Regulation for environmental protection: The Nanticoke industrial complex, Ontario, Canada

PROFILE Regulation for Environmental Protection: The Nanticoke Industrial Complex, Ontario, Canada J. G. NELSON Department of Geography Faculty of Environmental Studies Uriiversity of Waterloo Waterloo, Ontaria Canada N2L 3G1

d. C. DAY Natural Resources Management Program Simon Fraser University Burnaby, British Columbia Canada

SABINE JESSEN Department of Geography Faculty of Environmental Studies University of Waterloo Waterloo, Ontario Canada N2L 3G1

This assessment of the new Nanticoke industrial complex in southern Ontario is one of the Economic Council o f Canada's studies of environmental protection regulatory systems. These environmental protection studies are part of the Council's larger research project on the effects of regulation on many aspects of Canadian society. The regulatory studies were referred to the Economic Council by the Prime Minister and Provincial Premiers in 1978 in response to growing concern about regulations in Canada (Economic Council of Canada 1978 and 1979) Environmental, marketing, communications, and other regulations were seen by critics as having proliferated unduly, becoming unnecessarily complex and costly in terms of benefits received. Few objective studies of the effectiveness, efficiency, costs, and benefits of environmental or other regulations have been undertaken in Canada or other parts of the world. This and associated studies supported by the Economic Council

KEY WORDS: Environmentregulation;Efficiency; Effectiveness;Cost; Benefits; Greenfield; Industrial development;Resource and environmentalprotection;Coastal zone; Nanticoke industrialcomplex; LakeErie,Ontario EnvironmentalManagement,VoL 5, No. 5, pp. 385~395

ABSTRACT / This assessment of the environmental protection regulatory system for the $2.2 billion iron and steel plant, oil refinery, and thermal generating station composing the core of the greenfield Nanticoke industrial complex is based upon: the use of governmental and industrial research in project management; technology and institutional arrangements for environmental protection; evidence of environmental changes to date; analysis of govemment and industrial approval files; and interviews with government, industry, and interest group representatives.Planning, regulation, and management have been reasonably efficient and effective to the beginning of the operational stage for all three major industries as of spring 1980. Of major future concern, however, is managementof the cumulative and synergistic impacts of the industries and associated development on air quality as well as the lands, waters, and sensitive ecosystems of the nearby Lake Erie coast. Continuous monitoring, more comprehensive research, and better overall coordination of govemment, industrial, and public interests are required if Nanticoke benefits are to be achieved without undue cost to pre-project resource users within and outside the Haldimand-Norfolk region.

are intended to provide a firmer basis for future Canadian regulatory policy. The Nanticoke industrial complex is of special interest in two regards. First, it provides information concerning regulatory effects on massive new iron and steel, oil refining, and coal-burning power plants. Second, it provides information on the way environmental and associated land use regulations have been coordinated in one place among major industries and local, regional, provincial, and national governments, as well as Nanticoke area citizens. The development of a regulatory and governmental process adequate to resolve the many resource conflicts caused by new large-scale industrial complexes is a vital need for Canada. New industry is essential to continued regional and national economic prosperity. Yet it often conflicts with important pre-existing resource uses. The result has been widespread, growing, and often acrimonious conflict over the effectiveness of present systems for guiding economic development. While the large scale of the Nanticoke complex is not representative of industrial development elsewhere in Ontario or Canada, the magnitude of potential environmental impacts provides a major test of the capability of the regulatory system to deal with problems and 0364-152Xl81/0005-0385$02.20 01981 Springer-VerlagNew York Inc.

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conflicts in a comprehensive, effective, and efficient manner. This includes impacts on: the coastal area generally; significant fish spawning areas in the vicinity of the development; ecologically significant habitat for wildfowl in the nearby Turkey Point and Long Point marshes (Figure 1); land-use conflicts; air and water pollution; flood and erosion-hazard management; and conflicts with pre-existing resource users such as farmers, fishermen, and recreationists. The research began in May 1979, with literature reviews and interviews occupying three workers until 1 September 1979, Compilation and analysis were undertaken in fall 1979. A first draft report, completed 31 December, was circulated to 40 interviewees for comment. The present paper incorporates many suggestions made in 21 replies received prior to a presentation at the Professional Workshop on Regulation Research, sponsored by the Economic Council of Canada and the Centre for Regulated Industries, McGill University, Montreal, 17-18 April 1980.

Environmental Setting and Developmentof the Complex The Nanticoke complex is located in the HaldimandNorfolk Region on the north Lake Erie shore south of the Windsor-Toronto-Montreal urban corridor (Figure 1). The complex includes a coal-burning power plant, an oil refinery, and an iron and steel facility (Ontario Hydro 1977, Chessell 1978, Eisler 1975).Originally, these three industries were not considered part of an integrated c o m p l e x . Independently, Ontario Hydro decided to build a 4000-MW generating station, one of the largest in the world, in the early 1960's. Subsequently, Stelco (The Steel Company of Canada) constructed its four-phase iron and steel project near the power plant to take advantage of dependable power, access to Lake Erie, low land costs, and other characteristics of the HaldimandNorfolk Region (Eisler 1975). The first phase was completed in April 1980 and will produce about 1.35 million tons of steel annually. The Texaco oil refinery, with a capacity of 95,000 barrels/day, has been in production since November 1978 (Chessell 1978). In addition, Stelco incorporated an industrial park with 70 sites into the complex. A new town, Townsend, is under construction nearby. The complex has also triggered many other developments or potential projects such as airports, highways, residential subdivisions, and waste disposal and water-supply facilities. However, this study focuses on the three major industries.

Dramatic population increases from about 81,000 in 1965 to approximately 300,000 by year 2000 were forecast following annoucemnet of the major Nanticoke plants in the 1960's (Haldimand-Norfolk Study 1971). Such forecasts led the Ontario Government to purchase two large blocks of land at Townsend and Cayuga for new towns (Bigenwald and Richardson 1975). However, Stelco and other industries modified their plans several times and delayed proposed start-up dates, making projection and planning more difficult for governments and other affected groups. These difficulties were noted in 1971 by Fischer and Davies: The stage is set for coastal development problems when industry can shift into and out of the coastal zone at will. The on/off Stelco development has already tended to thwart coastal planning efforts by increasing speculation, inhibiting other investment in land and improvements and taking a large block of coastal land out of circulation. There is now a great need to designate endaves for industrial development where appropriate facilities will be provided with the support of private contributions. More recently, an increase was projected from the 1977 population of 87,040 to between 107,000 and 115,000 by 1986, and 170,000 and 210,000 by year 2000 (Regional Municipality of Haldimand-Norfolk 1979:4). Such changes are expected in a region where agriculture, fishing, recreation, and some surface mining have been the mainstays for decades (Burgess Graham Securities Limited 1978, Canadian Bechtel Limited 1970). A ma~or concern, therefore, is the adequacy of the regulatory system and other management measures to protect the environment and resources upon which these pre-existing activities are dependent.

Environmental ProtectionSystem Establishment of the Nanticoke complex led to a major local government transformation. Prior to the Nanticoke development, the government structure was a fragmented pattern of political authority and decisionmaking. In 1974, the Regional Municipality of Haldimand-Norfolk was created to integrate and improve the system. The two counties of Haldimand and Norfolk were merged and the 28 local municipalities were consolidated into six area municipalities. Planners on the regional government staff prepared an official plan for the Region. Currently they are working with area municipalities in preparing district plans and with senior government on other aspects of resource and environmental management.

Regulation for EnvironmentaI Protection

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More than 20 federal and provincial environmental acts apply to the Nanticoke complex and many federal, provincial, regional, and local agencies have management responsibilities. The principal role of the province is largely exerted through the Ministry of the Environment (MOE) and the Ministry of Natural Resources (MNR). The provincial Ministry of Housing (MOH) also has considerable influence through the Planning Act and its land use planning mandate, as do regional and local governments through official and district plans. These plans specify land use policies and procedures, induding measures for protection of vegetation, animal life, or other aspects of environment. Zoning bylaw, subdivision approval, and building permits may also be used to provide environmentalprotection. The Nanticoke environmental protection system is clearly complex. Many redundancies and inefficiencies

have been worked out through Canada-Ontario accords and through other agreements among provincial agencies with apparently overlapping responsibilities. However, these agreements are not always comprehensive or effective; an example to be discussed involves the management of Long Point Bay.

Terms of Reference and Methods The Nanticoke project has had many social effects; however, the prime focus in this study is on environmental impacts in the relatively narrow sense of biophysical elements and processes: air; water; sediment; visual, odor, and noise aesthetics; site conditions; flooding and erosion; animals; vegetation. This is an appropriate time to assess the efficiency, effectiveness, costs, and benefits of the environmental

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protection regulatory system adopted at Nanticoke. With the completion of the Stelco plant in spring 1980, the major planning and construction phase ended. Environmental planning and management measures during the 15-year development period can be assessed and future risks, potential problems, and requirements identified. In analyzing efficiency, stress is placed upon the time involved in task completion as well as on consistency, duplication, and waste of effort (Stanbury 1978, Hartle 1979, and others 1976). Effectiveness refers to the extent to which goals and objectives are reached and is difficult to assess, first because goals and objectives are not always well defined or ranked by corporations or government agencies, and second, because judgments on efficiency, effectiveness, costs, and benefits vary among users and interest groups. Two types of judgments are therefore included in this study: 1) the views of various actors or interest groups; and 2) the authors' conclusions based on all available information, including a limitied amount of comparative data from other studies. The findings are presented in such a way that readers can form their own conclusions. The key question investigated is whether the environmental protection measures were implemented at reasonable cost, in a reasonable time, and without undue adverse effects on the resource base and consequently on pre-project users and residents, notably farmers, fishermen, and recreationists. The assessment is based upon four main types of evidence: 1) the scope and character of the research program and the way the results were used in regulating and managing for environmental protection; 2) the institutional arrangements and the technology introduced to protect the environment, and evidence of environmental degradation to date; 3) information in government and industry approval files; and 4) facts and opinions obtained through interviews with government, industrial and interest group representatives.

Findings 9Research, Institutional Arrangements, Technology, and Evidence of Environmental Change

Numerous research projects have been conducted by industry and government on environmental, social, technical, and other aspects of the Nanticoke project (Haldimand-Norfolk Study 1971, 1972a, and 1972b; Effer 1971; Nanticoke Environmental Committee 1973

and 1978; Chanasky 1970; Haldimand-Norfolk Joint Study Committee 1974; Ontario Ministry of Natural Resources 1976; EnVironment Canada and Ontario 1975 and 1976). However, no pre-project government research was undertaken on the environmental or social suitability of the Nanticoke site for heavy industrial development. After the decisions had been made to construct the Nanticoke industries, government-industry coordinating committees were established first for research on water quality and the aquatic environment (NEC) and later for air quality (NEMP). Much of the environmental quality research was conducted by those committees. Monitoring programs were also introduced and costs shared. Many recommendations based onthis research were incorporated into planning, regulation, and management, for example in the regional government's Official Plan for ecosystem protection and land use zoning. The ultimate effectiveness of this effort depends, among other things, on implementation of relevant findings through area municipality or district plans presently being developed. Gaseous pollutant and suspended particulate matter concentrations are now generally low in the Nanticoke area. But a number of air quality concerns have been identified, including: 1) rare incidences of SOs standards being exceeded; 2) difficulty in measuring and delimiting air quality effects; 3) fumigation of chimney plumes, which can result in high ground-level pollutant concentrations; and 4) the impact of Nanticoke emissions on air quality elsewhere in Ontario and the U.S. (Lusis 1980). Research is currently underway on all of these concerns in order to better understand them and their effects on land use and ecosystems. Much sophisticated environmental technology was adopted at Nanticoke in an attempt to control projected emissions, for example of SOs, which have been projected at 300,000 tons per year, the second highest point source in Ontario (Lusis 1980). SOs levels could be reduced by installing scrubbers at the Ontario Hydro generating station like those now required in similar new U.S. plants. However, the cost of scrubbers has been estimated at $400 million for a plant which originally cost about $787 million (Science 1976; personal communication with C. J. MacFarlane, Director, West Central Region, Ontario Ministry of the Environment 1980). Furthermore, scrubber installation may not significantly reduce pollution downwind from Nanticoke because of pollution from other sources outside the Nanticoke area. Methods other than technology can be used to modify emissions; these would include controlling industrial siting in relation to environmental constraints, changing

Regulation for Environmental Protection

output, fuel types, land use regulations, and other factors. Construction of the three major plants and associated facilities reportedly has not led to significant changes in air or water quality to date, nor induced significant changes in pre-existing land uses or sensitive ecosystems. (Lusis 1980, Nanticoke Environmental Committee 1978). However, concerns were previously noted about air quality and some also exist for water quality and the aquatic environment. Some small but potentially significant water quality shifts reportedly could be occurring, as could changes in fish populations, although the latter may be short-term and not attributable to the project. For example, perch are under pressure from overfishing, as well as from entrainment at the Hydro plant and other industrial effects (Hamley and MacLean 1979). Additional unanticipated adjustments may be needed as new industries and other projects come into operation together and interactive effects develop. Increased shipping, dredging, slag and solid-waste disposal, as well as oil and other spills all pose potential problems (Hamley and MacLean 1979). Spills are a special hazard to fish and waterfowl populations of the nearby Long Point marshes. In light of the foregoing uncertainties, an overall monitoring and research program is desirable from the standpoint of existing NEC (water) and NEMP (air) initiatives. No evidence of comprehensive planning, regulation, and management has been found for Long Point Bay ecosystems and nearby waters. This is in marked contrast to the land, where an Official Plan has been prepared by the Haldimand-Norfolk Region in cooperation with provincial government agencies. The Plan is designed to guide development and to protect renewable resources and sensitive ecosystems, and to provide for adjustments to flood and other hazards. Complicated federal-provincial jurisdictional arrangements probably are at fault in the case of the bay; to avoid uncertainty the certain jurisdiction of natural resources should lead in planning, regulating, and managing nearshore waters. Another potential institutional innovation is a 3-kilometer buffer zone proposed in the regional official plan and supported by the Ministry of Environment. This buffer is intended to limit residential and other development near the plants and thereby reduce negative industrial emission effects in that high-risk area. In effect, the buffer would be retained largely as agricultural land. Problems with the buffer include difficulty in delimiting its appropriate extent (Hewings 1980), failure to prevent possible impacts on farmers and other

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residents of the zone, and possible damage to crops as well as health risks to consumers of produce from the zone. More detailed studies of zoning, compensation, insurance, land purchase, and other possible adjustments to industrial as well as natural hazards in the world would broaden the range of choice available in making the difficult regulatory and management decisions for new plants such as Nanticoke.

Approval Files Approval files were analyzed in terms of commentators, their concerns, dates of submission and approval, length of approval process, and comments, for example on special coordination mechanisms. Findings are summarized in Table 1. Different ministries have used different procedures; some involve many commentators from outside the agency, and some involve few commentators in essentially an internal technical review. No evidence was found that environmental approval procedures caused significant delays in plant construction, even though the process was flexible and responsive to changing information. Some projects were changed during the approval process; the plan for the Stelco dock was modified to allow for greater water, sediment, and fish circultion beneath the structure. Nevertheless, only six months were required to approve this controversial structure. Many approvals for the plants or for their major components took less than a year, less time than required for many residential and cottage approvals in the lakeshore zone (lessen 1979). A negotiation process generally was used by government and industry in implementing regulations, a process similar to that now advocated by some parties in the U.S. as a a possible solution to regulatory issues there (Rivkin 1977). In the Nanticoke case, negotiation generally did not involve local governments Or interest groups, such as the fishermen who sent a petition to the Minister of Natural Resources about the Stelco dock and other impacts when they perceived that major decisions affecting them were being made without consultation. A major conclusion of this study is that the regulatory system would have been more effective if the negotiation process had been opened to a wider constituency. If the process is used more frequently in the future, all government levels and major affected parties should participate in key committees and decisions from an early date.

Interviews Forty-three interviews were conducted with government (32) and industry officials (4) and other persons (7)

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Table 1. Summary of approval file analysis: Nanticoke industrial complex.

Proposal

Lead agency

CommenLegislation tators

Concerns

Dates of submission and approval Length

Comments

Official plan Ontario Min- Planning amendment istry of Act for Stelco Housing site

1 federal 5 provincial 2 regional/ local 2 citizen objectors

Flood & erosion haz- May 1968 ard lands. Equipment to approval by Depart- June 1968 mentofHealth prior to construction. Effect on cottage development.

1.5 months

Hearing held by Ontario Municipal Board: Land use designation changed from rural to industrial.

Official plan Ontario Min- Planning amendment istry of Act for Texaco Housing site

7 provincial 2 regional/ local 2 industrial

Water supply & Jan. 1970 sewage disposal, m Buffer around indus- June 1970 tries recommended. Effects on lakeshore & cottages.

4.5 months

Texaco offered to purchase cottages. One public meeting. Land use designation changed from rural to industrial.

Official plan Ontario Min- Planning amendment istry of Act for Stelco Housing dock lands

1 federal 6 provincial 2 regional/ local 1 industrial 10 citizen objectors

Industrial OntarioMin- Planning park subdi- istry of Act vision plan Housing

7provincial 2 regional/ local 5 industrial 1 other

Official plan amendment for Ontario Hydro site

Effect on recreational Sept. 1974 6 lakeshore lands. Elto months fect on fisheries. March 1975 Noise and dust.

Government coordinator involved. Two meetings held. Construction guidelines prepared by province. Ontario Municipal Board meeting with objectors. Land use designation changed from resort residential to industrial.

Old weUs on propAug. 1974 erty. Environmental to and socio-economic Nov. 1976 impacts of proposal.

6 or more meetings held between industry and government. Plan approval in reduced scale. Separate circulation by regional goverment to local and provincial govern-, ment agencies.

2years and 3 mos.

-A land use designation change was never made-

Texaco oil refinery

Ontario Min- Environ4 others istry of the ment ProEnvironment tection Act; Ontario Water Resources Act

Odor problems. Lake Erie water quality, Adequecy of technology. Air pollution, Noise pollution,

Stelco dock & associated water lot lease

Ontario Min- Public istry of Lands Natural Act Resources

Navigation. Fish April 1974 spawning areas. Litto toral drift. Gas well- Oct. 1975 heads. Fisheries, recreation, water quality.

3 federal 7 provincial 1 regional/ local 1 industry 2 others

Nov. 1972 to June 1977 for entire plant

1-12 months for most components. 5 years & 3 months for water treatment plant

25 air certificates and 2 water certificates issued. 6 meetings held. Three air certificates issued contingent on the establishment of a buffer zone. Water treatment plant and sulfur plant incinerator certificates conditional upon completion of performance evaluation.

18 months

12 meetings. 3 provincial reports prepared. Petition from fisherman to minister. Construction guidelines prepared by 2 provincial agencies. Two provincial representatives appointed to monitor construction.

Regulation for Environmental Protection

having administrative or other relevant experience with the Nanticoke development. With one exception, the industry interviews included three or more people in a g r o u p meeting as well as subsequent correspondence and questionnaire completion. Interview data were analyzed to assess opinions on adequacy of research, equipment, technology, and institutional arrangements, as well as equity, changes in plans or requirements, and overall effectiveness. T h e findings were summarized in tables similar to Table 2, which records opinions regarding overall effectiveness of the regulatory system. Among the more significant findings were the following. 1) Members of senior governments and industry displayed the most positive attitudes toward research. Many interviewees commented on the need for more study of spawning beds and other critical areas, as well as more long-term integrated research on an ecosystem or o t h e r holistic basis. 2) T h e r e was concern that the low level of federal involvement might be more efficient than effective, especially in research. 3) T h e r e was concern for more coordinating mechanisms to provide information and assistance on environmental regulatory requirements to industry and other interested parties. 4) T h e r e was a general expectation of major changes in plans and projections, although such changes izaused problems for industry and government when introduced by one or the other. 5) T h e r e was concern about apparent inequities resulting from development--for example, to farmers in the proposed buffer zone or to small and medium-sized businesses lacking the funds and technical resources to meet complex environmental regulatory requirements efficiently and effectively. 6) T h e r e was a generally positive attitude to overall effectiveness of the environmental regulatory process, although uncertainty existed about the ability of the c u r r e n t environmental protection system to control degradation u n d e r full-scale development in the Nanticoke area.

Costs and Benefits T h e cost and benefit data in this study are limited because of lack of appropriate accounting procedures in some cases, little previous research on the question, time availability, and other constraints. Stelco, Texaco, and Ontario Hydro each spent between $70 million and $96 million on environmental protection, or 10 to 15 percent of each company's total project expenditures (Table 3).

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Secondary costs to government agencies totalled about $133 million, or 6 percent of total project costs of approximately $2.2 billion by summer 1980. Much of the latter will be recovered through various user charges for water and sewage. Little information is available from other studies for comparison with these findings. Alt h o u g h social effects were not part of this study, many residents of the region and wider area perceive a negative Nanticoke project impact on living costs, taxes, political conditions, and lifestyles. On the other hand, massive investment has occurred, and about 2,900 jobs reportedly will be created in the three major industries and the industrial park by 1981. Some of this may be transfer employment from Hamilton, Port Credit, or other areas. Technically advanced equipment, primarily at Stelco, should make industry more competitive in Canada and abroad. O t h e r benefits include development of better techniques, for example for fish protection during construction, institutional innovations such as NEC and NEMP, and new technology, all of which can be used elsewhere.

Conclusions T h e key question is whether environmental protection and other measures have been implemented at reasonable cost, in a reasonable time, and without undue effects on the resource base, pre-project users, and residents. Generally, the project and its various impacts were regulated and managed reasonable efficiently and without significant known adverse affects to date. It is difficult to arrive at a firm conclusion on costs. In our view, they were not unreasonable, given the current level of protection and other benefits. However, Stelco for one, concluded that environmental protection costs were "significant" (by personal communication with H. H. Eisler, Stelco Environmental Control Manger, March 1980). A literature review indicates that, while considerable evidence supports the assertion that regulation and other m a n a g e m e n t measures have not prevented increases in coastal-zone hazard-damage costs (Nelson and others 1975, Day and others 1977, Fraser and others 1977), less evidence is available upon which to base judgments about the efficiency and effectiveness of the regulatory process generally. Scattered and variable data are presented in reports by T h e Conservation Foundation (Little 1974, Meyers 1974a and 1974b, Noble 1977) and other agencies in the United States (Montanari and Kusler

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Table 2. Summary of interviewee opinions on the effectiveness of the Nanticoke environmental regulatory process. Government Federal Positive Neutral Negative No comment Not analyzable Total Comments

1 --2 2

Provincial 6 6 4 2 2

5 20 Regulatory sys- The acid rain problem is so tern has been en- widespread that its effects are vironmentally el- impossible to control, fective to date but some uncertain- Reservations were expressed ties regarding about greenfield developits future effec- ments on the basis of environtiveness exist, mental and social impacts.

Regional and local 4 1 1 -1

Industry 4 -----

7 Concern was expressed about the effects of waste disposal and the need for development control in marshes and hazard lands.

4 There have been no significant biophysical environmental effects to date.

Interest group 1 -3 -2

Total 15 7 8 4 7

7 43 Generally, negative environmental effects were perceived as a result of the industries.

The social imThey are very conpacts on the area scious of social iraConcern was exwere acknowlpacts. There is concern about the pressed about the edged. effects of Hydro's dredging incremental impacts There is widespread and disposal of materials on of development on concern about the spawning beds. the region. possible future environmental impacts. Environmental quality has not Full operation of the deteriorated to date, but social complex in future and economic impacts have was perceived as havoccurred, ing possibly negative environmental imFuture environmental prob- pacts, although no lems are anticipated when full significant effects operation is reached, have occurred m date. Special concern was expressed about development effects on Generally, onlysocial Long Point Bay and the lake- impacts have been shore, especially on recreaexperienced to date. tion and fisheries.

1978). However, t h e s e studies a r e characterized by inconsistent m e t h o d o l o g i e s a n d incomplete data, which p r e v e n t detailed analysis o f t h e time r e q u i r e d for app r o v a l processes, overlaps a m o n g agencies, coordination m e a s u r e s , a n d o t h e r criteria. More research is n e e d e d to p r o v i d e s u c h i n f o r m a t i o n to enable c o m p a r i s o n with t h e results p r e s e n t e d h e r e a n d to p e r m i t better generalizations a b o u t t h e efficiency a n d effectiveness o f the r e g u l a t o r y process. Systems like t h e o n e d e v e l o p e d in this s t u d y for analysis o f approval files could be u s e d regularly by g o v e r n m e n t a n d i n d u s t r y to i m p r o v e t h e quality o f t h e r e g u l a t o r y process. Finally, uncertainties a b o u t t h e f u t u r e m a k e it difficult

to be f i r m a b o u t t h e ultimate benefits o f t h e Nanticoke d e v e l o p m e n t . O f serious f u t u r e c o n c e r n is the m a n a g e m e n t o f air quality a n d o f t h e water, fish, wildlife, a n d sensitive ecosystems o f t h e L o n g Point Bay area a n d the coastal zone. C o n t i n u o u s m o n i t o r i n g , m o r e c o m p r e h e n s i v e r e s e a r c h that includes social studies, a n d better overall e n v i r o n m e n t a l m a n a g e m e n t are required if N a n t i c o k e benefits a r e n o t to be achieved at potentially avoidable costs to fishing, agriculture, tourism, a n d o t h e r p r e - p r o j e c t industries as well as residents, a n d o t h e r N a n t i c o k e resource users living outside the region. A t t e n t i o n m u s t be paid to t h e cumulative impact o f t h e full r a n g e o f interacting activities a n d influences. In this

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Table 3. Environmental protection costs for the Nanticoke industrial complex 1967-1979 a ($ x 103). Environmental proEnvironmental pro- Total project tection costsb costs

Primary costs Stelco Texaco Ontario Hydro Primary total

96,000 70,000 82,629

800,000 483,115 826,290

248,629

2,109,405

tection total project costs %

Average

Man-years

12.0 14.5 10.0

248 68 78 c

11.7

394

100.0 100.0 100.0 0.6 0.1 100 100 100 0

31 80 12

Secondary costs Ontario Government Environment Natural resources Treasury, economics Housing Transportation Provincial coordinator Haldimand-Norfolk Region Long Point Region Conservation Authority City of Nanticoke Secondary total Grand total

92,395 641 140 172.5 13 e 25 1.475 66 0 93,627.5 342,252

92,395 d 641 140 30,172 f 8,529 25 1,475 g 66 0 133,271 2,242,671

1.5 48 6 0 178.5

Secondary total cost %

38%

6%

Primary total cost aTwo major environmental studies programs pertaining to the Nanticoke EnvironmentalMonitoringProgram ($3.17 million from 1977-1979) and the Nanticoke Environmental Committee ($1.48 million from 1967-1979) are included in the Stelco, Texaco, Hydro, MOE, and MNR expenditures. b Includes salaries, office and research space, monitoring, legal and contract, and equipment costs. cAssuming 6 man-yearsannually from 1967-1979. d This includes preliminary estimatesof $37 million for a water workssystemand $54 million for sewagecontrol facilities; interim financing costs are not available. e Environmental study component of the Highway6 Joint Use Study technical report. fReported cost for Townsend and Cayugaland banks, but not housing land in existingcommunities. gCertain road capital costs unknown.

r e g a r d , O n t a r i o and Canada can probably benefit f r o m studies o f the comprehensive coastal m a n a g e m e n t efforts o f the U.S. since the passage o f the 1972 Coastal Zone M a n a g e m e n t Act (U.S. D e p a r t m e n t o f C o m m e r c e 1976 a n d 1979).

Bosselman, F., D. A. Feurer, and C. L. Siemon. 1976. The permit explosion: coordination of the proliferation. The Urban Land Institute, Washington, D.C. Burgess Graham Securities Limited. 1978. The Regional Municipality of Haldimand-Norfolk debenture offering. Regional Municipality of Haldimand-Norfolk, Cayuga, Ontarto.

Literature Cited

Canadian Bechtel Limited. 1970. An evaluation of urban systems---Haldimand-Norfolk study area Ontario, Canada: development potentials. Vol. I. Canadian Bechtel Ltd.

Bigenwald, C. A., and N. H. Richardson. 1975. Regional planning: A Canadian case study. Presented at the 57th Annual Conference of the American Institute of Planners. San Antonio, Texas.

Chanasky, V. 1970a. The Haldimand-Norfolk environmental appraisal: inventory and analysis. Vol. 1. Ontario Ministry of Treasury, Economics and Intergovernmental Affairs, Toronto, Ontario.

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Regulation for Environmental Protection

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