Sustainable Energy, Greenspace/Nature and Water Actions

The Strategic Policies and Priorities Committee recommends that Council adopt, as a city-wide target for the new City of Toronto, a carbon dioxide emissions reduction goal of 20% relative to 1990 levels by the year 2005.

The Committee reports, for the information of Council, having:

(1)referred the revised report (December 10, 1998) from the Chair, Environmental Task Force to the Toronto Inter-departmental Environmental (TIE) Team and requested the Chief Administrative Officer to report thereon to its February 1999 meeting on the feasibility, timing and costs/benefits of the recommendations on standards recommended in this report;

(2)requested TIE to invite representatives from the Environmental Task Force to its meeting when considering this matter.

The Strategic Policies and Priorities Committee submits the following report (December10,1998) from the Environmental Task Force:

Purpose:

The purpose of this report is to propose actions that can be taken to implement important ideas that were identified by participants of three workshops held by the Environmental Task Force in early September, 1998.

Source of Funds:

There are no immediate funding implications arising from the recommendations in this report.

Recommendations:

(1)That the Commissioner of Works and Emergency Services, in consultation with the appropriate Commissioners, be requested to report to the Works and Utilities Committee on the most effective way to implement sustainable energy actions (a) to (f) and water actions (l) to (q) identified in this report;

(2)that the Commissioner of Economic Development Culture and Tourism, in consultation with the affected Commissioners, be requested to report to the Economic Development Committee on the most effective way to implement greenspace/nature actions (g) and (h) identified in this report;

(3)that the Commissioner of Urban Planning and Development Services, in consultation with the affected Commissioners, be requested to report to the Urban Environment and Development Committee on the most effective way to implement sustainable energy action (e), greenspace/nature action (i) and water action (m) identified in this report;

(4)that the Commissioner of Economic Development, Culture and Tourism, in consultation with the affected Commissioners and the Toronto Region and Conservation Authority, be requested to report to the Economic Development Committee on the most effective way to implement greenspace/ nature action (j) identified in this report;

(5)that the General Manager of the Toronto Region and Conservation Authority, be requested to report to the Environmental Task Force on the most effective way to host a stewardship forum and establish an interactive stewardship website as described in greenspace/nature action (k) identified in this report;

(6)that the Chief Administrative Officer and the Commissioner of Works and Emergency Services, as co-chairs of the Toronto Inter-departmental Environmental (TIE) Team, be requested to coordinate the preparation of the reports to the Standing Committees which respond to the actions identified in this report and to provide a monthly status report to the Environmental Task Force commencing in January 1999; and

(7)that City Council be advised that the Environmental Task Force supports the community initiative to create a roof top garden on the third floor roof deck of Toronto City Hall.

Council Reference/Background/History:

The Environmental Task Force was established by City Council at its meeting on March 4, 5 and 6. One of the primary roles of the Task Force is to bring stakeholders together to develop an Environmental Plan for the City. This work is underway and the Task Force will be reporting to the Strategic Policies and Priorities Committee in the fall of 1999. The terms of reference also indicate that the Task Force will identify urgent environmental initiatives/short term actions for consideration by City Council. This report identifies a series of actions that can be taken in the areas of sustainable energy, greenspace/nature and water. A report on proposed actions in the areas of air/climate change, land and toxics/pollution prevention will follow at a later date.

The actions identified in this report are part of a group of actions that were identified through the stakeholder consultation process described below and are being considered by the Environmental Task Force at its meetings between October 1998 and January 1999. The Environmental Task Force recognizes that many of the actions are directed at City staff and acknowledges that it may be difficult for City staff to undertake all of these proposed actions simultaneously or in the short term, particularly given the organizational changes arising from amalgamation. However, the actions will benefit the environment, and most can be done relatively easily and build upon actions that were underway in former parts of the new City. In consulting with program staff about the proposed actions, it was determined that, in many cases, the proposed actions were consistent with directions already being taken, were planned to be undertaken at some time in the future or were recognized as actions that should be given priority.

Comments and/or Discussion and/or Justification:

The Environmental Task Force used the following consultation process to identify the actions described in this report. In early September 1998, the Task Force held a series of focussed workshops in the areas of air/climate change, land, water, nature/greenspace, toxics/pollution prevention and sustainable energy strategies. Participants included Task Force members, city staff, representatives from environmental groups and agencies, community groups, business, education and labour. The workshops were chaired by City Councillors who are members of the Task Force. The participants of the workshops were asked to identify important issues and actions for their topic areas. In addition, they were asked to identify "quick start" ideas that would result in improvements to the environment, achieve cost savings, create local employment and require limited new resources to implement. Almost 200 "quick start" ideas were identified. Through ranking by workshop participants and review by smaller groups of participants and Environmental Task Force staff a total of 28 possible actions were identified for further consideration by the Task Force. For the actions which the Environmental Task Force was interested in proposing, program staff were consulted to determine feasibility, cost implications, etc..

Sustainable Energy Actions:

(a)re-adopt a carbon dioxide emissions reduction goal of 20 percent relative to 1990 levels by the year 2005 as a city-wide target for the new City of Toronto;

(b)facilitate the expeditious development of the Toronto Renewable Energy Co-operative (TREC) wind turbine and similar renewable energy projects as part of the City's overall sustainable energy strategy, including any feasible agreement to purchase renewable sources of electricity for use in City-owned facilities;

(c)assess the carbon trading potential of greenhouse gas (GHG) emissions reduction achievable by the City and determine the feasibility of realizing additional environmental and financial benefits from the selling/trading of carbon credits attributed to the City;

(d)investigate the feasibility of a carbon emission cap system that would compliment a carbon trading program and recommend appropriate action by City Council on this matter;

(e)incorporate higher energy efficiency and conservation objectives into the construction of new buildings in the City than are currently required by the Ontario Building Code; and

(f)a comprehensive long term strategy to minimize operating and capital energy expenditures and achieve the highest feasible levels of CO₂ emission reduction in facilities owned by the City.

Sustainable Energy Comments:

(a)Carbon Dioxide Reduction Goal

In 1990, the former Toronto City Council made an official commitment to reduce the City's net carbon dioxide (CO₂) emissions by 20 percent relative to 1988 levels by the year 2005. This 20 percent target is also known as the "Toronto target" because of the 1988 conference "Our Changing Atmosphere" which was held in this city. Toronto subsequently went on to become the first City to adopt this target and was followed by many other cities both in Canada and around the world. The former Metro Toronto adopted a similar 20 percent target, but only for its corporate operations as outlined in its "State of the Environment Report: Metropolitan Toronto" (1995)). The 20 percent target has become an important symbol in the international environmental community. Atmospheric scientists suggest that a 60 - 80 percent reduction in global greenhouse gases would be required to protect the atmosphere (Canadian Solutions - Meeting our Kyoto Commitment: Climate Action Basics for Canada, 1997). Environment Canada (1997) reports that by 2000, this country's emissions will be 13 percent higher than 1990 levels and by 2010, they will be 20 percent higher. Doubling of atmospheric CO₂ by 2050 and a mean global warming of 2.5 degrees are being predicted by the Intergovernmental Panel on Climate Change (1995) if current trends continue. The former City of Toronto Department of Public Health summarized the public health impacts of global warming on the citizens of Toronto in a 1997 report titled "Global Climate Change".

At its meeting on November 23, 1998, the Environmental Task Force endorsed the target of 20 percent reduction of CO₂ emissions relative to 1990 by the year 2005 after much discussion and in consideration of the national commitment of 6 percent and a base year of 1990 as outlined in the Kyoto Protocol. The Task Force requests that the City "re-adopt" this as the city-wide target.

(b)Renewable Energy Options:

Bill 35, the provincial legislation to deregulate the electricity industry will create generation opportunities for small, local producers starting in 2000. Renewable energy is produced from renewable energy resources such as wind, solar, small hydro, wood waste, geothermal, deep lake water cooling, landfill and digester gas, etc. Some forms of renewable energy provide cost-effective and all provide emissions-free electricity. There is a unique opportunity for the City and the local economy to support renewable energy options because it helps to moves us toward sustainability and energy self-sufficiency. Encouraging renewable energy will benefit the City and the local economy by:

(1)reducing the human health and environmental impacts from traditional electric power generation and transportation including the emissions of greenhouse gases, smog precursors, radionucleides (from nuclear power) and others that affect air quality to the atmosphere;

(2)maintaining Toronto's leadership role with respect to energy and environmental management;

(3)job creation and new training opportunities in an emerging high tech sector;

(4)keeping the dollars saved from reduced energy costs in the local economy;

(5)diversifying supply to stabilize cost and increase reliability; and

(6)defer distribution upgrades through local generation.

The Toronto Renewable Energy Cooperative (TREC) has positioned itself as a leader in wind-generated electricity by proposing to build a $1.2 million, 660 kW wind turbine on Toronto's waterfront. TREC has had negotiations with Toronto Hydro to work out the details of a net-billing plan for the electricity it puts into the grid and an endorsement from the City would expedite this plan. Based on such a plan and using current energy prices, TREC calculates a 12 year pay-back for its membership and estimates the project will result in a CO₂ offset of 1,400,000 kilograms per year. TREC further reports that discussions have begun with representatives of the City and the Toronto Harbour Commission for the use of City-owned properties as possible sites. The City can play an important role in supporting TREC by taking steps to facilitate the siting and approval of the TREC turbine and other similar renewable energy projects. A goal should be to have the turbine operating by the third quarter of 1999. The Task Force is asking the City to play an important role in supporting TREC by facilitating the siting and approval of the TREC turbine and other similar renewable energy projects, by urging Toronto Hydro to approve a net billing agreement by February 1999 and by signing on as an anchor member in the TREC initiative.

(c) and (d) Carbon Emissions Trading:

Carbon emission trading is a relatively new concept that would allow parties to barter CO₂ like any other commodity on the open market. The basic idea is to assign budgets derived from voluntary targets and/or the requirements that will be set under the Kyoto Protocol to emit CO₂ and CO₂ - equivalent (eCO₂ ) in tonnes. Countries or cities that are able to reduce their emissions below budget could sell their surplus to others and generate revenue. By introducing a dollar value/tonne of eCO₂ an incentive is created to develop cleaner energy technologies and utilize them sooner. In October 1998, the David Suzuki Foundation along with the Pembina Institute released a plan for how Canada can meet its Kyoto objectives and emissions trading was one of the recommended strategies.

An emissions trading cap is the point above which, trading can begin for emissions credits. It can be voluntary or regulated and by requiring all potential trading partners to have emissions caps there is a symbolic commitment to reduce emissions overall. The Task Force believes that emissions trading should happen only if this condition is met. The role for caps and other instruments will be considered in more detail when City staff in consultation with other stakeholders review a Consultant's report on Carbon emissions trading in Toronto.

A SO₂ trading system in the United States has been operating since the early 1990s and to date has achieved greater than expected emissions reductions and accelerated investment in new technology and is in fact the basis for a Carbon emissions market.

In August 1998, the Toronto Atmospheric Fund sponsored a community consultation on a city carbon emission trade. City staff in consultation with other stakeholders are reviewing a Consultant's report on Carbon emissions trading in Toronto and the Commissioner of Works and Emergency Services will be preparing a final report in this matter.

(e)Higher Energy Efficiency and Conservation Standards for new Buildings:

In 1991, the former City of Toronto adopted the policy that developers submit an energy efficiency and conservation plan (EECP) for new developments. The EECP guidelines significantly exceeded the requirement of the 1991 Ontario Building Code (OBC). As a result of advocacy for these higher standards, the provincial government amended the OBC in 1993 to include ASHRAE Standard 90.1 which has been the basis for EECPs since 1991. It is estimated that the EECPs have been responsible for CO₂ emission reductions of approximately 100,000 tonnes since 1992. The Task Force would like the new City to continue to provide leadership in this area by adopting a way of incorporating higher energy efficiency and conservation objectives into the construction of new and retrofitted buildings in the City than are currently required by the Ontario Building Code. The Federal Government has developed a C-2000 building standard that reduces energy consumption by 50 percent in new commercial buildings. The City can investigate the feasibility of adopting the C-2000 standard of the yet to be adopted National Energy Code for new buildings in its jurisdiction. Also, it can investigate the feasibility of adopting higher building standards for residential buildings.

(f)City-owned Building Renewal:

The BBP is an innovative program initiated by the former City of Toronto which helps building owners improve and modernize buildings through energy/water efficiency and building renewal retrofits. The program which was launched in June 1996, has resulted in the renewal of more than 150 buildings. Business leaders who have joined the BBP have spent in excess of $60 million, created 1,800 to 3,000 person years of employment and reduced CO₂ emissions by over 60,000 tonnes per year. The CO₂ emission reductions to date represent 3.7 percent of the overall 20 percent goal of 1,770,000 tonnes reduction by the year 2005. The expertise gained from this program will be invaluable when the City reviews the potential for building renewal in the amalgamated City.

The newly amalgamated City of Toronto presents tremendous potential for building renewal since over 800 buildings are owned and operated directly by the City. These buildings include municipal offices, works garages, fire stations, arenas, community centres, and other service buildings, excluding water and waste treatment plants, Homes for the Aged, Metro Zoo, and Exhibition Place. The total floor area is approximately 1.5 million m² and the total energy consumption is almost $27 million per year. To date, the retrofits that have been implemented in former City of Toronto facilities have reduced CO₂ emissions by 20,000 tonnes per year. The experience of the BBP is based on a simple pay-back calculation of approximately 9 years at which point the energy savings are realized by the building owner. The Task Force is requesting that the City of Toronto develop a comprehensive long term plan for facilities owned by the City to achieve the highest reduction in CO₂ emissions while minimizing operating and capital energy expenditures. Building renewal presents an "win" "win" opportunity for the City because it reduces emissions and provides cost savings.

Greenspace/Nature Actions:

(g)guidelines for mowing practices on all city-owned or managed properties in order to achieve the objectives of: encouraging regeneration; reducing maintenance costs; and reducing requirements for pesticide use;

(h)reinstatement of and options to expand the former Metro Council's green space naturalization program for road corridors;

(i)completion of design guidelines and an implementation plan to naturalize the Port Industrial District;

(j)a consolidated strategy to protect and enhance the greenspace system during property acquisition and divestment by the City; and

(k)a stewardship forum and an interactive stewardship web site. The web site would:

(1)provide information on stewardship, habitats, naturalization projects and techniques, funding, wildlife, invasive species and public events;

(2)exchange information on watershed projects through a "chat line"; and

(3)link to the Environmental Task Force web site and other related City of Toronto web sites.

Greenspace/Nature Comments:

Increase diversity through naturalization and improve natural habitat systems were identified as priorities by participants of the Greenspace/Nature workshop sponsored by the Environmental Task Force. Actions (g) to (k) identified above would contribute to these goals, and improve wildlife habitat and the integrity of the greenspace system. They would also increase public education and awareness of greenspace environmental issues and increase opportunities for public recreational enjoyment of natural areas.

There is an active community group promoting the concept of greening the Toronto City Hall 3rd Floor terrace, and they are currently working with Facilities Management staff to explore the feasibility in more detail. Roof gardens have been shown to have a number of environmental benefits such as moderating temperatures, filtering airborne pollutants, increasing oxygen, creating habitat and retaining and reducing storm water runoff. Tourists and dignitaries from all over the world visit Toronto City Hall, and a garden in this location and would demonstrate the City's leadership role in social and environmental health. The Environmental Task Force supports this initiative.

(g) (h) (i) Naturalization:

Naturalization improves natural habitat and increases diversity. It can also reduce requirements for pesticide use, maintenance costs and the amount of storm water runoff (through increased vegetative uptake) and contributes to better air quality (through the presence of more trees and vegetation). A review of corporate mowing practices on city-owned and managed property to determine where it would be possible to reduce the number of cuts per year or eliminate cutting all together and allow regeneration to occur would be a positive step towards naturalization in the city. The Environmental Task Force requests that this review be undertaken and that guidelines to reduce mowing practices be developed.

The City, in partnership with the community, has initiated a number of projects aimed at naturalizing corporately owned properties, largely on parklands. In October 1997 the former Metro Parks and Culture Department produced a study entitled "Selection of Naturalization Sites for Metro Toronto Road Corridors" (based on the award winning "Naturalization Compendium") which identified priority sites for plantings with trees, shrubs, wildflowers. Approximately $500,000.00 was spent in 1997 and 1998 implementing the program, however, it was not funded in the 1999 capital budget. The Environmental Task Force is requesting that this item be reinstated and expanded to address other City-owned properties.

City and TEDCO staff have been working together on a three part implementation strategy to green the Port Industrial District in response to the October 1997 report "Greening the Toronto Port Lands" (prepared by consultants in collaboration with the Waterfront Regeneration Trust). The strategy includes naturalization of both sides of the Keating Channel, securing green infrastructure through development approval, and the preparation of design guidelines to naturalize existing road allowances. Discussions are on-going regarding naturalization of the properties at 480 and 554 Lake Shore Boulevard East located at the mouth of the Don River abutting the Port Industrial District. The properties are owned by the City and designated as "open space" in the former City of Toronto's Official Plan. The Environmental Task Force is requesting that work to complete the design guidelines and prepare an implementation plan be accelerated.

(j)Consolidated Strategy For Greenspace Acquisition:

The former municipal parks departments and the Conservation Authority had strategies or programs in place for land acquisition and retention of property for parklands and open space based on recreation, natural heritage, and natural hazard criteria. The former Scarborough Works also had a program and budget for acquisition of flood vulnerable areas (Watercourse Land Acquisition Program). The Environmental Task Force is requesting that these strategies, together with the City's existing property portfolio, be reviewed in order to establish: (i) a consolidated strategy which will help to protect and enhance the greenspace system during property acquisition and divestment; and (ii) city-wide priorities for acquisition and/or retention of environmentally sensitive sites and/or key greenspace linkages which would contribute significantly to the health of the entire watershed.

(k) Stewardship Web Site and Forum:

The need for information sharing about stewardship was identified as a priority by participants at the Greenspace/Nature Workshop. This could be done through a web site and other venues such as a forum. Conservation Ontario has recently launched a land stewardship web site. A similar type of web site which focusses on watershed stewardship and provides information on local habitats, naturalization projects and an opportunity to exchange watershed information would be a logical next step. The Environmental Task Force is requesting that the Conservation Authority establish an interactive stewardship web site with links to other City and agency sites, and host a stewardship forum. Both activities would provide valuable opportunities for groups and individuals working on stewardship to learn and interact with experts and stakeholders from different areas.

Water Actions:

(l)appropriate funding strategies for combined sewer overflow and stormwater management initiatives;

(m)a harmonized Stormwater Management Policy which includes guiding principles and interim stormwater management criteria for new development;

(n)a Downspout Disconnection Program for publicly owned buildings;

(o)a Water Conservation and Efficiency Plan which should, as a priority, investigate:

(1)retrofitting public buildings with water conserving fixtures;

(2) low-flow toilet replacement program;

(3) a strategy to retrofit City owned properties with water conserving irrigation systems; and

(4)an irrigation by-law to regulate lawn watering to off peak hours.

(p)a restructured water bill that would identify the cost split for treating and supplying drinking water, collecting and treating wastewater and providing stormwater management works; and

(q)public education material to increase public awareness about the connection between wastewater, stormwater and drinking water.

Water Comments:

The Water Workshop was one of the most well attended of the six workshops sponsored by the Environmental Task Force. Many possible water actions were identified. Subsequent review of possible actions identified stormwater management, water conservation and public education as important issues that could be addressed relatively quickly and easily in the new City. Actions which could be taken to address these issues are listed as actions (l) to (p) above and discussed below.

(l)Funding Strategy for Wet Weather Flow Management:

The City of Toronto does not have a funding mechanism or revenue stream dedicated solely to wet weather flow management. The former municipalities raised funds for wet weather flow management works through a mix of property tax revenues, water rates, sewer surcharges and development charges. Implementing an aggressive wet weather flow management strategy will require a dedicated source of funding. Stormwater management funding mechanisms used across Canada and the United States were reviewed and documented as part of the Wet Weather Flow Master Plan. In order to ensure the availability of adequate funding for stormwater management, the Task Force is requesting that funding options be reviewed, their applicability to the City of Toronto be assessed and a preferred option(s) be identified.

(m)Stormwater Management Policy:

A stormwater management policy is considered the first step in directing wet weather flow management within the City. Stormwater management policies had been developed by several former municipalities. These policies generally identified goals, objectives, guiding principles and criteria for the management of wet weather flow. In some cases, they also included stormwater management requirements for new developments or redevelopments within the City. The Task Force is requesting that a harmonized Stormwater Management Policy be developed which includes guiding principles for all stormwater drainage activities and a set of interim stormwater management/ criteria to be implemented for new development within the City.

(n)Downspout Disconnection Program for Public Buildings:

The stormwater flow reduction benefits associated with roof downspout disconnection are well recognized. Downspout disconnection programs were supported by several of the former municipalities and a harmonized downspout disconnection program is being proposed for residential properties across the City. Publicly owned buildings present a significant downspout disconnection opportunity. Downspout disconnection of City-owned buildings has not been pursued aggressively to date. Similarly, buildings belonging to Agencies, Boards and Commissions need to be assessed for downspout disconnection opportunities. The Task Force is requesting that the City lead by example by developing a downspout disconnection program for publicly owned buildings across the City.

(o)Water Conservation:

At the present rate of water consumption, it is projected that the City will have to expand water supply infrastructure to meet it's projected water demand for the year 2017. For the City, savings can be derived in capital and operating expenditures through deferral of expansions in water distribution systems, drinking water treatment facilities, wastewater collection systems and wastewater treatment facilities. An aggressive water efficiency program could result in additional savings through reductions in sizing or indefinite postponement of these works. Water conservation and efficiency measures also present financial savings to the consumer.

A water conservation and efficiency program across the City also will assist in reducing water pollution control plant discharges and thereby help to repair degraded environmental conditions, specifically near plant outfalls. Other environmental and financial benefits from water conservation include reductions in chemical usage for the treatment of drinking water and wastewater; and reductions in energy requirements for the treatment and distribution of drinking water and the collection and treatment of wastewater. Water consumption reductions also provide financial benefits to the City.

In 1996, the former Metropolitan Toronto Council approved commencement of a new Water Efficiency Plan. The Plan is nearing completion and will identify water efficiency measures that can be implemented cost-effectively. The Task Force is requesting that the Plan include as priorities: a strategy to retrofit public buildings with water conserving fixtures; a low-flow toilet replacement program; a strategy to retrofit City owned properties with water conserving irrigation systems; and an irrigation by-law to regulate city and public lawn watering to off peak hours.

(p) and (q) Water Billing and Public Education:

The City uses water revenues to fund activities associated with maintaining, operating, replacing, upgrading and expanding water supply and wastewater systems. However, consumers are generally unaware of the costs associated with supplying drinking water, treating wastewater and providing stormwater management. From a consumer's perspective, there is a disassociation between water purchased and the need to provide a collection and treatment system for water used. The connection between water rates and the provision of works for the collection and conveyance of stormwater drainage and repairing erosion damage to area streams is even further removed. One method of increasing public awareness is to separate the charges on consumer's water billings. Water billing also can be used as a way of increasing public awareness toward water conservation. By presenting the recent water consumption history on each billing, actions or measure taken by the consumer to reduce water consumption would be visible through each billing record and would serve as positive reinforcement.

In some cases, consumers are also unaware of the linkage between Lake Ontario as a source of drinking water and receiver of both water pollution control plant discharges and wet weather flows from sewer outfalls. They need to be better educated about the connection between their drinking water and practices such as use of lawn and garden pesticides and fertilizers, dumping of chemicals down road side drains, vehicle fluid leaks, etc.. Public education in this area has been carried out by the former cities. The Task Force is requesting that the existing public education programs of the former cities and elsewhere be examined to identify the most effective ways of educating the public, on a city-wide basis, about the connection between drinking water and wastewater/ stormwater quality.

Conclusions:

The actions described in this report were identified through three stakeholder workshops sponsored by the Environmental Task Force in September 1988. The Task Force is requesting that these actions be taken. The actions will benefit the environment, most can be done relatively easily and build upon actions that were underway in former parts of the new City. In consulting with program staff about the proposed actions, it was determined that, in many cases, the proposed actions were consistent with directions already being taken, were planned to be undertaken at some time in the future or were recognized as actions that should be taken.

Contact Name and Telephone Number:

Jane Weninger, Project Manager, Environmental Task Force, Phone (416) 392-6788, Fax (416) 392-7418.

--------

Councillor Layton appeared before the Strategic Policies and Priorities Committee in connection with the foregoing matter.