The Government of Ontario does not have a long-term strategy to reduce the impacts of mineral aggregate (i.e., gravel, sand and stone) extraction on drinking water source waters and other important environmental assets. It also lacks basic information on the state and consumption of the province's aggregate resources.
These are the major conclusions of a study released today by the Pembina Institute. Rebalancing the Load: The Need for an Aggregate Conservation Strategy for Ontario compares the province's approach to aggregate resources management with those of other jurisdictions facing serious public conflicts over the impacts of mineral aggregates mining.
The environmental effects of aggregate extraction have been the source of growing public concern in southern Ontario, particularly in relation to the Niagara Escarpment, Oak Ridges Moraine and proposed Greater Golden Horseshoe Greenbelt. At the same time, the aggregate industry suggests that a 'crisis' of aggregate supply is emerging in the region, and that the province should facilitate easier access to resources.
Rebalancing the Load concludes that province has taken virtually no action to ensure the efficient use of the resource, or to explore alternatives to the use of newly extracted aggregates. Such alternatives include the use of substitute materials, or the redesign of buildings, roads and other structures to reduce the need for primary aggregates. Instead, the province has adopted policies that favour aggregate extraction over almost all other land uses in an attempt to ensure continued supply.
"Ontario's approach stands in stark contrast to that taken by other jurisdictions facing similar conflicts over aggregate extraction and environmental protection," said Dr. Mark Winfield, Director the Pembina Institute's Environmental Governance program, and co-author of the study.
"In the United Kingdom, for example, the government has adopted an explicit policy of reducing dependence on newly mined aggregates, and implemented a comprehensive conservation strategy. The strategy includes the application of a resource charge more than sixty times Ontario's $0.06 per tonne charge to promote conservation and finance the supply of alternative materials. Sweden and Denmark have adopted similar strategies," added Dr. Winfield.
The study concludes that Ontario needs to develop and implement a comprehensive strategy for the management and conservation of the province's aggregate resources. The key elements of the strategy would include
- developing and publishing up-to-date assessments of mineral aggregate supply and demand in Ontario
- imposing higher charges for primary aggregate extraction to promote efficient use of the resource and finance conservation measures
- reducing the need for primary aggregates through the use of alternative development standards
- removing policy barriers to the use of recycled materials as substitutes for primary aggregates
- establishing requirements for the use of recycled materials as substitutes for primary aggregates in public projects wherever possible
- establishing targets for reduced use of primary aggregates
- establishing controls on the disposal of potential substitutes for primary aggregates
- adopting policies to promote fewer road-dependent urban developments
- completing a life-cycle assessment of aggregate transportation options.
More broadly, the study recommends that the province update its policy and legislation with respect to mineral aggregates, including
- modifying the Provincial Policy Statement made under the Planning Act to provide a better balance between aggregate extraction and other land-use priorities.
- strengthening the rehabilitation requirements of the Aggregate Resources Act, and ensuring more effective enforcement of these requirements by the Ministry of Natural Resources (MNR).
- adopting measures to address the backlog of unremediated aggregate extraction sites.
The Pembina Institute has filed an application for review of the province's mineral aggregate policies under section 61 of the Environmental Bill of Rights on the basis of the findings contained in Rebalancing the Load. The province is required to respond to the application within 60 days.
Approximately 165 million tonnes of mineral aggregate are mined in Ontario each year, largely in southern Ontario. Aggregates are used in the construction of roads, buildings, and other structures, and in the manufacturing of glass, paint, plastics, paper, fertilizers, steel and pharmaceuticals.
Rebalancing the Load can be downloaded from the Pembina Institute Web site here.
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For more information contact
Mark Winfield, PhD
Director, Environmental Governance
Pembina Institute
Tel: 416-978-5656
Cell: 416-434-8130
Fax: 416-978-3884
E-mail: markw@pembina.org
Web: www.pembina.org.