilograms per year of
phosphorus reduction will provide a significantly greater benefit to the East Holland River,
which is the most degraded watercourse in the watershed.
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Figure 1
Lake Simcoe Phosphorous Sources
Since the May 8 Environmental Services Committee report, further investigation has been
undertaken on candidate stormwater sites. Further investigation has determined that several sites
were not ideally suitable for retrofit and that other retrofit options may be less impactful and/or
more cost effective. Ponds removed from the candidate list and the rationale for removal are
described below:
•
•
•
•
•
•
Aurora – South of Henderson Drive between McClellan Way and Ardill Crescent
o Retrofit would negatively impact existing park uses
Aurora – North of Stone Road between October Lane and Bayview Avenue
o Retrofit would negatively impact adjacent significant forest
East Gwillimbury – West side of Leslie Street at Jennifer Crescent
o Pond within proposed development
Newmarket – Southeast of Renzuis Court
o Further investigations revealed more cost-effective options
Newmarket – Northwest corner of College Manor Drive and Devanjan Circle
o Further investigations revealed more cost-effective options
Newmarket – South of Stellar Drive between Pony Drive and Harry Walker Parkway
o Further investigations revealed more cost-effective options
Table 2 below and Attachment 2 provide the updated candidate stormwater management
remediation sites. Columns have been added to reflect their locations with respect to the Ministry
of the Environment’s requirement to achieve phosphorus removal upstream of the Lake Simcoe
Water Reclamation Centre treated water discharge outfall into the East Holland River as well as
the respective targeted phosphorus reduction. It should be noted that the candidate sites to
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determine the appropriate credits remain tentative and are subject to ongoing discussion with
Ministry of the Environment.
Table 2
Updated Candidate Stormwater Management Remediation Sites
Targeted
Phosphorus
Reduction
(Kilograms
Per Year)
Municipality
Pond/Low Impact Development
Location
East Holland River
Subwatershed
Location Upstream of
Proposed Outfall
Aurora
North of Wellington Street West between
Marksbury Court and Harmon Avenue
(A-NW33)
Yes
2
Aurora
South of Wellington Street East and East
of Mary Street (A-C8)
Yes
5
North of Farr Avenue and East of George
Street (SH-S9)
No
22
Northeast corner of Oakridge Crescent
(HL-SE2/SE6)
Yes
8
Georgina
North of Walter Street between Lake
Drive and Georgette Street (K-S8)
No
8
Newmarket
Northeast of Eagle Street West at
McCaffrey Road (N-CW2/3/5/7/11)
Yes
66
Newmarket
Northeast corner of Dorchester Court (NNW5)
Yes
33
Newmarket
Low Impact Development: Perforated
pipes in existing swales in roadside
stormwater ditches along Stellar Drive,
Pony Drive, and on the existing
stormwater easement located between
Harry Walker Parkway and Pony Drive
(N-NE1/NE2)
Yes
25
East
Gwillimbury
East
Gwillimbury
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This supplemental information, along with the May 8 Environmental Services Committee report,
outlines some of the detailed assessment work that staff has undertaken as part of the Upper
York Sewage Solution project. A public meeting in the Town of East Gwillimbury is scheduled
for June 19 with an additional open house and public meeting, as requested by Council,
scheduled for July 3 in the Town of Georgina.
Erin Mahoney
BW/mm
Attachments (2)
YORK-#4814592
ATTACHMENT 1
Holland
Landing
Holland
Lagoons
Landing
Lagoons
LOCATION PLAN
Lake Simcoe Water Reclamation Centre
Proposed Treated Water Discharge Outfall
Potential Treated Water
Discharge Outfall
Route of Linear Infrastructure
ENVIRONMENTAL SERVICES
#4833294
ATTACHMENT 2
Updated Candidate
Stormwater
Management
Remediation Sites
LOCATION PLAN
Updated Candidate Stormwater
Management Remediation Sites
ENVIRONMENTAL SERVICES
#4864892