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PD-83-96
tv9. t^~rreral Purpose ac+d ndmirNStration committee Data;. flAonday, ,ku~e 3,.1996 Report ~; Rle #: try-law ~~ '~'~ .- °~i-6 C~PA~- 3~q -96 Subject. pOST.CtACUtAT10N t-E7TER FROM THE REGION OF DIJRtiAM GLARINGTON OFFtCIAL PLAN FtLEt PlN 32.4.2 st `1 ft is respectiul~ recommer-ded that the Generate' Purpose and Adm~ristration committee recommend to Coundl the bilow~: t. THAT Report PD-63-96 be received; 2. THAT Reprxt PD-83-96 be adopted as the respond of the Murucfpa~lty of Clarl~toXr to the Post-Circulatioi Lett®r of the Region !of Lhrrham dated tulay 23, 1998 on the Clarington Official Plan; 3, THAT Council provide direction on proposed modifica4ons t 42 {Bradley comers} 88 and 47 {North Newcastle ViNage); 4. THAT the Regional Planning Department and all' circulation.. agencies be so advised; and 5. THAT a copy of Report PD-83-96 and Council's resolution be forwarded to the Regional. Planning. Department and all dreulation agencies. 1. ORIGIN 1.1 On May 23 1896, the Regional Planning Departrrrent issued its Past-Circulation Letter on tt-e proposed Clarington Official Plan as adopted by Gamal on January 29, 1996. The Post-Circulation Letter contains the response of Region Planning staff with-respect to the agency comments. The Region's Pct-Circulation sett and agency cornmerrts on the Official Pian .are contained in PubNc Cor~uRation: ~_ ~` REPQAT N~1,: PE-89-fMS Pi4t~ s 5.t F.m~ Ares Lands - Courtice Waterfront (Proposed ModittcatMrr No. 146) The Regionproposes to modify Map. A2 (Land Use - Courtic:e Urbart Area} to r the lands south of the CN Railway and north of Lake Ontario f-om Waterfront Qreenvray and District Park to Light Indusdfal Area, in cxxrrrity with the Regional Plan designation for this area. Cgmm@nt The Clarirtgton Waterfront Study Recommended Land Use Strategy Rcommehded that tfteae lards be designated ~ Waterfront Greenway with a strict Park.. symbd. This area-has been identified as an area for a vrMerfront pmtc for the Mur~pality. It is Hated that there is a limited land ar@a suitable for Light lrxJustri~ Uses and it would require major infrastrucdxe improvements since th@ existing grade separation at the C.N. Railway cannot accomir-odate industrial traffic. Mun t-onse t}Isagt~ with proposed modiftcstion. The MuMdpality r®quests rye Regton to initiate the appropriate amendment to the Regional Ptan to 52 Bradley's Corners Residential Cluster (Proposed I~diHca#ton No. 142) Thus nwdlfteaticu-'- Would delete the -Residential Cluster' at the intert~e~cEion Regional Roam; 34 and Concession Road 7 (Bradley's Gomers). The Minishy of Agriculture, Food and Rural Affairs questioned the designation of .the Cluster,. noting that the Regional Official Plan does not permft r~nr dusters on lands designated Permanent Agricultural Reserve. The Ministry also noted that the exL~ing development does not have the characteristics of adistirtct residential duster -specifically, many of the residential uses appear to be 5 io t 0 acre lots, ._ ~ - ,. tf~F"E#R"C NC.: iPD-a3-9~ PAGtE 9 and. etural uses predominate on the east side of Regional Road 34 and north of G~x~ssior- Road 7. Comment The Bradley's Comers Cluster was identified in the Official Plan through a Counoil+initiated modifi~tion which was not supported by Staff. The designation of the Cluster-does not conform with the: Regional Official Plan. Munid~Reaeanse Gounctl direction is required. One of t#ts toilowing options may bs endorsed a) Agree rriHt proposed modification to delete Bradley Gorraera as a rural' dwter; b) Do not agree but will not further pursue this math ii the maditkation is made; or, c) Strongly. disagree. 5.3 Mores NetiroasUe Village {Proposed Modifications ti8 and 147) These modificsitions would redesignate the lands within Special Policy Area H from Urban Residential to Future Urban Residential, and. would remove the :Medium Density Residential symbol. The Ministry ~ AgncuRure, Food and Rural Affairs questioned the designation of the lands within Special Policy Area H as Urban Residential, given the presence a large active swfne operator to the north. The Ministry recarnmended that, the area inside the area of fnfluer~e of the swine farm be designated as Future Urban sue- n µ ~ •T ~ iNAx J~-836 P/KiE iti M Report PD-13-96, considered by t,ounal at the time of the of the f3ffictal Plan, Staff recx3mmended that the land wttMin the influeriae area be wed as Future Urban Residenti~ until such time as the hog fam- or similaa operatlon ceases. Notwithstanding Staff's recommendat7on, Ccwncil resoivrid to designate the lands within. Special Policy Area H as Urbmt Reeidentiai. Gouncll dirsctlon is required; one of the following options. may bs endorsed. a) .Agree; bj t>o rwt agree but will not pursue the matter ii the madfflcation is made; or, cj Strongly ~~~• 5.4 Apartrnents-in-Houses (Proposed Modification 27) The proposed Clarington Official Ply allows one apartm~t-in-house for de#aetr®d or semi-det~hed dwellings. The proposed Regional modification would pem'rit apsrtments-irrhouses also in townhouses, as required by Bbl .'12(1 {Resid~tial Rights lkcij: Bilk 20 came into force on stay 22, 1996, and meals the 'override" prcrvisic~n of tl1e Planning Act Which restricted. the authority Of fUlUnicipal-t166 to regulate •apartrnents-in-houses". Accordingy, municipal authority is restored and the provision of the Clarington Official Plan is valid and appniate. Staff do rwt feel that it would be appropriate to allow apartment-in-houses for tawnk-ousas. M a~dosl Rmzp~n s Disagree with proposed modifkation. ~, ,~ .. .r ~ ..;. ¢EPORT NO.: P[)-83:+!16 PAGE 2 :Report No. 11 which has been distributed to members of Goix~cil nr~ seporate 1.2 The Pow-Cirailation Letter is comprised of three parts - a} the covering letter which reviews the major issues identified in the Regional review, b} Appendix A which outlines the .proposed modifications to and deferrals of polioies, and cj Apperxttx B which outlines the proposed modifications to and deferrals ref arm on to maps. 2 PUi4POSE Thepurpose of this report is to prtwide the response of the Munidpafity to the Regime's Post-GircxJlation Letter on the Council-adopted Clarir-gton Officio! Plan. S. BACKGROUND 3.1 The Region, as the delegated authority of the Minister of Munidpal Affairs ,and Housing, circulated the proposed Clarir~ton Official Plan to 28 agendas for their review and comment within 45 days. As the approval authority for the Official Pl~aa, it is the Region's responsibility to attempt to resolve concerns raised by Due to the OPSEU strike in March/April, cornments from soma provindal ministries have bey delayed. Most agendas have~now provided their cornrnents. 3,2 Regional ~d Munidpal planning staff held numerous nw~etings durirx,~ the review period. Munidpal staff provided information to asses the Region in their evaluation of the Official Plan. In addition, staff were. consulted regularly on the agency cornments and the proposed modifications contained in the. Region's Post-Circ-~ation Lester. 3.3 .The Region's Post Gircul~ion Letter proposes a teal of 152 modifications to the Clarington Officio! Plan.. Most of these modifications are the result of minor issues raised by the various agendas to clarify poGc~es, address ff-a mandates and ~~~ N ~ ~Rp6tT Mfa.: Pia-83.96 PAGE 3 eonoems of er- agency, ar address issues of non-conformity with prc-vinciai Poffcy Or ~t :Regional Officlal Plan. 3.4 ?he Post-Circulatiari letter also proposes a total of 26 deferrals... Many of these deferrals relate to the applications to amend the Regional Cxficial Plan filed by the Municipality. These applications were submitted at the Eime of adoptiar- of the Clarmgton (3fficial Plan to address areas ofnon-conformity to the Regions Official Plan, which include: • OPA 8fr002 Southwest Courtice Transporta4on Issues. • OPA 96-003 Highway 407, Courtice GO Station, Green Road designation, Courtice Employrr~entRreaTransportation issues • OPA 96-004 SpsCial Purpose Commaraal uses.. in .the Gourtice Employes Area • OPA 96-fl05 Churches in General AgricuVturai Areas. Since the Region's review of these .applications is not complete, the Post- G~ Lett' proposes that a number of policies, land use sand infomsaion an various maps in the Clarington Officlal Plan with these amendment implications be deferred far future ~ . 3.5 Hlo. 1 to this report provides the Recommended Municipal Respon~ to ~• modi4cations and deferrals proposed. by the Region in the Poet-Girculatia~ letter. Major issues identified by Regional Staff are discussed in detain in Se~ions 4 and 5 of this report. 3.6 Wo. 2 illustrates the proposed deferral areas and the areas of p~ropoeed rraodifieations on Maps Al to A4, B1 to B3, Ct and D. Dtreto di#ficutties in reproducing these maps within the Committee Agenda, these are forwarded separatery. - 532 J AEPClRT NO.. PD~83-96 PAGE 4 YAJL>IR 18~1ES IQENTIFIED BY THE REGI©N The identified a numb of major issues related to the ~! 1~{an in the Past-Circulation Letter. Th®se issues are discussed . a.i Emgoyasent Areas - 20 Year Supply. of Lands (Pro}~osed f?ata[ral Z1} Thepolicy st$tements under BiH 163 and the Durham nak tNficcial Ptan do not permit an area munidpality to designate greater than a 20 year supply of empiayrnerrt area-.lands.. The Glarington Offidal Plain does not distinguish between 20 and 30 yeav Employmerrt lands. This ig done so ~ not ta,irnpose undue restriction in promoting the economic development of the MunidpaUttr. Fiovrever, it is recognized that the provincial .Policy frameanrork has recently changed ae a result of pnxlamatiarrof BiU 20. Regional staff ineed that they would work towards an appropriate solution which may or may rrot require an anrerrdment to the Regional Official Plan. In ardor to al~w for this, Region staff propose to defer aII F~rrrployment Area Lands far future 'on. ff aN Employmena Area lands were deferred, the outdated poUdes of the existlng Ofl Pitt would remain in farce, dearly not desirabke from the {Deal rn~idpaUty pctire. However, it may take some time before th~ matter ~ resohred. In the event an amendment to the Regions Offidat Plan is required, the approval: of the Ckarir~ton Fmployment Area wkU be delayed significantly. in the rime, Municipal staff will work. with Regional staff to find a possible sdudon fir this issue as soon as possible. Mratfcloal Rss~porae Mwty dls+~re+e with the Proposed deferral of ail Employment. Areas. 4.2 EmploymentAreas -Permitted uses along Type A and B artar#als and freeway {Proposed Deferral 20} Tare Region proposes to defer those areas designated Light Irrdr.~trial. An3a and General. Industrial Arse wl~ch are located along Type A arrd Type B roads 533 This proposed deferral affects some strategic lands designated- light Industrial or General Industrial Area in the Clarington Official Plan. his noted that portions of Whitby's Employm~t Area lands have also been deferred for this earns: reason.. A proposed amendment to the Regional Plan (OPA 96-008),. initid by the Region, is aurentiy being processed to permit other employment use~a to locate along these roads. The Public Meeting is scheduled to be held-:June 25, 1998.. Once the amendment is approved by Regional Council, it will be f©naarded to the Ministry of Mtmicipa! Affairs and Housing for approval. The deferral would subsequer-tiy be lifted. Agree with proposed deferral. 4.3 Aggregate .Resources - Prohibition of aggregate extraction in the .Upper tianars~ska River watershed (Proposed Deferrals 7 and 26) 'The Region proposes to defer Section 15.3.4 and a portion of Map D to allow for furtiier discussion among the Muniapality, the Ministry of Natural Resources and the Aggregate Producers' Association of Ontario. Section 15.3.4 states that new aggregate extraction is not permitted witi~in that portion~of the GanaraslCa River. Watershed identified on Map D. The Mirti~ry of Natural Resources stag that provincial poRry requires-C]fficiai P#arw to identify and protect as much of the mineral aggregate deposiis as is realistically possible. The Ministry states that the Ganaraska headwaters area represents approximately 50% of the area within Glarington i+dentrfied as an aggregate resource area, and that Section 15.3.4 must be removed to permtt ti1e fut~e extraction in this area. The Ministry's position on this issue has been ebhoed bI- the Aggregate Producers' Association of Ontario thrat+gh Submiaion No. 12. 53~ .. . . iREfr ufc~.: PD-e3r96 PAGE 6 Section 15.3.4. included in both the {Nett and Reccxnmended versicx>s of lhs O Pfart,-has consister-Uy been supported by both Gounal arui Staff. In this regard, rec~rrt Province. Policy Statements require -.that Gounc~ shalt "have regard' fcx them, not rsarily be consistent" with them. Staff have no objection to the. deferral of this secti~ to allow for further discussor~ with the Minisay of Natural Resources and the Aggregate Producers Ars. Staff wiN report to Gounal regarding these discussions and, if necessary, to seek. further direction.. J~urddcat nse Agree vrtttt proposed deferrals. 4.4 Aggrayab Resources -Study Requtrsmer>:s for amendment. for aggregaie ' exttactlon proposals (Proposed Deferral S) The Regret proposes to defer Section 15.3.7 to allow for further dstc~eion among tl~e Muniapaliry, the Ministry of Natural Resources and the Aggregate Producers' Assocation of Ontario. Section 15.3.7 requires aisplications to amend the Official Ptah for aggregate extraction to be supported by. studies which e that extraction can be carried out with mirruurrrai soaal and environmental impacts and that fend use compatibility issues .have been adequately addressed. The Mir~try of Natural Resources states that the information requested by Section 15.3.7 is addressed in the report :required for approval ur>dar the Aggregate Resources Act. The Ministry suggests that, in order to streamline the. application process, .the Glarirrgton Offical Plan .should. not require the subrnission of an errvironmeraal impact study. The Aggregate Producers' Association, in Submission,. No. 12, also indicated a concern with the studies required by Seaton 15.3.7 and. Section 4.3.8. _ 535 5 ~.F~PftRT NCI.: PD-83-f1~e PAGE T do not wish to impose unreasonable study requirements or- for ': ,end recogr~ze that there may be same wkh requirements-of-the Aggregate Resources Act. As such, Staff haare no objection. to the deferral of Section 15.3.7 to permit further discussions withthe-Ministry and the Aggregate Producers to reduce duplication and streamline the approval prods. However, Staff's position, as previously ~pPort~ by Coundl, is that. ~e ~atily is th® primary ageruy responsible for land use regulation, and mat the pollees in the Official Ptah must appropriately address Municipal.. regarding aggregate extra ion operations. Bt~fIRfL~ Agree w{!Iv proposed deferral. 4.5 Referrafs and Def®rrals of the Durham Regional Offidal Plan :The Region has proposed to defer the following portions of the Gfari~~ Official Plan in~trruch as they mate to outstanding deferrals or refernsis on the Regional Oflk.~al Plan. Stuff have no objective to the Region's proposal. • St. Marys Cement and Cove Road Resider-tial Area (Proposed peferrals 14, 11 and 24} • Prime Agricultural Areas on the Oak Ridges AAOraine (Proposed Deferral 15) • Mosport Park Tourist Node symbol (Proposed Deferrals 9 and t 7) • Special Study Area 4 north of Highway 35/115 {Proposed Deferral 16) • laidlaw landfill site (Proposed Deferral 19) 5. OTHEfl ISSUES RAISED BY THE REGION Through the review of the Region's Post-Circulation Letter, Staff wtstt to high4ght s number of issues to Council as discwssed below. X36 ~~ •, ITT ~ PH~e~-ii8 PAGE i i tlt NEW fiAODIFICATIONS PROPOSED BY CLARINGTON STAFF 6.1 M addition: to the modifications resulting from the ag®ncy .review of the C?fficial plan, Staff are proposing several modifications arising from our further reviser and use of the new Official Plan. 62 &. Anthan~r of Padua Church In response to submissions by Mr. Robert Herrin, representing St. Anthony of Padua Parish, the proposed Clarington Official Plan was revised to permit plates of worship in the General AgricuiWrai Area. To address. the issue of -non- ccxifwrniiy to the Regional Official Plan, the Municipality has made a request to amend .the: Regional Official. Plan. to permit places of worship in the General Area. It is noted, that Whiny does .not support. the general ame~ndrnent proposed by the Municpality. Responses have not been received from other-muniapalities. Mr. Robert Herrin indicated-that the church has now acquimd lands on the north east cxuner of Bloor Street and Hancock Read.. Given the above arcumstances, it would be appropriate to recognize S`t. Anthony of Padua cthurch site as a site speafic exception rather than a ganaral .policy emendrr~nt to the Dufiam Region Official Plan. In consideration of the selection of a specific site and the concerns regarding a general ~rrrendment, it is recommanded that: e that SeNion 13.3.5 of the Clarington Official Plaq be revised ss a site specific exception for St. Anthony of Padua dw'ch; and • that tla Municipality's application to amend the Regkmat Offidal Plan t» revised to be asite-specific amendment request for St. Anthony ~ Padua Church. 6.3 tHte of Consultant in Financial Impact Analysis Section 5.3.8 of the Clarington Official Plan indicates that the Municipality may .request the preparation of a Financial impact Analysis to evaluate the. irppact of 5~a e ~ Y ~ ~ I~,t PD-83.96 PACit: 12 a Euopcmed davaiopm~t. This type of analysis reties closely oh the collection and ir{xet~ion of municipal financial data and requires a high level of staff effort to co-ordin~e and review. After the experiences wlth ortie F~ancl+~ In Analysis, staff cxmdude that this type of study is best urxiertaken by the Munielpality. tt is recommended that the Section 5.3.8 be revised to indicate that the p~oporurnt shall fund such a study but that the Municipality will select and rem ttie cocuru~t. Accordingly, k is recx~mmended that the first sentence of Section 5.3.8 be dsienad and replaced by the following: 'The-Munidpality may require that a Financial Impact An~ys~ bo undertaica7 t~ enter dsvNopment proposals. The MuMdpsiity shall s~act art retaM qualltfer! professkmal expertise to undertake such a study but ffie expanse of tlts study shall bs .borne by the proponent.' 8.4 PW~Ik fapidd Works fi ordarta darifythe possible concerns with certain construction. projects, which of necessity must pass through creek valleys, staff recommend tied a new poAcy be added to the Official Plan to clarify the Municipabty's intent. It is noted that Environmental Assessment Act requirements provide for the examination of consideration, of the impacts and the mitigation of impacts.. The near proD~ p~~Y is ~ fdirnvs: "23.125 Capital works for roads, piped services and utiWty corridors undertaken by the Federal, Provindai or AegioruN gov+ennmerds or by the MuMcipality era permlhad within arryt land use deslynatlan subject to the previsions- of Ehs Fnvlrohmental Assessment Act and any other statute, where appNcabls.' 6.5 ~ of tiroup Homes The Ofifdaf Flan indicates titat cx-rractiorrat facilities and halfway hat~ee:require an arnendment to the t7fficiat Plan. Halfway houses are a type of group hens and may include halfway houses for ex-offenders, recovering alooholicsi, a the ~~) f. ,BE , JNL9R .. bAr:IC 14 ao~d~vantaged. Since the requirement for ~ amendrr-ent is not irrtended to apply to the :latter two types of faalities, staff recommand that the. definition of Group .Home in Section 24.12 be modified to read as follows: "Group Home - A pravincialiy-licensed detached dwelling used as special-needs housing axommodating up to 10 persons, exclusive of staff, but shall not Include halfway houses for sx-offonders. 6.6 Teclxt~ Modlt[catton with reference to Ministries,and Departments Thrtwghout the Plan, reference is made to specific provinaal,ministri~, such as the Ministry of Environment and Energy and the Ministry of Natural Resources, and specific departments of the Region of Durham, such as the Department of Health Services. Staff recommend that references in the Pian to specific pnyvirwtial nanlstri~ and Regional departments be modified to read "the Provkrce" and. alts Region" respectively. 7. NEXT STEPS '' 7.t The Ciarington Offcal Dian was adopted under the BiN 163 provisions of tha Planrrng Act. Accordingly, Regional Counal will render a "Notice of Proposed Deasion".which wiU be sent to Ctarington, all agencies and persons. requesting to be notified, and all persons making a submission on the Recommended Official Plan. Any person or agency, includa~ Municipal Counal, may, within 30 days, request referral of all or part. of the proposed decision. to the Ontario fuluniapal Board. lister 30 days, if no request for referral. is received or the request for referral appfies to ordy specific parts of the Official Plan, then the decision becomes. find for the remaining parts of the Official Plan. 7.2 The Region's timetable is to have Regional Council .render the "Notice of Decision" on the Official Plan on September 11, 1996. The new Official Plan would than come into force on October 11, 1996, ,save and except for referrals-and deferrals. 542 .., iREPOtiT ND.: PD-83.96 RAGE 14 7:3 reopect to the various Muniapally-initiated applicatit~ to arr[end the Official Plan, the Region will be making a derision on the ap~slicaticros cxx~anrently with the approval of the Glarfngton Official Plan. Should the Region approve the Munidpality's proposed amendment to the Dufiam.Pfan, the related aspect of the Clarington Official Plan would need to be deferred urttil the Minster of Mur-iripal Affaks and Housing approves the Regional OPA. Should: the Region. deny the Mururipality's requested OPA to the Dufiam Plan, the. related aspect of file Clarington Official Plan would be modified in the Region's . & COf~Ulf310N The Region's review of the Clarington Official Plan has proceeded e~cpedfliously. 1Mth the Municipality's response to the Region's post-circulation letter, Regional staff wifi be in a position to recommend that Regional Council rerxler a "htotice of Proposed Derision" in the near future, lY sutxnitted, ~ Q--eQ.~~_9-w Franklin. Wu, M:C.I.P., R.P.P. [)k^ector of Planrdng and Development JAS*DG*FYV'kdf 2t3 Matr 1996 Reviewed by, ~/ W.H. 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