Todd McCarthy, the Minister of the Environment, Conservation and Parks, has declared his intention to amalgamate Ontario’s 36 existing conservation authorities into nine new regional authorities by early 2027.
The change is being promoted by the provincial government as one step in a larger process to reduce red tape to support the construction of housing and infrastructure.
Critics of the proposal have argued that it means a reduction in local oversight, is a pretext for cutting environmental protections, will do nothing to address the housing crisis and is interfering in a system that works.
Before addressing the proposed changes and what they will mean, it’s important to understand both what a conservation authority is and the unique position they hold within the Ontario regulatory landscape.
What is a conservation authority?
Conservation authorities are public organizations focused on the local watershed. They’re responsible for natural hazard management — specifically flood and erosion control — and have regulatory powers around the development of land in areas like floodplains, shorelines and wetlands.
Many people’s interaction with them comes through visiting one of their conservation areas or parks, such Crawford Lake or the Glen Eden Ski Resort in Halton.
They’re overseen by a local board of directors comprised of representatives from area municipalities and organizations. They’re structured around common watersheds, which is why municipalities can find themselves under the jurisdiction of multiple authorities.
In Halton Region, the area is almost entirely within the territory of Conservation Halton. Credit Valley Conservation has a big chunk of Georgetown, along with a sliver of land on the Mississauga border from Highway 401 to Lake Ontario.
Two other authorities also reach into Halton with jurisdiction over slivers of land — the Hamilton Conservation Authority in southwest Burlington and the Grand River Conservation Authority (soon to be part of the new Eastern Lake Erie Regional Conservation Authority) in west Milton and Halton Hills (west of Acton).
What does the change mean for Halton?
It’s not entirely clear yet, but stakeholders have expressed both concern and optimism.
What we know for sure is that Conservation Halton will become part of the far larger Western Lake Ontario Regional Conservation Authority, which will also include Credit Valley Conservation, Hamilton Conservation Authority and Niagara Peninsula Conservation Authority. Its purview will extend from Fort Erie in the south to north of Orangeville.
The Ontario government has argued this amalgamation will reduce administrative duplication, redirect resources to front-line conservation and cut red tape that prevents the building of homes and infrastructure. They say the current system is fragmented, which has created uncertainty and delays for builders.
Under the new plan, the nine new conservation authorities would be centralized and overseen by the new Ontario Provincial Conservation Agency.
Hassaan Basit, Ontario’s chief conservation executive, said in a news release that the amalgamation would have numerous positives for the areas they serve.
“By building a modern, more unified system, we’re protecting local expertise while supporting front-line programs that communities rely on. The Ontario Provincial Conservation Agency would lead a smooth, well supported transition, ensuring conservation authorities have the tools and resources they need every step of the way to deliver effective watershed management programs,” said Basit.
Former Conservation Halton CEO Hassaan Basit is now Ontario’s chief conservation executive. He is at the forefront of the provinces push to amalgamate the authorities, arguing it will make for a more streamlined, unified system.
Graham Paine/Metroland
Representatives from Basit’s former authority have indicated they don’t think the amalgamations will affect how they serve the public.
“Our understanding from the announcement is that under the new consolidated Regional Conservation Authority, there will be no change to the key programs and services that Conservation Halton currently provides,” said Shelly Datseris with Conservation Halton.
Not every conservation authority has expressed the same optimism for the plan.
In March, the Credit Valley Conservation’s (CVC) board released a statement condemning the plan, arguing the change will actually slow development and create a disruption in a rapidly growing region.
Michael Palleschi, chair of CVC’s board and a Brampton regional councillor, said if the goal is to increase housing, this is a terrible decision.
“In the context of Ontario’s housing crisis, the last thing we should do is disrupt a system that is already helping get homes built,” Palleschi said. “Transitioning to a new regional bureaucracy would almost certainly slow approvals while staff, systems and governance structures are reorganized.”
Criticism of the proposal has also come from people outside of the authorities.
The environmental advocacy group Environmental Defence Canada argued the change represents a real risk to both public safety and the environment these organizations oversee.
Phil Pothen, the group’s Ontario environment program manager and counsel, said his concern is that decreasing the number of authorities is being presented as an administration change, but could lead to “reducing the level of scrutiny and protection that these authorities provide.”
The organization wants the provincial government to make a clear commitment that no development project that would have been refused under the existing system would be approved in the new system.
The province has stated that the new larger conservation authorities will be governed in a similar way to their predecessors with some notable changes. The boards will be between 15 and 20 people in size and the requirement that 70 per cent of the appointments made by municipalities be elected officials will be removed.
The conservation authorities will continue with the same responsibilities, including the regulation of development in areas at risk of natural hazards.
Halton municipalities react
We asked the four mayors of Halton Region what they think about the planned amalgamations of the Conservation Authorities.
Here’s what they had to say:
Burlington Mayor Marianne Meed Ward said the government’s commitment to the formation of local councils is a step in the direction of preserving local voice in conservation decisions.
Graham Paine/Metroland
Burlington — Mayor Marianne Meed Ward
The goals of the consolidation are laudable — to increase consistency, transparency and capacity for our community. Local voices and organizations can help with any improvements because we know our communities best — and here at home, Conservation Halton has a proven track record of innovation and service delivery.
The government’s commitment to the formation of local councils — which many of us requested — is a step in the direction of preserving local voice. These councils can also help to ensure fair funding that maintains existing revenue streams and reserves for local priorities.
The province’s commitment for transition funding is also welcome. In implementing the transition, the province could establish an advisory table or working group of high-performing (conservation authorities) to share best practices and knowledge across the entire province. We have demonstrated locally that we are ready to assist in any improvements that benefit our community and welcome further participation as the legislation moves forward.
Mayor Ann Lawlor said she is hopeful the new model will retain local involvement in the responsibilities of the conservation authorities.
Heck, Alexandra
Halton Hills — Mayor Ann Lawlor
This is an important issue for me personally; I have served on the board of Credit Valley Conservation since 2018 and most recently served a two-year term as vice-chair.
The Town of Halton Hills has strong working relationships with three conservation authorities — Grand River, Conservation Halton and Credit Valley Conservation. Conservation Halton and Credit Valley Conservation are especially important partners in supporting municipal needs for flood protection and natural hazard management, development permitting, outdoor recreation and environmental programs.
AMO, in its submission to the province regarding the proposed consolidation, noted that municipalities such as Halton Hills support the province’s goals of modernizing services, reducing duplication and accelerating housing approvals.
In Halton Hills’ experience, both Conservation Halton and Credit Valley Conservation currently perform very well against these objectives, providing efficient approvals, strong municipal co-ordination and support for the protection of public safety. Their practices could be used as models across the province.
Local tax dollars and donations have helped build and maintain valuable conservation areas and outdoor spaces across Halton Region — from Terra Cotta Conservation Park and the Credit Valley Trail to Crawford Lake, Kelso and Glen Eden, where many local children learned to ski or snowboard.
These year-round parks, trails, recreation and outdoor education spaces should stay locally owned and managed, with clear local accountability to the communities that paid for them and use them.
As proposed, however, consolidation would transfer land and assets from our Halton communities to a larger, more distant board with representation stretching from Niagara to Orangeville and Hamilton to Peel.
I am hopeful that the proposed Local Watershed Councils will be structured after the previous watershed models and enabled to assume responsibilities for conservation land and environmental management, outdoor education and recreation along with the related budget authority.
Honouring significant local investment, the existing land and assets would not be transferred to the consolidated regional conservation authorities and assets would truly remain under local control.
Milton mayor Gord Krantz is sceptical the amalgamations will produce a more financially efficient system.
Cilliers, Roland
Milton — Mayor Gord Krantz
I have been involved with Conservation Halton for many years. It is well run and has become more efficient in recent years. However, I understand the province is moving toward amalgamation of conservation authorities to further improve their effectiveness and lessen delays like approvals.
If this comes to pass, I feel strongly that Conservation Halton should retain properties like Glen Eden, Kelso, Crawford Lake and Mountsberg, which were funded by private local donations. Looking to the future, do I think amalgamation will create efficiencies by reducing duplication? Possibly. Will it be cheaper? I doubt it. Only time will tell.
Oakville mayor Rob Burton said he would continue to support the mission of conservation authorities.
Graham Paine/Metroland
Oakville — Mayor Rob Burton
The promise is that the fewer, bigger conservation authorities will be stronger and better able to focus on the original mission of protection of life and property through flood prevention. I will continue to support that vital mission.