HomeMy WebLinkAboutPSD-096-06
Clw:inglOn
REPORT
PLANNING SERVICES
Meeting:
GENERAL PURPOSE AND ADMINISTRATION COMMITTEE
Date:
Tuesday, September 5, 2006
Report #: PSD-096-06
File #: PLN 2.5.3
By-law #:
GPA.313.0f:, .
Subject:
ADOPTION OF AMENDMENT 114 TO
THE DURHAM REGION OFFICIAL PLAN
RECOMMENDATIONS:
It is respectfully recommended that the General Purpose and Administration Committee recommend to
Council the following:
1. THAT Report PSD-096-06 be received;
2. THAT Council request the Region to delete Supplemental Attachment 1 - Requested Changes
to the Greenbelt;
3. THAT in the event that Regional Council resolves to incorporate a Supplemental Attachment on
the Greenbelt, any changes proposed in the Municipality of Clarington be deleted;
4. THAT Council request the Region to postpone any decision on Future Growth Areas either by
Supplemental Attachment 2 or new policies on Future Growth Areas, until the implementation
and conformity exercise on the Growth Plan in order to allow the Region and area municipalities
the opportunity to assess the impacts of the Growth Plan on land requirements, urban form, and
the opportunities for creating transit supportive, complete communities; and
5. THAT this resolution be forwarded to the Region of Durham, area municipalities in Durham
Region, the Ministry of Public Infrastructure and Renewal and Ministry of Municipal Affairs and
Housing and any interested party listed in this report.
S,bm"'" by c~.:r...
~Davi J. Crome, M.C.I.P., R.P.P.
. y- Director of Planning Services
Reviewed by:
o~-:= ClYk
Franklin Wu,
Chief Administrative Officer
COS'DJC'sn
August 28, 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-096-06
PAGE 2
1.0 BACKGROUND:
The purpose of this report is to provide staff comments in respect of the Region's proposed
Amendment 114 to the Regional Official Plan. This amendment is the culmination of the
process undertaken by the Region to review the Regional Plan. Council has been providing
comments on the different policy changes proposed by the Region since 2000. ft is being
considered by Regional Planning Committee on August 29th, 2006 and subsequently by
Regional Council on September 13, 2006.
The Regional Planning Commissioner's report also contains the response by the Region to the
different comments provided by the Municipality as part of the Regional Official Plan Review
Process (see Attachment 3). Many of the Region's policy options and the municipality's
recommendations dealing with Population, Employment, and Urban land will be considered
during the Places to Grow Plan implementation process. However, Amendment 114 contains
options dealing with Changes to the Greenbelt and Future Growth Areas that are not
consistent with Council's resolutions.
The proposed Amendment 114 also includes two supplemental attachments to the Regional
Official Plan (See Attachment 1 and Attachment 2):
. Supplemental Attachment 1 - Requested Changes to the Greenbelt; and
. Supplemental Attachment 2 - Future Growth Areas.
The supplemental attachments were developed as a means of stating Regional policy but the
attachments would not be formally adopted as part of the Regional Official Plan. By remaining
as separate attachments and not being approved under the Planning Act, they would not
contravene Provincial policy. The Regional Solicitor concurred that this approach would not
violate either the Growth Plan or the Greenbelt Plan.
More recently, the Region issued an Addendum Report 2006-P-61 which recommended a
further option for future growth areas. This option would go further by incorporating new
policies and a map into the Plan to identify Future Growth Areas. The policies would recognize
the "Future Growth Areas" as the priority areas for future Urban Area boundary expansions.
However, they would "not represent land use designations or actual boundary expansions."
This would only occur subsequent to the Growth Plan conformity exercise. The Regional
Solicitor has also indicated that this option would not be in conflict with the Growth Plan.
Clarington's Council advertised and held public meetings on these two issues. Council has
passed specific resolutions dealing with both supplemental attachments. The comments and
position of Clarington's Municipal Council on the changes to the Greenbelt and the Future
Growth Areas are neither considered, nor mentioned in the reports, nor in the proposed
amendment.
REPORT NO.: PSD-096-06
PAGE 3
2.0 CLARINGTON COUNCil POSITION ON CHANGES TO THE GREENBELT
On Monday May 29, 2006 Council passed the following resolution:
Resolution # C-275-06
THA T Report PSD-061-06 be received;
THA T the Municipality of Clarington advise the Minister of Municipal Affairs and Housing, the
Greenbelt Council and the Region of Durham that it does not support amendments to the
boundaries of the Greenbelt Plan, at this time;
THA T the Greenbelt Council be requested to review issues related to rural employment uses in
the Greenbelt;
THAT a copy of Report PSD-061-06 be forwarded to John Gerretsen, Minister of Municipal
Affairs and Housing; the Municipal Affairs and Housing, Greenbelt Group; the Greenbelt
Council; the Region of Durham Planning Department and area municipalities; and
THA T all interested parties listed in this report and any delegations be advised of Council's
decision.
As stated in the report, the Greenbelt Plan supports many of the goals and objectives of the
Clarington Official Plan and provides further support for the protection of agricultural lands and
the natural system helping to maintain the rural atmosphere of Clarington and preserve
agriculture as a key economic force within the Municipality.
Staff also mentioned to Council that the necessary background studies to provide any new
arguments for the removal of the Courtice lands from the Greenbelt have not been carried out,
nor have they been requested by Council. The sub-watershed plans and environmental studies
necessary to determine the development potential of the lands have not been undertaken
either. There is good evidence that the areas partially act as shallow aquifers within the lake
Iroquois Shoreline and therefore any such development would be questionable.
The staff recommendation of the Durham Region Official Plan Review is to provide sufficient
land without encroaching on the Greenbelt to the year 2031 and beyond.
We also concluded that it would not be appropriate for the Region to request the inclusion of
additional lands in the "urban separator" between Courtice and Bowmanville, south of Highway
2 within the Greenbelt Area. The area recommended for inclusion in the greenbelt by the
Region may have the future Highway 407 corridor within it. This would potentially be an area
for future employment lands in subsequent planning periods.
At the public meeting held by Clarington Council on the changes to the greenbelt, the majority
of speakers opposed any changes to the Greenbelt boundaries in Clarington.
The Minister of Municipal Affairs has responded to the Region's submission on changes to the
Greenbelt boundaries. He advised that there would be no changes to the Greenbelt boundary
prior to the 10 year review.
REPORT NO.: PSD-096-06
PAGE 4
As a piece of advocacy with the Province, the further incorporation of a Supplemental
Amendment 1 serves no useful purpose. The Minister has responded. If it is adopted by
Council, it is not likely to stand the Ministry's approval process. In the event that it does
remain, it can only serve to hinder future considerations at great prejudice to Clarington. As
Council well knows, the Region's proposal was to add approximately 753.57 has. of land in
Clarington to the Greenbelt, largely to compensate for lands being removed in other parts of
the Region.
It is recommended that Council resolve to request the Region to delete Supplemental
Attachment 1.
Failing the complete removal of the Supplemental Attachment 1, the alternative would to
amend it to remove any changes affecting Clarington.
3.0 CLARINGTON COUNCIL POSITION ON THE FUTURE GROWTH AREAS
On Monday, June 192006 Council passed the following resolution:
Resolution # GPA-299-06
THA T Report PSD-084-06 be received;
THA T the Region of Durham be requested to coordinate the Growth Management Studies to
implement the Growth Plan for the Greater Golden Horseshoe with the area municipalities; and
THA T a copy of Council's decision be forwarded to the interested parties list in Report PSD-
084-06 and any delegation.
In our report to Council, we clearly indicated that the Places to Grow Plan was to be
announced at the time Regional Council was trying to make a decision on the expansion of
urban boundaries.
Council adopted the position that any changes to the urban boundaries be postponed as part
of the implementation of the Province's Growth Plan for the Greater Golden Horseshoe. The
Provincial Plan was unveiled on June 16, 2006 and came into effect the same day.
Regional Planning population projections had indicated the need for additional future growth
areas. However, the Provincial Plan as enacted contains population forecasts that are lower
than Regional projections.
As the Places to Grow Plan projections and policies are mandatory, the Region has now been
forced to revise the proposed changes to the Regional Official Plan to conform to the
Provincial Plan.
REPORT NO.: PSD-096-06
PAGE 5
Even though, the Provincial analysis on the additional residential lands to serve the legislated
population projects has not been initiated, the Region, in similar fashion to the Greenbelt
recommendations, are attaching the proposed Future Growth Areas to the Regional Official
Plan as a Supplemental Attachment.
In an addendum to the Regional Commissioner's report 2006-P-60 on the Regional Official
Plan Review, regional staff puts forward another option: to add policies and a map (Future
Growth Area Policy Option) to the Regional Official Plan to "recognize Council's long term
vision for the future growth of the Official Plan, as context for future planning decisions."
Both alternatives for Future Growth Areas - the Supplemental Attachment and the Future
Growth Areas Policy Option - seem to be more designed to "lock-in" certain lands as priorities
for future development. This would reduce any flexibility of both the Local and Regional
Councils to work with the Province in the implementation of the Places to Grow Plan.
Moreover, the Region has failed to consider Council's resolution that if they are to proceed to
identify Future Growth Areas, changes were requested to reduce the proposed westerly
expansion of the Bowmanville Urban Area. In Section 8.6.4 of the report, referenced in
Council's resolution, the Municipality requested amendments to the westerly expansion area to
reduce the proposed expansion to Maple Grove Road. This would provide a rounding out of
the Bowmanville Urban Area to a boundary which helps to mitigate the potential impacts on the
agricultural operations at the urban/rural interface. This position would apply to both the
Supplementary Attachment Option and the Future Growth Area Policy Option.
It is recommended that Council advise the Region of its position that Amendment 114 should
not identify Future Growth Areas by either technique at this time. Until the Growth Plan
conformity exercise is completed, the Region should not be formally adopting a policy on
priorities for expansion to urban areas. It pre-judges the outcome, creates uncertainty due to
semi-official/partially approved status and does not represent good planning policy. Moreover,
it does not consider the input by Clarington Council on this issue.
4.0 CONCLUSION
Clarington Council after public consultation has resolved that future expansion of urban
boundaries would be considered only as part of the implementation of the Places to Grow Plan
and that no changes should made to the Greenbelt boundaries. The Supplemental
Attachments and policy options for Future Growth Areas and the Greenbelt should not be part
of the Regional Official Plan as they do not reflect good planning principles, are inconsistent
with provincial legislation, and do not reflect the representations by the Council of the
Municipality of Clarington.
ATTACHMENTS:
Attachment 1
Attachment 2
Attachment 3
- Supplemental Attachment 1 - Requested Changes to the Greenbelt
- Supplemental Attachment 2 - Future Growth Areas
- Regional Staff response to Clarington's comments on the proposed
Amendment
REPORT NO.: PSD-096-06
PAGE 6
List of Interested parties to be advised of Council's decision:
Linda Gasser
Libby Racansky
Adam Brown
Bryce Jordan
Tony Biglieri
Peter Walker
Walter Kranzl
Richard Ward
David Rice
Aleksandr Bolentenko
Michael Montgomery
Jason Swartz
John Gerretson, Minister of Municipal Affairs
Greenbelt Council
Victor Doyle, Ministry of Municipal Affairs
Nash Road Developments Inc.
Dunbury Homes
Joanne Bruno
Victor Humphreys
Regional Planning Department
Kevin Tunney
Attachment 1
To Report PSD-096-06
Attachment 6
Supplemental Attachment 1
(Not part of the Reaional Official Plan\
ReQuested Chanaes to the Greenbelt Plan
This Supplemental Attachment is included with the Regional Official Plan for information
purposes only and does not form part of the Plan.
This Attachment confirms Regional Council's intent to pursue specific changes to the
Greenbelt Plan necessary for the effective implementation of the Plan by the Region of
Durham, expressed in the following resolution adopted on May 10, 2006:
"a) THAT staff be directed to forward a submission to the Minister of
Municipal Affairs and Housing and the Greenbelt Council that
incorporates the Region's issues with the Greenbelt Plan, as identified in
Report #2006-P-33 of the Commissioner of Planning, and the following
issues as set out in parts b) through e);
b) THAT the lands located between Audley Road/Lakeridge Road from
Highway 401 to Taunton Road, in the Town of Ajax be designated future
development area subject to the final alignment of the 401/407 Link and
subject to removal from the Greenbelt Plan;
c) THAT the lands located in the Townline Road area of the Municipality of
Clarington which are bounded by Townline Road, Pebblestone Road and
the existing Courtice Urban Area Boundary also be designated future
development area subject to removal from the Greenbelt Plan;
d) THAT the lands located on the north east corner of Nash Road and
Hancock Road, in the Municipality of Clarington also be designated future
development area subject to removal from the Greenbelt Plan; and
e) THAT the lands located north of Brawley Road, in the Town of Whitby, be
removed from the Greenbelt Plan to reflect the draft Greenbelt Plan area
as shown in Attachment #5 to Report #2006-P-38 of the Commissioner of
Planning."
If and when the Province makes the necessary amendments to the Greenbelt Plan, it is
Regional Council's intent to initiate amendments to the Durham Regional Official Plan to
give effect to the above resolution.
Regional Council's requested changes to the Greenbelt Plan are further detailed as
follows:
i) Lands to be Removed from the Greenbelt Plan Area
Regional Council is concerned that the extent of the Greenbelt in Durham
Region had increased in area by some 4,000+ hectares (10,000+ acres) with
approval of the final Plan. In total the Greenbelt covers over 80% of the Region's
land base. In particular, Regional Council has identified five areas that should not
have been included in the Greenbelt:
1. Pickering - Cherrywood Community the subject of a Growth Management
Study undertaken by the City of Pickering and identified as suitable for
future urban expansion in Pickering. This is consistent with Regional
Council's April 13,2005 submission to the Minister of Public Infrastructure
Renewal on the Draft Growth Plan requesting that the Province remove this
area from the Greenbelt and identify it as a "Designated Growth Area";
2. Ajax - Audley and Lakeridge Road area added in the Final Plan. This area
is no longer considered a viable agricultural area by the farmers owning the
land as a result of the advancement of nearby urban development, the
diminished agricultural land base in the area and the potential impacts from
the future alignment of the Highway 401/407 link currently the subject of an
Environmental Assessment;
3. Whitby - north of Brawley Road area added in the Final Plan. This area is
the subject of an application to amend the Durham Regional Official Plan to
permit a golf course and a resort/conference centre;
4. Clarington - Townline and Pebblestone Road area. These lands are
located immediately adjacent to full municipal services in the City of
Oshawa that can be easily extended to support urban development in the
Courtice urban area; and
5. Clarington - Nash and Hancock Road area added to the Final Plan. This
area is the subject of a request to expand the Courtice Urban Area
Boundary as part of the Regional Official Plan Review.
(Refer to Illustrations 1 and 2 attached for specific locations.)
These lands should continue to be governed by the municipal official plans.
ii) Settlement Area Expansions
In its submission to the Province on the Greenbelt Draft Plan, the Region
requested that the Plan be sensitive to the need for growth in our TownsNillages
(ie Uxbridge, Port Perry, Sunderland, Cannington and Beaverton) located within
the Greenbelt. This is particularly crucial when considering expansions to
accommodate employment uses in a timely fashion. The Greenbelt Plan is
unnecessarily restrictive in limiting the opportunity for expansions to the 10 year
review or the conformity exercise opportunity provided by policy 3.4.4.1 for these
settlements.
The Greenbelt Plan must be amended to provide opportunity for expansions to
Towns and Villages when the need and opportunity arises.
iii) Rural Employment Areas
Planned rural employment areas are focal points for the rural economy. The
approved Greenbelt Plan does not allow for the designation of new or
expansions to existing rural employment areas.
To allow for more diverse employment opportunities in rural communities, the
Greenbelt Plan must be amended to permit the designation of new Rural
Employment Areas or the expansion of existing Rural Employment Areas, in
accordance with policies contained in upper-tier official plans.
iv) Servicing of Orono
In its submission to the Province on the Greenbelt Draft Plan, the Region raised
a concern with the policy prohibiting the extension or expansion of Great Lakes
based water and sewer systems to settlement areas within the Protected
Countryside, particularly Orono. The Region requested that the Plan allow the
opportunity to provide lake-based services to Orono. This is consistent with the
policies of the Regional Official Plan, approved by the Province in 1993, that
express a long-term intent to investigate the provision of full, lake based,
municipal services to that relatively large rural community.
The absence of this opportunity in the Greenbelt Plan severely restricts the
servicing options for that settlement area.
The Greenbelt Plan must be amended to permit the further consideration of
extending full, lake based, municipal services to Orono.
v) Urban Separator
In its submission to the Province on the Greenbelt Draft Plan, Regional Council
requested that Plan recognize an open space separator between the Courtice
and Bowmanville urban areas including lands that have not been identified for
future settlement expansion.
Unlike the other Greenbelt Plan issues discussed above, the inclusion of this
area within the Greenbelt would have the effect of increasing the total Greenbelt
Plan area by 750 hectares (1,860 acres) (see Illustration 2).
Regional Council intends to pursue the above changes the Greenbelt Plan
immediately and through subsequent reviews of the Greenbelt Plan by the
Province, or other means.
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Attachment 2
To Report PSD-096-06
Attachment 5
Supplemental Attachment 2
(Not part of the Regional Official Plan)
Future Growth Areas
This Supplemental Attachment is included with the Regional Official Plan for
information purposes only and does not form part of the Plan.
The areas shown on the accompanying illustration represent priority areas for
future Urban Area boundary expansions. These areas were identified as part
of the Regional Official Plan Review and presented to Planning Committee for
consideration on April 25, 2006 through Commissioner's Report 2006-P-39.
The approval of the Provincial Growth Plan for the Greater Golden Horseshoe
on June 16, 2006 precluded consideration of the future growth areas pending
completion of the Growth Plan conformity exercise.
Any expansions to the Urban Area boundaries designated in the Regional
Official Plan, may only be achieved through further amendment to the
Regional Official Plan in accordance with the applicable Provincial and
Regional policy.
SUPPLEMENTAL ATTACHMENT 2
FUTURE GROWTH AREAS
LEGEND
,~.-,
21 DESIGNATED URBAN AREAS
GREENBELT BOUNDARY
l1li FUTUREGROWHIAREAS
OAKRIDGESIIIORAINE
BOUNDARY
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Attachment 1
Revisions to Attachment 2 to Commissioner's Report No. 2006-P-60
Part A - Future Growth Areas
1. Revise Attachment 2 to Commissioner's Report No. 2006-P-60 to add the
following additional sentences to Part S, Actual Amendment, Table A, Item 234:
"The areas shown on Schedule 'F' - Future Growth Areas, recognize the priority
areas for future Urban Area boundary expansions. These areas were identified in
Commissioner's Report 2006-P-39 considered by Regional Planning Committee
on April 25, 2006 and authorized for release for public consultation as part of the
Regional Official Plan Review. This schedule is a reflection of Councils long-
term vision of the Region's urban structure, but is not a land-use designation or
actual urban boundary expansion.
The Growth Plan for the Greater Golden Horseshoe 2006 provides policy
requirements for managing growth, including the conditions for expansion of
settlement area boundaries. Any expansions to the Urban Area boundaries
designated in the Regional Official Plan, may only be approved through further
amendment to the Regional Official Plan, in accordance with applicable
provincial plans and policies, including the Growth Plan for the Greater Golden
Horseshoe 2006."
2. Revise Attachment 2 to Commissioner's Report No. 2006-P-60 to add the
following new Item to Part S, Actual Amendment, Table A, after Item 903, and
renumber all subsequent Items accordingly:
"Exhibit 'F' - Future Growth Areas referenced in Section 7.3.3, recognizing
"Future Growth Areas", is not permitting any new development of the lands and
these areas do not constitute land-use designations within the Regional Official
Plan."
3. Revise Attachment 2 to Commissioner's Report No. 2006-P-60 to add the
following new Item to Part S, Actual Amendment:
"19) Add a new schedule entitled "Schedule 'F' - Future Growth Areas", as
shown on Exhibit "F" attached hereto and forming part of this
amendment."
4. Revise Attachment 2 to Commissioner's Report No. 2006-P-60 to add a new
map entitled "Exhibit F" to Part S, Actual Amendment, as attached hereto.
EXHIBIT F TO REGIONAL
OFFICIAL PLAN AMENDMENT
NO.114
OFFICIAL PLAN OF THE
REGIONAL MUNICIPALITY
OF DURHAM
t"
SCHEDULE 'F'
FUTURE GROWTH AREAS
LEGEND
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UR811.N AREA BOUNDARY
GREENBELT BOUNDARY
l1li: FUTuREGROWTHAREAS
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