NATURAL HERITAGE STRATEGIES COMMUNITY, ENVIRONMENT AND THE PLANNING PROCESS

School of Urban and Regional Planning Queen's University NATURAL HERITAGE STRATEGIES

COMMUNITY, El'.'VIRONMENT AND THE PLANNING PROCESS IN THE BAY OF QUINTE

April 2001

School of Urban and Regional Planning Queen's University EXECUTIVE SUMMARY

This report is designed to initiate discussion among stakeholders about the development and implementation of Natural Heritage Strategies in the Bay of Quinte area. The concept of a "natural heritage strategy" infers an agreed upon approach or series of approaches to protecting natural areas.

Protecting natural heritage is seen as an important part of the process of delisting the Bay of Quinte as an Area of Concern (AOC) in the Great Lakes. This report identifies the need for co­ ordination between the legislative, policy based approach to natural heritage protection coming from the Ontario and Canadian governments and existing community based environmental initiatives.

The report was prepared by a team of nine second year Masters students from Queen's University's School of Urban and Regional Planning (SURP) between September and December 2000

Main Areas

The SURP team divided the work into five main areas and came up with a set of recommendations: The five areas were: 1. review of Ontario provincial and Canadian federal environmental policy and the legislative base to natural heritage protection

2. the views of stakeholders in the Bay of Quinte area communities about natural heritage and the need for natural heritage strategies

3. existing initiatives in the Bay of Quinte area to preserving natural heritage, including existing and proposed land use planning policy and community based projects

4. an analysis of implementation tools, including awareness raising based tools, fiscally based tools, land based tools, and legislative and policy based tools.

5. innovative approaches to natural heritage protection in Canada, United States, UK, Australia and Ireland.

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quinte Delisting the Bay of Quinte AOC and the role of natural heritage strategies

The Bay of Quinte was identified by the International Joint Connnission (UC) which oversees the Great Lakes Water Quality Agreement signed in 1978, as one of 16 AOCs in the Great Lakes Basin because of enviromnental degradation. AOCs are evaluated according to 14 impaired beneficial uses, ten of which were identified in the Bay of Quinte. Remedial Action Plans (RAPs) have been initiated in all AOCs to restore the impaired beneficial uses, and eventually to delist or remove the areas from the list of AOCs. One of the impaired beneficial uses in the Bay of Quinte AOC is the loss of fish and wildlife habitat. The formation of a natural heritage strategy is seen as one means to protect and restore natural habitat.

The Provincial Natural Heritage Policy Section 2.3 is used as a starting point for the protection and restoration of natural heritage in the Bay of Quinte. A natural heritage strategy should build upon this policy, as well as incorporate the environmental, economic and social values of the community. A natural heritage strategy should guide future development, protect natural areas, and address the diverse interests of the public. A natural heritage strategy has the potential to address the goals of the RAP initiative by providing a means of ensuring continuity and sustainability of natural heritage protection and restoration after the Bay of Quinte AOC is delisted.

Defining significant natural heritage areas

The Provincial Natural Heritage Policy requires each municipality to consider the issue of natural heritage in planning documents such as Official Plans (OP). In an effort to do this, the Bay of Quinte Restoration Council has identified and mapped the seven natural heritage features, as designated by the province, in the Bay of Quinte area and produced a draft map of significant areas. The goal of the the Bay of Quinte Restoration Council is for this natural heritage system, to be incorporated into municipal planning.

The need for consensus building

Municipalities within the Bay of Quinte AOC currently include some form of natural heritage policies in their draft and existing Official Plans. However, there is uncertainty among some community members about incorporating a map of significant natural heritage areas into formal planning documents. This concern relates to the effect that such designation may have on land

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Natural Heritage Strategies: Conununity, Environment and the Planning Process in the Bay ofQuintc ownership rights, especially for landowners upon whose property these significant areas have been identified. For this reason, public consultation and consensus building are seen as central to the development ofthe natural heritage strategy.

The need for a collaborative approach

Protecting natural heritage is about promoting good land management. It is not solely about preventing development. The existing community-based initiatives in the area, such as land stewardship activities, land trusts, and public education programs contribute to the success of a natural heritage strategy. All too often thesc initiatives are seen as separate from the land use planning approach in the protection of natural heritage. Discussions with stakeholders made it clear that a successful natural heritage strategy depends on the acknowledgement of this interdependence.

Recommendations

These recommendations reflect this integrated vision and provide direction for implementation of natural heritage strategies both in the Bay of Quinte AOC and elsewhere.

1. Identify a coordinator and establish a steering committee

2. Use consensus building to help develop a natural heritage strategy

3. Involve local government in all aspects of the natural heritage strategy

4. Establish an Environmental Advisory Committee

5. Create an accessible Environmental Information Database and an Inventory of Environmental Initiatives in the region

6. Ensure that the Official Plan and Zoning By-Laws are strcngthened in respect to environmental objectives

7. Intensify public education efforts

8. Hold an Annual Gathering to review accomplishments, plan future activities, and acknowledge efforts and achievements of community members and organizations

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quintc 9. Pursue a wide range of funding sources

10. Focus on strategic planning and visioning the future

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quinte ACKNOWLEDGEMENTS

The team would like to take this opportunity to extend our SIncere gratitude to the Quinte Watershed Cleanup Inc. for sponsoring Queen's University's School of Urban and Regional Planning's Environmental Planning Project and the Bay of Quinte Restoration Council for its support. We also thank all of the individuals who have taken the time to share their ideas and experiences with us. Finally, wc thank Louise Livingstone, our coordinator and adjunct professor, whose continued encouragement and support has helped to see us through this project.

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quinte PARTICIPANTS

The Project Team included the following people

Heather Anderson Cynthia McLean Joscelyn Coolican Tamiza Merali Sheik Kadir Alana Mullaly Shauna Kuiper Joyce Yeh Brian McCosh

The participants of the 2000 Social Planning Project Course were second year graduate students at the School of Urban and Regional Planning at Queen's University, Kingston, Ontario. This report reflects the research findings and opinions of the students in this course. It does not necessarily represent the position of the School of Urban and Regional Planning, Queen's University, the Bay of Quinte Restoration Council, Quinte Watershed Cleanup Inc. nor any other agency, organization or individual involved with this study.

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quintc TABLE OF CONTENTS

EXECUTIVE SUMMARy ...... i ACKNOWLEDGEMENTS ...... v PARTICIPANTS ...... vi 1.0 INTRODUCTION ...... 1 2.0 SETTING THE STAGE ...... 4 2.1 What is Natural Heritage? ...... 4 2.2 Why is it Important to Protect Natural Heritage? ...... 5 2.2.1 Basic Human Needs ...... 5 2.2.2 Aesthetics and Recreation ...... 5 2.2.3 Economic Activities ...... , ...... " ...... , ...... 6 2.2.4 Ecological Benefits ...... 6 2.2.5 Biodiversity...... , ...... 6 2.2.6 Sustainability & Future Generations" ...... , ...... ", ...... , 7 2.3 Where did the concept of natural heritage strategies come from? ..... "... "...... 8 2.4 What is a natural heritage strategy? ...... 8 2.5 How would a natural heritage strategy protect Quinte's Natural Heritage? ...... 9 2.6 How would a natural heritage strategy work in the Quinte Watershed? ...... 10 2.7 What have we covered so far? ...... 10 3.0 LEGISLATION AND GUIDELINES ...... 11 3.1 Environment Canada and the Great Lakes AOCs ...... ll 3.2 Ontario provincial Policies on Natural Heritage ...... 12 3.2.1 A Brief Outline of the provincial Natural Heritage Policy...... 12 3.2.1.1 Significant Portions ofthe Habitat of Endangered and Threatened Species ...... 15 3.2.1.2 Significant Wetlands ...... 15 3.2.1.3 Fish Habitat...... 15 3.2.1.4 Significant Woodlands ...... 16 3.2.1.5 Significant Valleylands ...... 16 3.2.1.6 Significant Wildlife Habitat...... 16 3.2.1.7 Significant Areas of Natural and Scientific Interest (ANSIs) ...... 16 4.0 NATURAL HERITAGE POLICIES IN OFFICIAL PLANS IN THE BAY OF QUINTE AREA OF CONCERN ...... 19 4.1 Criteria to Review OPs ...... 19 4.2 Detailed Comparison and Analysis ...... 22 4.2.1 The Goals, Objectives and natural heritage strategy ...... 22 4.2.2 The Identification of Natural Heritage Features ...... 23 4.2.3 The Level of Protection for Natural Heritage - using PSWs and its adjacent lands as an indicator ...... " ... , ...... , .. 24 4.2.4 Policies that address specific Land Use Planning tools for natural heritage strategy ...... 25 4.2.5 Consistency among various policies ...... " ...... " ... 26 4.2.6 An emphasis on public consultation ...... 28 5.0 NATURAL HERITAGE INITIATIVES IN THE BAY OF QUINTE AREA OF CONCERN ...... 28 6.0 IMPLEMENTATION TOOLS ...... 31 6.1 Awareness Based Tools ...... 31 6.1.1 Public Participation ...... 31 6.1.2 Consensus Building ...... 34 6.2 Fiscally Based Tools ...... 35 6.2.1 Grants ...... 35 6.2.2 Tax incentives ...... , .. " ...... , ...... ,.35 6.3 Land Based Tools ...... 37 6.3.1 Land Stewardship Initiatives ...... 37 6.3.2 Public Ownership of Land ...... 39 6.3.3 Land Easements and Management Agreements ...... 41 6.4 Legislative/Policy Based Tools ...... 42 6.4.1 Official Plan Policies and Zoning By-Laws ...... 42

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quinte 6.4.2 Transfer of Development Rights ...... 44 6.4.3 The Development Control Process ...... 45 6.4.4 Cluster (or Open Space) Zoning ...... 46 7.0 IMPLEMENTING NATURAL HERITAGE PROTECTION ELSEWHERE ...... 48 7.1 Land Trusts ...... 49 7.1.1 The Cascades Land Conservancy, Seattle ...... 50 7.2 Land Conservation Agreements ...... ,""', ...... " ...... , ...... " ...... 50 7.2.1 Landcare Australia ...... 50 7.3 Stewardship Projects ...... , ...... 5I 7.3.1 School Programs ...... 51 7.3.1.1 Waterloo Region ...... 51 7.3.1.2 Queensland, Australia ...... 51 7.3.2 The Hamilton Region Conservation Authority...... 53 7.3.3 The British Trust for Conservation Volunteers (BTCV) ...... 54 7.3.4 Water Quality and Waterway Restoration ...... 54 7.3.5 Vegetation Restoration ...... 54 7.4 Environmental Advisory Committees ...... 55 7.4.1 Waterloo Region Ecological and Environmental Advisory Committee, Ontario ...... 55 7.4.2 Windsor Environmental Advisory Committee, Ontario ...... " .. " ...... 56 7.4.3 Goulbourn Environmental Advisory Committee, Ontario ...... 56 7.5 Use of the Official Plan ...... 57 7.5.1 Regional Municipality of Ottawa-Carleton (RMOC) ...... 57 7.6 Consensus Building Tools ...... 58 7.6.1 Consensus Conference on Waste Management, Hamilton, Ontario" ...... 58 7.7 Fundraising Initiatives ...... 59 7.7.1 Click to Donate programs: ...... 59 7.7.2 Not-For-Profit Companies ...... 59 8.0 RECOMMENDATIONS ...... 61 9.0 CONCLUSION ...... 65 BIBLIOGRAPHY ...... 66 GLOSSARy ...... 69 APPENDIX A: DIAGRAMS OF THE DEVELOPMENT AND IMPLEMENTATION OF A NATURAL HERITAGE STRATEGy ...... 73 APPENDIX B: CONTACT LIST ...... 76

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Natural Heritage Strategies: Community, Environment and thc Planning Process in the Bay of Quintc LIST OF TABLES AND FIGURES

Table I: Comparison between existing policy in official plans in the Bay of Quinte AOC ...... 21 Table 2: Existing Natural Heritage Initiatives in the Bay of Quinte AOC ...... 29

Figure I: Development of a natural heritage strategy ...... 73 Figure 2: Tools for the Implementation of a natural heritage strategy...... 74

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quintc 1.0 INTRODUCTION

"Healing a damaged watershed is a great challenge. First, it requires changing the attitude that nature is merely a resource to be used, and abused, by human beings. That land of 'old think' - clear the woodlands, fill the marshes, pave over the countryside, and treat streams as storm sewers - is still pervasive. It is our environmentally damaging inheritance" (Crombie, 1992).

Each fall, second-year Master's stndents in the School of Urban and Regional Planning at Queen's University undertake a major project that helps them to explore the links between the technical and the social and political aspects of plan making and plan implementation. While it is a learning experience for the stndents, the project course is also designed to generate a final product that is useful to a client. This year, Quinte Watershed Cleanup Inc. sponsored a team of nine stndents to prepare a discussion document to help stimulate informed discussion and action on the development of natural heritage strategies for the Bay of Quinte AOC. The team worked closely with the Bay of Quinte Restoration Council. It should be noted that developing a natural heritage strategy is a relatively new approach to the preservation of natural heritage and although the Ontario Ministry of Natnral Resources (OMNR) provides guidance on the technical aspects of defining scientific significance there is no established framework for the development of a natural heritage strategy.

In order to provide an understanding of the political context surrounding natural heritage and the level of commitment to natural heritage protection, research began with an examination of the current provincial and municipal policies and guidelines regarding natnral heritage in Ontario. Following this analysis, the research focus shifted to the context surrounding natnral heritage protection in the Bay of Quinte watershed. This involved speaking to various citizens in the Bay of Quinte region and to people directly involved in planning and land stewardship. These stakeholders were chosen based on past participation in environmental activities within this area. The list of people consulted is given in Appendix B. As well, we spoke with individuals outside of the Bay of Quinte AOC, in an attempt to acquire a broad perspective regarding habitat preservation in Ontario. Generally, everyone thought preservation of natnral areas or habitat is beneficial to the watershed, and we found that many initiatives to conserve land already exist. We believe that we have obtained a valuable and broad base of opinions regarding the community's

- I - Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quintc attitudes towards natural heritage in general, and regarding the development of natural heritage strategies which can be incorporated into municipal land use planning policies.

In order to situate our research in the provincial, national, and international context, the team examined activities taking place in other arcas within Ontario, the United States, the United Kingdom, Australia and Ireland. This provided us with the opportunity to discover other approaches to natural heritage protection that may be applicable to the Bay of Quinte AOe. We felt that this approach would help us to look at the possibilities around the development of a strategy to protect natural heritage, in a creative and effective way.

Following this introduction, this report introduces the reader to the concept of natural heritage strategies (2.0 SETTING THE STAGE) This second section provides the context for the remainder of the document by introducing some key terms and a rationale for protecting natural heritage areas.

Following this section, we provide a brief summary of the provincial natural heritage policy (3.0 LEGISLATION AND GUIDELINES). We feel that it is important for our readers to have a clear understanding of provincial and municipal policies regarding natural heritage, and to understand how these policies will shape the development of natural heritage strategies in the Bay of Quinte area. The subsequent section is devoted to what is happening with regard to natural heritage protection in the Bay of Quinte AOC. First, there is a review and comparison of existing, and proposed, planning policies to protect natural heritage (4.0 NATURAL HERITAGE POLICIES IN OFFICIAL PLANS IN THE BAY OF QUINTE AREA OF CONCERN.). Also, a brief review of various local initiatives in the Bay of Quinte AOC is given in tabular form (5.0. NATURAL HERITAGE INITIATIVES IN THE BAY OF QUINTE AREA OF CONCERN). We feel that highlighting some of the existing iniatiatives in the area would help the reader to recognise the seeds for the development and implementation of a natural heritage strategy have already be sown in the Bay of Quinte area.

The sixth section (6.0 IMPLEMENTATION TOOLS) of this report examines various tools we consider useful for implementing a natural heritage strategy. We divided these into awareness based tools, fiscal based tools, land based tools and legislative and policy based tools. Depending on local circumstances, these tools may be used either individually or in combination. Ultimately, we leave the [mal decision on selecting appropriate implementation tools to those directly involved in the natural heritage strategy development.

- 2- Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quintc The seventh section (7.0 IMPLEMENTING NATURAL HERITAGE PROTECTION IN OTHER AREAS) of this report looks at various environmental initiatives from around the world. Although natural heritage strategies are sti11largely in the developmental stages across Ontario, we found a number of very successful strategies for protecting natural areas in other places and included them in this section of the report. We feel that highlighting some of these original ideas, readers of this report could explore some innovative suggestions and examples of natural heritage strategy development and implementation.

The final section of the report (8.0 RECOMMENDATIONS) contains the group's recommendations for implementing a successful natural heritage strategy in the Bay of Quinte AOe. The group suggests these recommendations not only apply in the Bay of Quinte Aoe but could be applied to other areas as well ..

This report fmishes with a short concluding section (9.0 CONCLUSION.)

- 3 - Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quinte 2.0 SETTING THE STAGE

2.1 What is Natural Heritage?

Natural heritage is a difficult term to define because it means many different things to many different people. Despite the many interpretations of what natural heritagc means to each of us personally, many stakeholders suggested that they think of natural heritage as an umbrella tcrm that includes all types of natural areas and species. These areas might include all of the geological features and landforms, the associated terrestrial and aquatic ecosystems, and thc plant and animal species within a natural area.

On a more formal level, the Ontario provincial Natural Heritage Policy suggests that natural heritage is made up of seven features: • significant portions of the habitat of endangered and threatened species • significant wetlands • fish habitat • significant woodlands • significant valleylands • significant wildlife habitat • significant areas of natural and scientific interest.

While the province identifies these seven natural heritage features, natural heritage can, and should be, defined in such a way that also includes the natural areas that are of particular value to specific communities. Ultimately, community members should be consulted so that they can help to identify other areas that have "local significance", and in tum, warrant protection from development pressure, or enhancement. The inclusion of additional, locally significant areas can help to build public interest for a natural heritage strategy. As well, the designation of locally significant areas can contribute to a sense of "place" and commitment to preserving the local character and environmental values of the community.

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Natural Heritage Strategies: Conununity, Environment and the Planning Process in the Bay of Quinte 2.2 Why is it Important to Protect Natural Heritage?

If you were to take a snapshot of your connnunity today and compare it to a picture taken 100 years ago, you would probably see a very different image reflected in the two pictures. The differences that these two pictures reveal would probably not even surprise you very much since most of us, at one time or another have been aware of the rapid growth of the connnunities in Southern Ontario. What few of us are aware of however, is the effects that this sort of rapid growth and development can have on the fragile ecosystems upon which we depend. Our quality of life relies on the ability of the natural environment to sustain us. W c have a vested interest in the protection of natural areas not only because the land helps to fulfil our basic needs, but also because our aesthetic and recreational activities, economic activities, ecological functions, and biodiversity depend on the quality of the natural environment. With this in mind readers are asked to consider their own ideas about land, and determine what it is about land that is 'valuable' to them.

2.2.1 Basic Human Needs

In many parts of Ontario, natural landscapes have been severely altered and fragmented through urban development, agricultural settlement and industrial activities. In fact, south and east of the Canadian Shield, over 70% of the original woodlands and wetlands have been removed. What do these changes to the natural environment mean to life in all of its many forms? Changes to wetlands and woodlands, for example, can be linked to changes in water quality. Changes in water quality affect the quality and quantity of fish and wildlife habitats as well as potentially incurring negative impacts on human health. The link between water quality and human health is already a contentious issue in Ontario and our hope is that in understanding this particular link, people will be more inclined to recognize other relationships between the environment and human health and safety.

2.2.2 Aesthetics and Recreation

When we think about lakes and rivers, many of us also think about the recreational opportunities that these lakes and rivers offer. Fishing, paddling and swimming are but a few of the many activities that many of us in Ontario enjoy each spring, sunnner and fall. Woodlands, too, offer bird watchers, hikers and hunters a wonderful opportunity to unwind. As people living in the Bay

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quintc of Quinte watershed know, some human activities have had negative impacts on many of the natnral areas that we enjoy. Beaches, for example, are regularly closed to public swimming because of high bacteria counts. As well, the number and types offish that people can consume are limited because of toxic contamination. If the residents of the Bay of Quintc area really want to enjoy a healthy natural enviromnent in the futnre, then they must act now to protect and enhance the integrity of these natural areas.

2.2.3 Economic Activities

Many natural heritage areas also contribute to the economic well being of communities in Ontario. Wetlands and fish habitat, in particular, contribute substantially to the tourism industry. Known as eco-tourism, this type of industry is built on thc premise that people will travel to spend their time and money in an area that offers a unique and attractive natnral enviromnent. Eco-tourism is an industry dependent on the quality of the natnral environment. Clearly the industry benefits greatly from any investment of time and money that helps to ensure that the natnral environment is protected. The commercial fishing, forestry and maple syrup industries too, depend on the quality and health of the natural environment.

2.2.4 Ecological Benefits

Natural heritage areas offer many ecological benefits that are often too easily overlooked and/or dismissed. Wetlands and woodlands, for example, serve an important role in flood damage reduction in that they help to control and store the flow of surface water in times of heavy rain and/or spring thaw. Woodlands also help to control soil erosion by keeping soils stable around tree roots. The shade that trees provide can also help to keep water temperatnres cool, and thereby help to maintain high quality habitat for desirable sports fish species. Valleylands too, have serve ecological function in that they are thc natnral water drainage systems for watersheds. They convey and provide short-term storage for storm and melt waters and perform other functions such as nutrient and sediment transportation. All in all, the ecological functions of natnral heritage featnres helps to show just how interconnected the various environmental systems really are.

2.2.5 Biodiversity

Development pressure and land-use practices have, in many cases, tnrned natural areas into 'islands of green' that are isolated from the surrounding developed and undeveloped lands. For

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quinte years, it was believed that this type of fragmented habitat could still be protected from development by creating parks and conservation areas. Unfortunately, ecological research reveals that, over time, these 'islands' will not be able to sustain healthy communities of plant and animal species. In response to the fragmentation of natural areas, ecologists and resource managers have begun to examine the relationships bctween the remaining fragments of habitat. They now believe that the best approach to resource management and land usc planning is to have a system of connected patches of land that are as large as possible and that emphasize these natural inter­ relationships. Scientists argue that larger areas can contribute more significantly to biodiversity and can meet more of the habitat requirements of a greater number of species than can fragmented and isolated habitats.

There are a small number of areas in Ontario that still support a full spectrum of biological communities and, because of this, these areas have been designated as Areas of Natural and Scientific Interest (ANSls). The province requires that these areas be protected through legislation. The province has identified two types of ANSls: life science ANSls and earth science ANSls. Life science ANSls are significant representative segments of Ontario's biodiversity and natural landscapes, which contain relatively undisturbed vegetation and landforms and their associated species and communities. Earth science ANSls consist of some of the most significant representative examples of bedrock, fossil and landform record of Ontario and include ongoing geological processes.

2.2.6 Sustain ability & Future Generations

Residents of the Bay of Quinte area might also want to consider our ethical responsibility to future generations. Certainly, many will agree that we have a responsibility to future generations to ensure that there is a healthy environment to pass on in the future. Some would argue that it is time we all do what we can to ensure that there are as many plants and animals, streams and lakes and mountains and valleys tomorrow as there are today. The ethics of the argument extend also to the species that are threatened by our careless development. They too have a right to exist, and once everyone recognizes this right, perhaps then, we will see a real shift in current priorities. Until that time however, those of us who share an environmental consciousness can do our best to protect those natural areas that do still exist.

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quinte 2.3 Where did the concept of natural heritage strategies come from?

The discussion around introducing a natural heritage strategy in the Bay of Quinte Area of Concern (AOC) developed as a result of recommendations from two sources. First, in 1996, changes were made to the provincial Natural Heritage Policy Statement in the Ontario Planning Act. These changes required municipalities to consider the effects of development on natural features and areas such as woodlands, valleylands, and wildlife habitats in addition to the effects of development on provincially significant wetlands and areas of natural and scientific interest (ANSIs) that were already specified in the Policy Statement prior to the changes. Second, for all AOCs that were identified as having a loss of fish and wildlife habitat as one of their impaired beneficial uses, Environment Canada suggested a natural heritage strategy as one way to protect and restore this loss. The loss of fish and wildlife habitat was one of ten impaired beneficial uses identified in the Bay of Quinte AOC. The suggestion to create a natural heritage strategy was included in the Bay of Quinte Remedial Action Plan (RAP), a plan to rehabilitate and restore the environmental degradation in the area. Environment Canada published a document, A Framework for Guiding Habitat Rehabilitation in Great Lakes Areas of Concern,(1998) which presents the federal government's approach to natural heritage in the Canadian AOCs along the Great Lakes. A further analysis and explanation of both the federal guidelines and the provincial policies relating to natural heritage can be found in the following section, (3.0 LEGISLATION AND GUIDELINES).

2.4 What is a natural heritage strategy?

A natural heritage strategy often builds upon a sCIence of 'landscape ecology'. Landscape ecologists suggest that a healthy environment is one that has many linkages and connecting pathways between natural areas. These natural pathways become corridors for species movement, and thus, help to ensure the biologieal integrity of the various patches of natural lands and waterways. Moreover, these natural connections reflect the interdependent nature of a region wide ecosystem. In Ontario, there is provincial legislation that recommends (and federal guidelines that suggest) the formation of a natural heritage strategy as a means to protect natural heritage features. The provincial legislation requires municipalities to consider natural heritage in their planning documents. At the same time, there are a number of community-based initiatives already active in the protection of areas of natural habitat that are much more informal, but perhaps more effective than the provincial policies. A natural heritage strategy as we see it, incorporates the principles of landscape ecology, the provincial legislation and federal guidelines, as well as existing community - 8 - Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quintc environmental initiatives. Together these three components could fonnulate a comprehensive and strategic effort to protect natural heritage features and areas in the Bay of Quinte watershed.

Based on our discussions with stakeholders it is clear that individual ideas of what constitutes habitat preservation differ. For example, some view a natural heritage strategy solely as a policy, initiated and implemented through different levels of government. Others interpret natural heritage strategy as infonnal natural heritage protection carried out through stewardship initiatives. Despite the different views of what a natural heritage strategy is, there is some agreement among stakeholders as to what a natural heritage strategy should be. The common thread is that any potential natural heritage policy should not be a single unifonn policy that covers a large area without the consideration of regional characteristics and differences.

2.5 How would a strategy protect natural heritage in the Bay of Quinte AOC?

In spite of a considerable loss of natural habitat due to urban expansion and clearing for agricultural purposes, the Bay of Quinte community has, through a lot of hard work and dedicated effort, been able to repair and maintain some of the area's most unique and diverse natural environments. Perhaps one of the better-known campaigns is the Remedial Action Plan that has attempted to restore the impaired beneficial uses in the Bay of Quinte watershed. There has been a huge financial, time and emotional investment made by many people in an effort to see the surrounding area returned to a more "healthy" state. As time passes, there is a hope that some day soon, the years of hard work will payoff, the area will be delisted, and what is now the Bay of Quinte Restoration Council will be dissolved.

So, what happens to all of the hard work and progress after the RAP is finished? That is precisely where the natural heritage strategy comes in. The natural heritage strategy will act as an extension of the RAP program. It will help to bring individuals, local groups and local governments together in order to see that the environment and all of its inter-linkages will be valued and protected. The strategy will help not only to protect the hard work that has already been invested, but it will also help to ensure that more progress is made in order to protect the natural heritage of the area for generations to corne.

- 9 - Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quintc 2.6 How would a strategy work in the Bay of Quinte AOe Watershed?

As a team, we have spent a great deal of time and effort thinking about this question: What is the most viable and appropriate vision for a natural heritage strategy in the Bay of Quinte watershed? Based on our research and on our discussions with interested stakeholders, we have corne to the conclusion that there is no single answer to the natural heritage strategy question. Instead, we believe that in order for a natural heritage strategy to accomplish the goals of protecting, preserving and enhancing natural heritage, the strategy will have to be proactive - one that will depend on community support and involvement.

Our team understands that the Quinte community has a tremendous stake in the ways in which natural heritage is managed in the area. Recoguizing the public's desire to be involved in decisions that affect them directly, our proposal for the development of a natural heritage strategy requires an inclusive set of policies and plans. We do not envision a top-down, government-led policy that the Quinte public may regard with skepticism. Instead, we foresee a process that is much more comprehensive. As we envision it, natural heritage strategies for the Bay of Quinte watershed will incorporate the provincial legislation as well as build on, focus, and integrate existing community projects that are dedicated to the protection and rehabilitation of natural features.

2.7 What have we covered so far?

This fIrst section of the document is intended to introduce our readers to some of the terms, as we have defIned them, and the policies surrounding the discussions of natural heritage strategies. We attempted to raise some discussion regarding our vision of a natural heritage strategy in the Bay of Quinte region, as well as ways in which this type of strategy would help to compliment other existing initiatives in the area. It is our hope that having read this section, the reader will have a better understanding of the context of further discussions in this document. The following section

(3.0 LEGISLATION AND GUIDELINES) discusses in greater detail the legislative policy and guidelines that form the basis for the creation of natural heritage strategies.

- 10 - Natural Heritage Strategies: Cormnunity, Environment and the Planning Process in the Bay of Quinte 3.0 LEGISLATION AND GUIDELINES

This section describes the provincial legislation and federal guidelines concerning the creation of natural heritage strategies. It is intended to review and clarify these two documents in an effort to explain how, and why, natural heritage strategies were first introduced. As well, this section may help stakeholders to understand where municipalities are coming from as they attempt to comply with provincial legislation and follow federal guidance.

3.1 Environment Canada and the Great Lakes AOCs

In 1998, Environment Canada published A Frameworkfor Guiding Habitat Rehabilitation in Great Lakes Areas of Concern. This document was developed for RAP teams and Public Advisory Committees (PACs) working to rehabilitate ecosystems in the sixteen Canadian AOCs across the Great Lakes basin. The goal of each RAP team and PAC is to restore all of the impaired beneficial uses identified in the RAP with the final aim of removing or delisting the location as an AOC. Before an AOC can be considered to be cleaned up however, restoration targets need to be developed to serve as end points by which to measure progress. Environment Canada's framework was designed to guide RAP teams like the Bay of Quinte Restoration Council in choosing restoration targets that relate to fish and wildlife habitat and popUlations. This framework can also be used to provide guidance on how to get a more comprehensive strategy, beyond the RAP goals, to protect all natural areas.

In the Environment Canada document, guidelines are designed for three different habitat categories: wetlands, riparian areas and forested areas. These guidelines are based upon comprehensive literature reviews and testing of the framework in some of the AOCs. While they are considered to represent desirable amounts of habitat, they are not meant to be viewed as mandatory limits or targets. These guidelines can be used to help develop a set of targets for habitat rehabilitation that are suited to both the cultural and natural conditions in a specific area and the environmental concerns identified by community members.

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quintc 3.2 Ontario Provincial Policies on Natural Heritage

In recent years, therc have been a number of positive changes to the natural landscapc in much of southern Ontario. In comparison to the state of the environment twenty years ago, there are now more woodlands, because some of the more marginal land is no longer farmed. There are more environmentally sensitive agricultural practices, and more improvements in water quality in some lakes, rivers and streams. These changes and improvements are largely a result of personal and private initiatives that have fostered land stewardship and resource management according to an emerging land ethic. The Natural Heritage Policy is intended to reinforce these positive changes where they are occurring and to encourage them where they are not.

3.2.1 A Brief Outline of the Provincial Natural Heritage Policy

The provincial Natural Heritage Policy is outlined in Section 2.3 of the provincial Policy Statement in the Ontario Planning Act. This section requires that each municipality within the province "consider" the issue of natural heritage in their planning documents. The provincial Policy Statement is primarily concerned with the protection of the province's biodiversity and the redevelopment of fragmented natural areas that have occurred as a result of urban and agricultural settlement and subsequently led to a loss of critical wildlife habitat. Section 2.3 aims to concentrate development in suitable areas, protect sensitive and/or environmentally important areas, direct growth to existing population centres in rural areas, and to protect important natural resource areas.

Section 2.3.1 of the provincial Natural Heritage Policy states "Natural heritage features and areas will be protected from incompatible development "1. There are two different categories of protection for these natural areas; Category 1 lands are 'no development areas', and Category 2 lands are 'conditional development areas'. Category 1 consists of two natural areas, significant wetlands south and east of the Canadian Shield and significant portions of the habitat of endangered and threatened species. The policy does not permit any type of development or site alteration on any Category 1 land. A planning authority is permitted to add other areas as Category 1 lands. This is done most often when a planning authority, at the direction and advice of its community members, seeks to protect additional areas that are of significance to the community.

1 "'Incompatible development" includes both development and site alteration that would negatively impact a natural heritage area or feature. - 12 -

Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quinte There are six types of natural areas included in Category 2. Category 2 permits development only if the developer can demonstrate that there will be no negative impacts on the natural features or the ecological functions for which the area has been identified. These areas include fish habitat, significant wetlands, significant woodlands, significant valleylands, significant wildlife habitat and significant areas of natural and scientific interest (ANSls). Where features from Category 1 and 2 overlap, it is recommended that the more restrictive policy of Category 1 lands be applied at least to the area of overlap in order to ensure adequate protection.

Section 2.3.2 states that "Development and site alteration may be permitted on adjacent lands to both Category 1 and 2 lands, if it has been demonstrated that there will be no negative impacts' on the natural features or on the ecological functions for which the area is identified". This section applies to each ofthe seven natural heritage features or areas. The province has recommended that development may only occur on lands adjacent to one of the seven features if it has been demonstrated that no negative impacts will be incurred. These adjacent lands act as a buffer, separating the natural heritage feature from the potential harmful impacts of other development. A local planning authority may adopt the width of the buffers as recommended by the province or they may adopt alternative widths that achieve the same objectives.

Section 2.3.3 states that "The diversity of natural features in an area, and the natural connections between them should be maintained, and improved where possible,,2. When forming a natural heritage strategy it is important to consider the diversity of natural features and the natural connections between them. As stated in the introduction to this report, diversity is important insofar as diverse habitats usually contain higher numbers of species and contribute to the overall protection of a region's biodiversity. The maintenance and improvement of the natural connections between areas and features are important to ensure that plant and animal species can move freely between natural areas, and to ensure the proper functioning of ecological processes upon which natural systems and people depend.

2 Negative impacts are defined in the Planning Act as a) in regard to fish habitat, the harmful alteration, disruption or destruction of fish habitat, except where it has heen authorized under the Federal Fisheries Act, using the guiding principle of no net loss of productive capacity, or b) in regard to other natural heritage features and areas, the loss of the natural features or ecological functions for which an area is identified. - 13 -

Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quinte Section 2.3.4 states, "Nothing in policy 2.3 is intended to limit the ability of agricultural uses to continue ". This policy ensures that existing agricultural uses can continue to exist and are not hindercd by the implementation of a natural heritage strategy. However, it also says that with any new agricultural use or with any expansion of agricultural activities into areas not previously farmed, there is a need to have 'regard to' this policy. This may be of particular importance to farmers in the Bay of Quinte area as a natural heritage strategy will not alter their existing land rights or their existing agricultural uses ofland.

After looking briefly at the specific sections of the provincial Natural Heritage Policy, we must now concentrate on how this policy is implemented in different municipalities. The first step in the implementation of the natural heritage strategy is the identification and evaluation of the natural heritage features that occur within a planning area and the linkages between them. The procedure recommended for evaluating the significance of natural heritage features and areas is generally based on assessments of the "content" of particular features and areas. More specifically, this deals with the characteristics, features and functions, and the quantity of remaining features in that local landscape. As well, some evaluation of features is based on their "representation" of the original natural features on the landscape. The province establishes gnidelines and criteria for the significance of each feature based on assessments of "content" and "representation". For most natural heritage features, with the exception of significant wetlands and ANSIs, municipalities are encouraged to develop their own evaluation methods, building on the general eriteria and gnidelines recommended by the province.

In developing their own criteria for evaluating significance, municipalities are encouraged to consider the principles of "landscape ecology". Some of these principles include ecological factors such as; the size and shape of protected patches, the development of connections between patches, the range of species and biodiversity protected, and the protection of water bodies. As well landscape ecology principles include the protection of rare species and the protection of the full range of habitat and landform types.

There are seven natural heritage features and areas outlined by the province that must be identified and evaluated in a municipal planning area. The technical process used to define the significance of each feature or area is slightly different. The natural heritage features and areas outlined by the province are:

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quinte 3.2.1.1 Significant Portions ofthe Habitat ofEndangered and Threatened Species

The Ontario Ministry of Natural Resources (OMNR) is responsible for designating species as either: provincially endangered, or provincially threatened. Municipal planning authorities can obtain maps from the OMNR that identify approximate locations of endangered and threatened species, and at minimum, must ensure that these locations are identified and adequately protected in the planning process. These habitats are identified as Category I lands and no development is allowed in these areas under any circumstances.

3.2.1.2 Significant Wetlands provincially significant wetlands are identified by the OMNR on the basis of criteria and gnidelines established by the province. Wetlands located south and east of the Canadian Shield, where degradation and loss is most significant, are Category I lands where no development is allowed under any circumstances. Wetlands located in the Canadian Shield, however, are Category 2 lands, where development is permitted provided that there are no negative impacts on the wetland or its ecological fUnctions.

3.2.1.3 FishHabitat

Federal policy says that all fish habitat in a planning area should be identified and protected. Development and site alteration is permitted in fish habitat if it can be demonstrated that there will be no negative impacts on the natural feature or ecological fUnctions of the area. The federal Department of Fisheries and Oceans Policy for the Management of Fish Habitat allows development to proceed in some situations where harmful alteration, disruption, or destruction of fish habitat cannot be avoided. This applies only if compensation is provided for the loss of fish habitat, either through the replacement of natural habitat or through increasing the productivity of existing fish habitat. OMNR has identified and mapped available fish habitat across the landscape and is in the process of making its fish habitat data available to the appropriate planning jurisdictions. Where OMNR does not have sufficient information however, the municipality will need to obtain this information in other ways. One possibility to address this information gap is found in the recommendations section of this report - the formation of a local database with environmental information.

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quinte 3.2.1.4 Significant Woodlands

There are no provincial criteria for the evaluation of woodlands. Planning authorities, therefore are encouraged to customize and develop criteria and standards that fit their local conditions and needs. OMNR has developed a methodology for creating digital woodland maps using LANDSAT imagery as a backdrop to Ontario Base Mapping (OBM). Once the woodland locations have been mapped, they must be evaluated for significance. Forest birds are used as "indicator species" to determine size and habitat requirements for woodlands. Thc Bay of Quinte Restoration Council has developed its own set of woodland criteria based upon size, interior forest habitat, rare vegetation, the hydrological value of the woodland and adjacency, or distance, to another woodland or natural feature. While the Bay of Quinte Restoration Council had hoped to only have one level of significance designating a 'no development' zone, it has been determined that perhaps a two level significance, similar to the Category 1 and Category 2 lands in the provincial Policy Statement, may be necessary because most of the woodlands in the Bay of Quinte area would be considered significant under these criteria. Most municipalities would not be able to protect all woodlands; therefore, some municipalities are currently attempting to identify areas of greatest priority to acquire higher levels of protection for them.

3.2.1.5 Significant Valleylands

There are no provincial guidelines for valleylands. The Bay of Quinte Restoration Council is finding it difficult to develop adequate significance criteria. Based on conversations with representatives from the Restoration Council, however, it is likely that the criteria for valleylands significance designation will be based on the connectivity of valleylands to other natural areas.

3.2.1.6 Significant Wildlife Habitat

The province has created several procedures for the identification and evaluation of significant wildlife habitat. However, municipalities are encouraged to select their own criteria that will ensure that ecologically valuable wildlife habitat is recognized and protected within their own jurisdiction.

3.2.1.7 Significant Areas a/Natural and Scientific Interest (ANSIs)

ANSls are ranked by the OMNR as being either provincially or regionally significant. Municipalities must include and protect provincially significant ANSls in their natural heritage

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quinte strategies.

At minimum, for areas such as fish habitat, woodlands, valleylands, and wildlife habitat, where municipalities are responsible for creating criteria and identifYing significance, there must be reference in the Official Plan (OP) to the fact that Council supports the identification, study and ultimate protection of these areas once identified. This evaluation and identification is to be initiated when the municipality has sufficient funds and expertise to do so.

Both the provincial legislation and the federal guidelines form the basis for the creation of natural heritage strategies. Where Environment Canada's framework is meant as a guideline for making natural heritage targets, the provincial Natural Heritage Policy is legislation that all municipalities should incorporate into their Official Plans.

Each of the policy documents described briefly above, the Framework for Guiding Habitat Rehabilitation in Great Lakes Areas ofConcern by Environment Canada (1998), and the changes to the provincial Policy Statements, are primarily concerned with the identification and GIS mapping of siguificant natural heritage features and areas. Some people may assume that once these areas are mapped and firmly incorporated into municipal planning documents such as Official Plans and Zoning By-Laws, that their protection is guaranteed. Unfortunately, this is an inadequate means of protection for several reasons. Firstly, and perhaps most obviously, entrenching significant natural heritage areas into these planning documents often results in the perceived restriction of many private landowners' development rights which in tum, may cause much controversy and backlash. A top-dowu approach to protection, with little public input, may make private landowners feel alienated from the planning process that seeks to protect our common future. Since there are many community initiatives in the area with similar mandates of protecting natural habitats and environmental preservation, a more efficient approach to protection would be to incorporate the skills and knowledge of the local people and to enlist their help and support in the protection of the natural heritage features and areas.

Secondly, the map of significant features created after the identification and evaluation processes, displays a static system. In reality, however, those features that are considered significant and efficiently functioning, will not remain so indefinitely. A more effective approach to protection should consider and attempt to incorporate the dynamic nature of this natural heritage system.

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quinte Further discussion of these challenges is included later in this report.

Some municipalities in the watershed are currently updating their Official Plans to meet provincial Policy requirements and to address vital local interests. A review of Prince Edward County's existing Official Plan and the draft Official Plans for the City of Belleville, the City of Quinte West, and the County of Hastings is presented in the following section (4.0 NATURAL HERITAGE POLICIES IN OFFICIAL PLANS IN THE BAY OF QUlNTE AREA OF CONCERN) We hope is this section will increase peoples' understanding of existing and proposed policies to the protection of natural heritage. Some of these policies are in draft form only. How successful each municipality is in protecting its natural heritage through planning policies, ultimately depends on the weight given to natural heritage against its other priorities, and on available funding.

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NaturaJ IIcritage Strategies: Community, Environment and the Planning Process in the Bay of Quinte 4.0 NATURAL HERITAGE POLICIES IN OFFICIAL PLANS IN THE BAY OF QUINTE AOC

The purpose of this review is to understand how a natural heritage strategy can be incorporated into municipal land use planning documents as a way of protecting natural heritage features in the Bay of Quinte AOC. The draft Official Plans (OPs) for the City of Belleville, the City of Quinte West, and the County of Hastings, as well as the existing official plan of Prince Edward County are reviewed to see what policies exist, or are proposed, to protect natural heritage features. The review is not intended to be exhaustive, but rather attempts to highlight the municipal use of regulatory documents, such as OPs, and their role in the implementation of a natural heritage strategy.

The review will help answer the following questions: • Are the policies in the OPs appropriate and sufficient for preserving natural heritage features in the Bay of Quinte? • What are the advantages and disadvantages of including natural heritage policies in the OP? • Is there a need to build consensus about natural heritage policies before they are included in an OP?

4.1 Criteria for Reviewing OPs

Criteria for reviewing the OPs has been drawn from the following resources:

o "Incorporating the Natural Heritage Policy into Municipal Policy Documents", in the Natural Heritage Training Manual for Policy 2.3 of the provincial Policy Statement

o "Natural Heritage Planning Policy in Ontario - A Review of County and Regional Official Plans" prepared by The Community Development Group under the direction of The Best Policies Working Group.

o Various stakeholder opinions

- 19 - Natw·al Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quinte • Does the Official Plan ... • include a goal and objective statement that the municipality supports the identification, study and protecting of natural heritage? • Illustrate an ecosystem approach to natural heritage? • Identify the location ofnatural features and areas with land use schedules and designations? • Identify the seven natural heritage features (as identified in the provincial Policy Statement)? a. Significant habitat of endangered and threatened species b. Significant wetlands c. Fish habitat d. Significant woodlands e. Significant valleylands f. Significant wildlife habitat g. Significant areas of natural and scientific interest (ANSIs) • Identify Locally Significant Natural Areas (LSNAs)? • Classify both category 1 lands where no development is permitted and category 2 lands where development may be permitted if it does not negatively impact the features or ecological functions? Category I Provincially Significant Wetland (PSW) was chosen as an indicator. • Recognize a need to develop a natural heritage strategy and further environmental studies/plans? • Employ planning tools and techniques that can be used to promote natural heritage? • Have consistent policies and land designations throughout the OP? • include public consultation in the development and review phases of the OP? • include statements about the recognition and desire to cooperate with adjacent municipalities?

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quintc Table 1: Comparison between official plans in the Bay of Quinte Aoe !Criteria \ Municipalities I Belleville 'I Quinte Hastings'l Prince I Comments I , West Ethvardl I Goal and objective X X Quinte West & Prince Edward do not mention I statement "natnraJ heritage" specifically in any goal or I objective statement, but, there is the recognition of the need to identifY and protect natnraJ I features, ,Concept of ecosystem X I X X IQuinte West recognizes the natnraJ approach to natural environmental systems as wetlands, water I, herital(e stratCl(Y Iconrses and shoreline areas. IdentifY the location of X X X X Some OPs present NH Features under few NH: • Schedules general designations while others present them in more specific categories. • Designations X X X X

'I The scope of NH: X X X • Habitat of Endangered , l'an=d",Thr=ea=te,.n",ed=S",pecJ=·e".,s'--l-__l- __+ I' ---t-----j------'I • Significant Wetlands I X X i X X I • Fish Habitat X ! X X X I : • Significant Woodlands X X i X Prince Edward OP recognizes ouly some ,I I I 1 , ~cant woodlots located within the wetlandj

• Significant Valleylands X X X Prince Edward recognizes "valleys" as ! environmental resources, but does not put it I under protection designation. • Significant Wildlife X X X X IPrince Edward identifies Blue Heron Rookeries Habitat ! , and Osprey Nesting Sites • ANSIs X X X X LSNAs X X It is interesting that the upper tier counties' OPs I are the ones which have identified LSNAs I amongst the 4 OPs. (Assume that the I identification ofLSNA needs more "local inputs") i No development on PSW X X IdentifY the needs for a X X natoral heritage strategy Recognize tools for NH X X X X Belleville can acquire NH lands

Consistency thronghout I' Conflict, Quinte West has overlapping land use theOP i . identification on the schedule Pnblic consultation X X I I Cooperation with adjacentl X II One objective in Hastings states" to seek the I municipalities 'I cooperation of adjacent municipalities in Ii I I I protecting natnraJ heritage features and areas". i "X" mark means that this criterion has been addressed iu subject OP. "*,, mark means the subject OP is not a Draft one

- 21 - Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay ofQuinte 4.2 Detailed Comparison and Analysis

While the provincial policy requires all municipalities to consider natural heritage, the extent to which each municipality protects its natural heritage is weighed against its other priorities. In this way each municipality has a degree of flexibility when coordinating their own environmental objectives. These four OPs have different strengths and weaknesses in their protection of natural heritage. These differences will have implications for the development and implementation of a watershed-wide natural heritage strategy.

The following section offers a more detailed analysis of how these documents differ. Some extracts from the OPs are provided to help gain insight into the priority that the subject OP gives to natural heritage, as well as the ways in which natural heritage has been addressed.

4.2.1 The Goals, Objectives and natural heritage strategy

Please refer back to the comparison in Table 1. The City of Belleville draft OP and the County of Hastings draft OP have included the term of natural heritage in their goal statements. For example, the County of Hastings draft OP explicitly addresses the goal and objectives of a natural heritage strategy under section 1.4 Environmental Protection.

"... encourage the development of comprehensive Natural Heritage Plan"

"The Environmental Protection designation is comprised of lands that play an important role in the preservation of the County's natural heritage systems" (Hastings County draft official plan)

Although the City of Quinte West draft OP and the Prince Edward County OP do not mention the term "natural heritage" specifically in their statements, they address their environmental concerns in other ways. In Quinte West's OP for example, one of the objectives in Section 4: Natural Environment recognizes the need of identification and preservation of existing natural areas. Moreover, Prince Edward's OP states that efforts should be made to link the natural features with local identity, which might foster more community-based initiatives/approaches.

"The environmental features are also an essential component of the County's landscape and identity, providing an important 'sense of place' to residents and visitors" (Prince Edward County)

- 22- Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quintc Addressing natural heritage adequately in OPs is one way to ensure that the natural heritage strategy is effectively implemented. Moreover, entrenching natural heritage policies in an OP empowers both the municipalities and the community to appeal against adverse development in the future.

4.2.2 The Identification of Natural Heritage Features

Each of the four OPs have policies and schedules to identifY their environmental protection areas. It should be noted however, not all of the natural features mentioned in their policies have been identified or designated on the land use schedules'. This is because maps of habitat of rare and endangered species are not usually open to the public. Despite the fact that the Belleville OP has statements to support the protection of seven natural features, the current draft schedule identifies only environmental protection areas as a whole. However, this OP does state that the municipality should incorporate the "recommendations of the natural heritage study" in the future. The Quinte West draft OP in particular, has a much narrower scope with no reference of endangered and threatened species, significant woodlands or significant valleylands in its policy. At the same time, Quinte West's land use schedules identify environmental protection areas, provincially Significant Wetlands (PWS),and ANSIs. In regard to the inconsistencies between policies and land use schedules, the OPs of both Belleville and Quinte West are insufficient in identifying the seven natural features required in the provincial Policy Statement. The Bay of Quinte Restoration Council has mapped areas of significance in these two municipalities which will be incorporated into the OPs.

Compared to the OPs of Belleville and Quinte West, the OPs of the County of Hastings and the Muncipality of Prince Edward County are more specific in identifYing natural features. The County of Hastings' land use schedules identifY environmental protection areas as well as environmental sensitive areas, significant wetlands and cold-water fisheries. The most comprehensive and complex schedules amongst these four OPs are the Prince Edward County ones as they identifY various natural areas, including ANSIs, PSWs, wildlife areas, environmental protection areas, lake watersheds, and escarpments. In this regard, the OP of Prince Edward County is the one that adheres to the full scope of natural heritage as identified in the provincial Policy Statement. Although Prince Edward County has not identified valleylands and woodlands, it has identified locally significant wetlands, which is beyond the Provincial Policy Statement

- 23 - Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quinte requirement. This is also true for the County of Hastings OP.

4.2.3 The Level of Protection given to Natural Heritage - using provincially SignificantWetlands (PSW) and the adjacent lands as an indicator

The provincial Natural Heritage Policy specifies that PSW are category I lands where no development is allowed. The province also recommends an adjacent width of 120 metres where development of site alteration is permitted provided there are no adverse impacts on the features or its ecological functions. Each of the four OPs however, differs in its application of the provincial Policies: • Belleville states that no new development can occur within, or immediately adjacent to, PSWs (excluding established agricultural activities). • Quinte West does not prohibit new development or site alteration ofPSW. This does not meet the provincial legislation. Quinte West also permits, with an Environmental Impact Statement (EIS), new development within 90 metres of the PSWs, a width 30 metres less than that recommended by the province. • The County of Hastings does not prohibit new development or site alteration in any wetland and will only permit new development or site alteration within 120 metres of a PSW with and environmental impact statement (EIS) study that show no adverse impacts. Four landuses are permitted in wetlands. These are open space and open air recreation, conservation uses, uses of a scientific and educational nature and establised agricultural use.

o The Prince Edward County OP prohibits development within PSWs. In addition, any development within 40 metres of a PSW, which is short of the provincial Policy Statement by 80 metres, requires an EIS. In other words, the OP permits development in the areas between 40-120 metres adjacent to PSW without an EIS to investigate whether it will have any adverse impacts on the ecological functions of the wetland. From the above analysis, we can see that the Belleville OP has the highest level of protection of PSWs. The other OPs do not meet the provincial requirements.

- 24- Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quintc 4.2.4 Policies that address specific land use planning tools for natural heritage strategy

The four OPs have various land use planning tools to protect natural features. For instance, thc City of Belleville OP may acquire and hold lands for the purpose of protecting natural heritage features. In the Quinte West draft OP, site plan control is used to protect natural physical features and reduce the development impacts on the natural environment. Moreover, the County of Hastings OP encourages a tree cutting by-law, while Belleville has proposed a tree and forest management by-law. Also, the County of Hastings has special policies to address the need of integrating development with environmental protection. The County of Hastings also requires any development within 300 metres of a lake to conduct both an EIS and a lake capacity study. Prince Edward County OP encourages lake management plans, reforestation strategies, remedial works and stormwater management. Prince Edward also recognizes development control techniques, such as parkland dedications and subdivision to preserve resources.

The above tools are regulatory-based. They are good in terms of enforcement and defining responsibility clearly, however, sometimes land use policies can cause public resentment when introduced without public participation. Further, it may be argued that the regulatory approaches lack flexibility. By looking at the implementations tools and examples from other areas we provide in the report, (6.0 IMPLEMENTATION TOOLS) and (7.0 IMPLEMENTING NATURAL HERITAGE PROTECTION IN OTHER AREAS) municipalities can assess and determine appropriate land use planning and other tools to protect natural heritage in the Bay of Quinte.

4.2.5 Consistency among various policies

On the land use schedule of the Quinte West draft OP, there are some areas under the Aggregate Resources designation that overlap with Environmental Protection areas (Schedule A). This inconsistency might cause conflict between the protection of natural features and pit and quarry operations. Also, there is overlap between Agricultural lands and Aggregate Resources land, as well as overlap between Wetlands and Agricultural lands. Furthermore, Schedule A is not consistent with Schedule D because many wetlands areas shown on Schedule A arc not on Schedule D.

It is important to ensure that there is no conflict between any two policies in the OP. Conflicting policies within the OP can undermine natural heritage protection and can lead to conflicting land use appeals. The municipalities in the Bay of Quinte AOC should be aware of this danger and

- 25- Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quinte recognize that the success of a natural heritage stratcgy depends on consistent environmental policy within an OP.

4.2.6 An emphasis on public consultation

It is clear from our intervicws with stakeholders in the Bay of Quinte area that there is a strong desirc for ongoing public consultation. Both the OPs of Hastings and Belleville emphasize cooperation with local conservation authorities, the Bay of Quinte Restoration Council, and provincial ministries. This consultation is not extendcd to individual landowners, industries and general public other than through public meetings. The City of Quinte West has put more emphasis on public consultation in the development of its draft OP. This draft identifies the following objective:

". .. to encourage the general public and the private development industry to participate in the co-ordination and implementation ofsound management initiatives and practices as they relate to the identified natural environmental features of the City ofQuinte West" (Quinte West)

The Prince Edward County OP however, places a greater emphasis on public consultation in regard to both the encouragement of public consultation with multiple public authorities and of community-based approaches to preserving natural areas. This OP states:

"". Council recognizes that the Official Plan alone cannot guarantee the environmental health of the community, that private stewardship of land, incentive programs, community based actions, and public education will go even further in the proper management of the environment" (prince Edward County)

Within Ontario's land use mechanism, it is the municipalities' responsibility to update their OP at least every five years and it is the public's responsibility to participate and provide input into the review process. The earlier the public are involved, the higher is the likelihood that the natural heritage strategy will be appropriate for the area and will be supported in the new OP.

The technical studies, such as GIS mapping, will provide a basis for discussion on the mapping of schedules. This gives an opportunity to engage in a consensus building process focussed on; 1. which areas should be identified as significant natural features given the evaluation criteria used, 2. what policies of protection should apply to such lands, and

- 26- Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quintc 3. how should those policies be weighted amongst other policies in the OP?

In the review of the four OPs, Prince Edward County makes reference to a relatively large number of community-based approaches as alternatives to the regulatory based approach in its OP. This gives a better basis for consensus building around environmental issues.

At the same time as the legislative/policy led initiatives are being implemented in the Bay of Quinte AOC there are many active community groups in the region. Wc think these community activities are as important and valuable as the regulatory approach. We hope the following section (5. NATURAL HERITAGE INITIATIVES IN THE BAY OF QUINTE AREA OF CONCERN) will help convey why we feel local stewardship and education initiatives are an integral part of successful natural heritage strategies.

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quinte 5.0 NATURAL HERITAGE INITIATIVES IN THE BAY OF QUINTE AREA OF CONCERN

Municipalities, conuuunity groups, landowners and industries in the Bay of Quinte watershed have all shown an interest in preserving and enhancing the natural environment. The purpose of this section is to highlight some of the local projects and activities geared to the protection of natural heritage.

The following table outlines examples of various projects that have already been carried out, and that could potentially be incorporated into a Bay of Quinte natural heritage strategy. Existing initiatives have been divided into eight categories: Official Plan, research, school programs, industry, financial incentives, public land ownership, land stewardship and public education. The table also highlights some ofthe organizations that have been involved in environmental initiatives. This list is not intended to be exhaustive, but rather to provide a background of the wide array of activities that are taking place.

Although the concept of an overall natural heritage strategy is still relatively new, members of the Bay of Quinte public have been active in preserving natural features through various conuuunity­ based initiatives for many years. Some of these activities have evolved out of the RAP process, others have stenuued from a collective environmental conscience. While their efforts may not have been referred to as natural heritage preservation at the time, in many cases that is exactly what the conuuunities did; they protected the natural heritage of the Bay of Quinte area.

- 28 - Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quinte Table 2: Existing Natural Heritage Initiatives in the Bay of Quinte Watershed Approaches IProjects Local Actors I Official Planl- Updating tile Official Plans to meet • Hastings County (draft OP) • Prince Edward . I~rovincial Policy Statement and local County (approved 1998) • Belleville (draft OP) , mterests • Quinte West (draft OP) • Conservation authorities, local federations of agricuitore, stewardship councils.

Research & • RAP series reports I' Bay of Quinte Restoration Council. Studies i • Developing criteria for natoraI heritage I- Quinte Conservation' Lower Trent Conservation strategies 'ldentif)ing and mapping I' Ontario Ministry ofNatoraI Resources natural heritage areas 'Studying . watersheds and ecosystem , Studying habitats, Participating in - Quinte Watershed Cleanup Inc (QWC) • Ducks provincial programs such as Forest Bird Unlimited' Quinte Field Naturalists • Prince Monitoring, Marsh Monitoring Project, Edward Field NatoraIists and tile Ontario Nocturnal Owl Survey School • Schoolyard naturaIization ' Y outil tree - Local schools' Hastings Stewardship Council Programs planting· School enviromnental projects • Prince Edward County Stewardship Council • Frontenac Stewardship Council' QWC

Industry I • Putting public pressure on industries to • Quinte Watershed Cleanup Inc (QWC) -Ontario Icomply "With minimum discharge Ministry of the Environment standards I' Euvironmental farm plan - Program to • Stewardship Councils' Hastings Federation of promote liquid manure storage • Agricuitore Providing \. Wetland Habitat Fnod • Encourage • Stewardship councils' Financial incentives rmancial landowners to complete conservation plans provided by Wildlife Habitat Canada • Bay of Quinte incentives on wetlands • Buffers along streams • Restoration Council Rural Water QnaIity Program I Public • Acquiring conservation areas • Arrangingl· Quinte Conservation' Lower Trent Conservation ownership of conservation easements· Shoreline i • Hastings Prince Edward Land Trust land naturalization' Accepting donations of I lands and funds i Land - Tree planting programs' Educational • Restoration Council' Stewardship councils stewardship workshops - Forest Recovery Assistance • Hastings Prince Edward Land Trust ' Ducks Programs , Watershed stewardship • Unlimited Landowner Resource Directory • Newsletters to landowners • Trenton Woodlot Conference - Stream restoration 'pn'!iects' Volunteering programs Public ' Environmental education kit ' Quinte ' Frontenac Stewardship Council' Hastings education & Wild Life Forum' Beaver Forum • Stewardship Council' Quinte Conservation' Quinte outreach Outdoor Programs' Bluebird Nesting Field Naturalists' QWC' OUR WATER Box ProgramlBird count, Maintaining I trails • Newsletters, pamphlets ' Guest I speakers' Librarv Information Packages

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay ofQuinte Our conversations with various stakeholders revealed that natural heritage strategies are perceived as legislative policy that is forced on them and to which they must conform. These stakeholders and their activities, however are an integral part of a natural heritage strategy. It is important we reinforce the idea each effort directed toward the preservation of natural heritage contributes to the overall health of the region. Community-based activities provide an opportunity to educate the public at a hands-on level. Moreover, community-based organizations have the ability to target specific individuals, specific groups of individuals, or specific geographic areas, in order to disseminate information. All stakeholders must pool their efforts in order to develop thc most effective and efficient natural heritage strategy for the Bay of Quinte area.

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quintc 6.0 IMPLEMENTATION TOOLS

So far, the concept of natural heritage strategies in the Bay of Quinte context has been introduced. This has occurred through the definition of natural heritage and natural heritage strategies, an examination of the relevant federal guidelines, provincial and municipal policies, and a review of the current approaches to natural heritage protection in the Bay of Quinte. The following section explores a series of implementation tools relevant to the development and implementation of a natural heritage strategy in the Bay of Quinte. The intention is to illustrate concrete ways in which a natural heritage strategy can be transformed from theory to practice. We think no single implementation tool should be used to the exclusion of all of the others. This summary should assist those responsible for a natural heritage strategy to select the combination of tools that will best serve the Bay of Quinte area. Figure 1 in Appendix A illustrates the relationship between the technical and the socio-political aspects of developing a natural heritage strategy, and Figure 2 in Appendix A illustrated the relationship between the various implementation tools.

The tools are discussed individually, with an assessment of the advantages and disadvantages of each, and their applicability in the Bay of Quinte AOe.

6.1 Awareness Based Tools

6.1.1 Public Participation

Public participation is an essential part of the planning process. Numerous examples show that simply instructing the public about decisions that have already been made usually meets with resistance and in tum results in the end of many good ideas. This resistance often results from either the public's misunderstanding of the intent and results of official decisions, or from misinformed official decisions that have simply not incorporated the input of the public.

Public participation can be divided into two major types: education and input. Firstly, public education can take a variety of forms. These forms may include open houses, public or town hall meetings, focus groups, and the distribution of literature, including how-to manuals and toolkits that educate the public about the local environment. This type of public participation is intended to provide the public with a detailed understanding of the basis of, and justification for, new

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quinte measures, and the anticipated effects of thesc measures. The second type of public participation is public input. This fonn of participation includes the surveying of public opinion and the involvement of the public in the development and implementation of new measures. The intent of this type of public participation is to make the public's multiple points of view an integral part of the process, rather than limiting them to dissenting voices once decisions have been made or measures have been implemented.

Officials should be open to learning from the public. They should take public input seriously and reevaluate their proposals in the face of legitimate public concerns. Public input can be successfully accommodated through consensus building which is discussed later. Ideally, public education and input should be used in tandem. Education is useful when the process is interactive and the public can have an real input.

It has been noted that it is a struggle to draw citizens into the planning process. The Prince Edward County Stewardship Council said that in tenns of their workshops, a significant number of those attending are already "doing things right". The struggle lies in getting those who are absent to attend, participate and to consider the infonnation that is being provided. Various methods, including targeted mailings, have been attempted to reach new participants directly. According to stakeholders, one sure way of getting a broader range of individuals to 'participate' is if individual land is threatened through policy or an enviromuental hazard. Only then will individuals who do not nonnally participate in the planning process get interested. Other suggestions have included making the connection between our specific behaviours and enviromuental degradation in an effort to make the issue 'real'. This gives an individual a sense of ownership of the problem and also conveys the benefits associated with rectifying the degradation, both of which may increase participation levels. Despite the current perccived lack of participation among some community members, many community members want to participate in the planning and development process and would like to understand planning processes.

Public participation has its best results when it is encouraged in the initial stages of plan making, and continues throughout the process of implementation. Furthennore, participation must reflect a genuine interest on behalf of municipal officials, in the public's understanding of the ideas presented and/or in the public's meaningful input into the plan making and implementation process. This usually includes beginning from basic concepts and using common language to ensure

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quinte that all affected parties can understand issues and communicate on their own terms. The facilitation of one-on-one discussions, question periods, hotlines, contact information and the availability of detailed information in busy community locations and on the Internet will enrich the process significantly.

The advantages of public participation are numerous. A better-educated public can make more informed decisions about all issues affecting the community, including environmental ones. Some members of the public will be motivated to apply their newly acquired knowledge and or skill, or be empowered by the process of providing input into community decisions, to effect changes of their own in the community.

Disadvantages of public participation campaigns are related to the occasions when the public is unresponsive to these campaigns and/or an effective dialogue with the public is not maintained. For example, stakeholders with whom we spoke suggested that the langnage of natural heritage protection is a barrier to participation:

"There is a lack of understanding of the terminology. For example, what is Valley land designation? What does it mean? Why is it needed? And what are the consequences of it?"

These situations, combined with the expense of such campaigns, have been used to argne that broad-based public participation is unnecessary. Some decision-makers, or people in positions of power, may be reluctant to support public participation insofar as they perceive public participation campaigns to be costly, time-consuming and unappreciated. However, an informed and empowered public will strengthen the development and implementation of the natural heritage strategy.

Public participation will enable the development and implementation of a natural heritage strategy to be reflective of the community's vision of natural heritage. For example, it has been suggested on many occasions that, however time consuming, speaking to landowners on an individual basis will address their needs and likely result in their support of the natural heritage strategy. In terms of public education, individual landowner consultation will also permit the resolution of misconceptions regarding development rights, and what it means to have a parcel of land zoned or designated as natural heritage.

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quintc In the Bay of Quinte AOC, public participation campaigns have been successful in the context of the Remedial Action Plan. Our team is convinced Public Awareness Tools are essential to the development and implementation of natural heritage strategies.

6.1.2 Consensus Building

Consensus building is a method of achieving successful coordination amongst stakeholders through a horizontal and self-managing process rather than a top-down exercise of power. As highlighted earlier, attempts to communicatc the importance of natural heritage protection through the' official' system may prove to be ineffective. Consensus building may help to redress this insofar as it is a method in which community issues are explored on a level playing field. All participants have common information and all parties become equally informed of the interests of the other parties. All discussions are open, and no decisions are made behind closed doors. Consensus building can take place on an informal basis; such as a discussion-based round table where options are presented and deliberated by participants. Consensus building can also exist in a more formal setting. One formal model of consensus building that could be explored in relation to a natural heritage strategy for the Bay of Quinte is a Consensus Conference.

A Consensus Conference is where a group of citizens invite a diverse group of professionals and others with relevant knowledge or experiencc regarding a particular issue. The citizens design a set of key questions for the professionals to address. Citizens are given background information, develop a set of key questions to be answered by the professionals, and then meet with a trained facilitator to decide on a set of policy recommendations based on the information presented at the conference. These recommendations are then considered in the creation of a plan, or through the development of relevant policy.

This model demands a commitment of time and energy on behalf of the participants, but offers a unique way of exploring different options for dealing with natural heritage strategy and involving members of the community. A Consensus Conference provides an opportunity for citizens to legitimately interact in the public participation process. Instead of waiting for a plan to be developed and presented to the public for reaction, representatives of the public arc solicited for participation at a very early stage in the planning process.

- 34- Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quintc There are many professionals who are currently working on various methods of natural heritage protection, and as such, a conference may provide an opportunity to explore new initiatives to develop an innovative and successful natural heritage strategy.

6.2 Fiscally Based Tools

Our research, and discussions with stakeholders, have shown us that fiscally based tools, such as grants and tax incentives, can be effective ways of encouraging and achieving behavioural changes in terms of enviromnental stewardship. The reader should note that the advantages, disadvantages, and overview of the grants and tax incentives have been merged in this section.

6.2.1 Grants

In discussions with stakeholders, we sensed a willingness on behalf of farmers to make changes to farming practices with the assistance of financial incentives. Grants have been used successfully in the Bay of Quinte AOC as a part of the RAP through the Rural Water Quality Program. The Enviromnental Farm Plan Program is another example, where farmers reviewed the operation of their farms. and were given grants of up to $1500 to do projects identified in their own farm plan.

In the future, govermnent grants (or .even grant monies acquired through fundraising) could be provided to many landowners, including farmers, to facilitate practices that conserve natural heritage. At the same time, the structure of grant programs must be carefully tailored so that available monies are made use of by the community.

We found grants are most effective when they cover a percentage of the cost of a given project, rather than being a fixed amount of capital.

6.2.2 Tax incentives

In many cases, stakeholders are often opposed to new measures for economic reasons. The stakeholder perceives that it is not in his or her financial best interest to deviate from their normal management practice because it appears to pose danger to their financial situation. Based on this premise, it is possible that tax incentives, of all implementation tools, may be the one of which

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quinte stakeholders or landowners are most supportive. Participants simply have to adhere to certain policies, which would link to the natural heritage strategy, and then receive a financial reward (or reduction in their taxes) for their actions. Certainly, if a stakeholder anticipates or gets a tangible benefit for their actions they are more likely to participate in a natural heritage strategy. Therefore, it is likely that tax incentives can help to motivate landowners to alter certain behaviours or practices.

Currently, the province of Ontario supports the Managed Forest Tax Incentive Program (MFTIP). This program requires interested eligible landowners with woodlots on their property to complete and follow a five-year Managed Forest Plan. The Managed Forest Plan contains information about the forest, the purposes of management, and the activities that will occur as a result of management. Upon approval, the property tax of this parcel ofland is then assessed at 25% of the municipal rate. Similarly, the Ontario government's Conservation Land Tax incentives Program (CLTIP) does not assess property taxes on Areas of Natural Science Interest (ANSI), Habitats of Endangered Species, and Provincially Significant Wetlands (PSW) so municipal taxes are not levied on those features. These programs require that landowners allow periodic property inspections by the province to ensure that these natural heritage features are being managed appropriately. Currently, the MFTIP and the CLTIP are the only existing tax incentive programs related to natural heritage conservation in Ontario.

We feel establishing municipal or regional tax incentive programs for the conservation of natural heritage will be attractive to a diverse group oflandowners. In terms of farmers, it is important to note that many are concerned that a natural heritage strategy could affect the tax exemption they currently receive for agricultural land. While this is unlikely, the issue will have to be resolved in the implementation phase of the natural heritage strategy. Nonetheless, in order to achieve more tax incentive opportunities, members of the community should consider lobbying all levels of government, which should in turn lobby other levels of government, for additional tax incentive programs. Overall, where support exists, the tool can effectively facilitate the implementation of a natural heritage strategy.

One advantage of financial incentives is they can often provide landowners with motivation to make changes to the way their land is currently used. Financial incentives are a tool that can be appreciated by the greatest proportion of the popUlation, and implemented with relative ease,

- 36- Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quinte given the centrality of economics to our daily lives.

An obvious issue is the availability of capital to provide for grants, and the replacement of tax revenues reduced through tax incentives. Participating governments will need to set budgets that account for the grant expenditures or reduced tax revenues. Cost is likely to be the greatest barrier to the creation of more financial incentives by government for the protection of natural heritage.

Firstly, the Ontario Government's Managed Forest Tax Incentive Program and the Conservation Tax Assessment can serve as examples or models for other government departments or levels of government. Governments may be more interested in these two implementation tools if they anticipate success, in this case the achievement of natural heritage protection, for as long as the programs continue to exist. In conclusion, both of these tools will be useful in the Bay of Quinte region in the presence of adequate funding. We envision incremental behavioural change occurring from the implementation of financial incentives.

6.3 Land Based Tools

6.3.1 Land Stewardship Initiatives

Land Stewardship Initiatives already exist in the Bay of Quinte area through the land stewardship councils, namely the Hastings Stewardship Council and the Prince Edward County Stewardship CounciL Recently created by the Ontario Ministry of Natural Resources across southern Ontario, the mandate of the stewardship councils is to assist members of the public in the conservation of privately owned land. Some of the councils' projects include landowner workshops on woodlot and wetland management, educational pamphlets, stream restoration projects and endangered species conservation. In addition, the councils work with the broader community on projects such as environmental school programs, demonstration projects, and community tree planting. There is no doubt that the stewardship councils are contributing greatly to the conservation of natural heritage in the Bay of Quinte region.

Other useful initiatives that are not currently a part of the LSCs efforts, but could be useful, include naturalization, sustainable agricultural and forestry practices, and the development of a database of landowners interested in stewardship. Marginal farmland and grounds surrounding larger private facilities might be strong candidates for natural heritage designation and protection.

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quintc Even if these lands are not currently identified as having particular natural heritage features, they could be enhanced to greater ecosystem functions by the actions of the groups like the stewardship councils. Natural heritage could be incorporated into sustainable agricultural and forestry practises. Also linking a data base ofland owners interested in stewardship with the data base including the GIS mapping exercise to define natural heritage significance, would provide centralized information for landowners to share experiences for more efficient natural heritage protection.

While the stewardship councils are effective agents of environmental change and rehabilitation on specific parcels of land, it is also useful to consider the concept of land stewardship as an implementation tool for natural heritage strategy by individuals and groups independent of the stewardship councils. This type of stcwardship will stem from public education. Ultimately, the intention of this education is to crcate critical awareness within the community regarding land use and the importance of natural heritage conservation. In tum, individuals and groups interested in protecting andlor enhancing a specific local piece of land can undertake stewardship initiatives on their own.

The advantage of land stewardship initiatives is that their success could reduce the need for more restrictive or legislative implementation tools. In addition, land stewardship initiatives are bound to create incrementalremental environmental improvement, and greater awareness. In other words, the intent of land stewardship is to encourage individuals to think about the impacts of their behaviour on natural heritage.

We enVlSlon the land stewardship councils playing a primary role in the development and implementation of a natural heritage strategy. This is based on that fact that the councils already interact closely with many landowners and are facilitating conununity projects. Moreover, stewardship councils may have the power to attract additional members of the public to natural heritage protection. As a result of the quality and quantity of the actions of the stewardship councils, we see the councils as an existing manifestation of the natural heritage strategy, in that the government, while coordinating community actions, creates them. We feel this coordination between government and community is a good model for natural heritage strategies, insofar as government and community actions are united. Our team feels that land stewardship in all its forms will be an integral part ofthe development of a natural heritage strategy.

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quintc 6.3.2 Public Ownership of Land

Public ownership of land can be an appropriate tool for the implementation of a natural heritage strategy when natural heritage has recreational value or potential, andlor when an unprotected sensitive natural area is threatened by development pressure. One example of the Public Ownership of Land is represented in the work of Conservation Authorities in Ontario. About 50 years ago, conservation authorities were created, and began to purchase important parcels of natural lands to be preserved for the enjoyment of present and future generations. These parcels are managed by the conservation authorities and have been designated as Conservation Areas for the benefit of the public, for scientific research and in some cases storm water management. Development is not permitted in Conservation Areas, aside from basic recreational facilities, such as interpretive centers, washrooms, and simple shelters. Projects akin to those supported by land stewardship councils are undertaken in the conservation areas, in an effort to promote their ecological integrity. Clearly, the actions of the conservation authorities have been successful iu relation to the protection and enjoyment of natural heritage in the Bay of Quinte AOe.

According to one stakeholder with whom we spoke, the conservation authorities could play a central role in the implementation of a natural heritage strategy. This individual suggested that if the community is interested in extending the conservation of natural heritage to privately owned lands, then a public authority, such as a conservation authority, should seek to purchase the land. In this case, the conservation authority would serve as the "gnardian" of the land, rather than investing all of the responsibility for protection and management in individual landowners. In this vision, public authorities would purchase areas containing natural heritage features. Recreational trails and facilities could be developed on some ofthis land.

It is not necessary, however, for conservation authorities to be the sole public owners of land. A variety of public bodies already own land, and may therefore be considered as stewards in the implementation of a natural heritage strategy: These are discussed below.

Firstly, the federal and provincial governments, respectively, are the largest landowners in Canada. While in many cases, these lands are owned for the purposes of resource extraction, it is possible that innovative solutions may be achieved in co-operation with these governments to protect these areas. The Ontario Living Legacy, Land Use Strategy (July 1999) identifies a number of significant - 39-

Natural Heritage Strategies: Conununity, Environment and the Planning Process in the Bay of Quinte areas in the Bay of Quinte Watershed as new Conservation Reserves.

Secondly, the provincial and National Parks systems are mechanisms through which natural heritage in conserved. A natural heritage strategy may be supported by the creation of more parks, or through the creation of a hierarchy of parks that could be protected by gradually increasingreasing levels of restriction on the activities and land uses that could occur therein.

Thirdly, while First Nations Reservations are under federal jurisdictions, consultation with First Nations' groups could further perpetuate a natural heritage strategy by examining their approaches to natural heritage protection. Co-operation with First Nations could also provide lessons in land stewardship for the Bay of Quinte.

Finally, utility corridors, abandoned roads or railways, unopened public rights of way, and grounds surrounding larger public facilities, such as hospitals or schools, are sites that might be suitable candidates for natural heritage designation. Therefore, it will be useful to contact the owners of these types oflands regarding involvement in the development and implementation of a public land ownership program.

One advantage of the public ownership of land is that members of the community can participate in the management ofthe land for the long term. Also public ownership may alleviate the pressure on individual landowners to manage their land for natural heritage, if it is beyond their means.

Landowners may be unwilling to "hand over" land to public authorities in the name of natural heritage protection. At the same time, any transfer of land to public ownership may require large amounts of capital, which is largely unavailable in the context of current government priorities and the downloading of provincial responsibilities. In the region of Hamilton-Wentworth, the public purchase of lands for natural heritage strategies was expected to involve an average cost of $1 ,500 to $3,000/acre, which illustrates how expensive this transfer of land can be. Lastly even if local governments support this implementation tool it is possible that priorities may change in the face of economic, resource extraction andlor development pressures, resulting in these governments turning their back on natural heritage conservation.

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Natural Heritage ~trategies: Community, Environment and the Planning Process in the Bay of Quinte Public ownership of land can be useful in the presence of government, conununity, and/or private landowner support as well as available capital. There needs to be an acquisition and fundraising plan for public land for the region. However, our team is not convinced of the applicability of this tool in regard to the public purchase of privately owned land. However, we feel that it will be useful to pursue governments and public agencies, as the owners and users of lands, that may be good candidates for incorporation into a natural heritage strategy as protected parcels of natural heritage managed by certain agreed upon policies. In addition, conservation authorities should remain active in the incremental transfer of natural heritage to public ownership, wherever possible.

6.3.3 Land Easements and Management Agreements

Another tool to be considered for the implementation of a natural heritage strategy is the Conservation Easement. This tool is useful for the protection of medium sized natural areas and for small individual private properties. The easement is a voluntary, and legal agreement between a private landowner and a government or other non-governmental body, such as a Land Trust. Together, they agree to manage a piece of land in an environmentally sustainable way. Central to the idea of easements, are the financial incentives (i.e. in terms of tax breaks, grants or other compensation) that the landowner might look forward to when the land is donated. While any level of government can enter into an easement, those most likely to administer conservation easements include municipalities and conservation authorities. However, in many cases a land trust, as a private, non-profit corporation whose goals include acquiring and monitoring the use of land for conservation purposes, is the most appropriate body.

The major advantage associated with using conservation easements is their voluntary nature. The prospective easement holder, rather than imposing a regulation as done through zoning, can encourage the landowner to participate by explaining the potential benefits of the initiative. Thus, the availability of appropriate incentives (tax reductions in particular) is important to the private property owner's decision. Another advantage of this tool is that each agreement can be tailored to allow for the specific qualities of a piece of land and the needs of landowner. In this regard, the potential easement holder or land trust has a crucial role to play in bringing flexibility to the implementation of a natural heritage strategy.

The mam disadvantage of land easements IS linked to their administration. In Canada, the

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quinte administration of an easement is not simple, in that there are few existing examples and unclear legal specifications. Canadian courts and tax tribunals are generally reluctant to grant tax reductions for conservation easements under these circumstances.

Experience in the U.S. suggests that many landowners are more comfortable donating land to a private, nonprofit organization such as the land trust, rather than to a unit of government since it is feared that the government may decide to change the land-use at any time. Whether a single land trust is used for the Bay of Quinte watershed, like the Hastings Prince Edward Lands Trust or one for each municipality, the key to their success would be in the clarity of the property tax statute that guides the valuation of lands subject to easements. Also, the successful land trust rewards donors for the increase in the value of adjacent land as a result of their preservation effort. Conservation easements are now beginning to be more widely used in Ontario and land trusts and conservation authorities will be keen to tap the full potential of this tool. Recent provincial property tax incentives should be communicated to prospective easement donors and land evaluated so as to ascertain their eligibility for participation in the available programs.

Finally, an easement does not have to exist forever in order for the landowner to receive financial benefits. This initiative can enable the community to buy time as they decide the evolving structure of their future landscape. As the landscape changes, easements can be released and new forests or naturalised areas adopted, so as to maintain a continuing balance between the developed and natural areas.

6.4 LegislativefPolicy Based Tools

6.4.1 Official Plan Policies and Zoning By-Laws

Official Plans (OP) and Zoning By-laws are addressed because there is a need to incorporateorporate the natural heritage strategy into the municipal planning process. While the provincial Policy is clear in that its policies regarding provincially Significant Wetlands and ANSls, the identification and protection of locally significant woodlands and valleylands has been left in the hands of municipalities. Given that the OP and zoning-bylaws are the primary tools of the traditional planning process, many people may feel that in order for there to be a guarantee of an effective natural heritage strategy, lands that have been identified for protection must be enshrined in municipal law. On the other hand, some people may feel that an OP and re-zoning approach is

- 42- Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quintc too restrictive. For this reason the identification of acceptable policies should emerge from a community consensus building process. If consultation with the community is to be meaningful, it is necessary for involved parties to communicate to each other the reasons for, and nature of, their concerns. Such consultation is already happening in the Bay of Quinte AOC as demonstrated by the development of the OP in Quinte West. The development of this OP has included continued communication and consultation with the Agriculture Liaison Committee; a committee representing farmers in the area. Planners consult the committee for input in the design of the OP policies that will affect farmers. A member of the Liaison Committee described her experience when farmers and planners sit down together through the construction of the draft OP:

N ••• all views were taken into consideration, but naturally all of them could not be reflected in the OP. We co-operated... at least the farmers had the chance to explain their position to the planners and vice versa. At least we understood why certain decisions were made. "

Generally speaking, including the goals of a natural heritage strategy in the Official Plan will help to guide planners and potential developers in adhering to the public's vision for the community's future. The ability to providc a legally supported definition of what must be done makes it easier for municipalities and other interested parties to defend a decision against development proposals that are perceived as environmentally unsustainable.

The major disadvantage of using the OP for implementing a natural heritage strategy is that the goals as stated in the plan may not represent the wishes of the entire community. When this happens, and people are prevented from changing the land-use on their property they can challenge the decision before the Ontario Municipal Board (OMB). Board hearing can be time consuming and expensivc, and the decision of the OMB might not always in the best interest of environmental protection. The other often cited disadvantage is that OP policies, schedules and land use maps are too static and do not account for changes in the environment, increased understanding of thc environment, new technology, new practices, changing economic factors, and development pressures. Certainly, OP and zoning by-law policies should be monitored, reviewed and updated.

- 43 - Natural Heritage Strategies: Conununity, Environment and the Planning Process in the Bay of Quintc 6.4.2 Transfer of Development Rights

The 'Transfer of Development Rights' (TDR) is one mechanism to assist in meeting the objectives of the natnral heritage strategy, and is discussed in this report since it can be used to protect very large natnral areas. Simply stated, TDR is taking away some of the things you can do on one property; for example residential development, and adding it to the amount of residential development that would be normally allowed on another property. In this way TDR promotes compact development in one area and less development in other areas.

There are three basic elements to a TDR program: the sending district, the receiving district, and the TDR credits themselves. The sending district (e.g. woodlands, forests, undeveloped waterfronts etc.) consists of the area from which the right to develop is given up. The receiving district (e.g. inner-city, towns, areas around the boundaries of cities) is the area that buys those rights that were given up, and adds them to the development density that they already have. The TDR credits represent the development rights of a sending district, which will be sold and added onto the property in a receiving district. Ultimately, the biggest challenge in implementing a successful TDR program, is inspiring participation and active trading in the buying and selling of the TDR credits.

The advantage of using TDR is that the policy can be applied consistently to protect very large areas from development. While TDR does this, it also provides the opportunity for financial compensation to the landowner whose right to development, according to zoning specifications, was removed. Since the buying and selling ofTDR credits would occur among private landowners and developers the municipality will incur minimum cost and may only be required to play a regulatory and/or administrative role.

While the factor of financial compensation is good for TDR there might be a legal challenge to taking away the rights from property owners to develop their property. This happens when there is little or no demand for the purchase of the development rights or TDR credits. Because of the large size of the areas involved in a TDR program, implementing one can be controversial. For example, when an area to be protected crosses several municipal boundaries controversy may arise over where the sending and receiving district boundaries should be located.

- 44- Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quinte The first step in creating a TDR program is the identification of areas to be protected. In the case of the Bay of Quinte AOC this may be most applicable to large areas identified for protection in the watershed. It will be important for those people who would be affected by the program to understand thc program's goal and to agree on the need to take action. If the community cannot agree on the necessity of a TDR program, they will not support it.

In addition to clearly defining the goal of the preservation effort, the community must be educated around the program's operation. The TDR credit itself should be clearly defined in terms of the amount of extra development that it would allow. An important factor influencing the success of a TDR program is the amount of issues other than property rights that the program must accommodate. For example, in the case of the Bay of Quinte AOC there might be a lot of physical development potential or land but the determination of whether there is enough development pressure so as to create a market for the property rights or TDR credits is questionable. The other major factor to be considered in the Bay of Quinte watershed is the number of jurisdictions that will be involved in the program. Since a unified effort is required to adequately preserve the objective of the program, municipalities, counties, and even provincial agencies may have to cooperate in the program.

6.4.3 The Development Control Process

The development control process can be seen as an effective tool to help with the incorporationorporation of natural areas within land development. Development control guidelines begin with the existing natural areas. Trees, hedges, creeks, woodlots and natural topography form the basis for the subdivision desigu, and to the greatest extent possible, the physical structures are built around these natural features. The outcome of using development control guidelines such as these, is the creation of larger and more natural subdivisions that include woodlots, wetlands, and other natural areas. These subdivisions can make use of these natural features to compliment the existing infrastructure and reduce related servicing costs. Wetlands, for example, can be used to help treat stormwater and urban runoff.

The principle benefit of this approach is that it allows development to proceed, while at the same time ensuring that important natural features are preserved. Increasingly, it is being realized that the value of property in these types of developments are higher than normal because of the 'slice

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quinte of nature in the backyard'. This realization can motivate othcr landowners to participate in habitat preservation activities.

When using this approach it is important to consider who will be responsible for the management of the natural areas after development. In the case that these natural features occur on private property, tax incentives and/or grants can be offered to the landowner for taking on this responsibility. In other cases, the developer may be given the choice of selecting between the municipality, a conservation authority or a land trust to take care of the retained or natural areas. For residential subdivisions, a good option would be to give this responsibility to a homeowners' association.

Development control and the conservation of large natural areas and linkages in the Bay of Quinte watershed may have to be prescriptive. As such, these policies might be best received if they are targeting the less developed part of the watershed. The subdivision control procedure discussed in this section may be applicable to the edge of urban areas, rural areas, hamlets and agricultural areas.

6.4.4 Cluster (or Open Space) Zoning

This land use tool is examined in relation to areas where there is a strong commitment for land conservation, for example, in rural areas that are working towards the preservation of rural aesthetics. Cluster zoning allows for the same number of houses on a site as does conventional zoning, however, it is different in that it specifies smaller individual lots while the remainder of the land is kept as open space where houses can not be built. Conventional zoning ordinances in rural areas typically specifY low density. This low-density can spread out development in such a way that the interaction of natural habitats is disrupted.

One teclrnique of sensitizing local residents and officials about the long-term result of using conventional zoning and subdivision regulations rather than clusters is through the use of a Build­ out Map. This map should show the probable location of new roads and houses that could legally be constructed in the future on the vacant land remaining within the municipality. Since many people assume existing zoning adequately protects their town, a build-out map, by graphically showing what could occur, can greatly assist in promoting a cluster zoning strategy.

- 46- Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quinte Unlike TDR, cluster zomng is easy to administer, since its success does not depend on the presence of development pressure. With cluster zoning, development proceeds while there is also the opportunity to permanently protect a substantial portion of the natural areas on each tract of land. Cluster zoning does not require large public expenditures to purchase development rights and it allows farmers and others to extract their rightful equity without seeing their entire landholding being undermined through an excessive loss of property rights. By clustering development the cost of building roads and, if applicable, water and sewer lines is reduced. Local governments may also save on services such as snow plowing and on periodic road re-surfacing.

A concern may be raised is that cluster zoning will not blend in with a town's rural character. Recognizing this potential problem, communities are now requiring that new cluster plans consist of only detached, single family homes, each set on their own, down-sized individual lot, roughly resembling a traditional village pattern. This also ensures that everyone will have their own yard space, in addition to the larger open space and natural areas that the cluster approach creates. A second potential problem with cluster zoning is that conflicts may arise between new residents and existing agricultural practices. Communities may require that the developer separate new development from farmland by use of existing woodlands. Where it is not possible to use existing woodlands for this purpose, officials can require new buffer or separation areas to be planted using a variety of growing native trees and shrubs.

Cluster zoning, as an implementation tool for a natural heritage strategy, should be considered primarily for the rural areas in the Bay of Quinte AOC. Under conventional planning practice the existing natural landscape would continue to evolve into a checkerboard and ribbon or linear pattern of houses. Unless local regulations specifically require the natural areas on a lot to be at least a certain size with specific minimum dimensions, the overall natural landscape can end up being a long narrow strip of trees standing at the back of each property and around the lot's outer edges. This may be avoided by amending the ordinance so that lots and roads shall not cover more than, say a fixed percentage of a lot, and that at least half of this area must be shaped so that they compliment the objectives of a Bay of Quinte AOC natural heritage strategy.

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quinte of nature in the backyard'. This realization can motivate other landowners to participate in habitat preservation activities.

When using this approach it is important to consider who will be responsible for the management of the natural areas after development. In the case that these natural features occur on private property, tax incentives and/or grants can be offered to the landowner for taking on this responsibility. In other cases, the developer may be given the choice of selecting between the municipality, a conservation authority or a land trust to take care of the retained or natural areas. For residential subdivisions, a good option would be to give this responsibility to a homeowners' association.

Development control and the conservation of large natural areas and linkages in the Bay of Quinte watershed may have to be prescriptive. As such, these policies might be best received if they are targeting the less developed part of the watershed. The subdivision control procedure discussed in this section may be applicable to the edge of urban areas, rural areas, hamlets and agricultural areas.

6.4.4 Cluster (or Open Space) Zoning

This land use tool is examined in relation to areas where there is a strong commitment for land conservation, for example, in rural areas that are working towards the preservation of rural aesthetics. Cluster zoning allows for the same number of houses on a sitc as does conventional zoning, however, it is different in that it specifies smaller individual lots while the remainder of the land is kept as open space where houses can not be built. Conventional zoning ordinances in rural areas typically specify low density. This low-density can spread out development in such a way that the interaction of natural habitats is disrupted.

One technique of sensitizing local residents and officials about the long-term result of using conventional zoning and subdivision regulations rather than clusters is through the use of a Build­ out Map. This map should show the probable location of new roads and houses that could legally be constructed in the future on the vacant land remaining within the municipality. Since many people assume existing zoning adequately protects their town, a build-out map, by graphically showing what could occur, can greatly assist in promoting a cluster zoning strategy.

- 46- Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quintc Unlike TDR, cluster zomng is easy to administer, since its success does not depend on the presence of development pressure. With cluster zoning, development proceeds while there is also the opportunity to permanently protect a substantial portion of the natural areas on each tract of land. Cluster zoning does not require large public expenditures to purchase development rights and it allows farmers and others to extract their rightful equity without seeing their entire landholding being undermined through an excessive loss of property rights. By clustering development the cost of building roads and, if applicable, water and sewer lines is reduced. Local governments may also save on services such as snow plowing and on periodic road re-surfacing.

A concern may be raised is that cluster zoning will not blend in with a town's rural character. Recognizing this potential problem, communities are now requiring that new cluster plans consist of only detached, single family homes, each set on their own, down-sized individual lot, roughly resembling a traditional village pattern. This also ensures that everyone will have their own yard space, in addition to the larger open space and natural areas that the cluster approach creates. A second potential problem with cluster zoning is that conflicts may arise between new residents and existing agricultural practices. Communities may require that the developer separate new development from farmland by use of existing woodlands. Where it is not possible to use existing woodlands for this purpose, officials can reqnire new buffer or separation areas to be planted using a variety of growing native trees and shrubs.

Cluster zoning, as an implementation tool for a natural heritage strategy, should be considered primarily for the rural areas in the Bay of Quinte AOC. Under conventional plarming practice the existing natural landscape would continue to evolve into a checkerboard and ribbon or linear pattern of houses. Unless local regulations specifically require the natural areas on a lot to be at least a certain size with specific minimum dimensions, the overall natural landscape can end up being a long narrow strip of trees standing at the back of each property and around the lot's outer edges. This may be avoided by amending the ordinance so that lots and roads shall not cover more than, say a fixed percentage of a lot, and that at least half of this area must be shaped so that they compliment the objectives of a Bay of Quinte AOC natural heritage strategy.

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quinte 7.0 IMPLEMENTING NATURAL HERITAGE PROTECTION ELSEWHERE

In exploring what communities outside of the Bay of Quinte AOC have done around natural heritage it quickly became apparent that there exists a broad range of activity occurring in the name of natural heritage protection. Much like environmental initiatives in the Bay of Quinte, many of these natural heritage activities occur in the absence of a formal natural heritage strategy enshrined within a municipal or regional OP.

Given this notion, it would seem that the most effective way to create, implement and eventually entrench a strategy within an OP, is to develop a set of policies that reflect the character of existing stewardship initiatives (e.g. community based). Moreover, it would be useful for natural heritage policies to provide guidance on sustaining community environmental initiatives in the long term. Ultimately, the natural heritage strategy, as a section within an OP, should not be promoted as a 'stand alone' instrument to protect natural heritage. Rather, the strategy would serve as a legislative complement to grassroots and publicly initiated conservation and preservation projects within a region. Clearly, the wording of a natural heritage strategy within a municipal or regional official plan must include the directives of the provincial policy statements, however the strategy must also reflect the community's perceptions about the land's value; this includes environmental goals and priorities.

The following discussion of natural heritage protection initiatives attempts to document some innovative tools and projects in Ontario, the United States, Australia, the United Kingdom and Ireland. We have selected these initiatives based on stakeholder discussion regarding potentially relevant approaches to natural heritage conservation in the Bay of Quinte Area. Ultimately, some of the following ideas may prove useful as complements to existing projects in the Bay of Quinte AOC. While some of the initiatives that follow have occurred in the Bay of Quinte AOC the discussion here will hopefully offer some further insight into potential 'next steps' and/or serve as information sources for local actors. It should also be noted that these projects are discussed as potential guidelines, and given different planning and legislative contexts they may require tailoring to suit the Bay of Quinte's goals and objectives. This is particularly true for the international examples.

- 48- Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quintc 7.1 Land Trusts

One mechanism to protect environmental areas (that might otherwise be pressured for development) is the acquisition of lands to be held in trust for present and future generations. Many municipalities have hand trusts, however some have been morc successful than others in generating public interest and in negotiating agreements with private landowners. The following section will outline a successful land trust in Seattle, Washington, U. S.

7.1.2 The Cascade Land Conservancy, Seattle

The Cascade Land Conservancy (CLC) in the Puget Sound Area of Washington State has met marked success in encouraging natural land preservation through the promotion of a "land ethic". Ultimately, the CLC advocates a philosophy that places a value on land for public open space, wildlife habitat, and the enjoyment for future generations. Moreover, this philosophy acknowledges the regional economic benefits to the preservation of natural areas, as well as potential economic benefits to individual landowners via tax incentives. The CLC works in partnership with individuals and groups who are committed to land preservation and environmental conservation. In addition to offering educational programs throughout the Puget Sound Area, the CLC involves landowners in the process of creating the design of stewardship programs to protect natural heritage features.

The CLC works with individual property owners, community organizations, private land developers, and local jurisdictions to assist in securing and implementing conservation plans. These conservation plans may involve environmental easements, donation of land parcels, and donations of funds to preserve properties. The CLC negotiates land donations from private landowners to a land trust or government agency. Property owners may donate their entire interest in their property, or partial interest via a conservation easement. Agreements often enable a landowner and other named persons to continue living on donated property during their lifetimes.

In addition to the donation of lands, the CLC also seeks to purchase properties that are environmentally significant at either market value or via 'bargain sales'. 'Bargain sales' often involve tax incentives for the seller, and ultimately increase the possibility of purchase by the trust or government agency. Since its establishment the CLC has negotiated land trust agreements spanning over 2000 acres in the Puget Sound area. Lands include: former rail corridors, wetlands,

- 49- Natur-al Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quinte shorelines, uplands and woodlands.

7.2 Land Conservation Agreements

Land conservation agreements provide an opportunity for a landowner to work with a conservation agency to develop an individual land managcment/conservation plan. These agreements enable a landowner to retain control over land use decisions, while at the same time adopt a leadership rolc in environmental stewardship.

7.2.1 Landcare Australia

This program is an offshoot of a federal initiative in Australia called the "Natural Heritage Trust". The program, which involves approximately 5000 locally organized Landcare chapters across the country, was initially founded with the aim of balancing agricultural productivity with nature conservancy. Members agree to manage their land in a manner that is consistcnt with the Natural Heritage Trust's goals for environmental conservation and protection. Landcare groups, with the assistance of conservation agencies, draft proposals for funding of stewardship initiatives. Approved proposals receive funding from the federal Natural Heritage Trust.

The Centralian Land Management Association, established in 1988, is the Northern Territory's oldest "Landcare chapter and has a membership representing 300,000 square Jan. of pastoral land. Farmers in this area have engaged in tree planting initiatives on their individual properties to stern soil loss from erosion, tunnel erosion, and stream bank erosion. Some farmers have alternately retired some parts of their land from grazing in an effort to stabilize the soil.

7.3 Stewardship Projects

Stewardship may be thought of as an umbrella term for many of the local level environmental initiatives that assign responsibility and accountability for environmental health to communities. Stewardship projects include: school environmental programs, management plans, and environmental restoration projects. The following offers a small sampling of innovative stewardship initiatives emerging from both the grassroots and government.

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quintc 7.3.1 School Programs

7.3.1.1 Waterloo Region Orchestrated by the Waterloo Stewardship Network, school children in Elmira and New Hamburg have participated in the "Community Forest Program". The program, developed in Haldimand County, was initiated in response to the need for continued tree planting to increase a much reduced forest cover, and in an effort to compensate for a lack of native plant material from local seed sources. Students, in tandem with Waterloo-Wellington Woodlot Owners Association members, regional councillors, Grand River Conservation Authority staff, and a variety of volunteers collect tree seeds in the fall. The seeds are then stored and stratified at a local nursery and are later sown in seedling trays by the students. When the saplings are ready for planting they are distributed to community groups for planting. Trees from the "Community Forest Project" have been used to help naturalize municipal lands, to create buffer strips around streams and wetlands, to link wooded areas, and to create windbreaks to reduce soil loss and improve habitat.

7.3.1.2 Queensland, Australia In relation to the "Landcare" program mentioned previously, students at the Beechmere State School in Queensland, have focused on the school landscape as a site for natural heritage restoration since 1990. Over the lO-year period of the school program students, teachers, and volunteers have planted over 500 native rainforest species on school property. In addition, the students have constructed breeding boxes for local possum and bird species, and have established a frog pond as a breeding ground for local endangered frogs. The students have extended their environmental efforts beyond their school environment and have "adopted" a nearby waterfront. Students have acted as guardians of the shoreline and have planted the dunes with native species to protect against erosion. The students have also embarked on the on-going processes of litter clean up and water pollution monitoring. Ultimately, school programs contribute to the education of thc broader public in a "land ethic" that supports natural heritage enhancement and conservation.

7.3.2 The Hamilton Region Conservation Authority

The Hamilton Region Conservation Authority (HRCA) has taken an active role in the protection of natural areas, particularly the region's watershed. The driving force behind the Conservation Authority'S initiatives is grassroots environmental stewardship. Residents and businesses in the area are encouraged to "think green" and become guardians of the water resources and green spaces.

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay ofQuintc The Conservation Authority liaises with volunteer groups like the "Friends of the Dundas Valley" and the "Friends of Westfield" who take the HRCA's stewardship message to the public. Activities to sprcad the word about natural heritage protection include guided walks, workshops and fund raisers.

Some of the initiatives undertaken by the HRCA include: • providing teclmical and planning assistance to municipalities by recommending land-use policies as well as reviewing development proposals that may have environmental impacts on natural heritage areas. • acquiring land that is environmentally significant. HRCA currently owns approximately 4000 hectares of land, most of which is available for public use.

o habitat restoration and rehabilitation and monitoring the health oflocal streams.

o conducting natural area inventories and watershed studies so as to provide valuable up to date data on the local environment.

A major initiative of the HRCA is its partnership with the Hamilton-Halton Watershed Stewardship Project. The Hamilton Watershed Stewardship Project provides watershed education and assistance to private landowners. Residents are encouraged to take responsibility for restoring and maintaining the natural features on their properties. Education initiatives provide explanations to landowners on how their activities impact water quality. Currently, the program has secured 300 verbal agreements with landowners to practice wise land use management. The Hamilton Watershed Stewardship Project provides funding as well as voluntary expertise to landowners who are involved in restoration activities on their property.

The Hamilton Watershed Stewardship Project helps landowners in the following ways:

o rehabilitate nearby streams or rivers • restore wetland, floodplain and forest habitat • manage ponds • naturalize parks and school grounds • raise public awareness on conservation of the environment • manage woodlot and wetland habitat • retire fragile land from cultivation

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quintc The HRCS also liaises with the Conservation Foundation, a registered charitable organization. The Conservation Foundation raises funds for HRCA and assists in the acquisition, conservation and rehabilitation of environmcntally sensitive land. The Foundation also provides the HRCA with funding for environmental education programs and individual conservation awarcness. The Conservation Foundation has played an important role in the acquisition and preservation of about 200 hectares of environmentally sensitive wetland habitat. As well, it is a major source of funding for the HRCA's Rail Trail development. The Conservation Foundation depends on support from citizens, interest groups and corporations to maintain and expand conservation initiatives in the region.

7.3.3 The British Trust for Conservation Volunteers (BTCV)

In Britain, the National Trust for England and Wales and the National Trust for Scotland together are the largest landowner after the State and the Crown Estate. The National Trust for England and Wales manages over half a million acres of land and serves as an umbrella organization for a range of environmental, heritage and social initiatives. BTCV is an independent organization that provides a volunteer workforce for the management of natural areas. BTCV is closely affiliated with the National Trust and most of its conservation efforts occur on National Trust land.

BTCV is a large and complex organization with a wide range of functions. One of its primary initiatives is the conservation of land through land trusts. It aims to enhance the contribution of the general public to conservation efforts. Through a unique series of "working holidays", members of the general public volunteer to work on conservation projects such as the restoration of hedgerows, establishing trails and maintaining heritage sites. Volunteers pay a fee to work on such projects depending on the duration and complexity of the project. The fee covers room and board and all operating and administration costs. The concept of a "paying volunteer" ensures adequate resources for the projects and less dependence on outside or government funding.

British citizens and international visitors of all ages and skill levels are encouraged to volunteer. Volunteers live and work together in thc local community where the project is based and learn practical skills on conservation techniques. The "working holiday" concept revolves around public learning opportunities in ecology and conservation. The program trains over 7500 volunteers per year who are involved in conservation of natural areas as well as running thc organization through

- 53 - Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quinte council, membership and committees. The training provided is of highest quality to ensure the technical requirements of the project are fulfilled as well as offer opportunities into paid employment. Projects are situated in England, Wales and Ireland with Intemationallinks to more than sixty countries through the International Conservation Action Network.

The BTCV conservation, by volunteering through the "working holidays" project, is a unIque approach, similar to "eco-tourism" that involves members of the public in an effort to conserve natural heritage. Although a program of this scale may not be feasible in the Bay of Quinte, it may be a worthwhile initiative to consider for those organizations seeking to involve members of the general public in the conservation of natural areas. The Federation of Ontario Naturalists has a similar scheme "Working for Wilderness", where volunteers spend short holidays doing conservation work.

7.3.4 Water Quality and Waterway Restoration

The Grand River Conservation Authority introduced a rural water quality program in the Region of Waterloo and Wellington County. Financial incentives have been provided to rural landowners to improve water quality and monitoring. The Conservation Authority has also created a Fisheries Management Plan that includes a land stewardship program with technical and financial support available for water and habitat improvement. Fish way improvements have also been introduced, wherein existing fish ways are modified to allow passage for non-jumping fish species. The Grand River Conservation Authority has also promoted the conceptual linkage between fish habitat protection to drainage activities by introducing a drainage classification program throughout the watershed.

7 .3.5 Vegetation Restoration

"Bushcare" Australia, again an offshoot of the country's "Natural Heritage Trust" program, initiated a natural vegetation program. The program seeks to reverse the long-standing decline in the quality and expanse of native species vegetation. The project exists between community groups, land managers, industries and government agencies. "Bushcare" gives priority to community vegetation projects proposed at a regional level that integrate the management of remnant vegetation with extensive revegetation.

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quinte 7.4 Environmental Advisory Committees

Municipalities have an increasing responsibility to implement provincial policies for the protection of natural heritage, thus as discussed throughout this report, local community efforts are an important componcnt of natural heritage protcction. Environmental Advisory Committees (EACs) are onc way in which community input is provided to municipal councils on environmental aspects of land-use planning. Typically, EACs are comprised of local citizens who volunteer their time and expertise to provide advice to municipal council on environmental matters. For example an EAC may be involved in: • providing advice on proposed environmental policies for the Official Plan • commenting on development proposals that may have environmental impacts • obtaining views from developers, consultants, interest groups and the public • providing public education on environmental concerns

EACs vary in their mandate from solely advising municipal councils on environmental aspects of land use planning to address other environmental issues of local interest. Waterloo, Windsor and Goulbourn in Ontario are areas with EACs that have different mandates and activities to protect natural heritage areas.

7.4.1 Waterloo Region Ecological and Environmental Advisory Committee, Ontario

The Waterloo Region Ecological and Environmental Advisory Committee (EEAC) is the oldest operating EAC in Ontario. The 16 member EEAC primarily reviews development applications that are "contiguous to" the cnvironmentally sensitive policy areas (ESP A's) designated in the Official Plan. The EEAC has evolved from being representative of specific interest groups, organizations and agencies to one that currently comprises of a variety of individuals who are advocates of the environment. The EEAC does not advocate positions of any particular individual or environmental group. Members are selected based on their expertise or because they are interested and knowledgeable members of the public. After 25 years of experience, lessons learned from this EEAC may be of significance to other areas such as the Bay of Quinte. Some of these lessons include: • an EAC can serve as an independent body receptive to community input and is tied to the municipal decision making process. • an EAC should be inclusive and members should represent a variety of interests and

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Natural Heritage Strategies: Conununity, Environment and the Planning Process in the Bay of Quintc expenences . • an EAC should be an advocatc for the environment rather than for the interests of particular individuals and groups in the community.

7.4.2 Windsor Environmental Advisory Committee, Ontario

Established in 1981, the Windsor Environmental Advisory Committee was also one of the pioneers in Ontario. It is different from Waterloo's EAC in that it comprises of members from specific organizations in addition to members of the general public. Some of the organizations that have a member on the EAC include: the Citizens Environmental Alliance, the Canadian Auto Workers Regional Environmental Council, the Great Lakes Institute for Environmental Research, two community health agencies, the Federal Environment Ministry and the International Joint Commission.

The Windsor EAC suggested that the Windsor Planning Advisory Committee undertake an environmental study to include relevant policies in thc official plan for the first time. This led to a completed policy study in September 1994 and a new Official Plan with environmental policies in 1995. The EAC played a key role in the inclusion of environmental policies in the new OP by involving citizens through the public participation program. This program included initial public workshops to identifY issues of concern and to establish the goals for the environmental programs. An outreach program targeted landowners affected by a natural heritage site inventory. Finally, there were public open houses to discuss the Official Plan draft stemming from the environmental policy study. The Windsor EAC provides an example of a public consultation process in conducting an environmental study and revisions to the Official Plan.

7.4.3 Goulbourn Environmental Advisory Committee, Ontario

The mandate ofthe Goulbourn Environmental Advisory Committee is to bring people and agencies together to protect and promote natural areas. It is considered to be one ofthe most active EACs in the Ottawa-Carleton region. One of the projects that has brought people and agencies together is the establishment of a conservation area. The EAC recognized the environmental value of a 135- acre property that was once used as a sewage depository. In 1993, due to the proliferation of a wide range of habitat and a variety of birds and other species on the fonner sewage site, the EAC took a proactive role by suggesting to the Goulbourn Council that this site be established as the

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Natural Heritage Strategies: Conununity, Environment and the Planning Process in the Bay ofQuintc Richmond Conservation Area. The project is unique in so far as it brought together members of volunteer groups, agencies and individuals committed to conserving the area. These included Goulboum Township and its EAC, the Region of Ottawa-Carleton, the Rideau Valley Conservation Authority, the Ottawa Field Naturalists, the Rideau Trail Association, Ducks Unlimited Canada and the South Carleton High School.

Other activities by the Goulboum EAC include an organic garden demonstration project, public information and education nights, contributions to newspaper colunms and the production of information pamphlets. Goulboum is an example of an EAC in a small rural municipality that has been active in protecting natural areas as well as involving members of the community.

7.5 Use ofthe Official Plan

7.5.1 Regional Municipality of Ottawa-Carleton (RMOC)

The RMOC has entrenched the designation of natural areas that are deemed significant at a regional level within its Official Plan. These areas have been identified in accordance with provincial natural heritage policy and regional assessment. Regional council is responsible for the designation of "natural environment areas". Moreover, the Regional Plan includes policy directives outlining watershed strategies, support for stewardship, and the assessment of development proposals to incorporate 'design with nature' principles. These principles are similar to the landscape ecology principles discussed earlier in this report (eg. incorporating the built environment into environmental planning)

As indicated previously, many areas are working towards the goals of natural heritage protection using implementation tools that exist alongside Official Plan policies. Ultimately, it is the practical application of these tools that underpin the Official Plan policies. Without such community lead and supported environmental stewardship an Official Plan policy can be ineffectual in reaching the goal of natural heritage protection.

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quinte 7.6 Consensus Building Tools

7.6.1 Consensus Conference on Waste Management, Hamilton, Ontario

A Consensus Conference is one way in which informed citizens' input is included in public policy making. A representative group of citizens invite a diverse group of experts and others to address a set of key questions that they feel need to be answered in order to propose policy on a controversial issue. After hearing from, and cross-examining these 'experts', the citizens meet alone with a trained facilitator to decide on a set of policy recommendations using a consensus decision-making process. An essential feature of the approach is the central role of the citizens' panel: it decides on the questions or issues, decides on whom it wishes to hear from, and formulates its own conclusions and recommendations. Even though the title 'Consensus Conference' suggests that a consensus is sought, the panel is encouraged to reach as much of an agreement as possible. Although the panel's recommendations are not binding, they have proven

3 to be influential in subsequent policy development •

A Consensus Conference took place in May of 2000 in Hamilton, Ontario, on the issue of Waste Management. The conference was held in partnership with the CitylRegion's Community and Development Planning Department and the Theme School on Science, Technology and Public Policy at McMaster University. After the project was granted approval by the city, II citizens were chosen from 31 respondents of 1,000 random mail-outs. For two full days students from the Theme School briefed the panel about issues of waste management. The panel also chose four key questions that they wanted to be addressed by the 'expert' witnesses (whom they also chose). Prior to the date of the hearing, the experts submitted their testimony with background material so that the panel had time to review the information before the conference and decide upon further questions that they would like to ask. The public portion of the conferences was held on a single day. Each expert was given a limited time to present their testimony and the citizens' panel then proceeded to cross-examine the witnesses. The following day the panel met with a facilitator to consider what they had heard, develop a set of recommendations, and write the final report. This process alone demanded 12-hours of the panel's time.

3 To the knowledge of the authors there have been other Consensus Conferences held in Canada. For example in Sherbrooke, Quebec, a Consensus Conference addressed Waste Management. In Vancouver there was a conference on Food Biotechnology. In Europe, Denmark has held numerous conferences ranging on issues from genetically modified foods to teleworking.

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quinte A Consensus Conference is time-consuming and resource intensive. A three-month period passed from the City's approval of the project to the development of the recommendations. Due to the partnership between the Theme School and the CitylRegion, the cost of the conference was reduced. For example, the students from the Theme School at McMaster presented the citizen's panel with a background paper/report of Waste Management in Hamilton early in the process. If they had not provided this information, City/Regional staff would have had to dedicate their own time to it. This would have increased the time and financial costs of the project.

This model of consensus building also demands a lot of its participants. Citizens volunteer their time, as do the 'expert witnesses'. In particular, with concern to the citizen's panel is required to demonstrate commitment and dedication throughout the process.

7.7 Fundraising Initiatives

In this time of increasing economic constraints for all levels of government and community organizations, fundraising is extremely important. To be effective, fund-raising efforts must fit with a community's needs and experiences. In some cases, typical small-scale fundraising, such as local sales and pledges may be successful. In others, registering as a charitable organization may be useful to attract major donors. The introduction of new technology has changed fundraising capabilities. Some examples include:

7.7.1 Click to Donate programs

The Nature Conservancy of Canada has been raising money to purchase the 233 hectares Clear Creek Forest and adjacent lands in Chatham-Kent. In six months, they have raised a quarter of the total, from citizen and corporate donations, and an international, on-line "click-to-donate' program www.EcologyFund.com

7.7.2 Not-For-Profit Companies

The Escarpment Biosphere Conservancy (EBC) offers a long-distance telephone service called Escarpment Telecom. Twenty percent of the billing income is reserved for the purchasing and stewarding of Niagara Escarpment properties.

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quinte The examples included here are potential options for the Bay of Quinte AOC. The recommendations in the following section should serve to chart a way to bring all of the stakeholders in thc Bay of Quinte together so that they can jointly explore which options to choose.

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quintc 8.0 RECOMMENDATIONS

The following reconnnendations are intended to serve as a framework for the development and implementation of a natural heritage strategy in the Bay of Quinte. As we have suggested throughout this discussion document, a comprehensive natural heritage strategy identifies a set of policies and guidelines that both reflect and encourage the coordination of connnunity and legislative based activities to achieve the goals of natural heritage preservation and enhancement. These reconnncndations are not prescriptive, rather they offer insight into some of the steps required to build and implement a successful natural heritage strategy across the Bay of Quinte Watershed.

1. Identify a Coordinator and Establish a Steering Committee

We envision the natural heritage strategy involving multiple stakeholders and issues. With so many interests, the group may become overwhelmed by the complexity of the situation and the group dynamics. Therefore, we recommend that a coordinator is located who can help to keep the natural heritage strategy focused and directed. There are certain characteristics that this coordinator will need to possess. These include excellent leadership, motivational and connnunications skills, as well as the ability to act as a team player.

Furthermore, it will be necessary to establish a Steering Committee. This connnittee will support the coordinator in managing the natural heritage strategy. The Steering Connnittee will consist of technical staff, politicians and individuals who are representative of the connnunity. These representatives will act as a liaison between the Steering Committee and the activities of local landowners and citizen groups. This communication will aide in the creation of a consensus building process.

2. Use Consensus Building to Help Develop the Natural Heritage Strategy

The development ofthe natural heritage strategy should emerge from a consensus building process among the many stakeholders throughout the Bay of Quinte Watershed. Consensus building is intended to raise awareness, integrate the multitude of participant perspectives, and find a connnon ground on the development and implementation of natural heritage protection and the natural

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quintc heritage strategy. When stakeholders arc directly involved in the development of the natural heritage strategy, they will acquire a sense of ownership over the initiative, and thus will be encouraged to further participate in and support the natural heritage strategy. Ultimately, consensus building should be applied throughout the development and implementation of the natural heritage strategy.

3. Involve Local Government in all Aspects of a Natural Heritage Strategy

Since local governments have a wide range of responsibilities, they have an immediate interest in the natural heritage strategy. They also have the responsibility to influence the successful adoption of a natural heritage strategy through the planning process. In order to ensure their support and commitment, it is necessary to encourage the involvement of local government officials and politicians at all stages ofthe development and implementation of the natural heritage strategy.

4. Establish an Environmental Advisory Committee

An Environmental Advisory Committee (EAC) is created by a council resolution or by-law or through other less formal processes. Members of the EAC are chosen for their environmental expertise andlor their community experience and local knowledge. The EAC is responsible for gathering information regarding the environment to share with municipal councils so that they can make informed decisions on planning and policy issues. The EAC does not have decision-making power; rather its mandate is to act as autonomous advisory and advocacy body that provides information to the council on all matters relating to the environment. This group is distinctive from the natural heritage strategy Steering Committee as it considers the wider environment. The EAC should be regarded as a body that will continue the research and public education activities currently conducted by the Bay of Quinte Restoration Council once the Bay of Quinte AOC has been delisted

5. Create an Accessible Environmental Information Database and an Inventory of Environmental Initiatives in the region

This database should be created and maintained through a partnership between the Steering Committee, EAC, the stewardship councils, other local community groups, the conservation authorities and the local municipalities. Ultimately the goal is to compile a comprehensive inventory of all of the activities, plant and wildlife habitat, and research throughout the Bay of

- 62- Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quinte Quinte watershed. The database should include: a list of plant and animal speCIes on a neighbourhood or household level, a catalogue of environmental initiatives (e.g. who is doing what), and further environmental research and GIS mapping. The database will assist in tracking both the improvements and degradation in the natural environment and in significant natural heritage areas throughout the watershed.

6. Ensure that the Official Plan and Zoning By-Laws are Strengthened in Respect to Eenvironmental Objectives

Given their stake in the development of the natural heritage strategy, municipalities should work to strengthen their traditional planning tools to reflect and assist the achievement of environmental values. They should make by-laws and official plans consistent with the policies of the natural heritage strategy. Some recent official plan reviews across Ontario have incorporated natural heritage guidelines from the provincial Policy Statement. Some of these Official Plans have gone beyond the minimum requirements of the provincial Policy Statement and have included locally significant natural areas. In addition, policies in Official Plans have been accompanied by conservation bylaws. The main purpose of a conservation bylaw is the promotion of behavioural change as it relates to land use. A natural heritage strategy should be seen as an important component of environmental planning. There is also a need for municipalities to work together to share information and coordinate environmental policies including natural heritage policies within the watershed.

7. Intensify Pnblic Education Eefforts

Public education efforts should continue to be targeted at each school level in the area, as well as toward the cornrnuuity at large. Public education should be aimed at creating an awareness of the need for the preservation of natural heritage as well as an awareness of the methods through which environmental goals can be achieved. Partnerships with local universities and colleges should be developed so that tasks, such as data collection, research, and the facilitation of consensus building, can occur.

- 63 - Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quintc 8. Hold an Annual Gathering to Review Accomplishments, Plan Future Activities, and Acknowledge Efforts and Achievements of Community Members and Organizations

An annual gathering should be hosted by the Steering Connnittee to provide as an opportunity to reflect over what has been achieved over the past year as well as set future goals and taragets. It would also be an opportunity to acknowledge the efforts and achievements of connnunity members and organizations that are actively involved in preservation and restoration initiatives. It is important to recognize the efforts of both the private sector and public sector.

9. Pursue a Wide Range of Funding Sources

Fundraising is very important given the increasing economic constraints for all levels of government and community organizations. Funding is required for various events in the promotion and maintenance of a natural heritage strategy. The community can decide which fund- raising sources they will pursue. For increased effectiveness, communities should choose fund-raising initiatives that are well suited to their particular area. In some cases, typical small-scale fundraising, such as local sales and pledges may be successful. In others, registering as a charitable organization may be useful to attract major donors. Teclrnology has led to new and innovative methods of fund-raising and some of these ideas may be considered for the Bay of Quinte area. Examples are provided in Section 6.7.

10 Focus on Sstrategic Planning or Visioning the Future

Natural heritage significance mapping should be incorporated into strategic planning. Teclrniques such as the use of a Build-out Map (described in paragraph 6.4.4 of this report.) can be used as visioning tools. This map would show the probable location of new roads, houses, commercial and industrial buildings that could legally be constructed in the future on the vacant land remaining within the municipality. These sorts of techniques, together with population projections, will enable people to project graphically how the area will develop given existing policies and zoning.

- 64- Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quinte 9.0 CONCLUSION

The vision of a natural heritage strategy began as a tool that would help to both advance and maintain the work of the Bay of Quinte Restoration Council in the protection of much of the region's valuable natural heritage. Currently in the preliminary stages of the natural heritage stratcgy development, the Bay of Quinte Restoration Council is undertaking a technical mapping exercise to identify the provincially significant natural features in the Bay of Quinte area, and to address the provincial legislation and policies relating to natural heritage. There are, however, limitations to this legislative policy based approach, the most important of which is the lack of community involvement. Until recently, it has been a largely "expert" driven process. In an effort to move away from this one-sided process, community members should be included so they understand the importance of protecting these natural featurcs. Community understanding and involvement is imperative in order to secure community support, lobby for political assistance and to identify additional unique locally significant features, which will contribute to a 'sense of place' for the natural heritage strategy.

Computer based (GIS) mapping and identification of natural heritage features is an important initial step in the creation of a natural heritage strategy; however, there are other community- based activities occurring in the area that can help to contribute to its success. These activities, in thc form of stewardship councils, school programs, grassroots organizations and national conservation organizations, are trying to achieve the similar goals of natural heritage protection and delisting through their individual mandates. The identification, coordination and incorporation of these activities will greatly benefit the natural heritage strategy for the region. Essentially, the "whole is greater than the sum of the parts".

Our goal was to produce a discussion document and make recommendations to guide the development of a natural heritage strategy for the Bay of Quinte region. The development and implementation of a strategy on this scale is a complex undertaking, because of different political jurisdictions. The recommendations we have outlined are intended to help in this process; to enhance the existing environmental initiatives across the watershed and coordinate them with the legislative policy based activities for a positive and forward thinking strategy for the entire region.

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quintc BIBLIOGRAPHY

Bay of Quinte Remedial Action Plan Series

Bay of Quinte Remedial Action Plan Coordinating Committee. The Big Cleanup, Bay of Quinte Remedial Action Plan Stage 2 Report-Time to Act. 1993.

Queen's Centre for Sustainable Development. Survey ofMunicipal Attitudes to Stage 1: Bay ofQuinte RAP Process. 1992.

Remedial Action Plan Coordinating Committee. Bay of Quinte Remedial Action Plan Stage 1: Environmental Setting and Problem Definition. 1990.

Newspapers

Buist, Steve. "Digging up facts, VIews on waste management." The Hamilton Spectator, May 30th, 2000.

Other Reports

Community Development Group, The Natural Heritage Planning Policy in Ontario: A Review of County and Regional Official Plans. August 1999.

Crombie, D. (1992). Regeneration. Toronto's Waterfront and the Sustainable City: Final Report. Ottawa, Ministry of Supply and Services.

Danish-Style, Citizen-Based Deliberative "Consensus Conferences" on Science & Technology Policy Worldwide http://www.1oka.org/pages/worldpanels.htm

Environment Canada. A Framework for Guiding Habitat Rehabilitation in Great Lakes Areas of Concern. 1998.

Environment Canada. Great Lakes Wetlands Conservation Action Plan- Reports (J997-2000).

Federation of Ontario Naturalists. Protecting Nature Close to Home: Proceedings of a Workshop on Environmental Advisory Committees in Ontario. Bolton, Ontario, 1998.

Geomatics International Inc Natural Heritage System for the Oak Ridges Moraine

- 66- Natural Heritage Strntegies: Community, Environment and the Planning Process in the Bay of Quinte Area: GTA Portion Background Study No.4. Oak Ridges Moraine Technical Working Committee. 1993.

Griffiths, RW. A Significant Woodlands Policy for the Region ofHalton- Draft Report for Discussion. 2000. Guston, D.H. & Bimber, B. Technology Assessment for the New Century, Working Paper # 7 http://www.ooJicv.rutgers.eduipaper Guston, D.H. Evaluating the Impact of the First u.s. Citizens' Panel on Telecommunications and the Future of Democracy, Working Paper #5, http://www.poJicv.rutgers.edu/paper

Hamilton Region Conservation Authority and Hamilton Naturalists' Club. Hamilton­ Wentworth Natural Heritage Database. Regional Environment Department Technical and Cartographic Services, 1997.

Jakubec, L. Protecting Natural and Cultural Heritage- examining the British Trust for Conservation Volunteers as a potential model for an effective and self-slif./icient conservation agency in Canada. Queen's University Masters Thesis, Kingston. ON. 1999.

Kuper, R Lancashire Citizens' Jury on Waste Management- Recommendations to the Waste Management Strategy Steering Group. 2000.

Livingstone, L. Alford Nature Plan. Scotland. Scottish Natural Heritage, 1992.

Lura Consulting. Bay of Quinte De-listing Consultation- Summary of the Public Consultation Activities Regarding Proposed De-listing Criteria. May 2000.

Ontario Ministry of Natural Resources. Natural Heritage Training Manual for Policy 2.3 ofthe provincial Policy Statement, 1997.

Ontario Ministry of Natural Resources. Ontario's Living Legacy, Land Use Strategy July 1999, Queen's Printer for Ontario

Planning and Development Department Region of Hamilton-Wentworth. Towards a Regional Greenlands System-Discussion Paper. 1994.

Queen's University SURP and School of Environmental Studies. Ecosystem Design for Non-Designers- learn to understand and judge ecolOgical planning & design. Queen's University SURP & School of Environmental Studies 1999 Professional Development Series, 1999.

Riviere, L.A. & S. Mcinnes. Identifying Significant Woodlands. Region of Halton.

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quinte 1999.

Rowe,G & Lynn 1. Frewer. Public Participation Methods. A Framework for Evaluation, Science, Technology and Human Values. VoL2S, No.1, winter 2000. pp3-29.

The Community Development Group under the direction of The Best Policies Working Group. Natural Heritage Planning Policy in Ontario - A Review of County and Regional Official Plans

Citizens Panel. Waste Management Consensus Conference- Citizens' Panel Report MacMaster University & City of HamiltonlRegion of Hamilton-Wentworth. May 27-29,2000.

Yaro, RD., RG Arendt et aL Dealing with Change in the Connecticut River Valley: A Design Manual for Conservation and Development. 1990.

~1agaziiies

Landscape Design #292 Julyl August 2000

Official Plans

City of Belleville. Draft of City of Belleville Official Plan. 2000.

City of Cambridge. City of Cambridge Official Plan. 1999.

City of Quinte West. Draft of City of Quinte West Official Plan. 2000.

County of Prince Edward. County of Prince Edward Official Plan. Approved by Minister of Municipal Affairs, 1998

Hastings County. Draft of Hastings County Official Plan.2000.

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quinte GLOSSARY

Bargain Sales Sale/purchase ofland at market value

Biodiversity A variety of different species. The various forms of life that can best survive the variety of conditions found on Earth.

Build-Ont Map A build-out map is a graphic representation that shows the likely location of all the roads and houses that could be built in a particular area under the current land use and zoning regulations.

Development An activity that includes site grading, the placing or removal of fill, and any construction, erection, placing or alteration of a building or structure of any kind.

Eco-tourism The practice of touring natural habitats in a manner meant to minimize ecological impact and enhancing awareness of the natural environment,

Focus Group Research method involving facilitated discussion amongst a group of people about specific issues

Grassroots At the local! community level, involving all members of the public rather than at the political level.

Impaired Beneficial Uses A change in the chemical, physical, or biological integrity of the Great Lakes System that may cause degradation to the ecosystem. Examples include beach closings, loss and degradation of fish and wildlife habitat, restrictions on drinking water consumption.

Implementation Tool A mechanism that is used to put a plan/policy/program into practice and is intended to create change.

Landscape Ecology The study of the interaction among natural areas and between human actions and their effect on the wider landscape.

Land Ethic A philosophy, or way of thinking, about the land and human relationship to it.

MMAH Ministry of Municipal Affairs & Housing has the approval

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay ofQuinte authority for an Official Plan or amendment, a plan of subdivision or consent.

Open House An event that invites members of the public to learn about new initiatives and to provide their input.

Official Plan The guidelines that set out the general policies for future land uses. Ontario Planning Act requires municipalities to update OPs at least every 5 yrs.

Regulations Rules and procedures passed by the legislature, for carrying out the purpose of the Acts.

Riparian Relating to the banks of a river.

Significant In regard to wetlands and areas of natural and scientific interest, an area identified as provincially significant by the Ministry of Natural Resources using evaluation procedures established by the province, as amended from time to time.

In regard to other features and areas In policy 2.3, ecologically important in terms of features, functions, representation or amount, and contributing to the quality and diversity of an identifiable geographic area or natural heritage system.

In regard to other matters, important in terms of amount, content, representation or effect.

Site plan control Controls over the physical aspects of development, such as setbacks, landscaping and driveways. Site plan control aims to protect property owners from adverse effects of neighbouring development.

Stakeholders Members within a community who play an important role or who have shared interest in a specific matter.

Top-Down An approach that is enforced on the general public by officials without prior consultation.

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Qllinte Wetland Lands that are seasonally or permanently covered by shallow water, as well as lands where the water table is close to or at the surface. In either case the presence of abundant water has caused the formation of hydric soils and has favoured the dominance of either hydrophytic plants or water tolerant plants. The four major types of wetlands are swamps, marshes, bogs and fens. Periodically soaked or wet lands being used for agricultural purposes which no longer exhibit wetland characteristics are not considered to be wetlands for the purposes of this definition.

Zoning By-law A zoning by-law is a municipal regulatory statement that specifies the permitted land-use and/or density of development that can occur ill an area.

- 71 - Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay of Quinte APPENDIX A: DIAGRAMS OF THE DEVELOPMENT AND IMPLEMENTATION OF A NATURAL HERITAGE STRATEGY TECHNiCAL PROCESS PUBUC P ARTICIP AnON

Identify Significant Educate Public about Areas & Issues the need for a NHS

Prioritize Set goals for the Significant Areas Bay of Quinte and Issues I I Generate Or Ions and ~valuate their Ability to meet Environmental Goals

Consider how Determine the ability development will affect of current initiatives the integrity of natuml to meet the public's heritage features I goals

Select ()plions using Consensus Building II T Jes,igD a Natural

Planning Process to be consistent with Natural Hel'itage policies

Figure I Development of a natural heritage strategy

~P--______-n- uP __

Nlltuml Hcritag;; Nlmk:gies: Commnnity, Fllviwnmcnl. amllhe Planning Proce3~ ill iltl) Bay vfQuintc Land SiewaI'

Natural OFF'IOAI, Heritage PUBLIC PLAN EDUCAT­ Stnltegy ION

PROVINCIAL Gnmts & 11',,% NATURAL l!TIIlCentives mr,Rl1.'AGE POLICY

I?iglin~ 2 Tools for implementing of a natural heritage strategy

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NilI.urall':krilnge Strategies: Commnnily, l';nvironmenl and the Planning t'rOl.;CKCentre Hastings Quinte West (613) 478-2352 Email: [email protected] Peter Mabee Mark Dorffman Stewardship Coordinator Planner, Inc Hasting - Prince Edward Stewardship Council Email: [email protected] Ministry of Natural Resources Email: [email protected] Tara-Lynne Franco (613) 478-6875 Sustainable Community Project Coordinator City of Hamilton/Region of Hamilton-Wentworth Andy Margetson Hamilton, ON Habitat Coordinator Bay of Quinte Restoration Council Email: [email protected] Email: [email protected] (905) 546-4283 Steve Monet Dr. Ron Griffiths Municipal Planning Advisor Quinte Conservation Senior PlannerlEcologist Bellevile, ON Regional Municipality of Halton Email: [email protected] Oakville, ON (613) 968-3434 Email: [email protected] (905) 825-6000, ext. 7214 Scott Muir Biologist Karen Hartley Ducks Unlimited Biologist Quinte Conservation (613) 389-0418 Belleville, ON Email: [email protected] Cathy Plotz (613) 968-3434 Natural Areas Policy Analyst City of Hamilton/Region of Hamilton-Wentworth Dr. Robert Hudspith Hamilton, ON Associate Professor Email: [email protected] Department of Mechanical Engineering (905) 546-4348 McMaster University Hamilton, ON Olive Root Email: [email protected] Hastings and Prince Edward Land Trust (905) 525-9140, ext. 22019 Quinte Naturalists (613) 962-4648 Barry Jones Coordinator Fred Stride Bay of Quinte Restoration Council Fred Stride Consulting Lower Trent Conservation Kingston, Ontario (613) 394-4829 Email: [email protected] (613) 531-9600 Louise Livingstone Quinte Watershed Cleanup, Inc Paul Walsh Email: [email protected] Planner (613) 395 4388 Hastings County (613) 966-6712

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Natural Heritage Strategies: Community, Environment and the Planning Process in the Bay ofQuintc