HomeMy WebLinkAboutPSD-009-06
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Cl~-4Jgton
REPORT
PLANNING SERVICES
Meeting: GENERAL PURPOSE AND ADMINISTRATION COMMITTEE
Date: Monday, January 23, 2006
Report #: PSD-009-06
File #: PLN 1.1.12
,By-law #:
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Subject:
PLACES TO GROW
DRAFT GROWTH PLAN FOR THE GREATER GOLDEN HORSESHOE
RECOMMENDATIONS:
It is respectfully recommended that the General Purpose and Administration Committee
recommend to Council the following:
1. THAT Report PSD-009-06 be received and endorsed as the Municipality's comments
on the Proposed Growth Plan for the Greater Golden Horseshoe; and
2. THAT Report PSD-009-06 be forwarded to the Ministry of Public Infrastructure Renewal
and the Region of Durham Planning Department.
Submitted by:
v J. Crome, M.C.I.P., R.P.P.
irector of Planning Services
Reviewed bQ ~-sfA.)I...
Franklin Wu,
Chief Administrative Officer
DJ/COS/DJC/df
January 17, 2006
CORPORATION OF THE MUNICIPALITY OF CLARINGTON
40 TEMPERANCE STREET, BOWMANVILLE, ONTARIO L 1C 3A6 T (905)623-3379 F (905)623-0830
REPORT NO.: PSD-009-06 PAGE 2
1.0 BACKGROUND
1.1 In July, 2004 the province released a discussion paper for growth management for the
Greater Golden Horseshoe. The Municipality provided comments via Report PSD-114-
04. The Municipality’s primary concerns were:
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Infrastructure funding for transit needs to occur in many growing areas outside of the
Priority Urban Centres as Clarington was not identified as a Priority Urban centre.
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The extension of GO Rail to Bowmanville is critical.
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Future growth areas should be policy driven and not mapped.
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The province needs to recognize Clarington's emerging cluster of energy-related
industries.
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Intensification needs to be defined and incentives for intensification are necessary
for it to be viable including changes to the development charges system, property
assessment and taxation, income and sales tax.
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Municipalities need stronger tools to control the phasing of development in urban
areas
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Performance measures should include provincial ministries
th
1.2 On February 16, 2005 the Province released the Draft Growth Plan for the Greater
Golden Horseshoe.
The objective of the Draft Plan is to provide growth management policy direction to the
year 2031 to address the problem of sprawl and the economic competitiveness of
Central Ontario as reflected in congested transportation routes, ineffective public transit,
soaring infrastructure costs, conversion of employment areas, deprivation of the natural
environment and human health. Through the Plan, the Province intends to significantly
alter growth management by using its planning powers and infrastructure funding
capacity.
In April 2005 the Municipality provided comments via Report PSD-057-05 that were
forwarded to the Ministry of Public Infrastructure Renewal and the Region of Durham
Planning Department. Some of the major issues that were outlined in the response are:
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The omission of identifying Bowmanville as an Urban Growth Centre;
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Limited intensification targets in Clarington in terms of the intensification target;
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The need to have Provincial incentives and financial tools in place to encourage
intensification;
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Concern that the inner ring sub area, of which Clarington is part of, may be too
large for proper consultation/participation;
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A lack of clarity concerning urban boundary expansion policies for there is a
strong possibility of no further expansion of the urban boundaries of Clarington;
and
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The need to have Clarington recognized as a Special Employment Area in the
sub-area strategy exercise.
REPORT NO.: PSD-009-06 PAGE 3
1.3 Subsequently, the Provincial government enacted the Places to Grow Act 2005 on June
13, 2005. To implement the Act, the Ministry of Public Infrastructure Renewal released
Proposed Growth Plan for the Greater Golden Horseshoe
the on November 24,
2005. A copy of this Proposed Growth Plan is attached (Attachment 1).
1.4 Notable changes from the earlier Draft Growth Plan dated 16 February 2005 are as
follows:
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Removal of the contextual element from all subsections reflecting its evolving status
as a statutory plan.
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The deletion of the sub-area strategies, which included the urbanizing portion of
Clarington in the Toronto/Hamilton conurbation. Sub-area strategies were seen as a
duplication of the regional planning and too time-consuming.
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Technical and sub-area assessments is to be conducted by the Ministry of Public
Infrastructure and Renewal in consultation with upper- and single-tier municipalities.
These procedures will partly replace/substitute the initial sub-area strategies. Other
work from the sub-area strategies has been moved into the Growth Plan.
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Delineation of the “built boundary“ by the Provincial Authority to measure all future
intensification efforts. The inclusion of this policy clearly indicates that the Province
is taking “aggressive” action on managing growth and promoting intensification.
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Setting of a range of urban growth centre density targets. Setting targets provides a
measurable tool and clearly distinguish urban growth centres as being the focal
points for intensification, job creation and infrastructure provision.
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The incorporation of Major Transit Stations as one of the key focal points for
intensification and the provision of transit supportive uses.
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Removal of the Oshawa to Bowmanville corridor from the proposed “Higher Order
Transit” to 2031.
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The inclusion of community infrastructure as a key component in the intensification
process. Human settlement is an integrated process – the inclusion of this policy
recognises the importance of timely and sufficient delivery of services e.g. schools,
clinics, recreation, aimed at create “complete communities”.
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The introduction of a new section: “Rural Areas” and associated development
criteria. The rationale is to clearly distinguish between urban settlements that
encompass urban growth centres, small cities, towns and hamlets and areas falling
outside the settlements areas and to set out distinguishable intensification and
development criteria.
REPORT NO.: PSD-009-06 PAGE 4
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The inclusion of the requirement that settlement boundary expansion may only occur
through a municipal comprehensive review and the expansion of the criteria to be
met through such review.
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The identification of Public Transit as first priority for transportation infrastructure.
That clearly underlines that transportation planning is and should be “hand in glove”
with growth policies.
In order to implement the growth plan’s policies, additional data gathering
and analysis is required over the next 8-12 months. The work to be undertaken through
the implementation analysis falls into two categories:
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Technical assessment
that will be undertaken by the Ministry of Public
Infrastructure Renewal in consultation with upper- and single-tier, and affected
lower tier municipalities, and will address: verification and finalization of the built
boundary, determining the scope of urban growth centres and the assessment of
the need for future urban lands.
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Sub-area assessment
that be undertaken by the Ministry of Public Infrastructure
Renewal in consultation with partner ministries and municipalities within each
sub-area that will consist of a regional economic assessment to guide planning
for employment, refining and phasing of the proposed transport network, analysis
of water/wastewater capacity and requirements to serve projected growth and
identification of the natural system and the prime agricultural areas.
1.5 Staff will provide a presentation on the Proposed Growth Plan at the Committee
2.0 MUNICIPAL COMMENTS
Comments on the Proposed Growth Plan are as follows:
Support for the Region of Durham’s recommendations on the Proposed Growth
2.1
Plan
The Regional Planning Department prepared a comprehensive response to the
Province on the Proposed Growth Plan (Report No. 2005-P-9) that was presented to
Planning Committee on January 10, 2006 (Attachment 2). Prior to the presentation of
this report, the Region hosted a meeting attended by area municipalities to discuss and
comment upon the Proposed Growth Plan. Clarington staff attended this meeting. The
Municipality of Clarington generally supports the Regional Staff report and the
recommendations contained within the report unless otherwise noted herein. The
comments and recommendations of the Municipality of Clarington set out below are
intended to reinforce and expand upon the Region’s recommendations and not to
detract from them.
REPORT NO.: PSD-009-06 PAGE 5
Identify Bowmanville as an Urban Growth Centre
2.2
From a regional planning perspective Bowmanville forms a logical and very significant
nodal (structural & functional) link between the identified Peterborough and Oshawa
Downtown Urban Growth Centres. Clarington is one the fastest growing municipalities
in Durham. Being the eastern anchor to a number of growing urban areas that extend
beyond Port Hope, Cobourg and Lindsay and the gateway to the so-called “inner ring”
require a higher priority listing and growing financial and infrastructure investment.
Intensification targets need to respect the unique characteristics of urban
2.3
settlements within municipalities
The Provincial Growth Plan requires a 40% intensification target by 2015 and every
year thereafter within the upper tier area (eg. Durham Region). Theoretically, this
allows for some municipalities to take more intensification while others can take less
due to unique circumstances in each municipality. In reality, the target is so high that no
municipality will take greater than 40%, so no municipality could be lower.
Clarington has a significant number of heritage buildings and areas that require
protection and limits potential for intensification. Certain urban areas have certain
unique density characteristics based on certain historical and/or economic factors e.g.
Newcastle’s residential densities are lower than that of Courtice and Bowmanville. Most
of residential development in Clarington occurred in the last 20 years which further limits
the opportunity for intensification within the “built boundary”. The Growth Plan needs to
recognise unique density patterns and significant heritage areas and could provide
policy guidelines as to how or to what extent unique density patterns and significant
heritage areas should be addressed in the intensification process.
The Places to Grow Plan and the implementing legislation should enhance municipal
Council’s rights to determine the character and future of the Community. The Council
makes these decisions based on extensive public participation.
The Places to Grow Plan could be expanded to include an Urban Design Section to
better reflect recently introduced Bill 51 to mainly mend the Planning Act and the
Conservation Land Act. Bill 51 would allow municipalities a larger role in determining the
quality of development through urban design standards. These standards need to be
complementary to the intensification targets of the Places to Grow Plan.
Density targets for residents should be separated from jobs and more clarity is
2.4
required in terms of how the targets are to be measured
The density target of 50 jobs and residents combined for greenfields will be difficult to
monitor as residential development and job creation/development on employment lands
do not necessarily occur concurrently, in conjunction or in the same geographic
location. It would be advisable to set separate density targets for residents and jobs
and to provide clear guidelines with regard to the actual application of this density target
by lower tier municipalities.
REPORT NO.: PSD-009-06 PAGE 6
More recent assessment information is needed to plan for the future
2.5
The designation of the built boundary is to be based onyear-end 2003 assessment
data. Clarington has experienced two high growth years since then which will result in
an “inaccurate” platform or point of departure to plan or assess intensification and future
urban expansion in Clarington.
Clarington supports the proposed sub-area assessments to identify potential
2.6
economic clusters and provincially significant designated employment areas
through formal consultation with lower tier municipalities
There should be proper consultation with the Municipality of Clarington specifically with
regard to the emerging cluster of energy-related industries at the proposed Energy Park
in Courtice and the proposed Science and Technology Park in Bowmanville where the
first tenant has already constructed its first building for biotechnology research.
Include local municipalities in the sub-area assessment consultation process
2.7
If the Growth Plans promulgates an integrated planning approach then there should be
greater commitment to consultation in the development of the sub-area assessments.
The inclusion of lower tier municipalities in the sub-area assessments and technical
assessments is advisable as it will result in sufficient formal consultation with
municipalities and timely funding.
The Growth Plan should be amended to reflect the improved higher order transit
2.8
to be extended from Oshawa to Bowmanville
The Growth Plan sets policies in place that would guide expenditure decisions in the
GGH, but it should also identify the proposed Bowmanville GO station and extension of
higher order transit to Bowmanville.
Complete communities can only be developed in Clarington if the transit network is
extended and improved. The timely provision of higher order transit is key to accomplish
this goal.This is consistent with the Regional Official Plan and the long-term service
expansion planned by GO Transit. Future station sites have also been acquired in
Oshawa and Bowmanville.The withdrawal of the proposal to improve the transit link
shown in the draft Growth Plan is not acceptable.
The Growth Plan needs to build on the natural system and agricultural policies
2.9
already in place
The Municipal Official Plan and Regional Official Plan contain detailed plans and
policies with regard to the protection of the natural and agricultural systems outside the
Greenbelt Area – there is no need to repeat these detailed studies.
REPORT NO.: PSD-009-06 PAGE 7
The Growth Plan Implementation needs to include clear funding mechanisms,
2.10
fiscal incentives and subsidies for intensification and infrastructure
There is a need for a greater and timelier financial commitment to the initiative and the
identification of long-term fiscal incentives to create a more compact driven
environment. In particular, the property tax system and the development charge system
needs to reflect a premium for lower density and/or greenfield development.
The Growth Plan should be expanded to include plans to mobilize and involve the
2.11
relevant service providers and stakeholders in the provision of community
infrastructure
The introduction of policies that deals particularly with the provision of community
infrastructure is welcomed. However, the success of the implementation of the Growth
Plan, as in the case of any development plan, depends mainly upon the actual method
of implementation. It is hoped that the relevant service providers and stakeholders will
be properly consulted on and involved in the implementation of the Growth Plan and
that the where, what and who will be properly identified before implementation.
Major community infrastructure should not be included in density calculation
2.12
The proposed methodology for calculating density excludes only environmental lands.
Major community parks, open space areas and major community facilities like high
schools are included. The intent is to encourage more compact building forms and
efficient lands uses. While this may be desirable for community facilities, municipalities
should not have to develop at higher densities as a result of providing major park
facilities.
3.0 CONCLUSION
3.1 The Province’s intervention and greater role in the urban development in the Greater
Golden Horseshoe through the implementation of the Growth Plan and the sub-area
assessments will significantly alter our physical environment over the next 25 years, will
hopefully result in more “complete” urban communities and set the tone for further
development beyond 2031.
3.2 The success of the Growth Plan will largely depend upon the transparency of
governance: consulting and involving all stakeholders and implementing agents in the
procedures and studies to follow, and putting the necessary financial tools in place to
realise the intent of the Growth Plan will eventually determine its level of success.
3.3 Another key element for the success of the Plan is the necessary balance among the
roles of the Province, the Region, and the local councils that will define the character
and future of our communities.
REPORT NO.: PSD-009-06 PAGE 8
3.4 To what extent Clarington is going to be affected will become clearer through the
technical and sub-area assessment processes and the implementation phase. It is
however critical for the Province to recognise the significance of Clarington as being the
eastern gate-way to the inner ring, its interrelationship with surrounding urban nodes
and to provide a timely infrastructure and fiscal plan to strengthen the functionality and
sustainability our municipality in collaboration with the Region of Durham.
Attachments:
Attachment 1 – Places to Grow: Proposed Growth Plan for the Greater Golden Horseshoe
Attachment 2 – Durham Planning Commissioner’s Report 2005- P-9
Attachment 1
To Report PSD-009-06
PLACES TO GROW
Proposed Growth Plan
for the Greater Golden Horseshoe
November 2005
Ministry of Public Infrastructure Renewal
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TABLE OF CONTENTS
1 INTRODUCTION
1.1 Context
1.2 Vision for 2031
1.2.1 A Vision for the Greater Golden Horseshoe
1.2.2 Guiding Principles
1.3 General Authority
1.4 How to Read This Plan
2 WHERE AND HOW TO GROW
2.1 Context
2.2 Policies for Where and How to Grow
2.2.1 Growth Forecasts
2.2.2 Managing Growth
2.2.3 General Intensification
2.2.4 Urban Growth Centres
2.2.5 Major Transit Station Areas and Intensification Corridors
2.2.6 Employment Lands
2.2.7 Designated Greenfield Areas
2.2.8 Settlement Area Boundary Expansions
2.2.9 Rural Areas
3 INFRASTRUCTURE TO SUPPORT GROWTH
3.1 Context
3.2 Policies for Infrastructure To Support Growth
3.2.1 Infrastructure Planning
3.2.2 Transportation - General
3.2.3 Moving People
3.2.4 Moving Goods
3.2.5 Water and Wastewater Systems
3.2.6 Community Infrastructure
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PROTECTING WHAT IS VALUABLE
4.1 Context
4.2 Policies for Protecting What is Valuable
4.2.1 Natural System
4.2.2 Prime Agricultural Areas
4.2.3 Mineral Aggregate Resources
4.2.4 A Culture of Conservation
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IMPLEMENTATION AND INTERPRETATION
5.1
Context
5.1.1 Places to Grow Act. 2005
5.1.2 Implementation Analysis
Policies for Implementation and Interpretation
5.2.1 General Implementation and Interpretation
5.2.2 Monitoring/Performance Measures
5.2.1 Public Engagement
5.2
6
DEFINITIONS
7 SCHEDULES
Schedule 1 Greater Golden Horseshoe Growth Plan Area
Schedule 2 Places to Grow Concept
Schedule 3 Distribution of Population, Households & Employment
for the Greater Golden Horseshoe 2001-2031
Schedule 4 Urban Growth Centres
Schedule 5 Moving People
Schedule 6 Moving Goods
8 APPENDICES
Appendix 1 Context Map: Location of the Greater Golden Horseshoe within Ontario
Appendix 2 Illustration Diagram: Growth Plan Land-use Terminology
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1 INTRODUCTION
1.1 CONTEXT
Greater Golden Horseshoe (GGIi) is one of the fastest growing regions in North
America. It is also the destination of choice for many people and businesses
relocating from other parts of Canada and around the world. They resettle here
because of the high quality of life and the economic opportunities. This is a place
of prosperity where, through their skills and talents, people are building a great
future for themselves.
Over the next 30 years, communities within the GGHwill continue to
experience the benefits that come with growth, including: vibrant, diversified
economies; higher education institutions; and arts, culture and recreation
facilities. However, without properly managing growth, the negative aspects
of rapid growth, such as, increased traffic congestion, risk of deteriorating
air and water quality, and the consumption of agricultural lands and natural
resources, will continue to be experienced.
This Plan has been prepared under the Places to Grow Act; 2005. It is a framework
for implementing the Government of Ontario's vision for building stronger,
prosperous communities by better managing growth to 2031. This is a plan that
recognizes the realities facing our cities and smaller communities, and that
acknowledges what governments can and cannot influence. It demonstrates
leadership for improving the ways in which our cities, suburbs, towns, and
villages will grow over the long-term.
This Plan will guide decisions on a wide range of issues - transportation,
infrastructure planning, land-use planning, urban form, housing, natural
heritage and resource protection - in the interest of promoting economic
prosperity. It will create a clearer environment for investment decisions and
will help secure the future prosperity of the GGH
This Plan builds on other key government initiatives including: the Greenbelt
Plan, PlanningActreform and the Provincial Policy Statement, 2005 (pPS, 2005).
This Plan does not replace municipal official plans, but works within the
existing planning framework to provide growth management policy direction
for the GGH
This Plan reflects a shared vision amongst the Government of Ontario, the
municipalities of the GGH and its residents. Successful implementation of
this Plan's vision will be dependant upon collaborative decision-making.
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In preparing for the future, it is essential that planning for the GGHtake into
account the importance, unique characteristics and strengths of our economy.
These include:
· A diverse economy supported by a wide array of manufacturing industries
of which the largest is the automotive sector, and other key industry clusters
such as financial and business services, hospitality and tourism, education
and research, life sciences, information services, and agriculture;
. An economy in transition, with economic activity and wealth increasingly
generated by service and knowledge industries;
. Trade that accounts for over half of Ontario's GOP, over 90 per cent of
which is with the United States;!
· A highly educated workforce, whose social and economic diversity are
critical factors for success in the growing knowledge economy;
. Abundant natural heritage features and areas, and prime agricultural areas,
and the government's commitment to protecting them, as demonstrated
through initiatives such as the Greenbelt Plan, make our communities
more attractive and healthier places to live and work;
. Cultural amenities that offer the kinds of creative and recreational activities
that attract knowledge workers.
The GGH must remain competitive with other city-regions, yet urban sprawl
can affect its competitiveness. Despite its many assets, Ontario and the GGH
face a number of challenges in sustaining and growing its economy:
. Increasing numbers of automobiles are travelling over longer distances resulting
in clogged transportation corridors, including those that provide access to our
critical border crossings. Traffic congestion and the delay of goods movement
costs Ontario upwards of $5 billion in lost GOP each year;2
. Attractive and efficient public transit is difficult to introduce into sprawling
communities, and this limits our ability to respond effectively to growing
traffic congestion issues;
. Employment lands are being converted from their intended uses, thereby
limiting future economic opportunities;
. New infrastructure is being built to service lower-density areas while existing
infrastructure in the older parts of our communities remains underutilized;
I TO Economics. Ontario: The Land of Opportuni01. September 2004, pg. 2
, Ontario Chamber of Commerce. Cost of Bonier Delays to Ontario. May 2004, pg.8
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· Urban sprawl contributes to the degradation of our natural environment, air
quality and water resources, and the consumption of agricultural lands and
other natural resources so critical to the future economy.
Decades of neglect and lack of sufficient investment have resulted in the current
infrastructure deficit. Tens of billions of dollars, beyond current levels of
investment, will be required before the situation is back in balance. All levels of
government are under pressure to meet public infrastructure needs. Additional
support from federal partners; innovative, alternative partnership arrangements
that protect the public interest; and the strategic staging of infrastructure
investments are all required to respond to these challenges.
Ultimately, better investment in our cities will help to mitigate sprawl. Enhancing
infrastructure, integrating and improving transit systems, protecting valuable
natural resources and strengthening local government will all go far towards
the implementation of this Plan.
This Plan addresses these challenges through policy directions that -
· direct growth to built-up areas where the capacity exists to best accommodate
the expected population, household and employment growth while providing
strict criteria for settlement area boundary expansions
. promote transit-supportive densities and a healthy mix of residential and
employment land uses
· preserve employment lands for future economic opportunities
· identify and support a transportation network that links urban growth centres
through an extensive multi-modal system anchored by efficient public transit
and highway systems for moving people and goods
· plan for community infrastructure to support growth
. ensure sustainable water and wastewater services are available to support
future growth
. identify a natural system and prime agricultural areas, and enhance the
conservation of these valuable resources.
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1.2 VISION FOR 2031
1.2.1 A VISION FOR THE GREATER GOLDEN HORSESHOE
More than anything, the Greater Golden Horseshoe will be a great place to
live in 2031. Its communities will be based on the pillars of a strong economy,
a clean and healthy environment and social equity.
The Greater Golden Horseshoe will offer a wide variety of choices for living.
Thriving, livable, vibrant and productive urban and rural areas will foster
community and individual well-being. The region will be supported by
modern, well-maintained infrastructure built in accordance with a broad plan
for growth. Residents will have easy access to shelter, food, education and
health-care facilities, arts and recreation and information technology.
Getting around will be easy. An integrated transportation network will allow
people choices for easy travel both within and between urban centres
throughout the region. Public transit will be fast, convenient and affordable.
Roads, while still a significant means of transport, will he only one of a variety
of effective and well-used choices for transportation. Walking and cycling will
be practical elements of our urban transportation systems.
A healthy natural environment with clean air, land and water will characterize
the Greater Golden Horseshoe. The Greenbelt, including significant natural
features, such as the Oak Ridges Moraine and Niagara Escarpment, will be
enhanced and protected in perpetuity. They will form the key building blocks of
a Greater Golden Horseshoe natural system. The Greater Golden Horseshoe's
rivers and streams, forests and natural areas will be protected and accessible for
residents to enjoy their beauty. Open spaces in our cities, towns and the
countryside will provide people with a sense of place.
Unique and high-quality agricultural lands will be protected for future
generations. Farming will be productive, diverse and sustainable.
Urban centres will be characterized by compact settlement and development
patterns and will provide a diversity of opportunities for living, working
and enjoying culture. The evolving regional economy of the Greater Golden
Horseshoe will have matured into an economic powerhouse of global
significance. It will function as Canada's principal international gateway.
The Greater Toronto and Hamilton area will be a thriving metropolis with
an extraordinary waterfront. And at the heart of this metropolis is Toronto,
a celebrated centre of influence for commerce, culture and innovation.
All of this will translate into a place where residents enjoy a high standard of
living and an exceptional quality of life.
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1.2.2 GUIDING PRINCIPLES
The vision for the GGHis grounded in the following principles that provide
the basis for guiding decisions on how land is developed, resources are managed
and public dollars invested:
· Build compact, vibrant and complete communities.
· Plan and manage growth to support a strong and competitive economy.
· Protect, conserve, enhance and wisely use the valuable natural resources
of land, air and water for current and future generations.
· Optimize the use of existing and new infrastructure to support growth
in a compact, efficient form.
· Provide for different approaches to managing growth that recognize the
diversity of communities in the GGH
· Promote collaboration among all sectors - government, private and
non-profit sectors and citizens - to achieve the vision.
1.3 GENERAL AUTHORITY
This Plan for the GGH derives its authority from the Places to Grow Act, 2005.
This Plan is approved through an Order in Council made by the Lieutenant
Governor in Council under that Act.
This Plan applies to the GGHlands designated by Ontario Regulation 416/05.
1.4 HOW TO READ THIS PLAN
This Plan consists of policies, schedules, definitions and appendices. It also
includes non-policy contextual commentary to provide background and
describe the intent of the policies.
This Plan informs decision-making regarding growth management in the
GGH It contains a set of policies for managing growth and development to
the year 2031. While certain policies have specific target dates, the goals and
policies of this Plan are intended to be achieved within the life of this Plan.
The land-use planning process within the GGHis governed primarily by the
Planning Act and the Government of Ontario's existing planning system. The
Provincial Policy Statement (PPS) provides overall policy directions on matters
of provincial interest related to land use and development in Ontario, and applies
to the GGH This Plan should be read in conjunction with the applicable PPS.
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This Plan should also be read in conjunction with relevant provincial plans,
including the Greenbelt Plan, Oak Ridges Moraine Conservation Plan and the
Niagara Escarpment Plan. These plans apply to parts of the GGH and provide
specific policy on certain matters. This Plan, in conjunction with these other
plans and the PPS, 2005 express the Government of Ontario's interests and
directions with regard to growth management in the GGH
The Places to Grow Act, 2005, includes provisions related to conflicts between
a growth plan and other provincial plans and policies.
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2 WHERE AND HOW TO GROW
2.1 CONTEXT
The GGHis one of the fastest growing regions in North America. By 2031,
the future population of this area is forecast to grow by an additional 3.7 million
(from 2001) to 11.5 million people, accounting for over 80 per cent of Ontario's
population growth. The magnitude and pace of this growth necessitates a plan
for building healthy and balanced communities and maintaining and improving
our quality of life.
To ensure the development of healthy, safe and balanced communities, choices
about where and how growth occurs in the GGH need to be carefully made.
Better use of land and infrastructure can be made by directing growth to the
existing urban areas. This Plan envisages increasing intensification of the existing
built-up area, with a focus on urban growth centres, intensification corridors, mcyor
transit stations areas, brownfield sites and greylields. Concentrating intensification
in these areas provides a focus for transit and infrastructure investment to
support growth.
Urban growth centres are particularly important, not only because they can
accommodate growth, but also because they will be regional focal points. They
are meeting places, and locations for cultural facilities, public institutions, major
services, and transit hubs. They also playa key role in supporting the economy of
the surrounding area. These centres are not all at the same stage of development:
some are the downtowns of older cities, while others are newly planned suburban
centres. They all have potential for accommodating significant growth.
Better use of land and infrastructure can also be achieved by building more
compact greenfield communities that reduce the rate at which land is consumed.
New communities will need to grow at transit-supportive densities, with transit-
supportive street configurations, and provide opportunities for people to work
close to where they live.
Providing opportunities for business and employment is fundamental to using
land wisely and ensuring a prosperous economic future. It is particularly important
to ensure an adequate supply of land for industrial uses traditionally found in
employment areas. This Plan strongly discourages converting employment areas
to other uses, including major retail uses.
There is a large supply of land already designated for future urban development
in the GGH. there is enough land in most communities to accommodate
projected growth based on the growth forecasts and intensification target and
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density targets of this Plan. It is important to understand how we will optimize
the use of existing land supply before designating more land for future urban
development. This Plan's emphasis on intensification and optimizing the use
of the existing land supply, represents a new approach to city-building in
the eGH. one which concentrates more on making better use of our existing
infrastructure, and less on continuously expanding the urban edge.
This Plan recognizes and promotes the traditional role of rural settlement areas
as a focus of economic activities for surrounding rural and agricultural areas.
This Plan is about building complete communities. These are communities which
accommodate people in all stages of life and have the right mix of housing, a
good range of jobs, and easy access to stores and services to meet their daily needs.
Complete communities are well-designed and offer transportation choices.
Complete communities, compact urban fOrm and extensive intensification efforts
go hand-in-hand with more transit: not only do they support each other, they
are all necessary. This co-relation is fundamental to where and how we grow.
2.2 POLICIES FOR WHERE AND HOW TO GROW
2.2.1 GROWTH FORECASTS
1. Population, household and employment forecasts for all upper- and single-tier
municipalities contained in Schedule 3 will be used as the basis for planning
and managing growth in the GGH
2. The Minister of Public Infrastructure Renewal will review and as appropriate,
amend the forecasts contained in Schedule 3 at least every five years in
consultation with upper- and single-tier municipalities.
2.2.2 MANAGING GROWTH
1. Population, household and employment growth will be accommodated by -
a) directing a significant portion of new growth to the built-up areas
of the community through intensification
b) focusing intensification in intensification areas
c) building compact, transit-supportive communities in greenfields
d) reducing dependence on the automobile through the development of
mixed use, transit-supportive, pedestrian-friendly urban environments
e) providing convenient access to intra- and inter-city transit
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f) ensuring the availability of sufficient land in designated employment
areas to accommodate forecasted growth to support the GGHs
economic competitiveness
g) planning and investing for a balance of jobs and housing in communities
across the GGHto reduce the need for long distance commuting and to
increase the modal share for transit, walking and cycling
h) encouraging cities and towns to develop as complete communities with
a diverse mix of land uses, a range and mix of employment and housing
types, high quality public open space and easy access to local stores and
services
i) directing development to settlement areas except for development related
to the management or use of resources, resource-based recreational
activities and other rural land uses that cannot be located in settlement areas
j) directing major growth to settlement areas that offer municipal water
and wastewater services and limiting growth in settlement areas that are
serviced by other forms of water and wastewater services
k) prohibiting the establishment of new settlement areas.
2.2.3 GENERAL INTENSIFICATION
1. By the year 2015 and for each year thereafter, a minimum of 40 per cent
of all residential development occurring annually within each upper- and
single-tier municipality will be within the built-up area.
2. If at the time this plan comes into effect, a municipality is achieving a
percentage of intensification higher than the minimum intensification target
identified in policy 2.2.3.1, this rate of intensification will be considered
the minimum intensification target for that municipality.
3. If at the time this plan comes into effect, a municipality has established in
its official plan an intensification target that is higher than the minimum
intensification target identified in policy 2.2.3.1, this target will be
considered the minimum intensification target for that municipality.
4. The Minister of Public Infrastructure Renewal may review and permit
an alternative minimum intensification target for an upper- or single-tier
municipality located within the outer ring to ensure the intensification target
is appropriate given the size, location and capacity of intensification areas.
5. The Minister of Public Infrastructure Renewal, in consultation with
individual upper- and single-tier municipalities, will verify and delineate
the built boundary.
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6. All upper- and single-tier municipalities, in consultation with lower-tier
municipalities, will develop and implement official plan policies and outline
a strategy to phase-in and to achieve the intensification target. These policies
and the strategy will -
a) be based on the forecasts contained in Schedule 3
b) encourage intensification generally throughout the built-up area
c) identify intensification areas to support achievement of the
intensification target
d) incorporate the built boundary delineated in accordance with
Policy 2.2.3.5 into their Official Plans
e) recognize urban growth centres and mcyor transit station areas as a
key focus for development to accommodate intensification
f) facilitate and promote intensification
g) identify the appropriate type and scale of development in
intensification areas
h) include minimum density targets for intensification areas consistent
with the planned transit service levels, and any transit-supportive land
use guidelines established by the Government of Ontario
i) achieve a range and mix of housing, including affordable housing needs
j) encourage the creation of secondary suites throughout the built-up area.
7. All intensification areas will be planned and designed to -
a) cumulatively attract a significant portion of population, household and
employment growth
b) provide a diverse mix of land uses to support vibrant neighbourhoods,
including residential and employment uses
c) create high quality public open spaces with site design and urban design
standards that support opportunities for transit, walking and cycling
d) support transit use for everyday activities
e) generally achieve higher densities than the surrounding areas
f) ensure an appropriate transition of built form to adjacent areas.
8. Ministers of the Crown and municipalities will use infrastructure investment
and other implementation tools and mechanisms to facilitate intensification.
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2.2.4 URBAN GROWTH CENTRES
1. Urban growth centres for the GGHare identified in Schedule 4.
2. The Minister of Public Infrastructure Renewal, in consultation with
individual upper- and single-tier municipalities, will further refine the
scope and scale of the urban growth centres.
3. Urban growth centres will be designated in official plans and planned -
a) as focal areas for investment in institutional and region-wide public services,
as well as commercial, recreational, cultural and entertainment uses
b) to accommodate and support major transit infrastructure
c) to serve as high density major employment centres that will attract
provincially, nationally or internationally significant employment uses
d) to accommodate a significant share of population and employment growth.
4. Municipalities will delineate the boundaries of the urban growth centres
identified in this Plan within their official plans.
5. Urban growth centres will be planned to achieve, by 2031 or earlier, a
minimum gross density target of -
a) 400 residents and jobs combined per hectare for each of the urban
growth centres in the City of Toronto
b) 200 residents and jobs combined per hectare for the Brampton City
Centre, Downtown Burlington, Downtown Cambridge, Downtown
Hamilton, Downtown Milton, Markham City Centre, Mississauga
City Centre, Newmarket Centre, Midtown o akville , Downtown
Oshawa, Downtown Pickering, Richmond Hill/Langstaff Gateway,
Vaughan Corporate Centre, Downtown Kitchener and Uptown
Waterloo urban gmwth centres
c) 150 residents and jobs combined per hectare for the Downtown Barrie,
Downtown Brantford, Downtown Guelph, Downtown Peterborough
and Downtown St. Catharines urban growth centres.
6. If at the time this plan comes into effect, an urban growth centre is already
planned to achieve, or has already achieved, a gross density that exceeds
the minimum density target established in Policy 2.2.4.5, this density will
be considered the minimum density target for the urban growth centre.
2.2.5 MAJOR TRANSIT STATION AREAS AND INTENSIFICATION CORRIDORS
1. Mqjor transit station areas and intensification corridors will be designated
in official plans and planned to -
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a) serve as locations for large office and commercial development
b) achieve residential and employment densities that support existing
and planned transit service levels.
2. Miljor transit station areas will be planned and designed to provide access
from various transportation modes to the transit facility, including related
considerations for pedestrians, bicycle parking and commuter pick-up/
drop-off areas.
3. Intensification corridors will generally be planned to accommodate local
services, including commercial, recreational, cultural and entertainment uses.
2.2.6 EMPLOYMENT LANDS
1. An adequate supply of employment lands providing locations for a variety of
appropriate employment uses will be maintained to ensure the vitality of
the GGH and the provincial economy.
2. The downtown Toronto office core will continue to be the primary centre
for international finance and commerce of the GGH
3. Miljor office and appropriate major institutional development will be located
in urban growth centres, miljor transit station areas, or other areas with existing
frequent transit service, or existing or planned higher order transit service.
4. Municipalities may permit conversion of lands within designated employment
areas, to non-employment uses or major retail uses, only through a municipal
comprehensive review where it has been demonstrated that -
a) there is a need for the conversion
b) the conversion will not adversely affect the achievement of the
intensification target and density targets, and other policies of this Plan
c) the existing or planned infrastructure and community infrastructure
required to accommodate the proposed conversion can be provided
in a financially and environmentally sustainable manner
d) lands do not comprise prime industrial lands
e) lands are not required over the long term for the employment purposes
for which they are designated, or
f) the conversion or designation is necessary to address other provincial
priorities such as community health and safety enhancement.
5. The Government of Ontario recognizes the importance of cross-border
trade with the United States. To facilitate this economic opportunity,
designated employment areas within a gateway economic zone will be identified
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PFiUI'OSFi) GFWWTH PF.f\f\ 15
and supported for uses primarily focused on cross-border trade, movement
of goods and tourism-related opportunities.
6. Through sub-area assessment, the Minister of Public Infrastructure Renewal,
in consultation with other Ministers of the Crown, and in consultation with
upper- and single-tier municipalities, will guide planning for employment by -
a) identifying existing and potential economic clusters
b) assessing the demand for land associated with future economic growth
c) defining and identifying provincially significant designated employment
areas, including prime industrial lands
7. Municipalities are encouraged to designate and preserve lands within
settlement areas in the vicinity of existing major highway interchanges,
ports, rail yards and airports as areas for manufacturing, warehousing,
and associated retail, office and ancillary facilities, where appropriate.
8. In planning for employment lands, municipalities will facilitate development
of compact built form and minimize surface parking.
2.2.7 DESIGNATED GREENFIELD AREAS
1. The designated greenfJeld area of each upper- or single-tier municipality
will be planned to achieve a minimum density target that is not less than 50
residents and jobs combined per hectare. This density target will be measured
over the entire designated greenfJeld area of each upper- or single-tier munici-
pality, excluding natural heritage features and areas where development is not
permitted in accordance with provincial plans and policies.
2. Upper- and single-tier municipalities will develop and implement official plan
policies, including phasing policies, and other strategies, for designated greenfJeld
areas to achieve the intensifJcation target and density targets of this Plan.
3. New development taking place in designated greenfJeld areas will be
designated, planned, zoned and designed in a manner that-
a) creates complete communities
b) creates street configurations, densities, and urban form that support
the early integration and sustained viability of transit services
c) provides a diverse mix of land uses to support vibrant neighbourhoods,
including residential and employment uses
d) creates high quality public open spaces with site design and urban design
standards that support opportunities for transit, walking and cycling.
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2.2.8 SETTLEMENT AREA BOUNDARY EXPANSIONS
1. The policies in this section apply only to the expansion of a settlement area
within a municipality.
2. The Minister of Public Infrastructure Renewal, in consultation with
individual upper- and single-tier municipalities, will determine the need
for and maximum amount of additional designated greenfield area required
for each upper- and single-tier municipality to accommodate the growth
forecasts contained in Schedule 3.
3. A settlement area boundary expansion may only occur as part of a municipal
comprehensive review where it has been demonstrated that -
a) the proposed expansion does not exceed the maximum amount of
additional designated greenfield area established in accordance with
policy 2.2.8.2
b) the timing of the expansion and the phasing of development within the
designated greenfields area will not adversely affect the achievement of
the intensification target and density targets, and other policies of this
Plan, and where applicable, will be consistent with the relevant policies
of the Greenbelt, Oak Ridges Moraine and Niagara Escarpment Plans
c.) the existing or planned infrastructure and community infrastructure
required to accommodate the proposed expansion can be provided in
a financially and environmentally sustainable manner
d) in prime agricultural area~
i. the lands do not comprise specialty crop areas
ii. there are no reasonable alternatives that avoid prime agricultural areas
Hi. there are no reasonable alternatives on lower priority agricultural
lands in prime agricultural areas
e) impacts from expanding on agricultural operations which are adjacent
or close to the settlement areas are mitigated to the extent feasible
f) in determining the most appropriate location for expansions to the
boundaries of settlement areas, the policies of Sections 2 (Wise Use
and Management of Resources) and 3 (Protecting Public Heath and
Safety) of the PPS, 2005 are applied
g) for small cities and towns within the outer ring. such expansions
maintain or result in a minimum of one full-time job per three
residents within or in the immediate vicinity of the small city or town,
or the expansion will directly result in the small city or town moving
significantly toward such a ratio.
f)r~upo:.)[f) c; F,OIIT H Pi f\!\ 17
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2.2.9 RURAL AREAS
1. Development in rural areas may be permitted in accordance with
Policy 2.2.2.1 i, only where it is compatible with the rural landscape
and can be sustained by rural service levels.
2. New multiple lots and units /Or residential development will be directed
to settlement areas.
3. New lots and uses in rural areas will be compatible with, and will not
hinder, surrounding agricultural operations.
4. For lands within the Greenbelt Area, the applicable policies in the
Greenbelt, Niagara Escarpment and Oak Ridges Moraine Plans apply.
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3 INFRASTRUCTURE TO SUPPORT GROWTH
3.1 CONTEXT
Ready and accessible public infrastructure is essential to the viability of Ontario's
communities and critical to economic competitiveness, quality of life and the
delivery of public services. But increasing demand, low-density land-use patterns
and historic underinvestment have resulted in a substantial infrastructure deficit
to meet the needs of current residents as weU as those of future Ontarians.
This Plan provides the framework for infrastructure investments in the GGH. so
that existing infrastructure and future investments are optimized to serve growth
to 2031 and beyond. The policy directions for intensification and compact urban
form in this Plan guide many of the infrastructure priorities in this section. It
is estimated that over 20 per cent of infrastructure capital costs could be saved
over 25 years in the GTA - generating an estimated $12.2 billion that could
be more efficiently invested - by moving from lower density development to
more efficient and compact urban fOrm. 3
This Plan guides strategic investment decisions to support population and
economic growth - particularly in the three key areas of transportation, water
and wastewater systems, and community infrastructure. This Plan will be supported
by long-term multi-year provincial infrastructure investment strategies, such as
ReNew Ontario, and by sustainable financing models and sound infrastructure
asset management practices.
The transportation policies in this section guide the planning and development
of an integrated transportation system needed to support a vibrant economy
and quality of life in the GGH The policies promote co-ordination and
consistency among land-use and transportation planning and investment by aU
levels of government and other transportation stakeholders in the GGH To
further facilitate co-ordination and to implement transportation initiatives in
this Plan, the Minister of Transportation is exploring options for establishing
a Greater Toronto Transportation Authority.
Investment in water and wastewater systems by aU levels of government has
also lagged behind GGH growth and many municipalities are now faced with
significant renewal and capacity expansion issues. There is a need to co-ordinate
investment in water and wastewater infrastructure to support future growth in
'GTA Task Force. Greater Toronto: Report of the G'E4 Tosk Force, January 1996, p. 12; Slack, Enid.
Alunicipal Finance and the Pattern of Urban Growtl), C.O, Howe Institute. No. 160, February 2002, p. 6:
TO Economics. Greater Toronto Area: Canada s Primary Economic Locomotive ln Need of Repairs. May 2002, p. 15.
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Pf<UI'OSCU Cf>OWTH Pi;\I\ 19
ways that are linked to the determination of how these systems are paid for
and administered. Improved maintenance and upgrading of existing systems
are necessary to ensure the provision of reliable and safe water.
Investment in community infrastructure - such as hospitals, long-term care
facilities, schools and affordable housing - should be planned to keep pace
with changing needs and to promote more complete communities. In the case
of housing, there is an underlying societal need for affordable housing in many
municipalities that is heightened by growth pressures. Long-term infrastructure
strategies such as ReNew Ontario are addressing this infrastructure gap and
directing investments to help achieve complete communities.
3.2 POLICIES FOR INFRASTRUCTURE TO SUPPORT GROWTH
3.2.1 INFRASTRUCTURE PLANNING
1. Infrastructure planning, land-use planning, and infrastructure investment
will be co-ordinated to implement this Plan. Infrastructure includes but is
not limited to transit and transportation corridors, water and wastewater
systems, waste management systems, and community infrastructure.
2. Priority will be given to infrastructure investments made by the province
that support the policies and schedules in this Plan.
3. The Minister of Public Infrastructure Renewal will work with other Ministers
of the Crown and other public sector partners to identify strategic
infrastructure needs to support the implementation of this Plan through
multi-year infrastructure planning, and through the sub-area assessment
of transit and transportation, and water and wastewater systems as
provided for in policies 3.2.2.4 and 3.2.5.6.
3.2.2 TRANSPORTATION - GENERAL
1. The transportation system within the GGH will be planned and managed to -
a) provide connectivity among transportation modes for moving people
and for moving goods
b) offer a balance of transportation choices that reduces reliance upon
any single mode and promotes transit, cycling and walking
c) be sustainable, by encouraging the most financially and environmentally
appropriate mode for trip-making
d) offer multi-modal access to jobs, housing, schools, cultural and
recreational opportunities, and goods and services
e) provide for the safety of system users.
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2. Transportation system planning, land-use planning, and transportation
investment, will be co-ordinated to implement this Plan.
3. In planning for the development, optimization, and/or expansion of new or
existing transportation corridors, the Ministers of Public Infrastructure Renewal
and Transportation, other Ministers of the Crown, and municipalities will -
a) ensure that corridors are identified and protected to meet current and
projected needs for various travel modes
b) support opportunities for multi-modal use where feasible, in particular
prioritizing transit and goods movement needs over those of single
occupant automobiles
c) consider separation of modes within corridors, where appropriate
d) for goods movement corridors, provide for linkages to planned or
existing inter-modal opportunities where feasible.
4. Through sub-area assessment, the Ministers of Transportation and
Public Infrastructure Renewal in consultation with upper- and single-tier
municipalities, will further refine and address phasing and coordination
of transportation infrastructure planning and investment.
5. Upper- and single-tier municipalities will develop and implement
transportation demand management policies in their official plans or other
planning documents, to reduce trip distance and time, and increase the
modal share of alternatives to the automobile.
3.2.3 MOVING PEOPLE
1. Public transit will be the first priority for transportation infrastructure
planning and major transportation investments.
2. All decisions on transit planning and investment will be made according
to the following criteria:
a) Using transit infrastructure to shape growth;
b) Placing priority on increasing capacity on existing transit systems
to support intensi/1cation areas,
c) Expanding service areas to support transit-supportive residential
and employment densities;
d) Facilitating improved linkages from nearby neighbourhoods to
urban growth centres and mC!!or transit station areas,
e) Consistency with the strategic framework for future transit
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Pf<()I'OSED CF<CWTH PI..i\f'i 21
investments outlined on Schedule 5;
f) Increasing the modal share of transit.
3. Municipalities will ensure that pedestrian and bicycle networks are integrated
into transportation planning to -
a) provide safe, comfortable travel for pedestrians and bicyclists within
existing communities and new development
b) provide linkages between intensification areas, adjacent neighbourhoods,
and transit stations, including dedicated lane space for bicyclists on
the major street network where feasible.
4. Schedule 5 provides the strategic framework for future transit investment
decisions, including capacity improvements on existing transit systems to
support intensification, and proposed higher order transit and inter-regional
transit links between urban growth centres, in the GGH Schedule 5 should
be read in conjunction with the policies in this Plan. The transit linkages
on Schedule 5 provide a strategic framework and are not drawn to scale.
Actual timing, phasing and alignments are subject to further study and,
where applicable, the environmental assessment process.
3.2.4 MOVING GOODS
1. The first priority of highway investment is to facilitate efficient goods
movement by linking inter-modal facilities, international gateways, and
communities within the GGH
2. The Ministers of Public Infrastructure Renewal and Transportation,
other appropriate Ministers of the Crown, and municipalities will work
with agencies and operators to -
a) co-ordinate and optimize goods movement systems
b) improve corridors for moving goods across the GGH consistent with
Schedule 6 of this Plan
c) promote and better integrate multi-modal goods movement and land-use
and transportation system planning, including the development of
freight-supportive land use guidelines.
3. Development in and adjacent to highway corridors outside of settlement
areas will be discouraged unless it is directly related to servicing the
operations of the corridor, or required for strategic employment purposes
identified through the sub-area assessment provided for in policy 2.2.6.6.
4. The Ministers of Public Infrastructure Renewal, Municipal Affairs and
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Housing, and Transportation will work with municipalities to plan and
design highway corridors in such a way to discourage development outside
of settlement areas, in support of policy 3.2.4.3.
5. Municipalities will provide for the establishment of priority truck routes,
where feasible, to facilitate the movement of goods into and out of areas of
significant employment, industrial and commercial activity and to provide
alternate routes connecting to the provincial network.
6. Municipalities will plan for land uses in settlement areas along or in the
vicinity of inter-modal facilities, truck routes, railway corridors and yards,
airports, dockyards, highways and major interchanges that are compatible
with the primary goods movement function of these facilities, while
balancing these considerations with the other policies in this Plan for
intensification areas and existing bUilt-up areas.
7. Schedule 6 provides the strategic framework for future goods movement
investment decisions in the GGH Schedule 6 should be read in conjunction
with the policies in this Plan. The proposed corridors shown on Schedule 6
provide a strategic framework and are not drawn to scale. Actual timing,
phasing, and alignments are subject to further study andl where applicable,
the environmental assessment process.
3.2.5 WATER AND WASTEWATER SYSTEMS
1. Municipal water and wastewater systems will generate sufficient revenue to
recover the full cost of providing water and wastewater services.
2. For lands within the Greenbelt Area, all policies regarding water and
wastewater systems or stormwater set out in provincial plans, applicable
to lands within the Greenbelt Area, continue to apply.
3. Municipalities are encouraged to plan and design municipal water and
wastewater systems that return water to the watershed from which the
withdrawal originates.
4. In settlement areas, construction of new or expansions of existing municipal
or private communal water and wastewater systems should only be considered
where the following conditions are met:
a) Strategies for water conservation and other water demand management
initiatives are being implemented in the existing service area;
b) Plans for expansion or for new services are to serve growth in a manner
that supports achievement of the intensification target and density target,
c) For municipal water and wastewater systems, the plans for expansion have
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pr~UPOS[D Gf?OWT H PL.Af\ 23
been considered in the context of the Great Lakes Basin and applicable
inter-provincial, national or bi-national agreements regarding the basin.
5. In rural areas, the extension of municipal or private communal water and
wastewatersy.rtemswill only be permitted to address a human health issue,
or to service existing uses that were legally established prior to the date
this Plan came into force, and such extensions shall not be used as the
basis for new development.
6. Through sub-area assessment, the Minister of Public Infrastructure Renewal,
in consultation with upper- and single-tier municipalities, will undertake an
analysis of water and wastewater capacity and requirements to service the
growth forecasts set out in this Plan.
7. Municipalities that share an inland water source and/or receiving water
body, should co-ordinate their planning for potable water, stormwater, and
wastewater systems to ensure that water quality and quantity is maintained
and improved on a watershed basis.
8. Municipalities, in conjunction with conservation authorities, are encouraged
to prepare watershed plans and use such plans to guide development decisions
and water and wastewater servicing decisions.
9. Municipalities are encouraged to implement and support innovative stormwater
management actions as part of redevelopment and intensif1cation, such as
co-ordinated approaches across several properties or across municipal
boundaries, reuse of stormwater, and on-site storage and detention.
3.2.6 COMMUNITY INFRASTRUCTURE
1. Community infrastructure planning, land use planning, and community
infrastructure investment will be co-ordinated to implement this Plan.
2. Development will take into account the availability and location of existing
and proposed community infrastructure so that new and expanded community
infrastructure can be provided efficiently, effectively, and in a logical fashion.
3. A range of appropriate community infrastructure should be provided to support
needs resulting from population/demographic changes, including those related
to intensincation, and to foster complete communities.
4. Services planning, funding and delivery sectors are encouraged to develop
a community infrastructure strategy to facilitate the co-ordination and
planning of community infrastructure with land use, infrastructure and
investment through a collaborative and consultative process.
5. Municipalities will establish and implement minimum affordable housing
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targets in accordance with Policy 1.4.3 of the PPS, 2005.
6. Upper- and single-tier municipalities will develop a housing strategy in
consultation with lower-tier municipalities, the Minister of Municipal
Affairs and Housing and other appropriate stakeholders. The housing
strategy will set out a plan including Official Plan policies to meet the
needs of all residents, including the need for affordable housing - both
home ownership and rental housing. The housing strategy will include
the planning and development of a range of housing types and densities
to support the achievement of the intensillcation target and density targets.
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f)f~UPO:)ED CfWWTH pUlr" 25
4 PROTECTI NG WHAT IS VALUABLE
4.1 CONTEXT
The GGHis blessed with a broad array of unique natural and cultural heritage
features and sites, and valuable renewable and non-renewable resources that are
essential for the long-term economic prosperity, quality of life, and environmental
health of the region. These valuable assets must be wisely protected and managed
as part of planning for future growth.
Some of these features and areas are already protected through legislation,
statements of provincial policy such as the PPS, 2005, and provincial plans such
as the Greenbelt Plan, the Oak Ridges Moraine Conservation Plan, and the
Niagara Escarpment Plan. This Plan supports and builds on these initiatives.
4.2 POLICIES FOR PROTECTING WHAT IS VALUABLE
4.2.1 NATURAL SYSTEM
1. Through sub-area assessment, the Ministers of Public Infrastructure Renewal
and Natural Resources, in consultation with upper- and single-tier
municipalities, will identify the natural system of the GGH. and where
appropriate, policies for its protection.
2. The natural system will include natural heritage features and amas and linkages
between and among these features and with natural systems outside the
GGH and inside the Greenbelt Area. It will also include sensitive or vulnerable
surface water features and ground water features.
3. For lands within the Greenbelt Area, the natural system will be the Natural
System as described in the Greenbelt Plan. All policies regarding natural
systems set out in provincial plans, applicable to lands within the Greenbelt
Area, continue to apply.
4. Planning authorities are encouraged to identify locally significant natural
areas that link and augment the natural system.
5. Municipalities, conservation authorities, non-governmental organizations, and
other interested parties arc encouraged to develop a system of publicly accessible
parkland, open space and trails, including shoreline areas, within the GGHthat-
a) clearly demarcates where public access is and is not permitted
b) is based on a co-ordinated approach to trail planning and development, and
c) is based on good land stewardship practices for public and private lands.
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6. Municipalities are encouraged to establish an urban open space system
within built-up areas, which may include rooftop gardens, communal
courtyards, and public parks.
4.2.2 PRIME AGRICULTURAL AREAS
1. Through sub-area assessment, the Ministers of Public Infrastructure Renewal
and Agriculture, Food and Rural Affairs, in partnership with appropriate
Ministers of the Crown and in consultation with upper- and single-tier
municipalities, will identify the prime agricultural areas, including the specialty
crop areas, of the GCH. and where appropriate, policies for their protection.
2. For lands within the Greenbelt Area, the agricultural areas will be the
Agricultural System as described in the Greenbelt Plan. All policies
regarding agricultural areas and the agricultural system set out in provincial
plans, applicable to lands within the Greenbelt Area, continue to apply.
3. Municipalities are encouraged to maintain, improve and provide opportunities
for farm-related infrastructure such as drainage and irrigation.
4. Municipalities are encouraged to establish and work with agricultural
advisory committees and consult with them on decision-making related
to agricultural planning.
4.2.3 MINERAL AGGREGATE RESOURCES
1. The Ministers of Public Infrastructure Renewal and Natural Resources
will work with municipalities, producers of mineral aggregate resources, and
other stakeholders to develop a long-term strategy for ensuring the wise
use, conservation, availability and management of mineral aggregate resources
in the GGH. as well as identifying opportunities for resource recovery and
for co-ordinated approaches to rehabilitation where feasible.
4.2.4 A CULTURE OF CONSERVATION
1. Municipalities will develop and implement official plan policies and other
strategies in support of the following conservation objectives:
a) Water conservation, including
i. Water demand management to reduce per capita consumption
and improve resource efficiency
ii. Water recycling to maximize the reuse and recycling of water
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PWlPOSFD CfWWTH f>LM'J 27
b) Energy conservation, including
i. Energy conservation for municipally owned facilities
ii. Identification of opportunities for, and where possible locations
for, alternative energy generation and distribution
Hi. Energy demand management to reduce energy consumption
iv. Land-use patterns and urban design standards that encourage and
support energy-efficient buildings and opportunities for cogeneration
c) Air quality protection, including
i. Reduction in emissions from municipal and residential sources
d) Integrated waste management, including
i. Enhanced waste reduction, composting, and recycling initiatives
and new opportunities where appropriate
ii. Comprehensive planning for the management of residual waste
Hi. Promotion of reuse, recycling, and renovation of the built
environment
iv. Integrated approaches including recycling, reuse, waste diversion,
and the disposal of waste that cannot be recycled, composted or
otherwise diverted from disposal
v. Consideration of waste management initiatives within the
context of long-term regional planning, and in collaboration with
neighbouring municipalities
e) Cultural heritage conservation, including
i. Conservation of cultural heritage and archaeological resources
as built-up areas are intensified.
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5 IMPLEMENTATION AND INTERPRETATION
5.1 CONTEXT
Key to the success of this Plan is its effective implementation. Successful
implementation will require that all levels of government, non-governmental
organizations, the private sector, and citizens work together in a co-ordinated
and collaborative way to implement the policies of this Plan and realize its
goals. The success of this Plan is dependent on a range of mechanisms being
in place to implement the Plan's policies. This includes the legislative framework
provided by the Places TO Grow Act, 2005. and the application of this Plan
to all decisions on matters, proceedings or applications, made under the
Planning Act and the Condominium Act.
A wide range of complementary planning and fiscal tools will be used to
implement this Plan. These include instruments found in the Planning Act and
the Municipal Act, 2001.
Measuring the success of this Plan will also require rigorous and consistent
evaluation of its progress. One method to measure this Plan's progress currently
under development is an index that will monitor changes in the amount of land
developed and the increased percentage of new development taking place within
the built -up areas of the GGH
5.1.1 PLACES TO GROW ACT, 2005
The Places to Grow Act, 2005 provides the legislative framework for this Plan.
It gives the Lieutenant Governor in Council the authority to establish any area
of land in the Province as a growth plan area and requires that the Minister of
Public Infrastructure Renewal prepare a growth plan for all or part of that area.
The growth plan area for this Plan is defined by Ontario Regulation 416/05.
It is set out on Schedule 1 of this Plan.
A growth plan works in conjunction with other provincial legislation, policies,
plans and regulations. Land use within the growth plan area continues to be
governed by the Planning Act and Ontario's existing planning system and is
also subject to the conformity requirements and conflict provisions of the
Places to Grow Act, 2005.
The Act also includes processes for making and amending growth plans. This
includes the requirement that the Minister of Public Infrastructure Renewal
review each growth plan at least every 10 years after the plan comes into force.
Under the Act, the Minister of Public Infrastructure Renewal may propose an
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P!:':OPO!';CD CPOWT H f'L.f\f\ 29
amendment to a growth plan. When an amendment is proposed, the Minister
of Public Infrastructure Renewal will give notice and invite written submissions
on the amendment. Any significant modification to the plan requires approval of
the Lieutenant Governor in Council.
5.1.2 IMPLEMENTATION ANALYSIS
In order to implement the policies of this Plan, the Minister of Public
Infrastructure Renewal, in consultation with other Ministers of the Crown will:
1. verifY and delineate the built boundary
2. develop a detailed assessment of the need for future designated greenOeld areas
3. determine the scope and scale of urban growth centres
4. undertake sub-area assessment to refine the policies in this Plan at a regional
scale:
i. regional economic assessment to guide planning for employment
ii. refinement and phasing of the proposed transportation network
Hi. analysis of water/wastewater capacity and requirements to serve projected
growth
iv. identification of the natural.fYStem
v. identification of prime agricultural and rural areas.
The work on the built boundary, designated greenOeld areas, and urban growth centres
will be undertaken by the Minister of Public Infrastructure Renewal, through
one-on-one consultation with individual upper- and single-tier municipalities.
The sub-area assessment will be undertaken by the Minister of Public Infrastructure
Renewal and other Ministers of the Crown, in consultation with upper- and
Single-tier municipalities. The sub-area assessment will provide further
refinement to this Plan's policies and inform implementation strategies at a
scale smaller than the GGH Differing contexts within each sub-area means
that implementation strategies will need to be tailored to circumstances and
coordinated across municipal boundaries.
5.2 POLICIES FOR IMPLEMENTATION AND INTERPRETATION
5.2.1 GENERAL IMPLEMENTATION AND INTERPRETATION
1. This Plan, including context sections, policies, definitions and schedules, should
be read in its entirety and all relevant policies are to be applied to each situation.
30 PLACES TO GROW
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2. The appendices to this Plan are provided for information purposes only.
3. Terms in italics are defined in the Definitions section of this Plan. The
definitions apply to these italicized terms regardless of whether the terms
are singular or plural.
4. In the Definitions section, sources have been cited where the definitions are
the same or have the same content as the definitions provided in the policy
or statute cited.
5. The policies and targets of this Plan represent minimum standards. This
Plan does not prevent planning authorities and decision-makers from going
beyond minimum standards established in specific policies and targets, unless
doing so would conflict with any policy of this Plan, the applicable PPS, or
any other provincial plan.
6. The boundaries and lines displayed on the schedules, unless otherwise stated
provide strategic direction only and should not be read to scale.
7. The built boundary, shown on schedules 2, 4, 5, and 6, is conceptual and
should be used as guidance to implement the relevant policies of this Plan.
8. The settlement area boundary as shown on Schedules 2, 4, 5, and 6 is
conceptual. For the actual boundary, the appropriate municipal official plans
should be consulted.
9. Where this Plan indicates that further analysis and assessment will be carried
out but the analysis has not been completed, all relevant policies of this
Plan continue to apply and any policy that relies on information that will
be available from further analysis should be implemented to the fullest
extent possible.
10. A coordinated approach will be taken both within the Government of
Ontario and its dealings with municipalities, to implement this Plan, in
particular for issues that cross municipal boundaries.
11. Where policies contain a list of sub-policies, the list of sub-policies is to be
applied in its entirety unless otherwise specified.
12. References to the responsibilities of the Minister of Public Infrastructure
Renewal set out in this Plan should be read as the Minister, his or her
assignee, his or her delegate pursuant to the Places to Grow Act, 2005. or
any other member of Executive Council assigned responsibility for growth
plans under the Places to Crow Act, 2005.
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f>r~UPOSED CROWl H PLAI\ 31
5.2.2 MONITORINGIPERFORMANCE MEASURES
1. The Minister of Public Infrastructure Renewal, will develop a set of indicators
to measure the implementation of the policies in this Plan.
2. The Minister of Public Infrastructure Renewal will monitor the implementation
of this Plan, including reviewing performance indicators concurrent with
any review of this Plan.
3. Municipalities will monitor and report on the implementation of this Plan's
policies within their municipality, in accordance with guidelines developed
by the Minister of Public Infrastructure Renewal.
5.2.3 PUBLIC ENGAGEMENT
1. The Minister of Public Infrastructure Renewal will ensure ongoing
consultation with the public and stakeholders on the implementation of
this Plan.
2. The Minister of Public Infrastructure Renewal will provide information
to the public and stakeholders in order to build understanding of growth
management and facilitate informed involvement in the implementation
of this Plan.
3. Municipalities are encouraged to engage the public and stakeholders in local
efforts to implement this Plan and to provide the necessary information to
ensure the informed involvement of local citizens.
32 PLACES TO GROW
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6 DEFINITIONS
AFFORDABLE
a) in the case of ownership housing, the least expensive of:
1. housing for which the purchase price results in annual accommodation
costs which do not exceed 30 per cent of gross annual household
income for low and moderate income households; or
2. housing for which the purchase price is at least 10 per cent below the
average purchase price of a resale unit in the regional market area;
b) in the case of rental housing, the least expensive of:
1. a unit for which the rent does not exceed 30 per cent of gross annual
household income for low and moderate income households; or
2. a unit for which the rent is at or below the average market rent of a
unit in the regional market area.
For the purposes of this definition:
Low and moderate income households means, in the case of ownership housing,
households with incomes in the lowest 60 per cent of the income distribution for
the regional market area; or in the case of rental housing, households with
incomes in the lowest 60 per cent of the income distribution for renter households
for the regional market area.
Regional market area refers to an area, generally broader than a lower-tier
municipality that has a high degree of social and economic interaction. In
southern Ontario, the upper or single-tier municipality will normally serve as
the regional market area. Where a regional market area extends significantly
beyond upper- or single-tier boundaries, it may include a combination of upper-,
single and/or lower-tier municipalities. (provincial Policy Statement, 2005)
BROWNFIELD SITES
Undeveloped or previously developed properties that may be contaminated, They
are usually, but not exclusively, former industrial or commercial properties that
may be underutilized, derelict or vacant. (Provincial Policy Statement, 2005)
BUILT-UP AREAS
All land inside the built boundary.
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f'f~(J1'()5[D CPOWTH Pi.f\I\ 33
BUILT BOUNDARY
The edge of the developed urban area as defined by the Minister of Public
Infrastructure Renewal.
COMMUNITY INFRASTRUCTURE
Community infrastructure refers to lands, buildings, and structures that support
the quality of life for people and communities by providing public services
for health, education, recreation, socio-cultural activities, security and safety,
and affordable housing.
COMPACT URBAN FORM
A land-use pattern that encourages efficient use of land, walkable neighbourhoods,
mixed land uses (residential, retail, workplace and institutional all within one
neighbourhood), proximity to transit and reduced need for infrastructure.
Compact urban form can include detached and semi-detached houses on small
lots as well as townhouses and walk-up apartments, multi-storey commercial
developments, and apartments or offices above retail.
COMPLETE COMMUNITIES
Complete communities meet a person's needs for daily living through their
whole lifetime by providing convenient access to an appropriate mix of jobs,
a full range of housing including affordable housing, schools, retail, and
community infrastructure for their residents. Convenient access to public
transportation and options for safe, non-motorized travel is also provided.
DENSITY TARGETS
The density target for urban growtlJ centres is defined in Policy 2.2.4.5 and
Policy 2.2.4.6. The density target for designated green/Jeld areas is defined in
Policy 2.2.7.1.
DESIGNATED EMPLOYMENT AREA
Areas designated in an official plan for clusters of business and economic activities
including, but not limited to, manufacturing, warehousing and associated office,
retail and ancillary facilities but does not include major retail uses.
DESIGNATED GREENFIELD AREA
The area between the built boundary and the settlement area boundary.
DRINKING-WATER SYSTEM
A system of works, excluding plumbing, that is established for the purpose of
providing users of the system with drinking water and that includes any thing
used for the collection, production, treatment, storage, supply or distribution of
34 PLACES TO GROW
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water; any thing related to the management of residue from the treatment process
or the management of the discharge of a substance into the natural environment
from the treatment system; and a well or intake that serves as the source or entry
point of raw water supply for the system. (Safe VUlter Drinking Act, 2002)
EMPLOYMENT LANDS
Lands zoned or designated within settlement areas for employment uses.
These lands may be located outside of a designated employment area.
FULL COST
The full cost of providing water and wastewater services includes the source
protection costs, operating costs, financing costs, renewal and replacement
costs and improvement costs associated with extracting, treating or distributing
water to the public, and collecting, treating or discharging wastewater.
GATEWAY ECONOMIC ZONE
Settlement areas that, due to their proximity to major international border
crossings, have unique economic importance to the region and Ontario, as
depicted on Schedules 2, 5, and 6.
GREATER GOLDEN HORSESHOE (GGH)
The geographic area designated as the Greater Golden Horseshoe growth plan
area in Ontario Regulation 416/05.
GREENBELT AREA
The geographic area of the Greenbelt as defined by Ontario Regulation 59/05 as
provided by the Greenbelt Act, 2005.
GREYFIELDS
Previously developed properties that are not contaminated. They are usually,
but not exclusively, former commercial properties that may be underutilized,
derelict or vacant.
GROUND WATER FEATURE
Water-related features in the earth's subsurface, including recharge/discharge
areas, water tables, aquifers and unsaturated zones that can be defined by surface
and subsurface hydrogeologic investigations. (Provincial Policy Statement, 2005)
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f'r~opos[!) crWWTH f>L.Af\ 35
HIGHER ORDER TRANSIT
Transit that operates in its own dedicated right-of-way, outside of mixed
traffic, and therefore can achieve a frequency of service greater than mixed-
traffic transit. Higher order transit can include heavy rail (such as subways),
light rail (such as streetcars), and buses in dedicated rights-of-way.
INFILL
Development on vacant or underutilized land in the built-up area.
INNER RING
Defined as the geographic area consisting of the municipalities of Hamilton and
Toronto and the upper-tier municipalities of Durham, Halton, Peel and York.
INTENSIFICATION
The development of a property, site or area at a higher density than currently
exists through:
a) redevelopment, including the reuse of brown/Jeld sites,
b) the development of vacant and/or underutilized lots within previously
developed areas;
c) i/J/Jll development; and
d) the expansion or conversion of existing buildings.
(Provincial Policy Statement, 2005)
INTENSIFICATION AREAS
Lands identified by municipalities or the Minister of Public Infrastructure
Renewal within the built boundary that are to be the focus for accommodating
more intense development. Intensification areas include urban growth centres,
intensj/Jcation corridors, mcljor transit station areas, and other major opportunities
that may include in/JlJ, redevelopment, brown/Jeld sites, the expansion or
conversion of existing buildings and grey/Jelds.
INTENSIFICATION CORRIDORS
Lands along major roads, arterials or higher order transj( corridors within the
built boundary that have the potential to provide a focus for higher density
mixed-use development consistent with planned transit service levels.
INTENSIFICATION TARGET
The intensification target is as established in Policy 2.2.3.1, Policy 2.2.3.2
and Policy 2.2.3.3.
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INTER-MODAL FACILITY
A location where transfers between carriers can be made, as part of a single
journey. A typical freight inter-modal facility is a rail yard where containers
are transferred between trucks and trains.
MAJOR OFFICE
Major Office is generally defined as freestanding office buildings of 10,000 m2
or greater, or with 500 jobs or more.
MAJOR TRANSIT STATION AREA
The area including and around any existing or planned higher order transit station
within a settlement area; or the area including and around a major bus depot in an
urban core. Station areas generally are defined as the area within an approximate
500m radius of a transit station, representing about a lO-minute walk.
MINERAL AGGREGATE RESOURCES
Gravel, sand, clay, earth, shale, stone, limestone, dolostone, sandstone, marble,
granite, rock or other material prescribed under the Aggregate Resources Act
suitable for construction, industrial, manufacturing and maintenance purposes
but does not include metallic ores, asbestos, graphite, kyanite, mica, nepheline
syenite, salt, talc, wollastonite, mine tailings or other material prescribed under
the Mining Act. (Provincial Policy Statement, 2005)
MODAL SHARE
Modal share is the percentage of person-trips made by one travel mode,
relative to the total number of person-trips made by all modes.
MULTI-MODAL
Refers to the availability or use of more than one form of transportation, such
as automobiles, walking, cycling, buses, rapid transit, rail (such as commuter
and freight), trucks, air and marine.
MUNICIPAL COMPREHENSIVE REVIEW
An official plan review, or an official plan amendment, initiated by a municipality
that comprehensively applies the policies and schedules of this Plan.
MUNICIPAL WATER AND WASTEWATER SYSTEMS
Municipal Water Systems are all or part of a drinking-water system.
a) that is owned by a municipality or by a municipal service board
established under section 195 of the Municipal Act; 2001,
b) that is owned by a corporation established under section 203 of the
Municipal Act; 2001,
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PF<UPO~')[:D CP()\/JTH P!."f\!'~ 37
c) from which a municipality obtains or will obtain water under the terms
of a contract between the municipality and the owner of the system, or
d) that is in a prescribed class (Safe Water Drinking Act, 2002).
Municipal Wastewater Systems are defined as any sewage works owned or
operated by a municipality.
NATURAL HERITAGE FEATURES AND AREAS
Features and areas, including significant wetlands, significant coastal wetlands,
fish habitat, significant woodlands south and east of the Canadian Shield,
significant valleylands south and east of the Canadian Shield, significant habitat
of endangered species and threatened species, significant wildlife habitat, and
significant areas of natural and scientific interest, which are important for their
environmental and social values as a legacy of the natural landscapes of an area.
For the purposes of this definition:
Wetlands means lands that are seasonally or permanently covered by shallow
water, as well as lands where the water table is close to or at the surface. In
either case the presence of abundant water has caused the formation of hydric
soils and has favoured the dominance of either hydrophytic plants or water
tolerant plants. The four major types of wetlands are swamps, marshes, bogs
and fens. Periodically soaked or wet lands being used for agricultural purposes
which no longer exhibit wetland characteristics are not considered to be
wetlands for the purposes of this definition.
Coastal wetland means any wetland that is located on Lake Ontario, Lake Erie,
Lake Huron, or the Niagara River; or any other wetland that is on a tributary
to any of the above-specified water bodies and lies, either wholly or in part,
downstream of a line located 2 kilometres upstream of the 1: 100 year flood line
(plus wave run-up) of the large water body to which the tributary is connected.
F ish habitat, as defined in the Fisheries Act, c. F -14, means spawning grounds
and nursery, rearing, food supply, and migration areas on which fish depend
directly or indirectly in order to carry out their life processes.
Woodlands means treed areas that provide environmental and economic
benefits to both the private landowner and the general public, such as erosion
prevention, hydrological and nutrient cycling, provision of clean air and the
long-term storage of carbon, provision of wildlife habitat, outdoor recreational
opportunities, and the sustainable harvest of a wide range of woodland products.
Woodlands include treed areas, woodlots or forested areas and vary in their
level of significance at the local, regional and provincial levels.
38 PLACES TO GROW
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Valleylands means a natural area that occurs in a valley or other landform depression
that has water flowing through or standing for some period of the year.
Endangered species means a species that is listed or categorized as an
"Endangered Species" on the Ontario Ministry of Natural Resources' official
species at risk list, as updated and amended from time to time.
Threatened species means a species that is listed or categorized as a
"Threatened Species" on the Ontario Ministry of Natural Resources' official
species at risk list, as updated and amended from time to time.
Wildlife habitat means areas where plants, animals and other organisms live,
and find adequate amounts of food, water, shelter and space needed to sustain
their populations. Specific wildlife habitats of concern may include areas where
species concentrate at a vulnerable point in their annual or life cycle, and areas
that are important to migratory or non-migratory species.
Areas of natural and scientific interest (ANSI) means areas of land and water
containing natural landscapes or features that have been identified as having life
science or earth science values related to protection, scientific study or education.
In regard to the above, significant means:
a) in regard to wetlands, coastal wetlands and areas of natural and scientific
interest, an area identified as provincially significant by the Ontario Ministry
of Natural Resources using evaluation procedures established by the Province,
as amended from time to time;
b) in regard to the habitat of endangered species and threatened species, the
habitat, as approved by the Ontario Ministry of Natural Resources, that is
necessary for the maintenance, survival, and/or the recovery of naturally
occurring or reintroduced populations of endangered species or threatened
species, and where those areas of occurrence are occupied or habitually
occupied by the species during all or any part(s) of its life cycle;
c) in regard to woodlands, an area which is ecologically important in terms
of features such as species composition, age of trees and stand history;
functionally important due to its contribution to the broader landscape
because of its location, size or due to the amount of forest cover in the
planning area; or economically important due to site quality, species
composition, or past management history; and
d) in regard to other features and areas, ecologically important in terms of
features, functions, representation or amount, and contributing to the
quality and diversity of an identifiable geographic area or natural system.
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Pf~OPO~;ED CPOWTH PLAf'J 39
Criteria for determining significance for the resources identified in sections
(c)-(d) are recommended by the Province, but municipal approaches that
achieve or exceed the same objective may also be used.
While some significant resources may already be identified and inventoried
by official sources, the significance of others can only be determined after
evaluation. (Provincial Policy Statement, 2005)
NATURAL SYSTEM
As defined by Policy 4.2.1.1 and Policy 4.2.1. 2.
NEW MULTIPLE LOTS AND UNITS FOR RESIDENTIAL DEVELOPMENT
The creation of more than three units or lots through either plan of subdivision,
consent or plan of condominium.
OUTER RING
Defined as the geographic area consisting of the cities of Barrie, Brantford,
Guelph, Kawartha Lakes, Orillia and Peterborough; the counties of Brant,
Dufferin, Haldimand, Northumberland, Peterborough, Simcoe and
Wellington; and the Regions of Niagara and Waterloo.
PRIME AGRICULTURAL AREA
Areas where prime agricultural lands predominate. This includes areas of
prime agricultural lands and associated Canada Land Inventory Class 4-7
soils. and additional areas where there is a local concentration of farms which
exhibit characteristics of ongoing agriculture.
For the purposes of this definition:
Prime agricultural land includes specialty crop areas and! or Canada Land
Inventory Classes 1,2, and 3 soils, in this order of priority for protection.
(Provincial Policy Statement, 2005)
PRIVATE COMMUNAL WATER AND WASTEWATER SYSTEMS
Private Communal Water Systems is defined as a drinking-water system that
serves six or more lots or private residences and is not owned by a municipality.
Private Wastewater Systems is defined as a sewage works that serves six or
more lots or private residences and is not owned by a municipality.
REDEVELOPMENT
The creation of new units, uses or lots on previously developed land in existing
communities, including brownl1eldsites. (Provincial Policy Statement, 2005)
RURAL AREAS
40 PLACES TO GROW
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Lands which are located outside settlement areas and that are not prime
agricultural areas.
SETTLEMENT AREAS
Urban areas and rural settlement areas within municipalities (such as cities,
towns, villages and hamlets) that are:
a) built-up areas where development is concentrated and which have
a mix of land uses; and
b) lands which have been designated in an official plan for development
over the long-term planning horizon provided for in Policy 1.1.2 of
the Provincial Policy Statement, 2005.
SEWAGE WORKS
Any works for the collection, transmission, treatment and disposal of sewage
or any part of such works, but does not include plumbing to which the
Building Code Act, 1992 applies. (Ontario i%ter Resources Ac~
For the purposes of this definition:
Sewage includes, but is not limited to drainage, storm water, residential wastes,
commercial wastes and industrial wastes.
SMALL CITIES AND TOWNS
Settlement areas that do not include an urban growth centre.
SPECIALTY CROP AREA
Areas designated using evaluation procedures established by the Province, as
amended from time to time, where specialty crops such as tender fruits (peaches,
cherries, plums), grapes, other fruit crops, vegetable crops, greenhouse crops, and
crops from agriculturally developed organic soil lands are predominantly grown,
usually resulting from:
a) soils that have suitability to produce specialty crops, or lands that are
subject to special climatic conditions, or a combination of both; and/or
b) a combination of farmers skilled in the production of specialty crops,
and of capital investment in related facilities and services to produce,
store, or process specialty crops.
(Provincial Policy Statement, 2005)
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f>f~OI'OSED Cf<O\NTH PLAi'J 41
SUB-AREA
A sub-area is an area identified by the Minister of Public Infrastructure Renewal
within the Greater Golden Horseshoe at a scale generally larger than anyone
upper- or single-tier municipality.
SURFACE WATER FEATURE
Water-related features on the earth's surface, including headwaters, rivers, stream
channels, inland lakes, seepage areas, recharge/discharge areas, springs, wetlands,
and associated riparian lands that can be defined by their soil moisture, soil type,
vegetation or topographic characteristics. (Provincial Policy Statement, 2005)
TRANSIT-SUPPORTIVE
Makes transit viable and improves the quality of the experience of using transit.
When used in reference to development, it often refers to compact, mixed-use
development that has a high level of employment and residential densities to
support frequent transit service. When used in reference to urban design, it
often refers to design principles that make development more accessible for
transit users, such as roads laid out in a grid network rather than a discontinuous
network; pedestrian-oriented uses along roads to encourage walking to transit;
reduced setbacks and placing parking at the sides/rear of buildings; and improved
access between arterial roads and interior blocks in residential areas.
TRANSPORTATION CORRIDOR
A thoroughfare and its associated buffer zone for passage or conveyance of
vehicles or people. A transportation corridor includes:
a) major roads, arterial roads, and highways for moving people and goods,
b) rail lines/railways for moving people and goods,
c) transit rights-of-way/transitways including buses and light rail for
moving people.
TRANSPORTATION DEMAND MANAGEMENT
A set of strategies that results in more efficient use of the transportation
system by influencing travel behaviour by mode, time of day, frequency, trip
length, regulation, route, or cost. Examples include: carpooling, van pooling,
and shuttle buses; parking management; site design and on-site facilities that
support transit and walking; bicycle facilities and programs; pricing (road tolls
or transit discounts); flexible working hours; telecommuting; high occupancy
vehicle lanes; park-and-ride; and incentives for ride-sharing; using transit,
walking and cycling; and, initiatives to discourage drive-alone trips by residents,
employees, and students.
42 PLACES TO GROW
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TRANSPORTATION SYSTEM
A system consisting of corridors and rights-of-way for the movement of people
and goods, and associated transportation facilities including transit stops and
stations, cycle lanes, bus lanes, high occupancy vehicle lanes, rail facilities,
park-and-ride lots, service centres, rest stops, vehicle inspection stations,
inter-modal terminals, harbours, and associated facilities such as storage and
maintenance. (Provincial Policy Statement, 2005)
URBAN GROWTH CENTRES
Locations set out in Schedule 4. Urban growth centres will be delineated
pursuant to Policy 2.2.4.2, Policy 2.2.4.3, and Policy 2.2.4.4.
WATERSHED
An area that is drained by a river and its tributaries. (Provincial Policy
Statement, 2005)
WATERSHED PLAN
A watershed plan provides a framework for integrated decision-making for the
management of human activities, land, water, aquatic life and aquatic resources
within a watershed It addresses how water quality and quantity and ecosystems
are to be protected and enhanced, and includes matters such as a water budget,
conservation plan, setbacks from water bodies, stormwater management require-
ments and a monitoring plan.
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PRUPO~';U) UWWTH PL!\I'J 43
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DISTRIBUTION OF POPULATION, HOUSEHOLDS AND EMPLOYMENT FOR THE GREATER GOLDEN HORSESHOE 2001-2031 (figures in OOOs)
POPULATION HOUSEHOLDS EMPLOYMENT
2001 2011 2021 2031 2001 2011 2021 2031 2001 2011 2021 2031
City of Toronto 2,590 2.760 2,930 3,080 940 1.070 1,180 1,270 1.440 1,540 1.600 1.640
_.....~-~_._._--_._.._._.._-_..._~-_.__.. ------ -- -----..- --'-
Region of Peel 1,030 1,320 1,490 1,640 310 410 480 540 530 730 820 870
Region of York 760 1,060 1.300 1. 500 220 330 420 500 390 590 700 780
Region of Durham 530 660 810 960 170 230 290 350 190 260 310 350
Region of Halton 390 520 650 780 130 190 240 300 190 280 340 390
City of Hami Iton 510 540 590 660 190 210 240 270 210 230 270 300
GTAH TOTAl. .. 5,810 6,860 7,770 8,620 1.960 2,440 2,850 3,230 2,950 3,630 4,040 4,330
County of Northumberland 80 87 93 96 30 34 39 42 29 32 33 33
County of Peterborough * 131 137 144 149 50 55 61 64 54 59 60 60
City of Kawartha lakes 72 80 91 100 27 31 37 43 20 23 25 27
County of Haldimand 46 49 53 56 16 18 21 23 17 19 19 20
Region of Niagara 427 442 474 511 162 179 200 218 186 201 209 218
County of Brant" 129 141 157 173 45 52 60 67 55 62 67 71
Region of Waterloo 456 526 623 729 161 200 244 289 236 282 324 366
County of Wellington" 195 223 269 321 68 85 106 128 99 117 137 158
County of Dufferin 53 62 71 80 17 21 26 29 19 22 25 27
County of Simcoe" 392 484 583 667 137 177 223 260 153 197 230 254
OUTER RING TOTAl... 1.980 2,230 2,560 2,880 710 850 1,020 1,160 870 1,010 1,130 1,240
TOTAl. GGH.' 7,790 9,090 10,330 11,500 2,680 3,290 3,870 4,390 3,810 4,640 5,170 5,560
Source: Hemson Consulting Ltd. "The Growth Forecast for the Gleater Golden Horseshoe; January 2005
Note: Numbers rOllnded off to nearest lo. 000 lOr GT:411 municipalitles and nearest 1,000 lOr outer ring munlcipallties.
. Includes single tier municipalitles tl1at are located geographlcaUy within coun(y, e.g. Simcoe County IOrecasts includes City of Barrie and City of Orillia.
Separate forecasts lOr all slngle-tier munlclpallties will be detennined.
.. Totals may not add up due to rounding.
Legend
~ Urban Growth Centres
Greenbelt Area1-
Greater Gdden
Horseshoe Growth
Plan Area++
Urban Growth Centres
@ Internationaf Airports
"Ie;; Proposed Airport
M Gateway Economic Zone
Designated Greenfield Area
- Conceptual
Improved Higher Order
- Transit *
_ ~~~~~~ ~~ht~ Order
Improved Inter-Regional
. . . Transit to 2031 .
M Greenbelt Areat
Greater Golden
Horseshoe Growth
Plan Area++
M Built-Up Area . Conceptual
* Unes shown are conceptual and illustrative only and not to scale.
They are not aligned with infrastructure or municipal boundaries.
Sources: Ministry of Public Infrastructure Renewal, Ministry of
Transportation, Ministry of Natural Resources and Ministry of
Municipal Affairs and Housing.
'Ontario Regulation 59/05
"Ontario Regulation 416/05
.
Intermodal Hubs
o
Proposed Intermodal
Hubs
"lI!I!II Border Crossings
Existing Major Highways * @ International Airports
- - R _ Highway Extensions.
:)$) Proposed Airport
- Existing Raff Lines * Q;) Major Ports
'" Buitt-Up Area - Conceptual '" Greenbelt Area'
Greater Golden
Horseshoe Growth
ptan Area"''''
* Lines shown are conceptual and illustrative only and not to scale.
They are not aligned with infrastructure or munldpal boundaries.
Sources: Ministry of Public Infrastructure Renewaf, Ministry of
Transportation, Ministry of Natural Resources and Ministry of
Munfcipal Affairs and Housing.
'Ontario Regulation 59/05
"Ontario Regulation 416/05
Manitoba
Quebec
Ontario
Greenbelt
Area
(Ontario Regulation 59/05)
A<<J] i!k~~ !lt~B il'ai!
~.
am<dl [RtJ1lfai! Arrea
Desigm'llte<dl
Grreenfleld Arrea
i
i
I
I
I Settlement
I Areas
I
j
WE WELCOME YOUR COMMENTS
FEEDBACK ON THIS DOCUMENT CAN BE SUBMITTED TO -
Proposed Growth Plan for the Greater Golden Horseshoe
Ministry of Public Infrastructure Renewal
Ontario Growth Secretariat
777 Bay Street, 4th Floor
Toronto, ON M5G 2E5
Fax: 416-325-7403
E-mail: placestogrow@pir.gov.on.ca
To submit your comments electronically, you can complete an
on-line feedback form available at www.placestogrow.pir.gov.on.ca
For more information please call our toll free line at 1-866-479-9781,
Toronto-area residents can call 416-325-1210.
We would appreciate your feedback by January 27, 2006.
Ministry of Public Infrastructure Renewal
ISBN 0-7794-9089-4
Paid for by the Government of Ontario
@ Queen's Printer for Ontario, 2005
Existe en fran<;ais
SUBJECT:
Attachment 2
To Report PSD-009-06
The Regional Municipality of Durham
To: The Planning Committee
From: Commissioner of Planning
Report No.: 2005-P-9
Date: January 10, 2006
Province's Proposed Growth Plan for the Greater Golden Horseshoe, File: 026-02-04
Standing Committee Correspondence No. 2005-100 from Mr. Jason Thorne, Manager,
Ministry of Public Infrastructure Renewal
RECOMMENDATION:
a} THAT the following comments and the contents of this report be forwarded to
the Province as Durham Region's response to the Places to Grow: Better
Choices. Brighter Future. Proposed Growth Plan for the Greater Golden
Horseshoe:
i} the Province must accept the Region's forecasts which recognize the
growth potential that will result from the realization of key structural
elements, including the proposed airport in Pickering, improvements to
Highway 401, completion of Highway 407, the continued growth of the
University of Ontario Institute of Technology and a more diversified
regional economy;
ii} the Province must ensure that Durham also becomes a "complete
community" that no only accommodates residents, but also an
appropriate mix of jobs. To accomplish this, the Province must
establish a target of 1 job for every 2 residents as an objective in the
Growth Plan and commit to work with Durham Region to significantly
move toward achieving this objective by 2031. Commitment to
improvements to Highway 401, the extension of Highway 407 and
investment in other major infrastructure is needed;
iii) before the 40 percent intensification policy is approved, the Province
must work with municipalities to confirm that the target is realistic (Le.
sustainable) and can be realized, particularly in Durham Region,
Report No.: 2005-P-9
Page NO.2
recognizing that much of Durham's development is of recent vintage
and will not be easily redeveloped;
iv) a density of 200 residents and jobs per hectare (80 residents &
jobs/ac.) in Durham's Urban Growth Centres can only be realized with
significant investment in water, sewer and transportation infrastructure,
which will require funding assistance from the Province;
v) the density target for residents and jobs combined will be difficult to
monitor. The Growth Plan should provide separate targets for
residents and jobs;
vi) fiscal incentives must be provided to shift market/consumer
preferences from the single-detached dwelling to more compact
denser forms of housing. This will involve a major shift for the
development community and the consumer. The Province cannot
simply expect that "planning tools" such as community improvement
incentives, that put all the burden of incentives on municipalities, will
be sufficient. The Province must contribute significantly as well;
vii) policies related to "complete communities" must recognize that a jobs
to population ratio of 1 to 2 is a desirable target for the Greater Toronto
Area and Hamilton sub-area. This will assist Durham in retaining it's
designated employment land base. The Province must also provide
stronger policies to assist municipalities in protecting all appropriately
located employment lands from conversion to other uses;
viii) Provincial determination of Durham's urban land needs is a significant
intrusion into the Region's growth management responsibilities;
ix) the criteria for considering urban boundary expansions must include
additional criteria ensuring that sufficient employment lands are
designated to achieve a minimum of 1 job per 2 residents;
x) the schedules should be modified to show an "Improved Higher Order
Transit" designation south of Highway 401, corresponding to the
Report No.: 2005-P-9
Page NO.3
existing CN rail line between Rouge Park and the existing Oshawa GO
Train station;
xi) the schedules should be modified to show the "Proposed Higher Order
Transit Designation to 2031" to reflect the future extension of GO Train
service from Oshawa to Bowmanville. The schedules should also be
modified to only show an "Improved Inter-Regional Transit to 2031"
designation between Bowmanville and Peterborough;
xii) Schedule 5 - Moving People, should be modified to reflect our
previous requests for Proposed Higher Order Transit corridors,
consistent with the Transportation Master Plan and the proposed
Regional Official Plan review amendment, as follows:
. Highway 407 transitway to the East Durham Link, and along the
East and West Durham Links to Highway 401; and
. Simcoe Street between downtown Oshawa and Highway 407;
xiii) Schedule 6 - Moving Goods should be modified to show the future
Highway 404 extension to Highway 12/48. This corridor is important
for goods movement, particularly as a future aggregate haul route
between north Durham, Simcoe County (Le. Ramara) and Kawartha
Lakes and much of the GT A;
xiv) while the policies of the Proposed Growth Plan advocate the co-
ordination and implementation of transportation initiatives involving
MTO and other Provincial ministries, it is silent on the role, mandate
and responsibilities of the Greater Toronto Transportation Authority
(GTT A). This must be detailed before the Growth Plan is approved.
Also, the Region must be represented on the GTT A to advance
Durham's transportation and transit interests;
xv) the Province has a broader role to play in Transportation Demand
Management. As such, it must establish a role for itself and commit to
Report No.: 2005-P-9
Page NO.4
working with municipalities in the development and implementation of
TDM initiatives across the Greater Toronto Area and Hamilton;
xvi) the Region and the other Greater Toronto Area and Hamilton (GTAH)
municipalities have been committed to addressing infrastructure needs
and investments, through the implementation of long-term fiscal and
servicing strategies. There is no need for the Province to duplicate
these efforts. This is a significant intrusion into an area of Regional
responsibility. If there is a need for Provincial involvement in certain
municipalities where this capacity does not exist, they should be
specifically identified. The Province's involvement in the GT AH should
concentrate on providing funding assistance for the infrastructure
improvements needed to sustain growth and financial incentives that
encourage intensification. The Province must also ensure that the
Environmental Assessment process is configured to facilitate and not
hinder the planning and implementation of infrastructure required to
accommodate planned growth;
xvii) the Province must focus its attention on providing access to the "Iong-
term multi-year provincial infrastructure investment strategies" to
provide funding assistance to ensure that municipalities have the
means to ensure that these facilities are available to sustain the level
of anticipated growth;
xviii) there is no need for the Growth Plan to duplicate the efforts of upper
and single-tier municipalities in developing policies and mapping for
the natural system and prime agricultural areas. The Region should be
able to proceed with the approval of that portion of the ROP Review,
which the Province, in the normal course, will have an opportunity to
review and comment. The Province should focus its attention on
providing support, financial and otherwise, to assist in the establishing
the long-term viability of the agricultural industry. Full support for the
GT A Agricultural Action Plan is a place to start;
xix) it is imperative that Provincial policy commitments and investments in
infrastructure be made to ensure that Durham is given the opportunity
Report No.: 2005-P-9
Page NO.5
to achieve a healthy jobs to population ratio (i.e. 1 job per 2 residents).
This is a key consideration in Durham evolving into a "complete
community". The regional economic assessment must also assist
Durham in protecting it's employment land base and promoting
economic growth and diversification;
xx} the regional economic assessment must also provide an opportunity
for Durham to promote economic clusters, such as automotive
manufacturing and energy; and provincially significant designated
employment areas (prime industrial lands), particularly around key
transportation corridors such as Highway 401 and 407;
xxi} the Province must work with Durham through the transportation
assessment, to ensure planned infrastructure such as the completion
of Highway 407 through Durham and Highway 401 improvements,
remain a priority for Provincial funding and are accelerated to
completion. Sustainable transit funding and a streamlined
environmental assessment process for the consideration of transit
projects are also key considerations;
xxii} the Province must work with the municipalities to ensure that sufficient
funding is available for the infrastructure necessary to sustain growth.
The Province must also provide an effective suite of tools, financial and
otherwise, to support the goals and objectives of the Growth Plan. Full
cost development charges and a streamlined environmental
assessment process are measures that must be considered;
xxiii) in moving forward with proposed timelines, the Province must be
sensitive to the Region's responsibility to consult with its area
municipalities, particularly in regards to considerations for urban land
needs; and
b) THAT a copy of Commissioner's Report No. 2006-P-9 be forwarded to the
Minister of Public Infrastructure Renewal, the Minister of Municipal Affairs and
Housing, and the Durham area municipalities.
Report No.: 2005-P-9
Page No.6
REPORT:
1. PURPOSE
1.1 On November 24, 2005, the Province released a document entitled, Places to
Grow: Better Choices. Brighter Future. Proposed Growth Plan for the
Greater Golden Horseshoe (PGP), requesting comments by January 27,
2006.
1.2 The Region had previously commented on a Growth Plan Discussion Paper
in September 2004 and a Draft Growth Plan in March 2005, through
Commissioner's Reports 2004-P-73 and 2005-P-30 respectively.
1.3 On June 13, 2005, the Province passed the Places to Grow Act, 2005, which
provides the legislative framework for the Province to establish a growth plan
area, and allow the Minister of Public Infrastructure Renewal (MPIR) to
prepare a growth plan for all or part of that area. The Act defines processes
for preparing and amending growth plans and outlines the general contents of
such plans. Ontario Regulation 416/05 was also passed in June 2005,
designating the Greater Golden Horseshoe as the first growth plan area.
1.4 As part of the review of the PGP, Regional Planning staff convened a meeting
of planning staff from the area municipalities to generate comments from a
Region-wide perspective; and obtained comments from the Durham
Agricultural Advisory Committee (DAAC) and Durham Environmental
Advisory Committee (DEAC).
1.5 The purpose of this report is to review and provide a Regional response to the
PGP.
Report No.: 2005-P-9
Page No. 7
2. PROPOSED GROWTH PLAN
2.1 Generally, the PGP (previously distributed through Commissioner's Report
No. 2005-P-99) is very similar to the March 2005 Draft. As such, this report
focuses on key elements of the PGP, particularly relating to the Region's
previous comments and protecting the Region's planning and infrastructure
interests.
2.2 Similar to the Draft, the purpose of this PGP is to "guide decisions on a wide
range of issues - transportation, infrastructure planning, land-use planning,
urban form, housing, natural heritage and resource protection - in the interest
of promoting economic prosperity". This version of the Growth Plan is
presented as more of a policy document than the previous Draft, with much of
the context removed.
Growth Forecasts
2.3 The PGP sets out population, household and employment forecasts that are
to be used as the basis for planning and managing growth in our
communities. The Minister of Public Infrastructure Renewal (MPIR) will
review and as appropriate, amend the forecasts at least every five years, in
consultation with upper and single-tier municipalities. The review of the
forecasts will coincide with the release of the national census, the next of
which is to occur in 2006, with a 2007 release.
2.4 The forecasts for Durham have not changed from the previous Draft. The
Province forecasts a population of 960,000 and 350,000 jobs for Durham by
2031. This is significantly less than the most recent forecasts prepared for
the Regional Official Plan (ROP) Review1. The Recommended Directions for
the Population, Employment and Land Needs component of the ROP Review
would see Durham's population growth to 1.05 million with 398,000 jobs by
1 A key message from the study of Durham's Employment Needs prepared by C.N. Watson & Associates
for the ROP Review indicated that the Region is well positioned to capture a significant share of
GT A employment growth over the long term. The Region's employment growth, over the long
term, should exceed the anticipated employment growth forecast by the Province.
Report No.: 2005-P-9
Page NO.8
2031. The Province must accept the Region's forecasts which recognize
the growth potential of Durham that will result from the realization of
key structural elements, including the proposed airport on the Federal
lands in Pickering, the completion of Highway 407, improvements to
Highway 401, continuing growth of the University of Ontario Institute of
Technology and a more diversified regional economy.
2.5 Of particular concern is the forecast for jobs. As previously noted, the Growth
Plan has forecasted Durham's employment to reach 350,000 jobs by 2031
(50,000 less than the Region's forecast). The Province's forecast has the
jobs to population ratio decline from 1 job for every 2.5 persons in 2011 to 1
job for every 2.7 persons in 2031. This is not acceptable.
2.6 In the Growth Plan Discussion Paper, the Province indicated that a target of 1
job for every 2 residents was necessary to achieve its vision for a "complete
community". This is consistent with the ROP. As such, it is essential that the
Province establish as its growth objective that all efforts be made to ensure
an equitable distribution of jobs to all communities. The Province must
ensure that Durham also becomes a "complete community". To
accomplish this, the Province must establish a target of 1 job for every 2
residents as an objective in the Growth Plan, and commit to work with
Durham Region to significantly move toward achieving this objective by
2031. Commitment to improvements to Highway 401, the extension of
Highway 407 and investment in other major infrastructure is needed.
Intensification
2.7 As in the previous Draft, the PGP calls for a minimum of 40 percent of all
residential development occurring annually, to be within the "built-up area", by
2015. Once the intensification target is reached it will continue to apply as a
minimum throughout the remainder of the planning period (Le. 2031).
2.8 As indicated in our previous submission, the ROP calls for 20 percent
intensification based on the built-up urban boundary defined in 1991. As part
of the ROP Review Population, Employment and Urban Land Discussion
Paper, this level of intensification was recommended as appropriate for the
Report No.: 2005-P-9
Page NO.9
continued growth and development of the Region over the next 25 years (Le.
2031). This will result in more transit supportive densities, including the
highest densities within our centres and along our arterial road corridors.
2.9 As indicated in our previous submission, achieving 40 percent intensification
in Durham by 2015 will be extremely difficult, particularly since there are
several years supply of un-built units in draft approved and registered plans of
subdivision that will continue to build out at prevailing densities. In the longer
term, financial incentives will be required to build and maintain the 40 percent
level of intensification. As well, significant investment in hard infrastructure
will be required within the "built-up areas" to accommodate the intensification
target. Moreover, significant societal change will have to take place to accept
more dense forms of housing. Based on the ROP Review forecasts, 195,000
additional urban residential units will be constructed between 2006 and 2031
to support anticipated population growth. At 20 percent, approximately
39,000 units would have to be accommodated as intensification within our
existing built up areas. At 40 percent, this number rises to 78,000 units.
Discussions with area municipal staff suggest that 20 percent intensification
will be difficult to accommodate over the forecast period.
2.10 Given that most of the larger urban communities consist of relatively new
housing stock, much of which has come on stream since the mid - 1980's,
there is limited opportunity for substantial redevelopment in the foreseeable
future. As such it is questionable whether the degree of intensification the
Province is suggesting is achievable. Before the 40 percent intensification
policy is approved, the Province must work with municipalities to
confirm that that the target is realistic (i.e. sustainable) and can be
realized, particularly in Durham Region, recognizing that much of
Durham's development is of recent vintage and will not be easily
redeveloped.
Urban Growth Centres
2.11 As in the previous Draft, Downtown Oshawa and Pickering are identified as
Urban Growth Centres (UGC). UGC's are to be the focus of institutional,
commercial, recreational, cultural and entertainment uses; able to support
Report No.: 2005-P-9
Page No. 10
major transit infrastructure; and able to accommodate a significant share of
population and employment growth. This is generally consistent with the
current and proposed ROP policies. As well, the PGP indicates that these
areas will be the focus of Provincial investment.
2.12 However, the PGP requires Durham's Official Plan to include policies to plan
for a minimum gross density in the UGC's of 200 residents and jobs per
hectare (80 residents & jobs/ac.) by 2031. As noted in our previous
submission, this is similar in development density as the Yonge and Eglinton
area of Toronto today. While this may be an appropriate long term vision for
our Urban Growth Centres, the PGP fails to recognize the need for adequate
infrastructure to accommodate this level of density. The PGP seems to
assume that adequate infrastructure exists or can be easily provided to our
urban centres.
2.13 As noted in our previous submission, a density of 200 residents and jobs
per hectare (80 residents & jobs/ac.) in Durham's UGC's can only be
realized with significant investment in water, sewer and transportation
infrastructure, which will require funding assistance from the Province.
If Provincial infrastructure funding for UGC's is to be contingent on reaching
the density targets, then those centres that are unable to accommodate
significant growth due to infrastructure constraints would not be eligible for
funding assistance, and therefore would never achieve the expected density.
2.14 Considerations of "density performance" will also depend upon the ability to
monitor the growth of the UGC's. The density target for residents and jobs
combined will be difficult to monitor. The Growth Plan should provide
separate targets for residents and jobs.
2.15 Realizing the types of uses and densities contemplated in the UGC's and
other Regional Centres in Durham, will require more than infrastructure.
Fiscal incentives must be provided to shift market/consumer
preferences from the single-detached dwelling to more compact, denser
forms of housing. This will involve a major shift for the development
community and the consumer. The Province cannot simply expect that
"planning tools" such as community improvement incentives, that put
Report No.: 2005-P-9
Page No. 11
all the burden of incentives on municipalities, will be sufficient. The
Province must contribute significantly as well. For example, the Province
should consider relief from the school portion of the property tax on an
incremental basis, for any development that meets the intensification
objectives of the Growth Plan in a UGC. This would be similar to the
Brownfields Tax Incentive Program under the Brownfield Statute Law
Amendment Act.
Emplovment lands
2.16 As in the previous Draft, the PGP requires that the conversion to non-
employment uses or major retail uses only be considered through a municipal
comprehensive OP Review. Further, conversions may only occur where it
has been demonstrated that the land is not required over the long term for
employment purposes.
2.17 The general policy intent of protecting designated employment lands is
supported. However, the lower Provincial employment forecast for Durham
will make it more difficult for the Region and its area municipalities to defend
against employment land conversions. Therefore, as identified previously,
the policies related to "complete communities" must recognize that a
jobs to population ratio of 1 to 2 is a desirable target for the Greater
Toronto Area and Hamilton sub-area. This will assist Durham in
retaining it's designated employment land base. The Province must
also provide stronger policies to assist municipalities in protecting all
appropriately located employment lands from conversion to other uses.
Desianated Greenfield Areas
2.18 As in the previous Draft, the PGP requires that designated greenfield areas
be planned to achieve a minimum density target of 50 residents and jobs per
hectare (20 residents & jobs/ac.). This level of density for new development
is considered to be transit supportive and is consistent with the densities used
to determine urban land needs through the ROP Review process.
Report No.: 2005-P-9
Page No. 12
2.19 What is important for Durham is the ability to ensure the appropriate mix of
jobs, not just residential units. Therefore as previously noted, the Province
must commit to working with the Region to assist us in evolving into a
"complete community", that not only accommodates residents, but also an
appropriate mix of jobs.
Urban Boundary Expansions
2.20 In the previous Draft, the need for and phasing of new greenfield areas and
urban boundary expansions was to be assessed by the Province in
consultation with the GT AH municipalities collectively. The PGP now directs
MPIR to consult with each upper and single-tier municipality, individually, to
determine the need for and amount of additional greenfield land required to
accommodate the Province's growth forecasts.
2.21 As noted in our previous submission, Provincial determination of Durham's
urban land needs is a significant intrusion into the Region's growth
management responsibilities.
2.22 Once MPIR determines the amount of additional land required, the Region
must consider expansions to its urban boundaries as part of a comprehensive
review subject to the following:
. the proposed expansion does not exceed the maximum amount of
additional greenfield land established in accordance with the Provincial
forecasts;
. the timing of the expansion and the phasing of development within the
designated greenfield areas will take into account the intensification
target (40%) and density targets of the UGC's (200 residents & jobs/ha)
and greenfield areas (50 residents & jobs/ha);
. the existing and planned infrastructure required to accommodate the
proposed expansion can be provided in a financially and
environmentally sustainable manner;
Report No.: 2005-P-9
Page No. 13
. expansions will not encroach into prime agricultural areas unless there
are no reasonable alternatives; and
. the determination of appropriate locations for urban expansions should
take into account the policies of Sections 2 (Wise Use and Management
of Resources) and 3 (Protecting Public Health and Safety) of the
Provincial Policy Statement (PPS).
2.23 With the exception of assumptions for density and intensification, the PGP
criteria for considering urban boundary expansions are similar to those set out
in the ROP. However, the criteria for considering urban boundary
expansions must include additional criteria ensuring that sufficient
employment lands are designated to achieve a minimum of 1 job per 2
residents.
Infrastructure - Transportation
2.24 As in the previous Draft, the focus of the transportation infrastructure policies
is on transit and goods movement.
2.25 Schedule 2 - Places to Grow Concept and the transit schedule (Schedule 5 -
Moving People) have been modified as follows:
. the "Existing Higher Order Transit" designation has been replaced by an
"Improved Higher Order Transit" designation, which includes a corridor
between downtown Pickering and Oshawa; and
. the "Proposed Higher Order Transit to 2031" designation between
Oshawa and Bowmanville has been replaced by a new designation
entitled, "Improved Inter-Regional Transit to 2031", and has been
extended from Bowmanville to Peterborough.
2.26 The "Improved Higher Order Transit" designation generally corresponds to
existing GO Train and TTC Subway/LRT services elsewhere in the GT A. In
Durham, this designation is shown north of Highway 401 directly linking
downtown Pickering and downtown Oshawa along Highway 2, in Schedule 2
Report No.: 2005-P-9
Page No. 14
- Places to Grow Concept. This is consistent with the Transit Priority Network
introduced as part of the ROP Review. The schedules should be modified
to show an "Improved Higher Order Transit" designation south of
Highway 401, corresponding to the existing CN rail line between Rouge
Park and the existing Oshawa GO Train station.
2.27 The "Proposed Higher Order Transit Designation to 2031" should reflect
the future extension of GO Train service from Oshawa to Bowmanville.
This is consistent with the Regional Official Plan and the long-term service
expansion planned by GO Transit. Future station sites have also been
acquired in Oshawa and Bowmanville. The schedules should be modified
to only show an "Improved Inter-Regional Transit to 2031" designation
between Bowmanville and Peterborough.
2.28 Schedule 5 - Moving People, should be modified to reflect our previous
requests for Proposed Higher Order Transit corridors, consistent with
the Transportation Master Plan and the proposed Regional Official Plan
review amendment, as follows:
. Highway 407 transitway to the East Durham Link, and along the
East and West Durham Links to Highway 401; and
. Simcoe Street between downtown Oshawa and Highway 407.
2.29 The goods movement schedule (Schedule 6 - Moving Goods) has not
changed from the previous draft. As recommended in our previous
submission, the future Highway 404 extension to Highway 12/48 should
be shown. This corridor is important for goods movement, particularly
as a future aggregate haul route between north Durham, Simcoe County
(i.e. Ramara) and Kawartha Lakes and much of the GTA.
2.30 While the PGP does recognize that the Ministry of Transportation (MTO) "is
exploring options for establishing a Greater Toronto Transportation Authority"
(GTT A), it provides no detail on what the GTT A will do or what its governance
structure will be. While the Policies of the PGP advocate the co-
ordination and implementation of transportation initiatives involving
MTO and other Provincial ministries (i.e., 3.2.1.3, 3.2.2.3, and 3.2.2.4), it
Report No.: 2005-P-9
Page No. 15
is silent on the role, mandate and responsibilities for the GTTA. This
must be detailed before the Growth Plan is approved. Also, in keeping
with our previous submission, the Region must be represented on the
GTTA to advance Durham's transportation and transit interests.
2.31 The PGP recognizes the need to develop and maintain Transportation
Demand Management (TDM) policies to reduce trip distance and time, and
increase the modal share of other modes. The policies however, are directed
only to municipalities. The Province has a broader role to play in TOM. As
such, it must establish a role for itself and commit to working with
municipalities in the development and implementation of TOM initiatives
across the GTAH.
Infrastructure - Water and Wastewater
2.32 As in the previous Draft, the PGP requires that, "municipal water and
wastewater systems will generate sufficient revenue to recover the full cost of
providing water and wastewater services". Durham's water and sewer
system is fully metered and rates are based on cost recovery principles.
Residential and commercial development charges are in place to fund a
portion of the expansion of the system to accommodate growth. Some
municipalities, like Durham Region, are already undertaking asset
management studies to determine the appropriate level of infrastructure
investment and the corresponding rate increases which reflect the true costs
of water and wastewater services.
2.33 The Province must also recognize the impact of other legislative requirements
such as the implementation of Bill 175, the Sustainable Water and Sewerage
Systems Act. Under this legislation, it is expected that water rates will
increase in order to address increasing investment levels for infrastructure
replacement and full cost recovery. If caps are placed on municipal user
rates as suggested in the Sustainable Water and Sewage Systems Act, the
ability for municipalities to achieve full cost recovery and invest optimally in its
infrastructure is limited.
Report No.: 2005-P-9
Page No. 16
2.34 Similar to the Draft, the PGP directs MPIR, in consultation with upper and
single-tier municipalities, to undertake an analysis of water and wastewater
capacity and determine what is required to service the Provincial growth
forecasts. The Province must recognize the fiscal strength and professional
expertise that already exists in municipalities, such as the Region of Durham,
which successf.ully develop and implement their own long-term infrastructure
planning and financing strategies, including water and wastewater capacity
requirements. The Region of Durham develops a five-year economic and
financial forecast to address all aspects of Regional operations in order to
prepare its annual operating and capital budgets for water and wastewater.
As well, the Region has an asset management team to closely monitor the
state of the Region's infrastructure and to assist in prioritizing capital
infrastructure needs.
2.35 In addition, the recommendations of the "Expert Panel Report on Water and
Sewer" appear to be inconsistent with the recommendations of the PGP to
have Provincial involvement in determining water and sewer capacity. The
Panel approves of water and sewer systems being the responsibility of upper
and single-tier municipalities. In fact, the Panel recommends strengthening
the role of Regional municipalities to have the exclusive jurisdiction over all
elements of water and wastewater.
2.36 As noted in our previous submission, the Region and the other GT AH
municipalities have been committed to addressing infrastructure needs
and investments, through the implementation of long-term fiscal and
servicing strategies. There is no need for the Province to duplicate
these efforts. This is a significant intrusion into an area of Regional
responsibility. If there is a need for Provincial involvement in certain
municipalities where this capacity does not exist, they should be
specifically identified. The Province's involvement in the GTAH should
concentrate on providing funding assistance for the infrastructure
improvements needed to sustain growth and financial incentives that
encourage intensification. The Province must also ensure that the
Environmental Assessment process is configured to facilitate and not
hinder the planning and implementation of infrastructure required to
accommodate planned growth.
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Infrastructure - Community
2.37 The PGP has introduced policies for the provision of community infrastructure
(health, education, recreation, socio-cultural, activities security and safety and
affordable housing). Generally, a range of appropriate community
infrastructure should be provided to accommodate the growth of communities,
including the establishment of minimum affordable housing targets.
2.38 The community infrastructure policies in the PGP are supported by policies
already found in the Rap, Community Strategic Plan and corresponding area
municipal policy documents. The Province must focus its attention on
providing access to the "long-term multi-year provincial infrastructure
investment strategies" to provide funding assistance to ensure that
municipalities have the means to ensure that these facilities are
available to sustain the level of anticipated growth.
Natural System and Prime Aaricultural Areas
2.39 As in the previous Draft, the Growth Plan provides policies and criteria for
designating the natural system and prime agricultural areas outside the
Greenbelt. The PGP states that the Province, in consultation with the upper
and single-tier municipalities will further identify the natural system and prime
agricultural areas, and policies for their protection for areas outside of the
Greenbelt Area.
2.40 As noted in our previous submission, the Rap already provides appropriate
policies for the natural system and prime agricultural areas for lands outside
of the Greenbelt. This strong policy basis will be reinforced by the proposed
policy amendment currently being considered as part of the Rap Review.
This amendment is consistent with the Provincial Policy Statement and
conforms to the Greenbelt Plan. The Province will review the proposed
amendment through the consultation process currently under way. As such,
there is no need for the Growth Plan to duplicate the efforts of upper
and single-tier municipalities in developing policies and mapping for the
natural system and prime agricultural areas. The Province should focus
its attention on providing support, financial and otherwise, to assist in
Report No.: 2005-P-9
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the establishing the long-term viability of the agricultural industry. Full
support for the GTA Agricultural Action Plan is a place to start.
Imolementation
2.41 The PGP proposes to implement certain aspects of the Plan through "sub-
area assessments", intended to refine the policies of the Growth Plan at a
regional scale, with emphasis on:
· a regional economic assessment to guide planning for employment;
. refinement and phasing of the proposed transportation network;
. analysis of water and wastewater capacity and requirements to service
the forecast growth; and
. identification of the natural system and prime agricultural areas.
2.42 The sub-area assessments (SAA's) will be carried out by MPIR in
consultation with other relevant Provincial Ministries and upper and single-tier
municipalities.
Regional Economic Assessment
2.43 The Province intends to guide planning for employment through the
preparation of a regional economic assessment. The assessment will identify
existing and potential economic clusters, assess the demand for land and
identify provincially significant employment areas, including prime industrial
lands. It may also assist in identifying infrastructure needs to support
economic activities, and develop new policies to support competitive regional
economies.
2.44 This is of particular interest to Durham, where it is imperative that
Provincial policy commitments and investments in infrastructure be .
made to ensure that Durham is given the opportunity to achieve a
healthy jobs to population ratio (i.e. 1 job per 2 residents). This is a key
Report No.: 2005-P-9
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consideration in Durham evolving into a "complete community". The
regional economic assessment must also assist Durham in protecting
it's employment land base and promoting economic growth and
diversification.
2.45 The regional economic assessment must also provide an opportunity
for Durham to promote economic clusters, such as automotive
manufacturing and energy; and provincially significant designated
employment areas (prime industrial lands), particularly around key
transportation corridors such as Highway 401 and 407.
Transoortation Assessment
2.46 The transportation assessment is intended to allow for the refinement,
phasing and coordination of transportation infrastructure planning and
investment. It will focus on higher order and inter-regional transit of provincial
significance, and major roads and highways.
2.4 7 The Province must work with Durham through the transportation
assessment, to ensure planned infrastructure such as the completion of
Highway 407 through Durham and Highway 401 improvements, remain a
priority for Provincial funding and are accelerated to completion.
Sustainable transit funding and a streamlined environmental
assessment process for the consideration of transit projects are also
key considerations.
Water and Wastewater Caoacitv Assessment
2.48 The water and wastewater assessment would review water and wastewater
capacity and major requirements to service the forecast growth.
2.49 As discussed earlier in this report, the Region has been committed to
addressing infrastructure needs and investments, through the implementation
of long-term fiscal and servicing strategies. There is no need for the Province
to duplicate these efforts. However, the Province must work with the
municipalities to ensure that sufficient funding is available for the
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infrastructure necessary to sustain growth. The Province must also
provide an effective suite of tools, financial and otherwise, to support
the goals and objectives of the Growth Plan. Full cost development
charges and a streamlined environmental assessment process are
measures that must be considered.
Natural System and Prime Aaricultural Areas Assessment
2.50 The natural system and agricultural assessments would identify a provincially
significant natural system and prime agricultural areas outside the Greenbelt.
2.51 As discussed earlier in this report, the ROP already provides appropriate
policies for the natural system and prime agricultural areas on the lands
outside of the Greenbelt. In fact, the proposed ROP Review amendment
meets or exceeds the level of environmental protection than would be
considered "provincially significant". Therefore formal natural systems and
agricultural assessments are not necessary. The Region should be able
to proceed with the approval of that portion of the ROP Review, which
the Province, in the normal course, will have an opportunity to review
and comment.
Timina
2.52 It is our understanding that the Province intends to finalize the Growth Plan
early in 2006 and complete the Sub-area Assessment for the GT AH within the
next year and a half (Le. mid-2007).
2.53 In moving forward with proposed timelines, the Province must be
sensitive to the Region's responsibility to consult with its area
municipalities, particularly in regards to considerations for urban land
needs.
3. CONCLUSIONS
3.1 Generally, the Proposed Growth Plan is similar to the Draft previously
reviewed in March 2005. The most significant difference is in the proposed
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approach to implement the Plan. The Province is no longer proposing to
implement the Plan through the development of Sub-area Growth Strategies
(SAGS). Rather, the Plan will be primarily implemented through upper and
single-tier Official Plans, such as the Durham Region Official Plan. The
elimination of the need for SAGS is consistent with our previous comments.
Although the Province has changed its approach, it still intends to intrude into
some areas of responsibility that have traditionally been in the domain of
upper and single-tier municipalities.
3.2 As noted in our previous comments, the Province must develop an
effective suite of tools, financial or otherwise, to support the goals and
objectives of the Growth Plan. Sustainable transit funding, full cost
development charges and a streamlined environmental assessment
process are measures that must be considered as a minimum, if the
Province's vision is to have any hope of success.
3.3 It is recommended that this report be submitted to the Province as Durham
Region's response to the Places to Grow: Better Choices. Brighter Future.
Proposed Growth Plan for the Greater Golden Horseshoe document.
3.4 This report has been prepared in consultation with the Finance, Works and
Economic Development Departments.
A.L. Georgieff, M.C.I.P., R.P.P.
Commissioner of Planning
RECOMMENDED FOR PRESENTATION FOR COMMITTEE
Garry H. Cubitt, M.S.W.
Chief Administrative Officer
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