REPORT TO DEVELOPMENT SERVICES COMMITTEE
TO:	Mayor and Members of Council
FROM:	Jim Baird, Commissioner of Development Services
	Valerie Shuttleworth, Director, Planning & Urban Design
PREPARED BY:	Lilli Duoba, Senior Project Co-ordinator, Environmental Planning & Rouge Park
DATE OF MEETING:	2005-Nov-22
SUBJECT:	Update on the Little Rouge Creek Corridor Management Plan

RECOMMENDATION

THAT the staff report entitled “Update on the Little Rouge Creek Corridor Management Plan”, dated November 22, 2005, be received;

AND THAT the Rouge Park Alliance identify locations and opportunities within the public corridor lands for appropriate uses and activities to support a long-term financially sustainable source of revenue to support capital park infrastructure construction costs and ongoing management costs;

AND THAT the Rouge Park Alliance prepare a phased financial strategy including public and private sector funding opportunities, and based on a fair share funding model including the participation of all Rouge Park Alliance partners;

AND THAT the Toronto and Region Conservation Authority and Rouge Park Alliance support the regional public use function of the Rouge Park - Little Rouge Creek corridor in Markham and provide specific locations or locational criteria for a broad spectrum of low intensity recreation, cultural and interpretive uses to help support the regional park system;

AND THAT the publicly-owned Little Rouge Creek corridor be clearly demarcated with management recommendations applicable only to the lands identified as Rouge Park through the public conveyance, and that private lands be removed from the lands identified as the Little Rouge Creek corridor;

AND THAT Council endorse the additional specific recommendations attached as Appendix ‘B’;

AND THAT the staff report and Appendix ‘B’ recommendations, be submitted to the Rouge Park Alliance and Toronto and Region Conservation Authority as input into the Little Rouge Creek Management Plan planning process.

PURPOSE
The purpose of this report is update Council on the Little Rouge Creek Corridor Management Plan study process as directed by Development Services Committee on September 20, 2005, and to identify local issues and opportunities to be considered in the context of the Study process. This report also highlights the public use, ecological and financial recommendations being proposed by the consultants for the Little Rouge Creek Management Plan.

EXECUTIVE SUMMARY

The Rouge Park Alliance in conjunction with the Toronto and Region Conservation Authority are preparing the Little Rouge Creek Management Plan for the lands conveyed from the Province to the Town of Markham and TRCA for Rouge Park purposes. The Rouge Park Alliance is a non-incorporated body that was created to manage and guide the delivery of the Rouge Park. The Rouge Park Alliance functions as a voluntary partnership and the Town of Markham and Region of York are both represented at the Rouge Park Alliance. The Rouge Park Alliance has an endowment fund available for yearly restoration projects of a small scale and relies solely on its partners to fund capital and ongoing operations costs. Lands within the Rouge Park are predominantly owned by the Town of Markham, TRCA and City of Toronto. The Rouge Park Alliance has limited operating funds and no significant capital reserves.

The consultants recommended Management Approach will require significant capital funding, including the construction of a north south trail, a bicycle lane along Reesor Road, extensive ecological restoration and protection and potential restoration of heritage buildings. Given the extensive land base and the regional function of the Rouge Park, Markham staff recommend that additional public uses be considered for the park and revenue-generating uses and opportunities be identified in the Management Plan. Without a specific strategy for revenue generation to off-set the capital infrastructure component and long-term management of the Park, the delivery of the Park will rely solely on public funding. The Little Rouge Creek Corridor Plan, as drafted, relies on a significant long-term financial commitment by the Town and others to implement.

BACKGROUND
Preparation of the Little Rouge Creek Master Plan underway

In early 2005, the Rouge Park Alliance and the Toronto Region Conservation Authority commenced the Little Rouge Creek Corridor Management Plan study. The Little Rouge Creek Corridor lands generally comprise the Province of Ontario transfer lands surrounding the Little Rouge Creek conveyed to the Toronto Region Conservation Authority and the Town of Markham for Rouge Park purposes. The total conveyance represents 544 hectares (1,344 acres) of land.

Official Plan Amendment No. 140 (Rouge North Management Area/Greenbelt) adopted by Council on October 25, 2005, identifies the Little Rouge Creek area as a Special Management Site and identifies policies to encourage the preparation of a site specific Management Plan to guide the long-term management of the lands as it pertains to land use, naturalization and restoration, financial management, heritage preservation and public use and recreation opportunities.

The Town of Markham has contributed funding in the amount of $15,000 to assist in the preparation of the Little Rouge Creek Master Plan and are owners of land within the study area.

Additional Lands added to the Little Rouge Creek Corridor

On October 26, 2005, the Province of Ontario announced that 202 hectares (500 acres) of provincial land west and north of the Little Rouge Creek, north of Steeles Avenue, would be protected for Rouge Park purposes. The Park is to be named Bob Hunter Park after a well known environmental activist and Greenpeace co-founder. Although these lands are currently external to the defined study area for the Little Rouge Creek Corridor Management Plan, the lands have been identified as restoration area and ecological linkage. Further detailed review and recommendations will need to be undertaken as part of the current Management Plan study process or as a separate study to address the long-term management of the additional Rouge Park lands.

Options for dwelling units in the Little Rouge Creek Corridor

On September 27, 2005, Council passed a resolution requesting staff to present an options report to Development Services Committee dealing with the Town leased properties in the Little Rouge Creek corridor (Appendix ‘A’). It is expected that a report will be brought forward from Legal Services in early 2006.

Town to undertake a Trail and Pathways Master Plan and Bicycle Pathway Study

The Town of Markham is currently undertaking a Phase 2 Bicycle Pathway Study to identify the location of a Town-wide bicycle pathway system. Input to the study process is being provided by the Town’s Pedestrian and Cycling Committee. The Town has also initiated a Town-wide Trails and Pathways study. The study will propose a Town-wide trail system as well as recommend priority trails and implementation recommendations. The location and function of the bicycle trail along Reesor Road and the north-south pedestrian/multi-use trail, as proposed in the Management Plan, should be provided as input into both the studies to ensure the function of the trails and local connections are coordinated.

There is tremendous opportunity to provide a superior pathway experience through the Little Rouge Creek corridor given the extensive land base, quality of the natural features, local cultural heritage features, agricultural landscape and the regional function of the Rouge Park. The Town priority through the Trails and Pathway Master Plan should be to ensure that the Little Rouge Creek corridor trail is connected to the local pathway and open space system planned for Cornell and Box Grove, as well as the trail system in the Toronto portion of the Rouge Park.

Little Rouge Creek Corridor Vision

The vision for the Little Rouge Creek corridor was first established in the Town’s Natural Features Study in the early 1990’s which identified the pristine condition of the Little Rouge Creek and the opportunity to protect a substantial corridor to provide a natural heritage system through the Town of Markham. The boundary of Little Rouge Creek corridor was addressed in OPA No. 5 (approved in April 1995) and further identified as a policy objective in the Cornell Secondary Plan (approved in July 1995). The Rouge North Management Plan (2001) identified a 600 metre corridor along the Little Rouge Creek comprising a terrestrial corridor (400 metres) to support interior forest habitat and a outer environmental edge (200 metres) for complementary open space uses. The Provincial Greenbelt Plan (2005) further identified a 600 metre ecological corridor along the entire length of the main branch of the Little Rouge Creek and included policies to recognize and support the policies of the Rouge North Management Plan.

Recommended Management Approach

On October 20, 2005, the consultants for the Little Rouge Creek Management Plan provided the Steering Committee with the Areas of Special Consideration mapping and draft Recommended Management Approach for the Little Rouge Creek. The maps are attached as Figures 1 and 2 respectively. It should be noted that the mapping identifies different trail locations and ecological linkages. Figure 2, “Recommended Management Approach” is the plan currently being recommended by the consulting team. The preliminary study recommendations are formulated under ‘General Study Recommendations’ which apply to the entire Little Rouge Park corridor and ‘Site Specific Considerations’ which recommend specific uses for specific sites.

The following list provides the ‘General Study Recommendations’ currently proposed.

· Reesor Road to be identified as a “Park Road” with landscaping, traffic calming measures, buffers to the Bypass and a bike lane along Reesor Rd.

· East–west roads considered as park roads with infrastructure improvements minimized.

· Single north-south bicycle trail along Reesor Road.

· Single north-south trail west of the creek south of Highway 7, and east of the creek north of Highway 7, comprising 10 km in length (identified as both pedestrian and multi-use).

· Ecological restoration within the corridor comprising 420 hectares (1,038 acres) of land for restoration.

· Potential ecological linkages identified outside of the public corridor extending east, west and north.

· Greenlands east and west of the Little Rouge Creek corridor should be brought into the Rouge Park Plan to create ecological linkages.

· Agricultural lands beyond the corridor should be protected, while considering ecological linkages (the lands east of the Little Rouge are protected through the Greenbelt Plan).

· All buildings except those identified under site specific recommendations should be maintained as leased properties of a suitable residential size and adjoining lands phased out of agricultural use and restored as ecological lands.

In addition to the general study recommendations, the Little Rouge Creek Management Plan study has identified twelve sites for special consideration with site specific recommendations. The special consideration sites are summarized on Table 1. The numbering corresponds to the map locations identified on Figure 2.

Table 1

‘Site Specific Recommendations’ and Markham Comments

#	Location	Little Rouge Creek Study Recommendations	Markham Staff Comments
1	7218 Reesor Road “Tanglewood”	Not specifically recommended for protection/restoration; further discussion with Markham recommended; board building; naturalize site	Designated Heritage Building “David Whaley House” c1835; costly bridge access construction required; building boarded and will result in the eventual loss of the resource
2	Cedar Grove Community	Special Heritage Node; longer leases; upgrade Cedarena for passive year round use; parking; eco-tourism and agri-tourism commercial activities at Cider and Vinegar Mill buildings; traffic calming and restricted road widenings along Reesor Road	High potential for public uses; existing parking area at Cedarena; population node within the corridor; agri-tourism uses consistent with Greenbelt Plan and EMSR; Town is reviewing Heritage District designation potential
3	7273 14^th Ave. and 7450 Reesor Road	Special heritage node; highest and best uses for the buildings that support Rouge Park (Rouge Park offices, interpretive site); trail linkage including a Rouge River pedestrian crossing	Designated “Peter Ressor House” and “Samuel Reesor House”; long-term lease option can help to preserve the dwellings
4	7551 Reesor Road	Smaller leaseholds; long term leases; phase out the agricultural use for ecological restoration	Designated “George Miller House”; long-term lease option can help to preserve the dwelling
5	7914 14^th	Smaller leaseholds; long-term leases; potential location for a tree nursery and Rouge Park operations area	Designated “Trans House” long-term lease option can help to preserve the dwelling;
6	Locust Hill Village	Heritage node designation; traffic calming and no road widening; public lands to the east and west to be used for the ecological corridor; potential trail head/picnic area for cycling route.	Dwellings in Locust Hill along Highway 7 privately owned; public frontage may be limited; trail access needs to be confirmed relative to private lands; Town is examining a Heritage District designation potential; future road widenings or by-pass may be required
7	Wurtz-Pike, Christian Reesor Farmsteads, Cemeteries and Locust Hill Schoolhouse	Agricultural heritage reserve designation; long term leases; compatible public uses for Locust Hill Schoolhouse (interpretive centre, trail head, community meeting space)	Aligns with open space system in Cornell community; high potential for public use; isolated agricultural parcel; Locust Hill Schoolhouse requires extensive restoration
8	16^th Avenue/Reesor Road wedge	Highest and best economic/commercial use that supports Rouge Park image/profile; potential rest stop picnic area and trail information	11 acre site severed by 16^th Ave., Markham By-pass and Reesor Road; high potential for revenue generation (commercial) and public use
9	Pierce Farm site	Private ownership; pursue for acquisition and ecological enhancement	Private lands; integral piece of the Little Rouge Creek corridor
10	9829 9^th Line	Town-owned property identified to be maintained (if sold, conservation easements placed on the property and sale proceeds given to the Rouge Park)	Report on Town-owned and leased properties in Little Rouge Creek corridor requested by Development Services Committee (Legal)
11	Federal ‘gap’ lands	Ecological restoration and linkages; extension of trail	Federal lands; ‘gap’ lands are identified for protection in the Federal Green Space announcement
12	16^th Avenue, east of Creek lands	Core natural area; ecological enhancement; recreation; trail; trailhead	Recreation and ecological enhancements identified

The Recommended Management Approach identifies management recommendations for properties and sites outside of the lands conveyed for Rouge Park purposes through the Provincial Little Rouge Creek conveyance. These include specific sites identified to round out the corridor (Steeles Avenue and 16^th Avenue), large areas identified for ecological linkages (east, west and north) Locust Hill properties and general stewardship best practices for adjacent lands. Staff recommend that the public Little Rouge Creek corridor as conveyed for Rouge Park purposes be clearly demarcated as subject to the proposed management recommendations and that non-Rouge Park lands not contain specific recommendations.

DISCUSSION

Ecological Restoration is the Prime Focus

The vision for the Rouge Park is first and foremost a natural heritage park and the protection and enhancement of its ecosystem is a priority. A significant portion of the Little Rouge Creek, centred around the watercourse, is recommended for ecological restoration purposes consistent with the policy approach identified in Markham’s Official Plan Amendment No. 140. The consultants applied the Rouge Park ecological criteria, as well as other ecological principles, to delineate the restoration area which comprises 420 hectares for ecological restoration. The lands owned by Markham, which generally comprise the Cornell valleylands, are proposed for ecological restoration. The study also identified ecological linkages outside of the study area. Two tributaries linking to Rouge Park south identified in Eastern Markham Strategic Review (EMSR) as potential Rouge Park linkages have not been identified.

Public Uses (Recreational, Cultural and Educational) are limited

The other important aspect of the Rouge Park is to promote the appreciation and enjoyment of the public lands for interpretation and recreational purposes. The success of the Rouge Park over time will be measured in the health of the natural ecosystem and by the manner and frequency by which it is used and enjoyed by the public. Although the Little Rouge Creek corridor is predominantly located in Markham, the public corridor is part of the larger ‘Rouge Park’ which is managed under the direction of the Rouge Park Alliance and is a regional natural environment park system.

The approach being recommended by the consulting team for the Little Rouge Creek corridor will provide minimal public use. The main recreational uses include a single north-south trail, a bike trail within the Reesor Road right-of-way (outside of the Rouge Park), and an 11 acre ‘public use’ site on the wedge bounded by 16^th Ave, Reesor Rd and Markham By-pass, which is also identified as having potential to support an economic use (commercial activity). The Management Plan also identifies other potential uses including a small interpretive centre within an existing heritage structure (would not be large enough for school or seniors groups), two potential picnic area locations (Locust Hill which is constrained by public access along Highway 7 and the wedge property bounded by Reesor Road, Markham By-pass and 16^th Ave. which is also identified for potential economic uses) and a potential site for recreation uses within an area also identified for core natural area. The only public uses that are identified as a fixed component of the Management Plan and identified on the mapping are the trails and the 4.5 hectare (11 acre) ‘Public Use’ (or commercial) wedge parcel surrounded by roads.

Development Services Committee identified options and opportunities for appropriate public uses

On September 20, 2005, the Development Services Committee of Markham Council received a presentation on the Little Rouge Creek corridor and discussed potential public uses which would be appropriate within the vision and context for the Rouge Park. Public uses, other than trails designed for nature and interpretation and adaptive re-use of heritage structures in fixed locations, would generally be located outside of the sensitive ecological preserve areas. Within the Little Rouge Creek corridor there are tablelands not identified for ecological restoration purposes, which could be considered for appropriate public uses to enhance the Rouge Park image and potentially provide revenue to help fund the Park.

Table 2 outlines the recommendations of the Management Plan and includes a summary of the public uses and activities discussed with Development Services Committee on September 20, 2005. The last column identifies staff recommendations and direction provided by Development Services Committee, which have also been incorporated into Appendix ‘B’.

Table 2

Public Uses in the Little Rouge Creek Corridor

Public Use/Activity	Little Rouge Creek Corridor Management Recommendations	Staff Comments	Development Services Committee Direction and Staff Recommendations
Trails	North-south pedestrian trail (west of creek south of Highway 7 and east of creek north of Highway 7); bicycle pathway along Reesor Rd.; creek crossing in Cedar Grove	Markham Pathway Master Plan Study to be undertaken in 2006; path currently identified on lands outside of the Rouge Park corridor south of Highway 407	Identify trail linkages to the Markham trail system; protect for a future looped trail system; contain trail within the defined corridor lands; provide managed access to watercourse at key locations
Trail construction	No details	Design trails in an environmentally sensitive manner; accessibility should be considered	Ensure a portion of the trail is wheelchair accessible; provide trail construction guidelines for trail materials and signage
Specialized trails	Some trail locations identified for interpretation elements	Specialized and theme trails should be encouraged wherever possible to provide for a wide variety of users in all seasons	Support themed trails; identify a cross country ski trail; consider horse trails subject to management agreements.
Trail Heads	Trail Nodal points identified at Cedar Grove Community Park, Cedar Grove Community Centre, Locust Hill School House and 16^th Ave. east of creek	Trail heads need to provide for managed park entry and park infrastructure (garbage bins, seating etc)	Trail head should be integrated with pedestrian system wherever possible; Locust Hill schoolhouse should include a pedestrian trail connection; appropriate trail head infrastructure provided (bicycle racks)
Interpretive Centre	Interpretive uses identified in existing heritage buildings	Interpretive services can generate revenue where large facilities are provided to accommodate school groups	A significant legacy interpretive structure for the Rouge Park should be considered to support the Rouge Park and eastern GTA; small interpretive centres are also appropriate

Public Use/Activity	Little Rouge Creek Corridor Management Recommendations	Staff Comments	Development Services Committee Direction and Staff Recommendations
Picnicking and informal play area	Potential identified at Locust Hill and 16^th Avenue wedge	Locust Hill predominantly in private ownership; 16^th Avenue site is bounded by three roads	Location of picnic area should be specifically identified on the Management Plan; at least one site should be able to accommodate large groups; picnic areas should be located in or near trail head to take advantage of potential parking; support fishing where appropriate
Specialized camping	Not identified	Specialized camping would be associated with an educational or cultural component; small scale in size; generate appropriate revenue to become self sufficient and require minimal infrastructure	Identify site or locational criteria within the Management Plan where specialized camping may be considered
Community Gardens	Not identified	Community gardens are generally used by residents in higher density forms of housing and comprise small garden plots used to grow vegetables	Community garden sites should be provided in areas identified for continued agricultural use
Dog Leash Free Area	Not identified	Town policy on Dog Leash Free Area is being prepared by staff	Dog leash free areas should not be precluded subject to use located in an area with minimal environmental and financial impact and consistent with the Town’s future guidelines
Nursery /Park Operations Area	Potential site identified at 14^th Avenue for native plant nursery	Little Rouge Creek Management Plan addresses potential use	Support
Agri- tourism and eco-tourism	Cedar Grove Community identified	Agri and eco-tourism consistent with Eastern Markham Strategic Review and Greenbelt Plan	Provide guidelines regarding potential uses
Planned Infrastructure	Road widenings restricted on Highway 7 and portions of Reesor Road	Regional and Town roads dissect corridor; infrastructure policies established in local and regional OP’s and Greenbelt Plan	Future infrastructure needs to support planned growth as permitted in the Greenbelt Plan area; infrastructure should not be precluded

The uses, activities and design considerations reflect existing and emerging recreational trends in Markham and those uses which would be compatible with the Rouge Park vision. As a regional park system, the Little Rouge Creek corridor should provide for unique natural area recreational experiences to accommodate a diverse and varied regional population. The Little Rouge Creek corridor is connected to the Rouge Park into Toronto and is intended to eventually connect to Whitchurch-Stouffville. The Rouge Park will provide opportunities for public recreation, enjoyment and appreciation for the growing Greater Toronto Area, not just Markham residents.

Staff recommend that the TRCA and Rouge Park Alliance significantly enhance the public use component of the Management Plan to reflect the regional function of the Rouge Park and provide a legacy of appropriate low impact recreational and public uses that will elevate the Rouge Park profile and create more opportunities for funding and stewardship. Of particular importance, is the need for a vastly improved multi-use and all season trail system that is integrated with the urban communities of Cornell and Box Grove, a variety of public use opportunities to enhance and support the Rouge Park and a ‘Rouge Park’ legacy interpretive, visitor or education centre to provide a focus for the Rouge Park and support it’s educational and interpretive objectives. Smaller interpretive facilities in existing heritage buildings could still be pursued by private or community groups (i.e. Reesor Family). Specific recommendations are identified in Appendix ‘B’.

Agricultural/Cultural Heritage focus for three areas

The Recommended Management Approach identifies a designation of ‘Cultural Heritage/Agricultural Area’ intended to protect the existing landscape. This designation has been applied to two sites in Cedar Grove, the privately owned properties in Locust Hill and the east side of Reesor Road south of 16^th Avenue directly adjacent the Cornell community. This would include the protection of heritage buildings, maintenance of agricultural activity if currently existing, protection and improvement of Cedarena as a public use facility as well as tourism type uses in two existing building in Cedar Grove. The private properties along Highway 7 forming Locust Hill are technically not part of the Little Rouge Creek Rouge Park and as such management recommendations should not be applied to these lands.

The Recommended Management Approach also identifies an ‘Agricultural Heritage Reserve’ at the Reesor Road/Cornell site. This location, directly across from the open space linkage in Cornell, provides an excellent opportunity for a trail connection into the Rouge Park and an ideal location for a public use facility or interpretive centre and trail head location. Staff recommend that further consideration should be given to locating an agricultural preserve on the east side of the creek where urban impacts, such as road safety, vehicular conflicts and security issues can be minimized, and the land use can benefit from the proximity to other agricultural uses and support systems. The fragmentation of the parcel could present long-term challenges to a viable farming operation given the surrounding urban uses and potential forest-species wildlife conflicts.

Long term lease option for all heritage and non-heritage buildings

Notwithstanding the recommendation that the Management Plan utilize selective heritage buildings for potential Rouge Park functional requirements (i.e. offices, etc), this may not occur in the short-term. To ensure the ongoing conservation and use of heritage and non-heritage buildings, the option of long-term leases should be available for all buildings.

Heritage District examination should be recommended

In June 2004, Council identified Locust Hill and Cedar Grove among other hamlets as areas for consultation and future study to determine their suitability as future heritage conservation district study areas and directed that properties in these areas be listed on the Markham Heritage Inventory as areas of special historic and cultural value and interest. In the current draft Little Rouge Creek Corridor Management Plan, the heritage district option is noted, but not recommended. Instead, the recommended approach for these two communities is to define the core village areas as Special Heritage Nodes to support preservation of village character and functions. Staff recommend that the examination of Locust Hill and Cedar Grove as future heritage conservation districts should be supported and pursued as part of the Management Plan’s recommended approach.

Restrictions on Infrastructure Improvements are of concern

The Recommended Management Approach proposes that Reesor Road and all the roads that traverse the site be created as ‘Park Roads’ which would accommodate a bicycle trail, a potential rural cross section, as well as additional landscaping in keeping with the character of the park. Road widening restrictions have been proposed for Highway 7 and Reesor Road.

The Little Rouge Creek Management Plan should not be recommending any restrictions on infrastructure unless supported by the Provincial, Regional or local governments and the Greater Toronto Airport Authority through their transportation assessments for the Pickering Airport. Infrastructure improvements required as a result of planned and future growth in Seaton, Pickering, Whitchurch-Stouffville and north Markham supported through the Provincial Places to Grow legislation, should not be precluded where proper and thorough environmental review will be undertaken in accordance to applicable local, regional and provincial policy. The overriding Provincial policy contained within the Greenbelt Plan, permits infrastructure in the Greenbelt lands.

FINANCIAL CONSIDERATIONS

There are no recommendations in this report which have direct financial implications to the Town at this time. However, should Council support the consultant’s recommended management approach, which would assign the Town the capital and long-term operating costs of all public and recreational uses (trails, bicycle lanes, picnic areas etc.), there would be substantial capital and ongoing management costs for the Town. A phased financial implementation strategy needs to form part of the Little Rouge Creek Management Plan based on public and private funding opportunities and including a funding formula which incorporates the Rouge Park Alliance partnership and senior levels of government.

The Little Rouge Creek corridor needs significant enhancement and investment to perform as a robust ecological corridor and public amenity. Preliminary cost estimates identify between 6 and 18 million capital dollars may be required to construct the proposed bicycle and 10 km pedestrian trail, improve existing recreational facilities (Cedarena), restore 420 hectares (1,038 acres) of land for ecological purposes, manage minor and major building repairs and heritage restoration repairs (not including significant heritage restoration projects). The current revenue source is forecasted at about $100k annually from the lease revenue plus some additional modest funding (Markham and Toronto yearly funding and in kind contributions) which is allocated to the Rouge Park Alliance.

There are numerous opportunities for revenue generation consistent with the Rouge Park vision. Examples include commercial/economic park related and support uses for key road frontage locations that do not form part of the ecological system, and public uses such as group picnic sites, visitor centre of sufficient size to accommodate school and special interest groups and specialized camping. The Glen Rouge campground south of Steeles Avenue operates from May to October and generates a profit used to offset City of Toronto expenses in managing Rouge Park lands.

Without a specific strategy for revenue generation to off-set the capital infrastructure component and long-term management of the Park, the delivery of the Park will rely solely on public funding. The funding stakeholders identified to date include TRCA for leasehold management (funded through lease revenue), the Rouge and Region for ecological restoration and the Town of Markham for trails and public use. Markham will be asked to contribute significant funds, including the capital construction costs for the trails, bike lanes, and recreational use facilities (conservatively estimated at $2 million) plus the ongoing maintenance costs associated with managing these facilities. It should be noted however, that the estimates for trail construction are extremely conservative at $25 per metre. Recent estimates in southern York Region for valley trails have been as high as $400 per metre. Development Services Committee at its meeting on September 20, 2005 identified that the Town would not be in a financial position to assume maintenance responsibilities for the TRCA owned Little Rouge Creek corridor lands.

The Development Charges Act does not permit municipalities to charge for trail development outside of the service level established over the last 10 years. The current Development Charge allocation for parks and open space development has been assigned to new park and park trails being constructed within the Town’s urban boundary. There is not an identified source of funding available for trail construction, outside of park development in new communities.

The Town currently provides the Rouge Park Alliance with a yearly $25,000 grant provided for Natural and Cultural Heritage Projects. This money is generally spent for ecological restoration or other projects approved through the Natural and Cultural Heritage program. The Town may wish to reallocate these funds once the Little Rouge Creek Management Plan is completed, to be used in the Little Rouge Creek corridor to help fund the public use component of the park development costs.

Staff strongly recommend that the TRCA and Rouge Park Alliance prepare a financial model and implementation strategy for the Rouge Park which provides for a sustainable, non-public source of funding to help support the construction of the recreational, cultural and agricultural amenities, ecological restoration efforts and ongoing management costs. All Rouge Park Alliance partners, including the senior levels of government, and the private sector need to be involved in the long term implementation.

ENVIRONMENTAL CONSIDERATIONS

The Little Rouge Creek Management Plan will provide a detailed management framework for a significant portion of Rouge Park lands in Markham. The Management Plan supports the Town’s Official Plan policies and the Environmental Focus Goal of the Town’s Engage 21^st Markham Strategic Plan.

BUSINESS UNITS CONSULTED AND AFFECTED

The recommendations in this report have been prepared in consultation with staff from Legal, Community Services Commission and Development Services Commission.

CONCLUSION

The Little Rouge Creek corridor is a significant addition to the Rouge Park extending north from Toronto into Markham and contains over 660 hectares (869 hectares with Bob Hunter Park) of land. The Rouge Park is considered to be the largest park in an urban centre in North America. This regional park system is intended to continue to expand as future lands are conveyed into public ownership through development approvals, purchases and other securement mechanisms. The Little Rouge Creek corridor was a Provincial donation for Rouge Park purposes and this vast resource is intended to provide for ecological restoration and public use. Increasing the profile of the Rouge Park by ensuring the resource can be used, appreciated and enjoyed by its current and future supporters will enhance the continued success of the Park in acquiring additional lands and funds to grow the natural park system. Creating a sustainable funding program for the park comprising non-public funds is essential to help deliver the Rouge Park vision.

The Little Rouge Creek corridor is a tremendous asset for Markham and the Rouge Park and should be planned in a manner which creates “a place to remember” both as a thriving ecological system and a place where the public can enjoy nature and a wide variety of leisure and recreational activities.

ATTACHMENTS

Appendix ‘A’: September 20, 2005 Development Services Committee Resolution

Appendix ‘B’: Town of Markham Recommendations for the Little Rouge Creek Management Approach

File Path: Q:\Development\Planning\MISC\MI461 RNMP\Little Rouge Creek Corridor\Report to DSC November 22, 05.doc

Valerie Shuttleworth, M.C.I.P., R.P.P. Director of Planning & Urban Design

Jim Baird, M.C.I.P., R.P.P. Commissioner of Development Services