Greenbelt Master Plan Review
Phase 1 - Step C
Land Use Concept
Prepared for the National Capital Commission
By SENES Consultants Limited January 2012
Page Cover: Mural of the Greenbelt painted by children at Fairview Child Care Centre, Ottawa, Ontario, courtesy of Ann Coffey.
Table of Contents 1.0 Executive Summary...... 1 2.0 Background to Inform the Recommended Greenbelt Land Use Concept ...... 3 2.1 Gréber’s Vision Elements to Inform the Land Use Concept ...... 3 2.2 What is a Greenbelt Concept Plan?...... 4 2.2.1 The 1996 Greenbelt Master Plan ...... 4 2.3 Updated Directions for Proposed Land Use Concept...... 5 2.4 The Greenbelt in the Global Context...... 8 2.4.1 Our Global Environment ...... 8 2.4.2 Relevant Experiences of Greenbelts Worldwide...... 9 2.5 The Greenbelt in the Capital Context...... 10 3.0 Greenbelt Concept Options ...... 12 3.1 Regional Map: Capital Context for the Greenbelt ...... 12 3.2 Three Land Use Concept Options ...... 13 3.3 How these Concept Elements link to the Vision and help achieve the 2067 Greenbelt...... 19 4.0 Summary of Public and Stakeholder Feedback...... 19 4.1 Public Response Summary...... 19 4.2 Stakeholder Feedback ...... 20 5.0 Analysis & Recommendations for Ultimate Greenbelt Concept ...... 22 5.1 Recommended Strategic Statements...... 22 5.2 Recommended Land Use Concept...... 22 5.2.1 Exploration of Other Concept Elements...... 26 5.2.2 Comprehensive Review of Land Additions for the 2067 Greenbelt...... 27 5.3 Challenges and Possible Solutions...... 31 6.0 Conclusion...... 32
Appendices A – List of Greenbelt Stakeholders Consulted B – Greenbelt Strategic Statements C – Recommended Land Use Concept for the 2012 Greenbelt Master Plan D – Comparison of Proposed Areas of Addition to Greenbelt
1.0 Executive Summary
The Greenbelt of Canada’s Capital is a unique place. These 21,500 hectares within Canada’s Capital Region (CCR) belongs to the people of Canada. The Greenbelt is the most ecologically diverse natural landscape within an urban area. The Greenbelt supports a viable base of prime agricultural lands that in close proximity to a large urban population. It is also a myriad of places and experiences for recreation that provide solitude, observation of nature, the opportunity for many forms of exercise, glimpses into the experiences of our ancestors or connection with our local food system. And it hosts selected federal government facilities with functions of national significance such as military training, satellite communications research, agricultural research, defense communications monitoring, geotechnical research and energy and explosives research.
These features reflect the four main roles of the Greenbelt: 1. Primary role ‐ Natural Environment 2. Secondary role ‐ Sustainable Agriculture 3. Secondary role ‐ Capital Experiences & Recreation 4. Tertiary role ‐ Facilities.
A current review of the 1996 Greenbelt Master Plan, being completed between 2008 and 2012, has as its main purpose to update the entire plan – its directions, land use concept and designations, policies, guidelines and sector plans – to reflect changes since 1996 and desired directions for the future. The types of changes proposed include land use, the priorities of managers and stakeholders, regional growth trends, a greater focus on sustainability and global environmental and climate conditions. The recommended land use concept is consistent with the Greenbelt strategic statements that implement the approved 2067 Greenbelt vision and provide the direction for the next step of refinement of plan policies, guidelines, land designations and sector plans.
This report recommends a 2067 land use concept for internal NCC discussion and refinement through the fall of 2011 and final approval by the National Capital Commission Board of Directors in January 2012. The concept has been developed through ongoing research and analysis of issues, trends and results from this study’s analysis of the Greenbelt’s existing conditions and potential for 50 years from now. Concept development and review was further informed by detailed consultations with stakeholders and the public during the first half of 2011. The recommended or ultimate concept for the year 2067 is one which contributes to and is mainly responsible for a sustainable community in Canada’s Capital Region. The vision, mission, fundamental premise, role and goal statements included within this report are met through this concept.
Visually, the Greenbelt as a landscape feature is connected for human, animal and plant life, provides food, refuge and recreation, elicits national pride, provides areas of employment and enhances quality of life for communities of the Capital. Many individuals and organizations work with the NCC in the management of both the function and health of the Greenbelt lands and of those areas to which the Greenbelt connects.
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The recommended concept for the 2012 Greenbelt Master Plan includes: • Strengthened and expanded natural areas within the existing Greenbelt; • integration of forest plantations to the Greenbelt’s Natural Environment, managed for diversified and rehabilitated natural habitats over time to enhance the Greenbelt core natural areas in function, area and ecological linkages; • addition of natural areas immediately adjacent to the Greenbelt to further strengthen Greenbelt core natural areas and improve connectivity from the Greenbelt to significant regional natural areas; • adjustment of natural area boundaries for more natural shape and to provide net ecological benefit to the Greenbelt; • transfer of former rural lands within the Greenbelt to Sustainable Agriculture lands; there is a resulting increase in the agricultural land base, to compensate for the transfer of other agricultural lands to strengthen the core natural areas and natural area linkage functions. • Achievement of sustainable agriculture includes diversification of farm types, support for smaller farm parcels and ongoing integration of farm management practices that support biological processes of the Greenbelt’s natural environment. • selected parcels of the proposed natural environment land additions also enhance visual resources and recreational opportunities to strengthen the Recreational & Capital Experiences for the Greenbelt and there is enhancement of the connectivity of the Greenbelt Pathway to the regional pathway system; • retention of existing facilities within the Greenbelt, with a focus specified for federal facilities requiring isolation and location within the Capital; all facilities, federal and non‐federal, will be encouraged to maintain and, where possible, reduce the land footprint supporting built structures. • Discouragement of new facilities and gradual long term phase-out of existing facilities followed by re-naturalization of their lands; • Recognition of the Ottawa International Airport, DND facility on Carling Avenue, Queensway Carleton Hospital and Nepean Sportsplex as edge facilities that are special operating zones which interface with Greenbelt and urban landscapes • reinstatement as NILM (National Interest Land Mass) of NCC‐owned lands immediately adjacent to the Greenbelt to strengthen Greenbelt roles of Natural Environment and Capital Experiences and Recreation; these parcels were previously recommended for removal from the Greenbelt (1996); • continued discussions with the Ottawa International Airport and associated stakeholders to establish location of the continuous recreation pathway and strengthening of the ecological linkage south of the airport; identification of ecological corridor areas that extend from the Greenbelt’s core natural areas to significant regional natural features and that will be further defined through future study; • identification and protection of ecological corridors and the regional natural features to which they connect will be achieved through active partnerships with other agencies that possess an interest in natural heritage system maintenance and with landowners interested in retention of their long‐term natural character; and • an overall expanded and strengthened Greenbelt that begins the journey of an increasingly better known, recognized and valued Capital feature by residents, visitors and all Canadians.
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In summary, through this concept the Greenbelt will be:
• More relevant to the Capital than ever • Strengthened by a clearer identity and roles • Connected to the Capital Ecosystem Network • Greener with Natural Environment as the priority • Focused on Sustainable Agriculture • Better known internationally as a Capital feature • A welcome breathing space in the Capital • Home to existing facility areas • Sustained by ensuring “no net loss” from infrastructure
2.0 Background to Inform the Recommended Greenbelt Land Use Concept This report summarizes the results of review activities conducted over the past year for Step C – Land Use Concept. It presents the background and analysis that leads to recommendation of a recommended Greenbelt Land Use Concept for the 2012 Greenbelt Master Plan update.
2.1 Gréber’s Vision Elements to Inform the Land Use Concept Canada’s Capital Greenbelt originated from the 1950 Gréber Plan, a comprehensive plan that set out to wisely plan the Capital with “far‐reaching foresight”. In preparing the plan, the authors noted that they discarded “all half measures, limited and short‐sighted solutions, as well as utopian suggestions, as we know their equals in inefficacious and ruinous results”. As part of the Plan’s conclusion, the authors noted that the inherent natural beauty of the Capital was “incorporated within our plans as a most valuable factor in the expression of our conceptions” and that this beauty “calls for protection through appropriate restrictions against disfigurement and destruction, and does not involve expenditures but rather is a source of profit to the community”. The plan also described itself as a “work of protection of rural life on the one hand, and of preservation of the natural landscape on the other, in order to retain in perpetuity all elements having recreative or touristic values” for areas outside of the urban area.
As described in the Existing Conditions report (2010) for this review, the Gréber Plan directions for the recommended rural Greenbelt to surround the urban area of the Capital included:
• establishment of large properties for natural areas and government institutions; • dedication of lands to agriculture; • protection from undesirable development through regulations; and • preservation of sites with outstanding scenic value, particularly those bordering lakes and rivers.
The Greenbelt was envisioned as part of “an organic system of parks and an uninterrupted network of verdure within the entire region” through “reservation of appropriate lands” to meet the objectives to:
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1. “establish a system of greenbelts framing dwelling areas and directly linked to the main rural belt” (the Greenbelt); and 2. Ensuring a sufficient reserve for the eventual establishment of public services necessitating environments of verdure and quietness”.
Watercourses, urban parks, wooded areas and parkways were all described as part of this connected system of green.
2.2 What is a Greenbelt Concept Plan? To assist in preparing a concept plan for the Greenbelt, it is helpful to consider the definition of a concept which is “an abstract idea, an idea or mental picture of a group or class of objects formed by combining all of their aspects”1. This definition helps to explain why many people recently consulted on a future concept for the Greenbelt expressed difficulty with understanding the higher level view of a landscape which to most people is known and enjoyed for very specific aspects. These might be a quiet hike in the cedar woods of Stony Swamp, long‐range views of nature in Mer Bleue or purchasing strawberries at a Cedarview Road or Carling Avenue roadside stand on the way home from work. The importance of this space, however, encouraged many to explore and well understand the proposed long‐ term Greenbelt Concept options proposed in the spring of 2011 to meet the 20602 Greenbelt Vision of:
The Greenbelt will forever protect natural systems, agriculture and opportunities for outdoor recreation and education that will inspire Canadians and contribute to sustainability and quality of life in Canada’s Capital Region.
2.2.1 The 1996 Greenbelt Master Plan The 1996 Greenbelt Master Plan well explains the Concept Plan as “the first step in translating the Greenbelt’s purpose and roles into reality”, it “displays the desired land characteristics and landscape qualities of the Greenbelt and provides direction for its long term use” and management. “It emphasizes which of the roles will take priority in different parts of the Greenbelt through the physical mapping of roles onto the Greenbelt landscape”. The 1996 plan also describes the future concept for the Greenbelt within the regional context and how the roles interact within its boundaries.
Within a regional context, the visibility and function of the Greenbelt within Canada’s Capital Region remains relatively similar to the picture articulated in the 1996 Plan. It is a feature that comprises a critical component of the urban and rural infrastructure, whose natural systems and features are connected to, strengthen and are strengthened by natural systems and features beyond its boundaries. The large natural and rural landscapes of the Greenbelt provide a distinct separation between the urban core of the City of Ottawa and its more suburban communities outside the Greenbelt such as Kanata, Orleans and Riverside South. It provides visitors and returning residents an attractive and symbolic Gateway to the Capital along with easy access to the Capital’s nearby countryside with its diverse range of farm products, rural services and recreational experiences. There are also significant federal facilities established within the Greenbelt, facilities that
1 Oxford University Press of Canada. 2000. The Canadian Oxford Dictionary. 2 This review developed a 50 year vision for the Greenbelt, for the year 2060. With the implementation of the 10‐year review of the regional level Plan for Canada’s Capital that specifies a Horizon 2067 to coincide with the bicentennial anniversary of the creation of our nation, it is proposed that the Greenbelt vision align to the year 2067. This change is recommended for the updated Master Plan, and is used henceforth throughout this report. Page 4 – Recommended Greenbelt Land Use Concept
practice predominantly nationally significant functions that require a location within the Capital that is isolated from the urban population for activities such as the geotechnical and explosives research of Natural Resources Canada and the military training and communications monitoring conducted by the Department of National Defence. The 1996 Plan’s closing statement of the Greenbelt’s role within the Capital remains relevant: “These diverse aspects of the Greenbelt will work together to assist in the conservation, improvement and development of the National Capital Region, enhancing the quality of life in the region and communicating aspects of Canada to Canadians who visit their Capital”.
2.3 Updated Directions for Proposed Land Use Concept The articulated community and stakeholder desires for the Greenbelt have not changed significantly since the planning for and subsequent careful execution of Gréber’s directions to establish a publicly owned Greenbelt. Public and stakeholder input is summarized later within this report, as well as in the separate public consultation reports for the three review phases conducted so far – Existing Conditions Assessment, 50 year Vision and Recommended Concept. The Greenbelt’s position and significance within the Capital has changed somewhat, however, over the past 15 years since approval of the 1996 Master Plan. The main difference is the intensity of pressure upon Greenbelt lands from surrounding urbanization and the increasing importance of the reprieve from urban life that this area provides to residents and visitors. The establishment and protection of this feature that resulted from implementation of Greber’s 1950 vision for the Capital that included an extensive Greenbelt area is seen as truly visionary by those who study urban planning. The Greenbelt’s creation and enhancement over the past 50 years is an accomplishment to celebrate and of which to be proud for those who discover this wonderful area. Not only does the Greenbelt provide a place to cycle, hike, experience nature, learn about our history or buy dinner, it has become more important for the ecological services and quality of life benefits it provides to buffer the urban effects from our growing Capital, absorbing air and water pollutants, storing carbon dioxide and supporting biodiversity. This space is connected to our communities and delivers a quality of life that is integral to the Capital Region.
The review results so far have identified shifts in the focus on and priority given to the respective Greenbelt roles which reflect the significant urban development that has occurred within the Capital since approval of the previous Greenbelt Master Plan. A set of strategic statements for the updated Greenbelt Master Plan has been developed through consideration of feedback during the existing conditions and visioning steps of this review. These statements have been further refined through an iterative process undertaken by the study team and NCC staff, including a February 2011 workshop attended by approximately 35 NCC staff and review by the Project Team, Greenbelt Portfolio, Steering Committee and Executive Management Committee. The resulting set of strategic statements, as presented in the following table that was recently reviewed by Greenbelt stakeholders and the public, provide for four main roles of the Greenbelt – Natural Environment, Sustainable Agriculture, Capital Experiences & Recreation and Facilities.
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The following shifts in emphasis from 1996 reflect the increased importance placed upon maintenance of a cohesive and more robust Greenbelt in Canada’s Capital for the long‐term:
• identification of the Greenbelt’s natural environment role as a primary priority; • modification of the former role of a vibrant rural community that consisted of productive farms and forests to evolve to an emphasis upon sustainable agriculture whereby Greenbelt farms demonstrate economic, social and ecological viability and the plantation forests are integrated into the natural environment role, with management of the plantations over time directed towards encouragement of diverse habitats that add to the natural environment; • infusion of the concept of sustainability throughout the Greenbelt’s strategic statements, into the vision (the Greenbelt will contribute to the sustainability and quality of life in Canada’s Capital Region), fundamental premises (the Greenbelt will be an environmental showcase, balancing favourable ecological, social and economic factors, demonstrating leadership in environmental stewardship, the Greenbelt will promote sustainable agriculture) and role statements (the Greenbelt will provide opportunities for sustainable agriculture, will protect and enhance natural areas, ecosystems and habitats and will support a range of environmental sound federal facilities, encourage existing non‐ federal facilities to be environmentally sound and require sustainable transportation and infrastructure); • a focus upon federal facilities while discouraging non‐federal facility development on Greenbelt lands, particularly municipal roads or infrastructure, or non‐federal types of facilities (institutional, commercial or residential). Federal facilities with unique requirements for isolation and location within the Capital remains one of the four key roles of the Greenbelt; and • an increased emphasis on partnerships.
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Draft Strategic Statements for 2011 Consultations
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In looking forward to achieving the 2067 vision for the Greenbelt, concept options were developed to meet the above vision, in particular through consideration of: • increasing the area and strengthening the features, functions and overall systems of the Greenbelt’s natural environment; • increasing the connections to the regional natural system; • exploring options to provide resources to expand the Greenbelt area, strengthen its resources overall; • enhancing the consistency of the landscape functions and uses within the Greenbelt lands; • strengthening the four Greenbelt roles overall (Natural Environment, Sustainable Agriculture, Capital Experiences and Recreation and Facilities).
2.4 The Greenbelt in the Global Context Prior to exploring the considered land use concept options in detail, it is useful to consider Canada’s Capital Greenbelt in a global context. This section presents a context for the Greenbelt’s contribution within the global environment and a Our ecological footprint: The 2010 World summary of the experiences of worldwide greenbelts. Wildlife Fund Living Planet report notes that for 2007, the most recent year for which 2.4.1 Our Global Environment data is available, humans’ Ecological There is growing popular acceptance that we need to live differently Footprint exceeded the Earth’s biocapacity — the area available to produce renewable if we are to thrive as a species, with sustainable development resources and absorb CO2 — by 50 per cent. /community sustainability as the evolving approach necessary to And the report notes that we have been capture the required shift in our living standards. Sustainability is exceeding the earth’s capacity since the 1970’s. If the whole world were to live described by Thomas Friedman as being about the disposition, within the means of the earth, at the current mindset and behaviours which shape and sustain our relationships – population level we could each enjoy a with people, our environment and nature. Sustainability is also lifestyle that represents an ecological about looking long‐term and evaluating the impact of our actions. footprint of renewable resource use of 1.8 ha. The world average for 2007 was 2.7 ha As well as being an outcome, sustainability can also be a set of per person with the Canadian average set at principles for ecosystems so that they will endure and be too strong 7.0 ha per person. As the world population to fail. Sustainability is about how we do business, suggesting that grows, the amount of land available to we take the approach that each of us will always be here and are support individuals will decrease. In addition, the standard of living within some accountable for what happened during the time we were countries is rising to add a further strain on 3 responsible for management of our sphere of influence . the earth’s capacity to support us.
John Dernbach, an American sustainability expert, also describes sustainability as providing a framework for humans to live and prosper in harmony with nature rather than at nature’s expense, as we are now doing. A recent analysis of our human impact on the earth by the World Wildlife Fund4 reports that as a global population, we are using up the earth’s resources at a rate faster than they can be replenished (energy, food from croplands, forests, fish stocks). Everything we care about – a growing economy, human well‐being and security – is compromised, undermined or lessened by environmental degradation. Something is environmentally or ecologically sustainable when it protects, restores or regenerates the environment rather than degrades it, providing a stable, connected life in which we collaborate with others to achieve a shared
3 Thomas Friedman. 2008. Hot, Flat and Crowded – Why We Need a Green Revolution and How It Can Renew America. 4 The 2010 World Wildlife Fund Living Planet report noted that for 2007, the most recent year for which data is available, humans’ Ecological Footprint exceeded the Earth’s biocapacity — the area actually available to produce renewable resources and absorb CO2 — by 50 per cent.
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healthy environment. A society in which we behave and live sustainably means that we do not borrow as heavily as we do now from our future quality of life or that of our descendants5.
The above context and descriptions of sustainability will be helpful in providing a definition for Greenbelt sustainability in the updated Master Plan.
Recent solutions offered by the WWF and other sustainability experts to address our increasing overuse of natural capital focus upon building a global “green economy” within which the “economic thinking embraces people and the planet”. The work of the WWF has informed the OECD’s development of a Green Growth Strategy6 that will in turn form the basis for the 2012 Rio +20 Conference that will review the state of progress towards the 1992 Rio declaration on sustainable development and revise future global sustainability commitments. Many of the recommended directions and actions for a green economy as listed below are included in the 1996 Greenbelt Master Plan and/or in the evolving directions for the updated plan as well as the Capital’s Choosing our Future initiative (see Section 2.5):
1. Change the concept and definition of success and prosperity or human development to include personal and societal wellbeing and use of natural resources within ecological limits as well as the existing indicator of gross domestic product; 2. Invest in natural capital through protection of representative areas of forests and freshwater areas; restoration of degraded areas; improvements to land tenure, management, crop management and yields; measurement and promotion of the economic value of biodiversity and ecosystem services; 3. Invest in renewable energy and food through provision of renewable energy, creation of energy efficient buildings and transportation systems, protection of productive lands, promotion of changes in food choices and provision of equitable access to food; 4. Careful allocation of land and land use planning, considering the global availability of productive lands and waters and protecting and allocating them appropriately to ensure long‐term biocapacity; 5. Sharing of limited resources of energy, water and food; 6. Shared and collaborative decision‐making by governments, businesses and communities in the management of resources and to effect change.
2.4.2 Relevant Experiences of Greenbelts Worldwide In the literature review of Greenbelts worldwide earlier in this study, common objectives and challenges exist for others to those that have been experienced within Canada’s Capital Greenbelt. Primary objectives include protection and provision of natural environment areas, generally connected, often augmented by adjoining parks or open space areas, with some Greenbelts aiming to secure and maintain agricultural lands for food provision and occurrence of built facilities with controls. The extent of controls on new built facilities varies somewhat, with all Greenbelts facing significant development pressures to release their lands for housing, commercial, industrial or institutional development. In learning of the specifics of Canada’s Capital Greenbelt, a common feedback from Greenbelt experts is that our position is an enviable one because of the public ownership which provides more control over how the lands are managed and preserved. Greenbelts in different countries tend to consist of predominantly or at least partly privately owned lands, a situation requiring significant effort to develop and implement common Greenbelt objectives.
5 John Dernbach. 2010. Agenda for a Sustainable America. 6 OECD (Organization for Economic Co‐operation and Development). 2011. Towards Green Growth.
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During the visioning process of this study, participants stressed the need for a long‐term perspective, urged us to think big, to take full advantage of the efforts that led to the Greenbelt’s creation and ongoing protection. The importance of the connection of this landscape to nearby human and wildlife communities and that the Greenbelt should be sustainable as well as a model of sustainability also arose as recurring themes. The Greenbelt should progress as far in the next 50 years as it had in the past half‐century, since its articulation by Gréber in his 1950 plan. Canada’s Capital Greenbelt supports the highest concentration of ecologically significant areas of any Greenbelt.
2.5 The Greenbelt in the Capital Context Concurrent to the update of the Greenbelt Master Plan, two strategic plans that cover the entire area of Canada’s Capital are under development.
The National Capital Commission (NCC) is currently updating the Plan for Canada’s Capital (Horizon 2067) with a vision for the year 2067, Canada’s bicentennial anniversary. Public consultations on this plan will occur in the fall of 2011. The Plan for Canada’s Capital will consider and integrate the Greenbelt vision, strategic directions and relevant policies as it proceeds over the next two years, with feedback from its process also provided to the Greenbelt Master Plan Review.
As well, the NCC is participating with the Cities of Ottawa and Gatineau in the development of a community sustainability or 100 year plan for Canada’s Capital Region, known as Choosing Our Future. To date, Choosing our Future has established overall plan principles, a set of goals for a “sustainable, resilient and liveable Canada’s Capital Region” and strategic directions according to the themes of culture, greening the economy, social development, food and farming, natural systems, buildings and energy supply, water stormwater and wastewater infrastructure, materials and solid waste management, land use growth management and urban form and mobility. Many of the strategic directions support those that are evolving for the Greenbelt. Those that are most relevant include:
• Greening of the local economy by greening existing local businesses, encouraging sustainable business sectors and businesses, supporting green building and infrastructure, redefining progress to include consideration of quality of life and measuring progress; • More compact urban development; • Priority for sustainable mobility, with a focus upon public transit and active transportation (walking, cycling, skating, etc.) • Efficient buildings and energy supply, such as encouragement of energy efficient buildings and establishment of district energy and alternative energy systems; • Reduction of waste through more efficient material use and a cradle to cradle approach to waste management; • Protection and enhancement of natural systems through preservation of an interconnected system of public lands and privately owned lands through stewardship, encouragement of biodiversity in City greenspaces (parks, streetscapes, around businesses and institutions, along streams and around stormwater management ponds), encouragement of ecologically focused consumer decisions; • More locally and sustainably produced food and agriculture, including value‐added local processing and local procurement by governments; • Improved water quality through management of urban development and urban lands by governments, businesses and individuals and enhancement of green infrastructure.
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Discussion papers on the proposed directions for the Choosing our Future plan will be discussed with the public in the fall of 2011 to help create the final plan. In the Choosing our Future initiative, the Greenbelt is identified as a significant contributor to the quality of life for the present and future Canada’s Capital. In addition to contributing to all of the above strategic directions for a sustainable Capital, an initial and rough estimate of the ecological goods and services provided by the Greenbelt to the Capital is approximately $73 million per year7. A detailed evaluation of the services of these lands is likely to yield a higher economic value upon calculation of the full set of ecological goods and services provided by the Greenbelt to enhance our quality of life within the Capital, including:
• goods (e.g. food, wood, fibre, biofuels) • regulating services (water filtration, waste decomposition, climate regulation, crop pollination), • supporting services (nutrient cycling, photosynthesis, soil formation) and • cultural services (enriching recreational, aesthetic and spiritual experiences).
In addition to the above two strategic plans for the Capital, the Greenbelt Master Plan aligns with the land use designations and policies within the City of Ottawa Official Plan and its supporting Greenspace Master Plan – Strategies for Ottawa’s Urban Greenspaces.
Within the Official Plan, there are environmental protection policies and designated natural areas that are identified as contributing to the City’s natural systems within the rural and urban areas of the City. The location of the City‐identified natural systems features and policies have been considered within the Greenbelt concept and updating of the City’s Official Plan in 2015 will in turn integrate the updates of the Greenbelt Master Plan. As well, the City is currently working to further define a connected natural heritage system for the City, much of which falls within the City’s rural areas, and that likely involves increased partnership efforts for its protection through a variety of conservation measures.
The City’s Greenspace Master Plan presents a vision, policies and objectives for greenspace in Ottawa. The City works closely with local conservation authorities and the NCC to coordinate and improve regionally significant greenspace. The following highlight the core greenspace objectives of the City:
• Adequacy ‐ Provision of sufficient greenspace to satisfy the needs of a growing and diverse community and maintain natural systems, biodiversity and habitats. • Accessibility – provision of access to greenspace. • Connectivity ‐ linking green spaces to provide for variety and improved access to recreational facilities, and improve biodiversity and the movement of species. • Quality ‐ attractive, safe and well designed greenspace, serving various needs of users while improving natural features and functions. • Sustainability ‐ Planned and managed in a way that minimizes human intervention and public spending, through reliance on natural processes; and • Innovative methods for protection and conservation.
7 SENES Consultants. 2010. Greenbelt Master Plan Review: Phase 1, Step A ‐ Existing Conditions, Issues and Opportunities
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3.0 Greenbelt Concept Options
Greenbelt concept options were developed through consideration of the above directions that set the global and regional emphasis on sustainability and through focus upon the developed Greenbelt strategic directions for the updated plan (see section 2.3, above). These concept options were explored through an iterative and detailed process with NCC staff through late 2010 and 2011. The resulting Capital context and three concept options described below were discussed with Greenbelt stakeholders and the public in the spring of 2011. The public and stakeholder feedback, summarized in section 4.0 of this report, is considered in the recommended 2012 Greenbelt Land Use Concept. For additional detail on the public consultation process and results, please see the report Public Consultation for Step C Land Use Concept, Guiding Principles and Strategic Objectives (2011).
3.1 Regional Map: Capital Context for the Greenbelt This concept provides a Capital and regional perspective for the Greenbelt. It Images of Greenbelt illustrates the regional natural environment and agricultural resources that offer connectivity suggested by opportunities for connection and strengthening from similar lands within the stakeholders at November 2009 National Visioning Greenbelt. It also illustrates the built areas of the region that form constraints to Forum for the Greenbelt. strengthening of the Greenbelt roles of natural environment, sustainable agriculture and Capital experiences and recreation. Building upon the proposed area additions and strengthening of natural environment and some small land additions to sustainable agriculture identified through the following concept options, this Capital view of the Greenbelt depicts ecological connections to significant regional natural features beyond the Greenbelt. The identification and strengthening of these “connected lands” could be accomplished through partnerships with agencies, communities and landowners to secure their long‐term function. The result would be a strengthened Greenbelt, formulation of the originally conceived emerald necklace with extending fingers or tendrils that connect the Greenbelt’s core natural areas across the Ottawa River through Gatineau to Gatineau Park and through elongated connections that follow water and land corridors and connect to significant land features throughout the region and beyond. The following map centers upon the Greenbelt as the subject of this review and it also offers a regional perspective consistent with the ongoing joint Choosing our Future initiative.
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3.2 Three Land Use Concept Options Three land use concept options were proposed for public and stakeholder review. These draft concept plans provide different possible future landscape functions and qualities to meet the Greenbelt vision for 2067. The concepts build upon the existing Greenbelt land use designations, with each concept representing key changes to the future Greenbelt based on study of existing and potential future conditions. The concept maps also depict the areas where the four roles will take priority across the Greenbelt.
The three concepts are summarized as follows:
CONCEPT 1: Strengthening the Roles within the Greenbelt This 2067 Greenbelt displays a conservative and gradual transformation from 1996. Its aim is to enhance the Greenbelt Natural Environment by increasing existing buffer and ecological linkages and through the addition of the forest plantations that will, through active management, be naturalized to more diverse habitats over time. The increase in Natural Environment areas is accomplished through strategic transfer of select existing rural lands. Productive agricultural lands remain as “Agricultural and Rural Category” lands and recreational pathway links across the Greenbelt and to adjacent communities are also retained. A few changes to buildable site areas occur to reflect plan amendments since 1996 (DND Connaught and RCMP) and the Greenbelt Planning Area is expanded to include the remaining Nortel/DND facilities at Moodie Drive and Carling Avenue within the Greenbelt.
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CONCEPT 2: Enhancing the Natural Environment This 2067 Greenbelt offers the same expansion of natural areas within the existing Greenbelt boundaries as in Concept 1 and it also incorporates addition of several natural environmental lands immediately adjacent to the Greenbelt. These contiguous land additions could be considered through acquisition or through management in partnership with other agencies and/or existing landowners to accomplish their long‐term stewardship as natural lands.
The added areas consist of existing natural heritage system components (significant wetlands, woodlands, valleylands, natural areas) as defined through application of the Ontario Provincial Policy Statement, or existing aggregate extraction operations that could be added upon their future rehabilitation to a naturalized feature at closure. The specific areas proposed for natural environment addition to the Greenbelt Planning Area are described below, starting from the northwest edge of the Greenbelt and moving east:
1. Northern edge of Greenbelt at Shirley’s Bay – combination of Significant Wetland and Significant Woodland areas extending across Riddell Road that are part of the same natural feature as within the Greenbelt on DND lands (Connaught Range); 2. Area south of Stony Swamp, Between Richmond Road and Hwy. 416 – predominantly quarry operations with scattered pockets of Significant Woodlands and Significant Wetlands on both sides of Moodie Drive. The quarry sites are currently under extraction but their eventual closure offers the potential to add water features and some native vegetation areas to the Greenbelt as buffer area for Stony Swamp.
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3. Leitrim Wetland southeast of the airport –protected through Ontario /Provincial Significant Wetland policies and managed by South Nation Conservation. Also includes connected Mineral Resource Area currently in a natural state and in federal ownership; 4. Area South of Leitrim Road (and DND Leitrim) and west of Anderson Road – Collection of several Significant Woodland areas that are held predominantly in private ownership, with a small City parcel; 5. Area southwest of Mer Bleue – Significant Woodlands area, relatively wet soils, and predominantly owned by the Province of Ontario. This area has the potential to add to the Greenbelt’s natural environment area, enhance the visual impact by providing Greenbelt lands on both sides of Highway 417 and improve Greenbelt connectivity to the Cumberland Forest; 6. Area southeast of Mer Bleue – Significant Woodlands and small area of Significant Wetland adjacent to Mer Bleue to add to the Greenbelt Natural Environment area; and 7. Area in north Blackburn Hamlet – this site is an operating quarry with the potential to add water features and some native vegetation areas to the Greenbelt upon implementation of the site’s closure plan, to add potential natural area linkage and recreational area to the Greenbelt.
This concept also proposes the identification and formal recognition of previously identified ecological corridors that extend from the Greenbelt’s Core Natural Areas to significant natural features beyond the Greenbelt, such as to the Cumberland Forest, South March Highlands, Carp Hills, Constance Creek, Long Swamp and across the Ottawa River to McLaurin Bay, Gatineau Park and Labelle Forest. Recognizing connections to these significant regional natural features through the concept would accomplish strengthening of the Greenbelt’s ecological connectivity to regional features and thus respond to the most significant priority identified through all of the public and stakeholder input received to date as well as build upon the original intent of the Greenbelt as part of a regionally connected system of green spaces. Formally identifying the location and function of connecting lands could be accomplished through partnerships with others such as the City of Ottawa, Conservation Authorities, Ministry of Natural Resources, Parks Canada, the Nature Conservancy of Canada, land trusts and landowners. The connection function would be primarily ecological with some opportunity for inclusion of agricultural lands already protected in Gatineau and Ottawa.
Through the addition of natural environment lands and connection to regional natural features, this concept further strengthens the Greenbelt’s Natural Environment.
To further strengthen the four main roles of the Greenbelt, this concept proposes the addition of two small parcels of agricultural land located immediately west of the airport and at Highway 417 and Hunt Club Road (see Concept 2 map below).
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The other method used in this concept to strengthen the Greenbelt is the proposed transfer out of built facilities located near Greenbelt edges and that are not considered compatible with Greenbelt roles, landscape aesthetics and the existing and future view of locating federal campus facilities that require seclusion and location with the Canada’s Capital Region. Built facilities proposed for exclusion from the Greenbelt and subsequently added to the NCC Urban Lands Master Plan for management include:
• the operating and commercially developed areas of the airport, • the Queensway Carleton Hospital, • the Nepean Sportsplex, • Confederation High School, and • the Eagleson and Fallowfield Park and Ride facilities.
The end result of this proposed transfer of facilities from Greenbelt to Urban Lands management is a more consistent set of land uses within the Greenbelt that would clarify and streamline implementation of Greenbelt vision, goals and policies within the updated plan.
CONCEPT 3: Creating Opportunities for Limited Diversified Land Uses & Improved Natural Environment This concept captures all of the proposed land enhancements and additions of the previous two concepts to strengthen and enhance the Greenbelt roles. The proposed facility transfers outlined in Concept #2, however, are retained within the Greenbelt. The different element of this concept is that it identifies four select parcels of land with limited contribution to current Greenbelt roles and with potential for non‐federal development.
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The proceeds from sale or lease of these lands would be used to fund and strengthen the remaining Greenbelt lands and/or to add other contributing lands (to natural environment, agriculture, or recreation). These four parcels are:
1. Isolated parcel bounded by Highway 416, Richmond and Baseline Roads; 2. Site at the southwest corner of West Hunt Club Road and Woodroffe Avenue; site supports greenhouses no longer in use, several buildings used by federal agencies, previously Agriculture Canada use; 3. Mixed shrubs and small trees on lands east of Conroy Road and south of Hunt Club; 4. Isolated parcel on west side of 417; open fields with scattered shrubs and small trees.
The lands chosen meet the criteria of: • currently contribute in a limited way to the roles of natural systems, Capital experiences and recreation, sustainable agriculture or federal facilities • consist of unused lands along the Greenbelt edge, adjacent to major transportation corridors
Although these parcels are located in areas where minimal impact to Greenbelt uses and roles could occur, should development of any of these parcels proceed, they would be subject to specific conditions used in federal land transaction approval, such as environmental, visual and aesthetic development criteria.
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The following tables provide an overview of the concept options and a comparison of the three concept options to each other and to the 1996 Greenbelt Master Plan concept.
Table 1: Overview of Proposed Greenbelt Land Use Concept Options
Concept 1: Strengthening Roles within the Greenbelt • More land assigned to Natural Environment • Larger natural area buffers & linkages • Forest plantations • Modification of buildable site areas to reflect plan amendments since 1996 Concept 2: Enhancing the Natural Environment • Includes all of the changes in Concept 1; plus • Proposes addition of natural environment areas adjacent to the Greenbelt • Identifies and strengthens ecological corridors to significant natural features beyond Greenbelt boundaries • Removal of Greenbelt designation from built facilities located along the edge and which do not fit well with Greenbelt vision and roles Concept 3: Creating Opportunities for Limited Diversified Land Uses & Improved Natural Environment • Includes all of the changes from Concept 1 and proposed addition of adjacent natural environment areas and regional ecological corridors in Concept 2 • Four parcels of land with limited contribution to current Greenbelt roles are proposed for non‐Greenbelt uses. • Proceeds from sale/lease of these lands would be used to strengthen the Greenbelt
Table 2: Comparison of Three Draft Land Use Concepts to the 1996 Concept
New Roles 1996 Concept 1 Concept 2 Concept 3 Regional
• Concept #1 + NE lands • Increased area ‐ + • Further strengthen adjacent to current • Half of area plantations and small regional ecological Natural GB • Identified ecological agric. area Same as Concept #2 integrity through Environment • Identify and connections beyond • Identify & strengthen partnership protection strengthen ecological GB ecological connections of connections and connections to beyond GB features regional features
Capital • Roles = Distinctive Focus on Capital Experiences and Recreation opportunities throughout Greenbelt, with human Experiences & Capital Setting / connections to nearby facilities, communities Recreation Accessible Public Activities
• Smaller area than • Role= Vibrant Rural Sustainable 1996 = agricultural & No change from • Opportunity to protect Economy No change Agriculture rural Concept #1 additional agric. lands • 41% of area is • Plantations, small area outside GB agricultural & rural of agric. lands to NE
No change from 1996 Transfer selected Additional Built Facilities 9% of area No change Plan facilities from GB development lands
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3.3 How these Concept Elements link to the Vision and help achieve the 2067 Greenbelt The elements across the above three described concept options for the 2012 Greenbelt Master Plan depict strengthening of the Greenbelt’s natural environment both within and beyond Greenbelt boundaries. This is aligned with the vision statement that commits to forever protecting the Greenbelt’s natural systems and contributing to sustainability and quality of life in Canada’s Capital Region. This also responds to establishing the natural environment role as the primary priority with goals set for biodiversity, ecological linkages, water and land resources and vegetation.
As well as a commitment in the vision to protection of natural systems, the Greenbelt will also forever protect agriculture and opportunities for outdoor recreation and education. Although not graphically evident in comparison to the proposed natural environment additions, the three concepts propose maintenance of a strong agricultural land base with some minor additions proposed in concepts 2 and 3 (minor because of the limited land opportunities available) to help offset agricultural land transfers needed to strengthen the natural environment. From a recreational and experience perspective, the existing recreational and cultural heritage resources are protected, promoted and enhanced through polices and depicted on the concepts. Recreational pathway connectivity from Greenbelt pathways to nearby communities is maintained and enhanced.
For the fourth role of Built Facilities, with a priority placed upon federal facilities, all of the concepts maintain the existing built facilities footprint with a stated priority for federal facilities that have unique requirements for seclusion (removed from the urban area) and location (of extensive premises) within Canada’s Capital.
4.0 Summary of Public and Stakeholder Feedback This section provides an overview of the input provided by the public and stakeholders that participated in review of the proposed three concept options and strategic statements.
4.1 Public Response Summary As presented within the companion public consultation report, the general public feedback on all concepts is a strong preference that the Greenbelt’s green spaces are maintained, increased and improved. The protection and establishment of ecological corridors, outlined in all the concepts, are desired by some to occur immediately, with special attention given to the significant natural areas to which these corridors connect the Greenbelt. A few survey respondents did note an opposing view of the challenges of acquiring additional Greenbelt lands and of working in partnership with others for natural areas protection. It was repeatedly stated, specifically from the Greenbelt Coalition, the desire to see a bolder, more robust land use concept for the Greenbelt that expands the “Emerald Necklace” concept across the Ottawa River and to adjacent significant natural lands such as the South March Highlands, Carp Hills, Constance Creek and Leitrim Wetland.
Many respondents expressed support for and enhancement of Greenbelt recreation, particularly pathway connectivity to adjacent communities. Existing recreational facilities are important to the nearby communities. A few comments were also expressed to support the Capital Experiences and Recreation role as having higher priority, perhaps even first, as well as more significance attributed to Greenbelt cultural resources. Suggestions were also offered on clarifying and enhancing Greenbelt visibility and landscape distinction (from adjacent urban uses) and for consideration of Limebank Road as a capital arrival.
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Throughout the consultations, the public seemed to misunderstand the meaning of the “Built Facilities” land designation and there is a general misconception about how development can occur on these lands. As part of the discussion of the “Built Facility” role, there is still debate as to whether certain federal and other agency facilities should be included in the Greenbelt, and if so, residents support the view that they should become more “green” by showcasing technology and techniques that make the facilities more in harmony with the Greenbelt’s natural environment.
Some frustration exists over the possible effects of transportation infrastructure being built and developed in the Greenbelt. The idea that there should not be any, or at least limited, infrastructure development in the Greenbelt remains strong, as well as the desire to see no new roads.
Agriculture in the Greenbelt continues to gain much interest. There is a strong public desire to see a plan (and a specific definition for) “sustainable agriculture,” that allows and showcases more diverse forms of agriculture in the Greenbelt including, but not limited to, market gardens and community gardening. For farm tenants within the Greenbelt, it was raised many times that the NCC needs to invest in and improve farm infrastructure, increase the length of farm leases, reduce farm size, and diversify farm products. A few participants disagree with having agricultural land within the Greenbelt, seeing these lands as options for urban development.
In general, the public expressed support (about two thirds of questionnaire respondents) for Concept 1 and for the Concept 2 and 3 elements which propose expansion of the Greenbelt to adjacent natural environment and agriculture lands. As an extension of the support for enhancing and adding natural land to the Greenbelt, many participants and approximately half of respondents expressed opposition to the sale, lease or transfer of any Greenbelt land as proposed in Concepts 2 and 3. Some respondents suggested that any of these lands could be converted to other Greenbelt uses should the facilities or current use be no longer needed. Although it is generally accepted that facilities such as the Airport, Queensway‐Carleton Hospital, and Park and Rides may not be consistent with the vision for the Greenbelt, how the natural lands that surround these facilities would be managed if they are no longer designated Greenbelt was cause for concern. For example, many participants expressed the high community value and use of the green space included in the Queensway‐Carleton Hospital lease, between the hospital and the Qualicum community. The community requested that this land remain within the Greenbelt because of the perceived uncertainty of a management change.
4.2 Stakeholder Feedback The project study team met with Greenbelt stakeholders through ten meetings between April and August, 2011, as well as exchanged information via telephone and e‐mail. The groups consulted include a mix of federal Greenbelt facility managers and owners, environmental and agricultural agencies, planning and operational groups within the City of Ottawa and representatives of non‐federal Greenbelt facilities. Appendix A presents a list of Greenbelt stakeholders. Highlights of stakeholder feedback are organized according to main categories of received comments.
• General Feedback on Strategic Directions and Concepts: Stakeholders noted support for the current Greenbelt Master Plan and appreciated the opportunity to participate in reviewing proposed revised plan directions and land use concept options. They are committed to work with the NCC on plan refinement and implementation. Several requested that flexibility be maintained for future facility expansions. No specific immediate needs are known at present but there is potential for expansion and many noted that their needs could change within the next 5‐10 years. There is also general support for intensifying within existing built areas rather than expanding built footprints.
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• Greenbelt Sustainability: The increased focus upon sustainability is supported and aligns with federal and City policy directions. It was stressed that implementation is balanced with economic ability. Many expressed interest in the definition(s) for sustainability to be applied within the plan. • Concept 1: There were no concerns expressed with regard to Concept 1 except for a request to reconsider inclusion of the former Nortel buildings at Carling and Moodie within the Greenbelt. Although Public Works and DND currently have only partial knowledge of the extent of their future plans for this site, they are relatively sure that there will be the need for expansion at some point, establishment of a secure site similar to the current downtown facility and presence of functions that will be mainly office related. As a result, the future facility use is seen as better aligned with the directions of NCC’s Capital Urban Lands than with the Greenbelt. • Concept 2: General support was expressed for all elements of Concept 2. The transfer of the airport operating lands from Greenbelt designation to Capital Urban Lands would support commercial viability of the airport. Some partners, however, noted that currently unknown factors (such as the location of the southern Greenbelt limit, the width and location of the desired ecological linkage and the location of the Greenbelt Pathway) make it difficult to substantiate the transfer. In addition, a full understanding is also required of the land use and infrastructure plans by the airport, the City and landowners within this area. • Concept 3: There was a mixed reaction to the proposed use of selected Greenbelt parcels for other non‐federal uses. Some stakeholders requested that the buildable site area of the Greenbelt Research Farm be maintained in federal ownership for future facility needs. As well, it was noted that the fields surrounding the current buildings are prime agricultural lands that should stay in production. Overall, feedback on the proposed Hunt Club and Hwy. 417 parcels proposed for other uses had limited appeal for non‐Greenbelt use. The study team was also requested to consider offering a fifth parcel for other uses that consists of the lands located at the southeast corner of Carling and Moodie, extending south from Carling to Highway 417 and west from Moodie Drive to the Greenbelt boundary bordering the Crystal Bay community. • Site Specific Characteristics of Federal Facilities: Security and controlled access is an important component of several sites. The existing buffers from operations should be maintained, such as at Connaught Range, CanMET, Natural Resources Canada Geotechnical Research Centre and Canadian Food Inspection Agency. • Built Facilities: Although specific plans for expansion of federal facilities do not currently exist, some facilities requested that the Greenbelt Master Plan maintain flexibility for potential future expansions. • Natural Environment: Consider integration of the Greenbelt’s Natural Environment with the City’s Natural Heritage System. NCC participation within subwatershed and watershed studies is encouraged. Conservation Authority staff offered to support farmers in implementing best practices, such as minimum riparian buffers, through use of staff knowledge and incentive programs. • Capital Experiences and Recreation: Include reference of the Cultural Landscape Strategy of Parks Canada for the Rideau Canal (UNESCO World Heritage Site) and Canadian Heritage River status of the Rideau River in cultural heritage policies. Integrate Greenbelt recreational pathway system with the City’s systems. The City recreational facilities of the Nepean Sportsplex, Pineview Golf Course and Ottawa Campground all expressed the possible need for future expansion and a desire for long term leases.
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5.0 Analysis & Recommendations for Ultimate Greenbelt Concept The land use concept is defined as the physical mapping of the Greenbelt roles to achieve the stated 2067 Vision. The final recommended concept is also well supported by text – that of the strategic statements plus the policies and guidelines that will comprise the final Master Plan document. As a result, the concept map should be reviewed concurrently with the text of the strategic directions in order to fully appreciate how the concept will be accomplished over time.
5.1 Recommended Strategic Statements It is recommended that the strategic statements presented in section 2.3 and as reviewed by public and stakeholders be maintained, with a few improvements that were informed by the discussions with the public and stakeholders. These include enhancement of the goals for cultural heritage and sustainable agriculture, and further definition of the built facility goals, as follows: • Possible simplification of the goals language; • Clear direction for federal and non‐federal facilities, allowing for flexibility for future federal facility expansion. • Elevation and expansion of the cultural resources goal; • Inclusion of community gardens and best management practices in Sustainable Agriculture policies (at the next stage); • Consideration of the application of a no net loss policy rather than the current “no harm” approach for the sustainable transportation goal under Facilities; and • Change of the title for the role that relates to the built environment within the Greenbelt from “Built Facilities” to Facilities to reflect that these land areas comprise the area supporting built structures and surrounding lands that are landscaped and that may support facility operations (such as a rifle range, golf course, training area, etc.) .
Appendix B provides a refined set of strategic statements to reflect these updates.
5.2 Recommended Land Use Concept As presented in section 2, within the Capital and globally people are slowly realizing that as more people live in cities, cities need to become more habitable and sustainable. Although Greenbelts are a concept that arose over a century ago, cities that have Greenbelts are looking to value them more while they fight extreme urban growth pressures. Cities without Greenbelts are looking to establish or grow the “green” spaces that they do have. The strength, size, connectivity and diversity of the 21,500 ha of landscapes that currently comprise the Greenbelt represent an increasingly identifiable and valuable feature of our Capital and the backbone of the connected Capital greenbelts envisioned by Gréber. It would be rewarding to be celebrated for continuing the evolution of this resource over the next 50 years to be as progressive as that from which the Capital has benefitted over the past 60 years.
Reinforcing and expanding the Greenbelt natural areas, improving connectivity to significant regional natural features, supplementing the natural environment values of forest plantations and enhancing ecological linkages collectively constitute the concept developed as a result of considerable analysis and consultations. Growing the natural areas will protect sensitive areas, maintain ecological balance, and provide a sink for harmful GHG emissions and pollutants released by transportation and other urban activities. The recommended concept
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plan supports and enhances human wellbeing, health and healing, beneficial social interaction and ties, inspires positive environmental values and provides higher quality of life.
The recommended concept aims to serve as a precautionary method for environmental protection in the Capital and to ensure ecological balance to counter activities associated with urbanization.
The Greenbelt supporting studies for this review and the majority of the public who provided input during consultations have embraced the concept of a robust and healthy Greenbelt for its potential to connect the Capital community to nature and to maintain and enhance regional ecosystems. These characteristics are considered integral to retaining a sense of livability, sustainability and quality of life in the Capital region.
Preservation and strengthening of the Greenbelt provides a foundation for inheritance by future generations of a system of contiguous natural spaces, healthy agricultural lands, important ecological attributes, and function as an essential transition boundary between the city and countryside. Ultimately, this effort by the NCC should lead to the Greenbelt being better than the previous generation found it and the best imaginable for the future. The Greenbelt will not remain as healthy over the long term if it is only a project of the NCC. The Greenbelt vision and its realization require broader community ownership and regional participation to ensure the effort is passed on to future generations.
The 21,500 hectare Greenbelt within Canada’s Capital belongs to the people of Canada. Compared to other Greenbelts that tend to have more privately owned than public land, the opportunities within Canada’s Capital Greenbelt are boundless to build upon the progress of the past 60 years that led to creation of this mostly publicly owned and protected area.
The recommended long term concept for the Greenbelt Master Plan update builds on the approved vision for the Greenbelt, details the scope of land uses for the future Greenbelt system, sets a regional context for the Greenbelt and provides the framework for how the NCC and its partners will proceed to accomplish the vision. The Greenbelt concept maintains the following objectives, as derived from the Greenbelt strategic statements:
1. To assist in safeguarding the natural character of the Greenbelt countryside and to protect extension of natural lands beyond the Greenbelt, as expressed in the Capital Ecosystems Network. 2. To preserve, protect, maintain, and enhance the Capital’s greatest natural resources, cultural landscapes, and ecological amenities that collectively create a unique ‘rural atmosphere’. 3. To protect ecological corridors that connect valued regional natural areas. 4. To provide a framework and goals for the gradual acquisition and preservation of natural areas for continued strengthening of the Greenbelt. 5. To provide a framework for balancing urban growth and ongoing protection and enhancement of the natural environment (water resources, wetlands, wildlife habitat, valued ecosystems, forests), recreational experiences and sustainable agriculture lands. 6. To maintain distinct communities of neighbouring urban areas, preventing them from merging into one another. 7. To increase the quality of life in the Capital region by promoting environmental quality, community wellness, and preserving the ‘rural landscape’. 8. To promote tourism and educational opportunities. 9. To support existing federal facilities of national interest with requirements for seclusion and location within the Capital with no addition of new facility areas.
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10. To phase out facilities at the end of their life cycle.
The ultimate Greenbelt concept recommended for the updated master plan reflects these objectives, the revised strategic directions and public and stakeholder feedback. All the elements of Greenbelt strengthening articulated through the three land use concept options (all aspects of Concept #1 and natural land additions of Concepts 2 and 3) are integrated into the preferred concept. As a result, the recommended concept for the 2012 Greenbelt Master Plan, as presented for the existing Greenbelt and adjacent lands and in its full Capital Ecosystems Network (see maps provided in Appendix C) is:
1. Connected, primarily as a natural system whereby core natural areas within the Greenbelt boundaries are linked to one another through well‐functioning ecological linkages and to regional natural features outside the Greenbelt through ecological corridors that extend along watercourse and naturally vegetated land pathways. Connectivity is accomplished in the preferred concept by: • natural areas within the existing Greenbelt boundaries that are strengthened and expanded in area, including enhancements of Greenbelt core natural areas in terms of function, areal extent and ecological linkages across the Greenbelt and through the addition of forest plantations to the Greenbelt’s Natural Environment with these forests managed to become diversified habitats over time; • inclusion in the Greenbelt of the bed of the Rideau River for the river portion that passes through the Greenbelt; • identification of ecological corridor areas that will be further defined through future study. These corridors extend from the Greenbelt’s core natural areas to significant regional natural features that contribute to the Greenbelt; partnerships will be actively pursued with other agencies with an interest in natural heritage system maintenance and landowners in the areas of interest. The approximate location of ecological corridors and the regionally significant natural features to which they connect the Greenbelt are outlined for securement as green connecting arrows and regional natural features on the recommended concept map. The corridors and significant natural features are identified for agency and landowner partnership efforts that will establish formal agreements with landowners or will apply other securement measures for their long‐term retention as part of the regional natural heritage system. This concept element builds a Greenbelt of extending fingers that follow water and land corridors from the Greenbelt’s core natural areas to identified regional natural features. • The Greenbelt will continue to improve upon its connections to adjacent communities, mainly through the connected recreational pathways that extend from the Greenbelt system to the surrounding City and Provincial pathways. Pathways of the regional network that connect to the Greenbelt pathway are shown on the Capital Context map.
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2. Four Greenbelt Roles ‐ Natural Environment, Sustainable Agriculture, Capital Experiences and Recreation and Facilities ‐ occur within a hierarchy and are strengthened through:
Addition of significant natural areas immediately adjacent to the Greenbelt boundaries to further Role
strengthen Greenbelt core natural areas, improve connectivity from the Greenbelt to significant regional natural features; dramatically enhance linkages through enlarged, rehabilitated corridors to natural habitat on former rural and agricultural lands; Primary
Transfer of former rural lands within the Greenbelt to Sustainable Agriculture lands; there is a resulting increase in the agricultural land base, to compensate for the transfer of other agricultural lands to strengthen the core natural areas and natural area linkage functions (such as along stream corridors of Black Rapids, Watts and Green’s Creeks, the Rideau River). Achievement of sustainable agriculture includes diversification of farm types, support for smaller farm parcels and ongoing
Roles integration of farm management practices that support biological processes of the Greenbelt’s natural environment;
Secondary
Selected parcels of the above proposed natural environment land additions also enhance visual resources and recreational opportunities to strengthen the Recreational & Capital Experiences for the Greenbelt; enhancement of the connectivity of the Greenbelt Pathway to the regional pathway system;
Retention of existing facilities within the Greenbelt, with a focus specified for federal facilities requiring isolation and location within the Capital; all facilities, federal and non‐federal, will be Role
encouraged to maintain and, where possible, reduce the land footprint supporting built structures. No new facility areas will be added with gradual phase‐out of facilities at the end of their life cycle.
Tertiary Specific directions will be established for edge facilities that interface with Greenbelt and urban landscapes.
3. Dynamic – The recommended concept focuses upon strengthening natural systems as a response to mitigate the ongoing changes anticipated ‐ continued urban growth effects, climate change impacts and a likely increased demand for the Greenbelt’s recreational opportunities. Although difficult to visually present, the supporting policies will aim to acknowledge that the natural systems, farming, recreational and Capital experiences and facility functions and features will also change over time. The fact that the Greenbelt exists within an evolving landscape of human and natural pressures requires acknowledgement that the Greenbelt’s
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land base will evolve over time, particularly in pursuit of a connected regional natural system to be established through a multiple stakeholder partnership.
4. Known – A consistent critique of the Greenbelt by many of those that know it well is that the wonders of this place are not known or promoted sufficiently. This was a significant and widely discussed item raised by stakeholders and the public throughout this review process. This challenge will be addressed specifically through the plan policies and recommended initiatives with a likely outcome of expanded promotional and awareness efforts by the NCC and Greenbelt stakeholders. This task will also be facilitated through expanded partnership initiatives. As a starting point, the review process is helping to increase public knowledge of the Greenbelt’s features and value. The regional connectivity highlighted within the recommended concept map also provides a visual representation that can serve as a future promotional tool.
5. Collaboratively Managed – The fundamental premises and some of the goals focus upon expansion of existing partnerships for Greenbelt management. This approach will assist greatly in alleviating the NCC’s ongoing challenge of resource shortfalls. As well, the concept, strategic directions and supporting policies and guidelines build in needed flexibility for potential future expansion by federal campus facilities.
5.2.1 Exploration of Other Concept Elements A number of other concept elements were also analyzed through the recent review of Greenbelt land use concept options for consideration within the 2012 plan. These include transfer of transportation, recreational and institutional facilities to management under the NCC’s Capital Urban Lands management and lease or sale of selected properties that do not presently contribute in a significant way to the Greenbelt roles. Although the advantages of these elements include increased consistency of remaining Greenbelt land uses with the stated vision and roles and the opportunity for financial resources to acquire other more significant natural environment or agricultural lands, they are not included in the recommended future concept. In brief, the level of effort required to make these changes is seen as inefficient in light of the relatively strong public opposition expected and the limited interest expressed by stakeholders for use of these sites. The facilities of the Queensway Carleton Hospital, Nepean Sportsplex and Park and Ride facilities will also remain within the Greenbelt with the continued commitment of these facility managers to align with and help implement the Greenbelt strategic directions and policies.
This review stage also analyzed transfer of the Greenbelt designation of the Ottawa International Airport operational and surrounding commercial lands to the Capital Urban Lands as part of the NCC planning framework, offering benefits of a more consistent Greenbelt landscape, facilitation of a continuous recreation pathway and strengthening of the ecological linkage south of the airport. At present, the Greenbelt designation is retained for the Ottawa International Airport. NCC discussions with the Airport Authority will continue to explore the accomplishment of mutual benefits, for the Greenbelt and for the Airport Authority’s future land use plans. At present, retention of the airport within the Greenbelt is the most prudent action given the status of current knowledge of City and airport development and infrastructure in this area. Discussions with the airport and other area stakeholders will continue with the purpose of achieving the siting of a strengthened ecological linkage and establishment of the recreational pathway to connect from west to east across or and the airport facility lands.
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Development of the three concepts reviewed by the public and stakeholders also considered addition of the two Ottawa River islands upstream of the Greenbelt’s Lower Duck Island. These islands, Upper Duck Island and Kettle Island, were not included for formal addition to the Greenbelt Planning Area’s natural environment at this time because of the potential for their addition to impact upon an underway environmental assessment of a proposed Inter‐Provincial crossing. The ecological contribution of these islands to Greenbelt lands is recognized, however, and both islands are included on the concept map as part of the regional ecological network to which the Greenbelt connects.
5.2.2 Comprehensive Review of Land Additions for the 2067 Greenbelt
A total of 4457+ hectares of lands represented by 18 land parcels located immediately adjacent to the Greenbelt were reviewed for the possible contribution to Greenbelt roles and addition to the Greenbelt Planning Area. The lands considered for Greenbelt addition include the proposed additions discussed with the public in 2011, two additional forested areas as well as reconsideration of adjacent lands removed from the Greenbelt in 1996. The location of the lands considered for addition are illustrated in the map below.
Of these lands, six of the parcels (identified on the map above) and a portion of a seventh parcel which together represent approximately 1,994 hectares are recommended to be included within the Greenbelt Planning Area.
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The following Table provides a summary of the analysis conducted to determine the lands recommended for addition to the Greenbelt.
Parcel Discussion Recommendation 01 – Shirleys Bay Parcel 01 is across from Connaught and includes the long narrow ecological Add to the Greenbelt / Constance feature that extends northwest from the lands proposed for acquisition in Planning Area Creek 1996, all the way to the Ottawa River at Constance Bay. These lands have Blanding’s turtle habitat (a species recognized under the Species At Risk Act), are recognized as a valued ecosystem component through a recent NCC study and are designated as significant wetlands and woodlands in the City of Ottawa Official Plan. 02 – PWGSC/DND Although largely office‐oriented rather than research, this is an appropriate Add to the Greenbelt. buildings (former federal facility to include within the Greenbelt. This campus facility, to be Nortel facility) used by DND in the near future, is surrounded by Greenbelt lands which are important for maintenance of a desired visual edge for this site and to manage potential impacts to the adjacent natural feature. 03 ‐ quarry lands Upon implementation of a closure plan for these quarry operations, there Special Study south of Stony will be naturalization of the vegetation, an opportunity for recreation as Swamp well as protection of water resources. The quarry lands could serve as an The Study to determine excellent buffer for Stony Swamp. The addition of these lands to the the potential ecological Greenbelt will be considered to coincide with the closure of their extraction contribution of these operations in the longer term. lands to the Greenbelt will occur prior to quarry closure. 04 ‐ contiguous This parcel consists of mineral aggregate resource (not exhausted), MTO MTO lands are added to to Stony Swamp, lands (wetland) and an area for which site plan approval for residential the Greenbelt. The immediately east development has been granted. This area has the same potential benefits to aggregate lands are of parcel 03. Stony Swamp as parcel 03. The MTO lands were formally committed to be added to parcel 03 for purchased by the NCC, at the time of highway 416, but have not yet been special study. acquired. 05 – north of This City‐owned Urban Natural Feature with a recreational pathway was Remains outside of the Pinhey Forest, not considered in the concepts but was subsequently viewed as a potential Greenbelt across West Hunt addition to the Greenbelt. Although the area is complementary to the Club Road Greenbelt’s Pinhey Forest in its natural and recreational value, its location across a four lane road is a significant challenge to connecting with Pinhey Forest. The site is City ownership and protection status through designation and zoning will maintain this area in its current use. Directions within the sector plan will describe how the two forests and recreational areas can further complement each other, such as with signage. 06 – privately The agricultural parcel is also part of an industrial park that eventually will Remains outside of the owned convert from agriculture to industrial use. Greenbelt agricultural field The RCMP facility is not connected to the Greenbelt and this facility does and RCMP facility not fit the Greenbelt with regard to its appearance and function. (former JDS Uniphase) west of Rideau River 07 – south of These lands were identified as a Greenbelt deletion in 1996 that could Remains outside of the Greenbelt, east of provide some area flexibility is identifying the location of a substantive Greenbelt Rideau River ecological linkage south of the airport., This area has since been incorporated into the Riverside South design plans with an employment lands designation and a stormwater management function. 08 – privately Parcels 08, 09 and 10 are associated with the provincially significant Leitrim owned lands and Lester wetlands, and offer opportunity to strengthen the ecological west of Transport linkage south of the airport. Canada lands
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Parcel Discussion Recommendation 09 – Transport Parcel 09 consists of former Transport Canada lands removed from the Parcels 8, 9 and 10 are Canada lands Greenbelt in 1996. Recent development in this area contrasts with the identified as a special south of the visual aesthetic defined for the Greenbelt. These lands can provide study area to be airport flexibility for the location of the Greenbelt ecological linkage and provide resolved in the short connectivity from the Greenbelt to the Leitrim Wetland. There is aggregate term as a priority to in this area, and if it is developed, parcel 08 becomes isolated. identify the extent of 10 – Leitrim This area is privately owned with its natural values protected through an lands to be added to the Wetland Ontario Municipal Board decision and maintained by South Nation Greenbelt. Conservation. The urban development slated to happen between the Leitrim and Lester wetlands impacts the potential for ecological connectivity, but there still may be opportunity within the planning process to set aside natural space requirements. 11 – East of Bank Parcel 11 is a nine hectare natural area, located just east of Bank Street, an Add to Greenbelt and north of NCC‐owned site that was removed in 1996. This site buffers the adjacent Davidson natural lands from Bank Street and from the urban area to the west. 12 – south of Parcel 12 is of mixed ownership, includes a golf course, developer‐owned Illustrate as an Leitrim DND, lands, land owned by numbered companies, as well as some private ecological corridor west of Anderson ownership. The area is predominantly forested with some farm areas, all of connecting Leitrim Road which could provide buffer and continuity capacity. The ecological value of Wetland and Mer Bleue parcel 12 is not as great as other parcels. Bog 13 – southwest of These lands could contribute to the visual and natural environment of the Add to Greenbelt as a Mer Bleue on Greenbelt. OMNR and the Conservation Authorities have noted that these Provincially owned south side of lands have natural environment value that they wish to protect and natural area Highway 417; requested that these lands be added to the Greenbelt to assist in their (partnership agreement) owned by the protection. This area could remain in public (Provincial) ownership. Province and declared surplus. 14 – southeast of This buffer area of forested lands adjacent to Mer Bleue could be subject to Add to the Greenbelt Mer Bleue intensified development over the next 50 years. Residences located here with wooded back lots could be explored for conservation easements in the short‐term. Mer Bleue’s RAMSAR and PSW (Provincially Significant Wetland) designations end at the Greenbelt Planning Area limits and the boundary of parcel 14. Retention of this buffer would protect the long term ecological integrity of Mer Bleue. 15 – agricultural Parcel 15 was a land removal from the Greenbelt through the 1996 Plan. Remains outside of the field at west side This site is designated as Employment Lands and zoned as heavy industrial Greenbelt of highway 417, by the City of Ottawa. The expected high value return for these lands could north of Hunt be used to purchase more valuable land elsewhere. Club Road 16 – Lands along Parcel 16, also a Greenbelt land removal in the 1996 Plan, consists mainly Add a portion or all of Blackburn Bypass of agricultural lands and provides a visual perspective along the road. A these lands to the transitway corridor is proposed to traverse this area. It is believed that the Greenbelt, according to site was removed in 1996 because it is isolated by roads. Community groups the results of the are interested in expanding their community gardens within this area. The Cumulative Effects long term land use for this area should be reviewed through the cumulative Study. effects study ‐ It is possible that some or all of these lands could be available for addition to the Greenbelt. 17 – Lafarge This currently active quarry operation will have a closure plan that will likely Conduct special study of Quarry north of leave a water feature and some re‐naturalized lands. Similar to parcel 03, this area prior to quarry Blackburn Hamlet this site has potential natural area and recreation contribution to the closure to determine its Greenbelt, with the extent of this contribution to be studied. The parcel’s contribution to the positive contributions to the Greenbelt could be managed through Greenbelt and whether it partnership. The addition of these lands to the Greenbelt will be considered should be added. to coincide with the closure of their extraction operation in the longer term.
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Parcel Discussion Recommendation 18 – Urban This is a City‐owned Urban Natural Feature east of the Rideau River and Add this parcel to the Natural Feature adjacent to the north end of the Greenbelt. Its addition would improve the Greenbelt as a City‐ east of Rideau natural environment and recreation continuity of the Greenbelt. This site owned (public) natural River, northeast along with parcel 14 represent examples of publicly owned Greenbelt lands environment feature. of airport that are not owned by the NCC, to increase the sense of shared ownership and stewardship of the Greenbelt. This parcel will help strengthen recognition and protection of the Rideau River.
The above lands recommended for inclusion within the Greenbelt contribute predominantly to the Greenbelt role of Natural Environment. Some of the parcels provide secondary support to Greenbelt Capital Experiences and Recreation.
Further details on these parcels and the analysis to determine their inclusion within the Greenbelt are presented in Appendix D. Nine of these properties were reviewed with the stakeholders and public during the recent consultations. The additional properties considered represent immediately adjacent lands that were either removed from the Greenbelt in 1996 or consist of a small adjacent natural environment sites.
One of the strongest requests from the public consultation process recommended inclusion of other natural features within the Greenbelt. These included requests for the South March Highlands in particular, as well as the Leitrim Wetland and Carp Hills to be added to the Greenbelt Planning Area. The recommended concept adds adjacent natural features and does include the Leitrim Wetland south of the airport. The South March Highlands and Carp Hills, as well as other regional natural features are proposed to be connected to the Greenbelt through partnership initiatives, as described above. Their natural systems significance is acknowledged and valued, however, purchase of the South March Highlands, at the current high development land value, is not recommended as an efficient use of limited NCC financial resources nor of public funds overall. In looking at the overall natural features and roles in this area, the most significant natural environment gains could be achieved by adding land to the north of the current Conservation Forest. Purchase of the very high value lands would also set an undesirable precedent and expectation for future sale / acquisition of natural environment lands under pressure.
In addition to the above, the study and public consultation conducted through the first two stages of this review resulted in a strong preference for increased Greenbelt connectivity to and across the Ottawa River to the natural features in the City of Gatineau and including Gatineau Park. A recent NCC study of ecological corridors leading from Gatineau Park provides connection to the Ottawa River in the west end of the City of Ottawa, with potential to connect to the Greenbelt at Shirley’s Bay and Constance Bay. These river connections are illustrated on the Capital Ecosystems Network map in Appendix C. With the proposed ecological corridor connection to the Greenbelt of the large, elongated natural feature of Constance Creek from Shirley’s Bay to Constance Bay, there is the potential to physically connect the Greenbelt across the Ottawa River through the shoreline and adjoining natural and agricultural reserve lands to Gatineau Park. The end result is a closing of the emerald necklace across the Ottawa River with the Greenbelt loop on the Ontario side and a natural and agricultural lands loop with Gatineau Park featured in the centre on the Québec side. This more formal connection of Gatineau Park to the Greenbelt would also fulfill a representation of all the Capital Region’s natural landscapes in a connected Greenbelt.
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5.3 Challenges and Possible Solutions As the concept options were explored over the past several months, a number of challenges with some aspects of the above recommended concept were identified. The actions to add new areas to the Greenbelt and work in partnership with others to secure ecological corridors and regional natural features present particular process and resource challenges which are acknowledged as follows: • insufficient resources for management; • limited funding available for acquisition; • increasing costs for asset management (house, farm buildings and infrastructure maintenance and/or demolition; • less direct control of Greenbelt lands owned by others; • clarification of the Facilities role; • ability to meet expectations associated with a vision and concept that are 50 years into the future; and • use of a conceptual map of the future Greenbelt through which it is not always possible to specify locations for proposed on‐the‐ground features.
Solutions to these challenges exist, some of which are integrated into the recommended concept while others will be addressed through specific policies and guidelines within the Master Plan. Resource availability is the predominant challenge, as reflected in the first three points above. The updated Greenbelt strategic directions and recommended concept address this through management in partnership with others, a framework for which could permeate throughout much of the plan’s implementation in areas such as various supports to farmers, education and promotion, recreational pathway maintenance and the above described securement of ecological corridors and regional natural features outside of the Greenbelt. As well, the exploration of land stewardship methods in partnership with others could be applied rather than acquisition to accomplish the proposed “addition” of natural area lands that are adjacent to the Greenbelt.
For the approximately 28% of lands within the Greenbelt that are owned by others, mainly other federal departments, a collaborative working relationship is an effective means to implement Greenbelt directions on these lands. The NCC has an established working relationship with the majority of these Greenbelt land owners with ongoing stated commitments from partners to respect the plan directions. Direct input and involvement throughout the review process also assists in development of a practical and integrated Greenbelt Master Plan. The past and current spirit of cooperation is expected to extend to the future and assist in plan implementation.
The Greenbelt’s Facilities role continues to be less desirable than the other roles. The upcoming land designations, policies and guidelines will provide directions to see the Greenbelt as an environmental showcase in which the role of Natural Environment is primary, followed by the roles of Sustainable Agriculture and Capital Experiences & Recreation with Facilities representing the fourth Greenbelt role.
It is important to note that the Greenbelt depicted by the recommended concept will be realized through many significant efforts and individual initiatives that require the full term of 55 years to meet the 2067 vision. The existing Master Plan vision, objectives, policies and guidelines represented a tremendous body of work which will be reflected and built upon in the revised Master Plan, using the recommended concept that translates the 50 year vision into a reality. This means that the work that results from implementation of the 2012 Master Plan, once approved, will also be significant and subject to the past challenges of shorter term Corporate priorities and available resources in balance with all Corporate projects and long‐term initiatives.
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Although efforts are undertaken to maintain the plan’s course, external factors do at times interfere. The 10 year review process for the Master Plan is important as a means to take of past progress, influencing factors and anticipated future challenges and opportunities. As well, development of a comprehensive plan for implementation will be critical to achieving the desired Greenbelt of the future, setting out the necessary project steps within short, medium and long‐term periods over the 50 years. For example, establishment of signed landowner agreements to protect naturalized ecological corridors involves a process of scientifically identifying the corridors, identification of the respective landowners, negotiation for land protection with possible exploration of existing tax incentives, registration and signing of the agreement, all which could extend over several years.
It should also be understood that this concept plan emphasizes the importance of regional connectivity but the map does not represent precisely where a Greenbelt connection will or will not be located in the future. This plan is based on the best information available at this time and used to identify desired linkages. Likewise, this plan does not identify precisely what will be included in the Greenbelt in any given area. Decisions regarding a specific pathway, corridor, access, or amenity will based upon the guidance provided herein. For example, for areas where preservation of unique features is the prevailing goal of this plan, access could be a distant secondary goal or restricted if such access negatively impacts the preservation goal.
6.0 Conclusion The recommended Greenbelt concept is expected to achieve the far‐reaching 2067 Greenbelt vision. As the assessment of the Greenbelt’s existing conditions and the public have reiterated, our Capital is growing quickly. Now is the time to establish and strengthen the Greenbelt’s connectivity throughout the Region else it will not be possible to achieve. The expressed strong public support for moving the Greenbelt forward as far in the next 50 years as in the past 60 years is helpful. The Greenbelt has been recognized as contributing significantly to achieving a sustainable community through this review and through the current Capital planning initiatives of Horizon 2067 (update of the Plan for Canada’s Capital) and Choosing our Future (a 100 year sustainability plan for the Capital Region). Adopting the recommended Greenbelt concept in this report aligns well with the evolving directions for Canada’s Capital.
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Appendix A: Stakeholder List for Consultation on Greenbelt Concept Options – April to August, 2011
Department of National Defence, Connaught Department of National Defence, Leitrim Canadian Food Inspection Agency Agriculture Canada Public Works and Government Services Canada Royal Canadian Mounted Police Natural Resources Canada Communications Research Centre, Industry Ottawa International Airport Authority City of Ottawa • Recreation Land Use and Natural Systems • Community Planning & Urban Design • Community Sustainability • Planning & Growth Management • Realty Services • Realty Initiatives and Development Rideau Valley Conservation Authority Ministry of Natural Resources South Nation Conservation Mississippi Valley Conservation Authority Queensway Carleton Hospital Ontario Ministry of Agriculture, Food and Rural Affairs, Environmental & Land Use Policy
Appendix A – Stakeholder Contact List
Appendix B –Greenbelt Strategic Statements
Appendix C ‐ Preferred Greenbelt Land Use Concept for 2012
Appendix C ‐ Preferred Greenbelt Land Use Concept for 2012
Appendix C ‐ Preferred Greenbelt Land Use Concept for 2012
Appendix D: Preliminary Comparison of Proposed Areas of Addition to Greenbelt
Area Location & Map Contribution of Proposed Addition to Other Site Ownership Area Securement Greenbelt Considerations (est.)* Recommendation
01. Northern edge of Greenbelt at Natural Environment – 602 ha total • predominantly • a number of private 450 ha Add to Greenbelt Shirley’s Bay • combination of Significant Wetland and native vegetation owners, mainly vacant Planning Area ‐ Significant Woodland areas extending across • possible future lands with few Identify as NILM with Riddell Road that are part of the same natural approximate residences intent to acquire feature as within the Greenbelt on DND lands location for (Connaught Range) western Inter Add to Greenbelt as • identified as valued ecosystem, key Provincial bridge • 2 numbered 152 ha NILM or Consider biodiversity and is an area identified as habitat companies – located possibility for for Blanding’s turtle (Species at Risk) on mid‐west and mid‐ stewardship • strengthens Greenbelt + adds area to Shirley’s east sides agreement Bay • provides further buffer for existing key biodiversity area of Shirley’s Bay in Greenbelt • significant wetlands and woodlands identified by City of Ottawa
02. Balance of Built Site of Former Built Facility Site – 28 ha • PWGSC & DND are • PWGSC owns the 27.6 • 28 ha Add remainder of Nortel Buildings (Now PWGSC/DND) • Addition of buildings, portion of parking lots unsure of the ha area supporting facility to Greenbelt and landscaping to join remaining built facility long‐term plans the former Nortel Planning Area site (parking lots) and natural environment of for this facility buildings this campus that is within the Greenbelt at • Preliminary • The campus facility Carling and Moodie information is that leases a further 121.4 • Addition of this area would consolidate the full the function will ha from the NCC for a campus site within the Greenbelt be primarily office total campus area of • Provide visual contribution along Moodie and space in a secure 149 ha facility operations must be sensitive to manner to Elgin adjacent Core Natural Area site with need to
• PWGSC has requested inclusion within Urban expand in future Lands rather than within the Greenbelt Planning Area
Appendix D– Preliminary Comparison of Proposed Areas of Addition to Greenbelt Page 1
Area Location & Map Contribution of Proposed Addition to Other Site Ownership Area Securement Greenbelt Considerations (est.)* Recommendation
03. Area south of Stony Swamp, Natural Environment & Recreation – 379 ha • mostly treed + • City (of Nepean ?) • 58 ha Possible Partnership extending from Richmond Road to • Scattered pockets of Significant Woodlands field on owns 2 parcels west agreement with City Moodie Drive and Wetlands on both sides of Moodie Drive; Fallowfield Rd., of Moodie, on south add area and strengthening of Stony Swamp some potential edge • Much of area consists of quarry sites under Limestone extraction; their eventual closure offers the Resource Area potential to add water features and some native vegetation areas to the Greenbelt as • Lands are • 3 mineral extraction • 321 ha Possible Partnership buffer area for Stony Swamp and to provide immediately companies agreement with aggregate recreational opportunities. adjacent to City (Tomlinson, Warren • Lands along Fallowfield could be developed preferred location Paving and Lafarge) companies/future over time; quarry sites likely to feature of Hope Side Road on majority of area landowners “natural” setting upon closure of sites extension west of Moodie Dr. Will review potential contribution to Stony Swamp through short term special study 04. From Moodie Drive to east side Natural Environment and Recreation – 185 ha • site challenges • Onassa Corporation • 48 ha Not recommended for of Hwy. 416 • scattered pockets of Significant Woodlands associated with owns east of 416, acquisition or and Significant Wetlands on both sides of existing and future south end – found to agreement – lands will Moodie Drive and Significant Wetland on east transportation be under residential be developed side of Hwy 416; would add to area and corridors that development strengthening of Stony Swamp fragment the Consider agreement • Naturalized feature for aggregate area lands • Warren Paving owns • n/a with quarry owner to expected in the long term; much of land between set aside naturalized Moodie & Hwy. 416 lands upon site closure Will review potential contribution to Stony • n/a Swamp through short term special study • MTO lands have natural vegetation, relatively • NCC past • Northern portion of wet; likely to stay in this state for long term commitment to area on east side of Purchase from MTO to purchase Hwy. 416 believed to Province to follow set aside lands be MTO – small through on previous adjacent to Hwy, Significant Wetland commitment 416 here, natural
Appendix D– Preliminary Comparison of Proposed Areas of Addition to Greenbelt Page 2
Area Location & Map Contribution of Proposed Addition to Other Site Ownership Area Securement Greenbelt Considerations (est.)* Recommendation
05. Natural Area north of Pinhey Natural Environment and Recreation – 16.5 ha • Is a narrow forest • City of Ottawa • 16.5 Not part of the Forest and West Hunt Club Road • Forest identified as Urban Natural Feature in that is separated ha Greenbelt but City Official Plan ‐ #45 Tanglewood Park; zoned from Pinhey complementary as Open Space with likelihood for long term Forest by West through Agreement protection Hunt Club (four with City to have the • Adds to natural environment area of Greenbelt lane divided road) Urban Natural Feature • Visual treed area on both sides of West Hunt and Pinhey Forest Club interpretative signage • Recreation pathway within these woods and promotional materials complement each other 06. Federal Lands south of the Sustainable Agriculture & Facilities – 47 ha Do not add to the Greenbelt, West of Prince of Wales • Addition of an agricultural field (prime • private 47 ha Greenbelt agricultural land) that provides area to Greenbelt agriculture, perhaps for community gardens
• Addition of Federal Facility of new RCMP • RCMP facility is • Federally leased campus to Greenbelt Facilities mainly an office facility, not research oriented or requiring seclusion 07. NCC Lands South of Greenbelt, Natural Environment – 34 ha Do not add to the part of Riverside South Community • Fields adjacent to Greenbelt, removed in 1996 • Stormwater mgt. • NCC • 34 Greenbelt pond to be here • Part of this site can contribute in area and continuity to help support strengthening the Greenbelt’s ecological linkage south of the Airport
Appendix D– Preliminary Comparison of Proposed Areas of Addition to Greenbelt Page 3
Area Location & Map Contribution of Proposed Addition to Other Site Ownership Area Securement Greenbelt Considerations (est.)* Recommendation
08. Rural Lands South of the Airport Natural Environment & Recreation – 25 ha • Old field and • Riverside South • 25 ha Consider some or all of • Area designated as General Rural Area in the naturalizing area Development Corp. these lands as NILM City Official Plan, located between the urban should it be possible to Riverside South Community and the Transport add adjacent Transport Canada lands (described as parcel 09). Canada lands for connectivity
• Further naturalization of this area could add Will establish exact area and over time, diversity, to strengthen the location of ecological now weak ecological corridor south of the corridor and of Airport. This area could also connect to the pathway through short naturalized stream corridors and recreational term special study pathway within the Riverside South Community.
09. Transport Canada Lands South of Natural Environment & Recreation – 116 ha • Much of these • federal ownership • 116 ha Consider some or all of the Airport • Mineral Resource Area currently in a lands are (Transport Canada) these lands as NILM to naturalizing vegetation state; located South of identified by the enhance Greenbelt airport, west of Leitrim wetland Airport Authority ecological connectivity • Removed from the Greenbelt in 1996 for commercial • Addition of at least a portion of this site would development in Will establish exact add area and strengthen the now weak their Master Plan location of ecological ecological connection south of the airport corridor and of • Should development occur here as planned for pathway through short the future, the ecological connectivity would term special study be further weakened and the recreational experience along the pathway would be more urban‐oriented than Greenbelt
Appendix D– Preliminary Comparison of Proposed Areas of Addition to Greenbelt Page 4
Area Location & Map Contribution of Proposed Addition to Other Site Ownership Area Securement Greenbelt Considerations (est.)* Recommendation
10. Leitrim Wetland southeast of Natural Environment – 359 ha • Area is managed • Remer Holdings / • 200 ha Agreement with the Airport • predominantly Significant Wetland that would by South Nation Aperdev Investments landowner and SNC add to the natural area and provide Conservation Inc. strengthening to the Greenbelt southern (SNC), protected Consider secondary ecological linkage for long term by option to identify as Provincial Policy NILM
• Area is treed • Private owners • 159 ha Agreement with immediately west of landowners Leitrim Wetland and Albion Road 11. Area East of Bank Street and Natural Environment – 9 ha natural vegetation • NCC 9 ha Re‐Establish as NILM North of Davidson (Lester) Road • This parcel formed part of a larger site that and open area and add to the was removed from the Greenbelt in 1996; Greenbelt • These lands would add area and maintain buffer for the adjacent natural environment lands to the east.
12. Area South of Leitrim Road (and Natural Environment – 1,082 ha Golf course here + • Developer holdings 312 ha Potential for DND Leitrim), west of Anderson Rd. • Collection of several Significant Woodland housing scattered (Claridge, De landowner stewardship areas that would contribute area and throughout; lot of Champlain) agreements in some strengthen the quite weak natural systems tree cover areas (note that there connectivity south of the airport • Numbered companies 242 ha are many similar • This would add biodiversity and strength to the (2) names amongst private Greenbelt. The chances for connecting from ownership) this site east to the Leitrim wetland are low, • private ownership 513 ha however, given the development interest here (10) This area will be evaluated as part of • City parcel, south end 15 ha the ecological corridors study to identify significant areas and subsequent partnership opportunities
Appendix D– Preliminary Comparison of Proposed Areas of Addition to Greenbelt Page 5
Area Location & Map Contribution of Proposed Addition to Other Site Ownership Area Securement Greenbelt Considerations (est.)* Recommendation
13. Area southwest of Mer Bleue Natural Environment & Capital Experiences – All treed Province of Ontario – 564 ha + Add to Greenbelt 923 ha Some houses along declared surplus by the through an agreement • Significant Woodlands area with relatively wet roads Province and interest by with Ontario or MNR soils. This area would add to the Greenbelt’s MNR to maintain this for long‐term natural environment and improve connectivity area as natural protection to the Cumberland and Larose Forests; • It would also enhance the Greenbelt’s visual impact by providing Greenbelt lands on both Numbered company 105 ha Landowner agreement sides of Highway 417 • Little development expected here over time Private & KPMG (farm 254 ha and house) Landowner agreement
14. Area southeast of Mer Bleue Natural Environment – 381 ha Predominantly Private owners (12) 381 ha Add to Greenbelt and • Significant Woodlands and small area of private residences identify as NILM for Significant Wetland adjacent to Mer Bleue to with treed backlots long term protection add to the Greenbelt Natural Environment or small farms • Treed areas could add small area to Consider conservation Greenbelt and establish long term agreements with commitment for protection of core area of landowners to Mer Bleue (buffer from human residences maintain wooded areas and road) adjacent to the • Little additional development anticipated for Greenbelt this area in the future
15. Site at Hwy. 417 & Hunt Club Sustainable Agriculture – 78 ha • Identified as NCC 78 ha Do not add to • Agricultural land parcel that could provide employment area Greenbelt market garden or community garden in City OP – City potential wishes the area to • Adds to agricultural land area of the remain as such Greenbelt, potential contribution to diversity • has possible • Removed from the Greenbelt in 1996 buyers
Appendix D– Preliminary Comparison of Proposed Areas of Addition to Greenbelt Page 6
Area Location & Map Contribution of Proposed Addition to Other Site Ownership Area Securement Greenbelt Considerations (est.)* Recommendation
16. Lands Along Blackburn Bypass, Natural Environment, Sustainable Agriculture & NCC 42 ha Add to Greenbelt – South of Blackburn Hamlet Capital Experiences – 42 ha area added ‐ will • This parcel of natural environment and depend upon outcome agricultural lands was removed from the of Cumulative Effects Greenbelt in 1996 Study and agreed • Its return to the Greenbelt adds to natural upon transportation environment and sustainable agriculture infrastructure within areas, and maintains a visual Greenbelt this area landscape on both sides of the Blackburn Bypass + a buffer for the community
17. Area in north Blackburn Hamlet Natural Environment and Recreation – 124 ha Lafarge Canada Inc. 124 ha Determine • This site is an operating quarry with the contribution to Greens potential to add water features and some Creek through special native vegetation areas to the Greenbelt upon study implementation of the site’s closure plan Consider Agreement • It would also add potential natural area linkage with landowner to and recreational area to the Greenbelt specify features that would complement the Greenbelt upon site closure 18. Urban Natural Feature east of Natural Environment City of Ottawa 24.5 ha Add to Greenbelt Rideau River Urban Natural Feature that provides natural Maintain in City environment area and ecological continuity from ownership and the Rideau River to linkage desired for establish agreement establishment around the airport operating lands for contribution to Greenbelt
Appendix D– Preliminary Comparison of Proposed Areas of Addition to Greenbelt Page 7