HomeMy WebLinkAboutPD-77-93
CORPORATION OF THE TOWN OF
GPA
Purpose and Administration Committee
#
May 3, 1993
File #
Res. #
#: FLN 2. 2 . 8
, S COMMENTS ON MINISTRY OF MUNICIPAL AFFAIRS
TO 1991 DURHAM REGIONAL OFFICIAL PLAN
recommended that the General Purpose and
recommend to Council the following:
PD-77-93 be received;
contained in this report be endorsed as Council's
the Ministry of Municipal Affairs post-circulation
the new Durham Regional Official Plan;
Ministry of Municipal Affairs be requested to meet with
local staff to resolve the outstanding issues
not limited to population projections, density and
, phasing and urban boundary expansions,
planning, aggregate policies and rural settlements.
municipalities have further opportunity to review the
modifications prior to the Minister's approval; and
of this report be forwarded to the Region of Durham
Department, the Ministry of Municipal Affairs, the
of Natural Resources, the Ministry of Transportation, the
of Housing and other area municipalities in the Region of
BACKGROUND
In January 1992, the Ministry of Municipal Affairs requested
comments from the Town of Newcastle on the 1991 Durham
Regional Official Plan as part of the Ministry'S circulation
process.
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HECYCLED PAPIER
PAPER RECYCLE
REPORT NO.: PD-77-93
PAGE 2
staff prepared a report PD-108-92 for Council's consideration.
The report was adopted as the Town of Newcastle's comments on
'the 1991 Regional Official Plan with a number of amendments.
1.2 On March 25, 1993 the Ministry of Municipal Affairs forwarded
its post-circulation letter to Dr. M. Michael, Commissioner of
Planning for the Region. The letter raised the issues which
remained outstanding and proposed modifications to the 1991
Regional Official Plan. In addition, 28 referral requests
have been received, 10 of which relate to the Town of
Newcastle.
1.3 The Region of Durham Planning Committee has requested all area
municipalities to comment on the modifications no later than
May 10, 1993.
This report has been prepared to advise committee and Council
of the proposed modifications and the implications to the Town
of Newcastle.
1.4 copies of the Ministry's letter was circulated to Regional
Councillors by Regional staff. Local Councillors have been
provided a copy of the letter by Town staff.
2. OVERVIEW OF THE PROVINCIAL POSITION
2.1 The Regional Plan is the first of the upper-tier
municipalities within the GTA to guide future land use to the
year 2021. Therefore, the Ministry had undertaken a
comprehensive review of the plan in conjunction with various
other government offices. In many ways, it appears that the
Ministry's process is utilizing the Durham Plan Review as a
pilot project for many GTA initiatives including the Oak Ridge
Moraine study and the Royal Commission on the Toronto
Waterfront.
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REPORT NO.: PD-77-93
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The Ministry is supportive of the basic elements and
directions of the Regional Plan. The Ministry
states that the proposed modifications are aimed at enhancing
the Regional Council's role and responsibility in managing the
planning and development of the Region as well as addressing
Provincial and municipal interests.
The Regional Plan was prepared as a "structure Plan"
establishing areas for urbanization with no related time
horizon. However, the Ministry's initial concern is related
to the lack of any time horizon for the Plan. The Ministry
has proposed a 30 year timeframe for all upper-tier
municipalities in the Greater Toronto Area establishing a
vision to the year 2021.
The reduction in the time horizon has necessitated the need
for reductions in population targets Living Area land
supplies, employment targets, Employment Area land supplies
and commercial floorspace targets. In addition, the majority
of Special study Areas have been eliminated.
The thirty year time horizon is conditional on the inclusion
of density, intensification and phasing targets within the
Plan together with policies to ensure the long term stability
of the urban area boundaries. The intent is to establish
specific "performance standards" to monitor progress.
In addition to this general approach to growth management
there are a number of specific issues highlighted in the
Ministry's letter.
3.
GENERAL CONCERNS:
Staff has had a short time to review the proposed Ministerial
modifications and consequently this report only deals with
only the most significant isslles identified to date.
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REPORT NO.: PD-77-93
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3.1 Residential Densitv Modifications
The Regional Plans states that urban areas shall be developed
on the basis of a number of principles including compact form
and intensif ication. The Province has indicated that a
graduated shift toward increased densities be directed through
very specific policies on density and intensification.
Proposed modifications 55, 56 and 57 would establish policies
to define density targets. Specifically, it is proposed that
the Plan include policies to:
. encourage the review of existing proposals in the
approvals process in order to promote increased density;
. incorporate a target that all area municipalities plan to
the maximum permissable densi ti.es under the current
municipal official plan; and
. incorporate a target that area municipalities plan for
all new residential lands added by the 1991 Plan to be
developed at the average density on which the land
supplies were based (ie. 10 units per gross acre).
Furthermore the Plan should be modified to include a
definition of gross residential density.
It should be noted that the approved 1991 Durham Regional
Official Plan, while it had population targets for each urban
area, did not explicitly state a target density for Living
Area lands. Moreover, the Living Area designation includes
a broad range of uses including local and community level
commercial, institutional, schools, parks, local roads, storm
water management facilities, open space and even smaller
industrial areas recognized in the area municipal official
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REPORT NO.: PD-77-93
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Gross residential density is usually applied across larger
neighbourhood or community level planning areas, but generally
not including the broad range of uses as identified under the
Durham Plan. Net Residential density is usually applied to
smaller scale planning and refers only to those lands
specifically used for residential purposes. It excludes
public facilities like roads and parks and private lands used
for non-residential purposes.
A recent study undertaken by Malone Given Parsons for the Town
of Ajax included an examination of density factors for
existing and approved developments in the Greater Toronto
Area. Oshawa, Ajax, Whitby and Pickering had 6.8 upa, 5.1
upa, 4. 7 upa and 4. 3 upa respectively. Newcastle was not
included in the study. It found that new communities in
Peel, York and Durham are aChieving gross densities ranging
from 4 to 7 units per acre.
staff's own review found Court ice and Bowmanville developing
at approximately 5-6 upa whereas Newcastle Village was
approximately 4 upa. This, however, utilized a more
traditional definition of gross residential density rather
than for Living Areas as defined in the Regional Plan.
Malone Given Parsons also noted that currently public use
standards, including road allowances, park dedications,
stormwater management facilities, and creek valley protection
are leading to net density requirements of roughly 2.0 times
the gross density.
Malone Given Parsons conclude that the densities implicit in
the Durham Plan result in an urban form and housing types much
different from all recent development in Durham. While the
achievement of higher densities is one of the basic objectives
of the Durham Plan, the target is too high and should be re
examined.
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REPORT NO.: PD-77-93
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The Town's concerns with the proposed modifications are as
follows:
· The proposed graduation of densities to increase on the
periphery is contrary to planning for intensification
towards the centre of urban areas near services.
· The move to a more compact urban form cannot be so
dramatic that the housing units are not publicly accepted
or marketable.
· The move from a "structure plan" with no timeframe to a
30 year plan makes the density targets less achievable.
· The policies are too prescriptive and prohibit the area
municipalities to exercise any flexibility to achieve any
density target within the local official plan. The Plan
should not contain any specific provisions with regard to
density targets.
· The Town recommends that for the purposes of land supply
calculations only that a density of 7 units per gross
acre be utilized for Bowmanville and Courtice.
· Newcastle Village is different in scale and character
from other lake shore urban areas. It should therefore be
recognized that its role in the urban structure of Durham
Region is different. Accordingly, the Town requests that
for land supply calculations for Newcastle Village be
based on 5 units per gross acre.
· The definition of "gross residential density" should be
clarified to exclude community level facilities including
commercial uses (Local and community Central Areas,
Special Purpose Commercial Areas), industrial areas,
community level parks and seoondary schools.
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REPORT NO.: PD-77-93
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3.2
Thirtv Year Timeframe
The 1976 and 1991 Regional Plans were prepared as "structural
plans" without any planning horizon. For the province, the
lack of a defined planning horizon was a major concern related
to the implementation of a growth management strategy.
To address this, there needed to be some consensus on a 30
year population forecast. The 1990 Regional population
forecast was utilized with a target population of 930,000 for
Durham Region in 2021. The population forecast for Newcastle
in 2021 is 142,000.
On the basis of the thirty year timeframe and the density
assumptions, the province has requested that the Living Area
requirements be reviewed to correspond with the forecast. The
Ministry has suggested certain areas for deletion and
requested that additional reductions be considered in other
areas.
staff concur with the introduction of a specified planning
horizon for the Regional and area municipal official plans.
This will enable a more concerted effort to implement growth
management objectives.
It is noted that staff's original recommendation was based on
a thirty year planning horizon and the Region's population
forecast. Subsequent positions are noted on the chart below:
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REPORT NO.: PD-77-93
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1990 1990 1991 1991 Approved 1992
Staff Council Council Durham Plan Council
Recommendation Position Position Position
eourtice 40,000 40,000 55,000 60,000 40,000
Bowmanville 65,000 75,000 95,000 95,000 75,000
Newcastle Vlg. 12,000 15,000 27,000 27,000 15,000
Orono 7,000 7,000 10,000 ** 10,000 ** 7,000
Su btotal 124,000 137,000 187,000 192,000 137,000
Urban
Su btotal 20,000 * Not Not 18,000 *** Not
Rural Specified Specified Specified
Total 144,000 Not Not 210,000 Not
Specified Specified Specified
staff estimate
** Special Study Area to determine densities for Orono
*** Staff estimate: excludes Ridge Pine Park
The latest Town Council's recommended target population is
slightly higher than staff's original recommendation but
considerably lower than those in the new Regional Official
Plan. It appears that the new population forecast being
prepared by the GTA will increase Durham's share of population
growth. Consequently, it would appear that a thirty year
planning horizon would forecast a population of about 150,000
for Newcastle.
In addition to the above, the following comments are provided:
. In making adjustments to the Living Area lands to be
shown in the Durham Regional Plan, land supply
calculations need to be based on a more realistic density
assumption of 7 upa for Courtice and Bowmanville and 5
upa for Newcastle village.
. Any adjustments to Living Area lands need to be based on
larger neighbourhood-size units suitable for planning all
neighbourhood facilities. consequently, the targets for
each Urban Area should be adjusted as needed but
generally comply with the ranges noted above.
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. until such time as more information is available on the
impact of a revised population forecast and there is a
resolution of the gross residential density assumptions
to be utilized, the Town should reserve comment on
specific adjustments to Living Area lands, with the
exception of those noted in section 4 of this Report.
. The impact of any adjustments to the Living Areas on the
commercial structure (floor space) allocations and
employment targets is unknown at this time. The Town
requests further information and justification on any
proposed adjustments to these allocations/targets.
3.3 Urban Area Boundaries
As noted earlier, the Ministry's modifications propose that
the Regional Plan identify 30 year (long term) urban area
boundaries and that area municipal official plans identify 15-
20 year (interim) urban area boundaries. The lands between
the long term and inter im boundaries would be identif ied
either as agricultural or major open space in the area
municipal official plan.
staff support the general concept proposed by the Ministry of
Municipal Affairs. It is staff's intent to produce a Town of
Newcastle Official Plan with a 20 year timeframe.
Notwithstanding this agreement with the principle being
advocated by the Ministry, staff have a number of significant
concerns with the specific approach represented by these
modifications. These concerns are as follows:
. The concept of the Regional and area municipal official
plans identifying different urban area boundaries will be
confusing to the general public. Both Plans should show
the same urban area boundary. It is recommended that the
area municipal official plan identify the lonqer term
lands with differing but urban designation. This could
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REPORT NO.: PD-77-93
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either be a Deferred designation
Residential) or Special study Area.
(eg.
Deferred
. A major justification raised by the Ministry for
retaining the agriculture designation on the long term
lands was "to promote the longest possible use of
agricultural lands within the 2021 urban area boundary."
While staff concur with this objective, any land
developer will understand the long term potential of the
land. Even today, most of these lands are no longer
owned by farmers. Consequently, a deferred or special
study Area designation in the area municipal official
. plan could still encourage continued use for agricultural
purposes and achieve just as effectively this objective.
. The second justification for the above approach was to
enable a monitoring and evaluation process on the
implementation of the Regional and area municipal
official plans.
Modification 40 established policies regarding the
expansion of the thirty year (long term) regional urban
area boundaries. Expansion of these urban area
boundaries could occur only after a comprehensive review
in 10 years or 50 % occupancy of the designated vacant
land. However, the criteria may be applied to the total
lands or separately in groupings of Pickering/Ajax,
Whitby/Oshawa/CourticeandBowmanville/NewcastleVillage.
In effect, this latter clause joins municipalities in a
situation where one municipality may be near capacity and
unable to expand its urban boundaries due to the lack of
development in adjoining municipality.
staff are concerned about this "linkage" arrangement and
recommend that the latter criteria either be deleted or
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REPORT NO.: PD-77-93
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that each municipality be considered separately.
. Modification 42 establishes the mechanism for area
municipalities to monitor the interim urban area
boundary. It enables an expansion of interim urban area
boundary only after development of 25% of designated land
within the 15-20 year urban area boundary and as part of
a comprehensive official plan review which evaluates the
achievement of the targets and policies of the area
municipal plan. No site specific adjustments could be
made by privately initiated official plan amendments.
It has been a goal of the Town through the Durham Plan
review process to maintain Bowmanville as the dominant
urban centre in the municipality. staff concur with the
intent of this modification but recommend that rather
than applying the criterion on an urban area basis, that
is separately for Courtice, Bowmanville, Newcastle
village and Orono, that the 25% criterion be applied for
the entire municipal urban designations. This enables
the municipality to review its intended share of growth
for all urban areas. It would prevent market forces from
necessitating continuous reviews and increases in a
westerly area like Court ice while Bowmanville and
Newcastle Village may fail to meet their target
populations.
3.4 Employment Targets and Employment Area Land Supplies
The ~inistry is recommending that the following modifications
be made:
. Employment targets be amended to correspond with
population forecast.
. Employment Area lands be reduced significantly including
50% of all Seaton Employment Areas, Employment Areas
north of future Highway 107 in Whitby and Oshawa and some
additional areas unspecified.
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REPORT NO.: PD-77-93
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. the target ratio of 50% jobs to population be modified to
a more realistic target.
While it is recognized that the target adopted by the Region
for a ratio of 50 % jobs to population is very ambitious it
nevertheless represents a serious effort to reverse the high
rate of commuting by the Durham workforce into Metro Toronto.
While Town staff could accept a somewhat lower target, the
basic premise of a major effort by the Region to
direct/attract additional job growth to Durham Region must be
clearly understood, articulated and incorporated into the
Regional Plan. This includes the investment in major
provincial infrastructure to accommodate employment targets.
wi th respect to the thirty year planning horizon and the
reduced population targets, staff would concur that this will
inevitably have some impact on the amount of Employment Area
lands designated in the Plan. It is noted, however, that the
designation of new Employment Area lands in Newcastle take
advantage of the existing infrastructure, including Highway
401. consequently, within the planning horizon of the Durham
Plan, lands in the Town of Newcastle represent the most viable
option for new Employment Areas. The Employment Areas
designated in Newcastle should not be subject to any efforts
to reduce the total lands designated.
3.5 Housing Intensification Policies
As a corollary to encouraging higher densities in greenfield
areas, the Ministry recommends a number of modifications to
implement increased intensification through redevelopment,
reuse and infilling in existing built-up areas. The Region
utilized an intensification factor of 20% in the preparation
of the Regional Official Plan. In other words, it was assumed
that additional dwelling units could be created throllgh
redevelopment and intensification within the existing
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REPORT NO.: PD-77-93
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developed area equalling 20 % of the existing dwelling units
in 1991. The Ministry is requesting that the 20 %
intensification factor be an explicit target in the policies
of the Regional Plan.
Modifications 19,23,24,31,55 and
policies regarding intensification.
policies require:
57 relate to detailed
Among other things, these
· the Region in conjunction with area municipalities to
establish intensification targets;
· the Region to promote higher density housing forms and
encourage area municipalities to consider alternative
development standards and housing forms;
· the Regional Housing statement to establish housing
targets by type and tenure which will, among other
things, "be used to guide and evaluate area municipal
official plans and development proposals";
· require area municipalities to designate "intensification
areas" in their official plan.
staff's concern with these modifications are as follows:
· The intensification target may be too high given the
limited time horizon to the Regional Plan.
. The intensification target should not be applied
universally without regard for local conditions. While
there can be some assumptions at the Regional level
regarding the amount of intensification, the targets
should be established in the area municipal official plan
for each urban area.
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REPORT NO.: PD-77-93
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. These policies provide too much authority for Regional
monitoring and direction to development ultimately
leading to interference in local planning matters.
3.6. Environmental Policies
Significant modifications are proposed to section 2
(Environment) of the Regional Official Plan. The focus of
the proposed modifications relate primarily to:
. the creation, protection and enhancement of a natural
heritage system;
. the protection and enhancement of surface and ground
water resources; and
. land uses on or in proximity to former and active waste
disposal sites.
Natural Heritage system
The proposed modifications state that the Region shall promote
the development of a connected and functional natural areas
system being primarily composed of the components of the Major
Open Space system, natural features such as valleys,
Environmentally Sensitive Areas, and forests found in other
designations, and additional linkages and corridors identified
in area municipal official plans. The protection of specific
areas such as hazard lands, woodlots and hedgerows is also
addressed.
The Town supports this initiative to identify and protect a
natural heritage system and specific features within the
system.
Environmental Impact Studies
The Regional Official Plan originally stated that, in the
consideration of development applications in proximity to
Environmen~~]Jy Sen~i~ivA ArA~~, the Reglon would retain a
consultant at the expense of the proponent to prepare an
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REPORT NO.: PD-77-93
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environmental impact study. The modifications propose to
extend this requirement to include area municipal plans or
secondary plans encompassing Environmentally Sensitive Areas.
This modification, if approved, would require the Town to pay
the Region to hire a consultant to undertake an environmental
assessment in the course of preparation of the Town's Official
Plan.
The Town cannot support this modification as it establishes
undue Regional involvement in a local planning process . Given
that most of the environment impacts relate to groundwater and
stormwater management, it is recommended that this
modification be deleted or substantially changed to enable
area municipalities to deal with environmentally sensitive
areas through policy direction in its own Official Plan.
Watershed Planninq
New polices are proposed which substantially increase the
emphasis on protecting and managing surface and ground water
resources in the preparation of area municipal official plans
and in the review of development proposals.
Specifically, the modifications propose the following:
. area municipal official plans, must address cumulative
impacts by promoting comprehensive planning for
watersheds and natural area systems;
. that a subwatershed plan be co-ordinated by the area
municipality in conjunction with other agencies as a
prerequisite for proposed major expansions of existing
urban areas and secondary plan proposals;
. area municipal official plans shall identify specific
studies, design techniques and implementation
requirements as a prerequisite to approval of a specific
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REPORT NO.: PD-77-93
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development or Regional Council support of an area
municipal official or se~ondary plan;
. area municipal official plans shall include policies
detailing requirements for stormwater management and
erosion and sedimentation control plans and the
relationship of such plans to the subwatershed plans.
The thrust of the proposed modifications is to incorporate
the concept of 'watershed planning' into the Durham Plan.
This concept involves having the impacts of development on
surface and ground water resources assessed in the initial
stages of land use planning. In theory, watershed planning
allows for development to proceed while minimizing the
disruption of natural hydraulic processes.
The Town recognizes the importance of protecting and enhancing
surface and ground water resources when planning land use, and
does not have any objection in principle to incorporating
these factors into the land use planning process. However,
the proposed modifications would appear to be placing the
financial, policy and administrative burden for implementing
watershed planning on the area municipalities. The
modifications will require area municipalities to initiate
watershed planning studies as part of the review of their
official plans.
The financial and administrative implications of these
proposed modifications must be clarified prior to their
incorporation into the Regional Official Plan. In many
respects, these provincial and regional policies are
downloading the cost of planning to area municipalities.
3.7 Aqqreqate Policies
The Ministry of. Natllra I ReSOllrces has advised that the new
Regional Plan does not fully implement the Provincial Mineral
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REPORT NO.: PD-77-93
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Aggregate Resources Policy Statement. This includes the
recognition of some of the Lake Iroquois Shoreline as a "High
Potential Mineral Aggregate Resource Area". In addition, the
Aggregate Producers Association of ontario has requested
referral of the mineral aggregate policies in the Plan.
Aggregate extraction activities will become increasingly
important to the Town as sources of supply further west are
diminished. The Town will need to deal with increased
activity.
It is understood that Regional staff will be seeking deferral
of these policies to enable further discussion. Town staff
support this direction and the Town must be consulted in the
resolution of the outstanding issues.
4. MAJOR CONCERNS RELATED TO THE TOWN OF NEWCASTLE
Attachment #1 to the Report identifies the specific changes to
the Maps wi th respect to Newcastle. Staff comments are
provided on each proposed modification.
4.1 Orono
The Ministry has commented that while supporti ve of the
Region's intent to assess the future of Orono, it is premature
to establish an urban area or special study area boundary.
Modifications 46, 129 and 144 propose to delete the
designations on Map AS and insert a policy requiring the
Region to "investigate the provision of municipal services to
Orono" .
It is noted that while the modifications eliminate Orono from
the Map, it does not propose to designate Orono as a hamlet.
policies in Section 5 and 7 of the text still refer to Orono
as an urban area. In essence, Orono appears to be an "urban-
area-in-waiting", having the status but no lands designated.
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REPORT NO.: PD-77-93
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staff have previously advanced the rationale to recognize
Orono as an urban area. It has a distinct and mature
downtown, district level recreation facilities, access to
Highway 35/115, water supply services, and a population
slightly less than 2000.
Given the Town's desire to pursue Orono as an urban area, the
Ministry's reluctance to designate specific boundaries prior
to the completion of further studies, and the thirty year
timeframe for the Plan, it is recommended that the following
directions be pursued by the Ministry.
. Designate Orono as an urban area with boundaries
indicating only existing development and minor additions
as shown in the Orono Hamlet Plan, including the
designation of Living Areas and a Main Central Area.
. Modify Section 3.3.5 to identify Orono with a target
population of 2000 and appropriate employment targets.
. Add a policy in Section 5. of the Plan as follows:
"In the planning and design of the Regional water supply
system and sanitary sewerage system for Newcastle
village, Regional council shall incorporate capacity to
extend full municipal services to the Orono urban area
with a minimum population of 10,000."
These modifications would recognize Orono as an urban area
immediately and enable the planning for the extension of lake-
based services. It would, however, recognize that any urban
expansion for Orono would need to be considered in a
subsequent review of the Durham Regional Official Plan.
4.2
North Courtice
The Ministry of Municipal Affairs notes that the northerly
expansion of Courtice has raised concerns given the extensive
environmentally sensitive areas in this location. Moreover,
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REPORT NO.: PD-77-93
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the thirty year timeframe of the Plan has raised the questions
of the total land supply requirements.
staff previously recommended that there should be no northerly
expansion of Courtice Urban Area at this time. Town Council
previously took the view that the northerly expansion of the
Court ice Urban Area could be considered but after more
detailed study given its environmentally sensitive nature.
consequently Town Council recommended that the lands northerly
to Pebblestone Road be designated special study Area.
Regional Council, in its consideration of the Plan,
recommended that approximately 160 acres west of Trulls Road
be recognized as Part of the Urban Area and designated as
Living Area. Landowners, both east and west of this
extension, have referred the Durham Regional Plan to the
O.M.B. to also have their lands designated for urban purposes.
Given Council's position that the target population for
Courtice should be approximately 40,000 and in consideration
of the significant environmentally sensitive features in this
location, staff confirm its original position and recommend
that no northerly extension of courtice should be contemplated
within the timeframe of the Regional Plan.
4.3
SDecial study Areas
Special study Areas are designated to imply future directions
for growth, subject to further study and an amendment to the
Regional Plan. Given the Ministry's position on a thirty year
planning horizon and the amount of lands within the proposed
urban areas, the need for special study areas are unnecessary.
The Town supports the elimination of special study Areas 6, 7,
8, 9 and 11. Discussion pertaining to SSA 10 for Orono is
110 ted above.
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REPORT NO.: PD-77-93
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4.4 st. Marvs Cement (special policy Area B)
The Ministry has noted the concerns raised regarding the st.
Marys Cement lands in Bowmanville. A referral request has
been made by the Port Darlington Community Association.
Furthermore the Town expressed serious concerns regarding the
diminished control over planning approvals as a result of the
"notwithstanding" clause as contained in the 1991 Durham Plan.
The area is under consideration in the Newcastle Waterfront
Study. In addition, council has requested the Shoreline
Regeneration Trust to facilitate discussions with various
agencies to resolve the many issues surrounding st. Marys
Cement. The Honourable David Crombie, has agreed to
facilitate such discussions.
Given that the Waterfront study is examining the st. Mary's
cement issues in significant detail and considering that there
will be some mUlti-party discussions on this issue to resolve
the future land uses, it is recommended that the policies and
designations associated with Special Policy Area B be deferred
by the Ministry of Municipal Affairs.
4.5 Hiqhway 407 and Hiqhway 401/407 Link
The 1991 Durham Regional Official Plan identifies the future
Highway 407. In addition to a number of modifications which
strengthen the status and details' regarding Highway 407, the
Ministry has recommended a modification to identify the
preferred alignment for the Highway 401/407 Freeway Link east
of Courtice.
In February 1992, Town Council did not endorse the
construction of the Highway 407 in the Town of Newcastle and
requested the Ministry to examine alternative transportation
strategies. In addition, Council has not taken position on the
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REPORT NO.: PD-77-93
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In Report PD-44-93 on Economic Development, staff requested
Council to reconsider its position and endorse the technically
preferred alignments for both Highway 407 and the Highway
401/407 Freeway Link. Council has resolved to defer the issue
until the meeting on May 31st, 1993.
If Council wishes to oppose Highway 407 and the connecting
freeway link east of courtice, it has two options at this
point:
. the Minister of Municipal Affairs can be requested to
refer all matters related to the future Highway 407 and
Freeway Link to the ontario Municipal Board. This will
involve defending this decision with specialist
consultants and legal representation. staff are not in
a position to support council's position on this matter.
. The Minister of Municipal Affairs can be requested to
defer all matters related to the future Highway 407 and
the Freeway Link. This deferral will assume that there
will be further discussion to resolve the matter.
The recommendations of this staff report should be amended
according to Council's direction.
4.6
Prestonvale/Townline Road Interchanqe
In the course of undertaking the South Court ice Employment
Area, the transportation consultants have identified the need
for a second interchange to serve the Court ice Urban Area and
particularly the Employment Area lands. An initial meeting
has been held with representatives of the Ministry of
Transportation, the Region and Town staff. Town and Regional
staff support the need to identify and protect for an
interchange in the general vicinity of the present day
Prestonvale Road. This interchange would serve a future
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REPORT NO.: PD-77-93
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staff recommend the Schedule B2 be modified to indicate
Townline Road as a Type B Arterial Road south of Bloor street
connecting to a "proposed" interchange in the vicinity of
Prestonvale Road. If the Ministry is not prepared to approve
such a designation at this time, it is recommended that it be
incorporated into the Plan but granted a "deferred" status.
4.7
The Port Darlinqton Secondary Planning Area.
The Town had requested a Special Study Area designation for
the lands east of Port Darlington currently under study. The
designation would reflect the possible expansion area for
Bowmanville.
The 1991 Regional Plan did not reflect the Town's request and
as such the Minister was requested to modify the Regional Plan
to incorporate this area as a Special Study Area.
The Port Darlington Secondary Planning Area is essential
consideration to secure public access and improvement of the
waterfront. The Plan is being formulated in recognition of
the principles formulated by the Royal Commission.
staff reiterate the Town's previous position with respect to
having the Port Darlington secondary Planning Areas identified
with either a Living Area designation or a Special Study Area
designation and incorporate a planned population of 4,000 in
the allocation process for land supply requirements.
4.8
Rural Settlement Areas
The Ministry's primary concern with rural areas is the
prevention of scattered development and "proper growth
management" for rural settlements. As proposed, the Ministry
does not feel that the Plan provides sufficient direction to
area municipalities to regulate the amount and location for
development and growth in hamlets, estate residential,
clusters or rural employment areas.
. 8 'I
. :) I
REPORT NO.: PD-77-93
PAGE 23
Modifications are recommended by the Ministry to require:
. area municipal official plans to provide coverage for
their rural areas
. the Region and area municipalities to conduct
comprehensive growth management analysis regarding need,
financial implications and cumulative environmental
impacts
. no expansions to hamlet will be permitted until the area
municipality undertakes such a comprehensive analysis
. no additional estate residential (country residential)
subdivisions shall be permitted until the area
municipality undertakes such a comprehensive analysis
. no Rural Employment Areas can be designated without such
an analysis
. planning for hamlets shall include a settlement capacity
study which includes a "cumulative impact assessment"
. planning for hamlets and estate residential (country
residential) subdivisions shall include consideration of
servicing by municipal and communal systems.
staff support the introduction of policies mandating a
comprehensive analysis of rural growth requirements. This
matter is already incorporated into the Province's Growth and
Settlement Guidelines and is necessary to provide a long term
vision for the rural area.
staff remain concerned with the implications of settlement
capacity studies which include a cumulative impact assessment.
The financial burden of such studies for Newcastle, with 13
hamlets, make it cost-prohibitive to consider expansions to
hamlets. Unless a funding mechanism can be established to
underwrite the municipality's costs for such studies, it will
tend to force development to rural clusters and country
residential subdivisions where the proponents can undertake
si te specific stu~i as without. aonsidaration of an entire
hamlet area.
]82
REPORT NO.: PD-77-93
PAGE 24
4.9 Agricultural Areas
The Ministries of Municipal Affairs and Agriculture and Food
have requested the certain lands previously shown in the 1976
Regional Plan as Permanent Agriculture Areas or General
Agricultural Areas be retained in this designation rather than
given an Open Space designation. The main areas of concern in
Newcastle are the urban separator lands between Court ice and
Bowmanville and within the areas now identified as part of the
Oak Ridges Moraine.
staff have no objection to this proposed modification.
5. CONCLUSIONS
5.1 The Ministry of Municipal Affairs has undertaken a
comprehensive review of the new Durham Regional Official Plan,
being the first of the GTA upper-tier plans to guide land uses
to the year 2021. While the provincial response has endorsed
many of the basic directions of the new Durham Region Official
Plan, it has proposed 144 substantive modifications and raised
a number of key issues to be resolved prior to approval.
The proposed modifications would establish a thirty year time
horizon for the Regional Plan and a 15-20 year time horizon
for area municipal official plans. However, the Ministry
proposes to establish performance standards, including
explicit density, intensification and phasing targets within
the Plan to be used in monitoring progress and phasing
development.
staff support the introduction of specified time horizon in
the Regional and area municipal official plans. staff are
concerned that the performance standards need to be realistic,
achievable and not so detailed and cumbersome. It must be
recognized that there is the opportunity to incorporate more
detailed policies in the area municipal official plans.
j83
REPORT NO.: PD-77-93
PAGE 25
5.2 It is recommended that the comments contained in this report
be endorsed as the Town's comments on the Ministry of
Municipal Affairs post-circulation letter on the new Durham
Regional Official Plan.
5.3 It is further recommended that the Ministry of Municipal
Affairs be requested to convene a series of meetings with
Regional and local staff to resolve outstanding issues
including the following:
. density and intensification targets
. phasing and urban boundary expansions
. area municipal interim (15-20 year) urban boundaries
5.4 Finally, because of the nature and extent of the revisions it
is necessary that the area municipalities have a further
opportunity to review any revised modifications to the
official plan prior to approval by the Minister. This is
necessary to enable area municipalities the opportunity to
request referral of certain matters yet to be completed.
Respectfully submitted,
Recommended for presentation
to the Committee
c) r otJ4''-'U ~ fA ~_i
Franklin Wu, M.C.I.P.
Director of Planning
and Development
Lawrence E. Kot
Chief Administr
Officer
CS*DC*FW*df
*Attach
28 April 1993
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