HomeMy WebLinkAboutPSD-057-05
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REPORT
PLANNING SERVICES
Meeting:
GENERAL PURPOSE AND ADMINISTRATION COMMITTEE
Date: Monday, April 25, 2005
Report #: PSD-057-05 File #: PLN 1.1,12
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By-law #:
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-057 -05 be received and endorsed as the Municipality's comments
on the Draft Growth Plan for the Greater Golden Horseshoe; and
2. THAT Report PSD-057-05 be forwarded to the Ministry of Public Infrastructure Renewal
and the Region of Durham Planning Department.
Submitted by:
Reviewed by:
o~~
a' J. Crome, M.C.I.P., R.P,P.
Director of Planning Services
Franklin Wu,
Chief Administrative Officer
HB/FUDJC/df
18 April 2005
CORPORATION OF THE MUNICIPALITY OF CLARINGTON
40 TEMPERANCE STREET, BOWMANVILLE, ONTARIO L 1 C 3A6 T (905)623-3379 F (905)623'0830
. .
REPORT NO.: PSD-057-05
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:
. Infrastructure funding for transit needs to occur in many growing areas outside of the
Priority Urban Centres
. The extension of GO Rail to Bowmanville is critical
. There needs to be a clear definition of intensification
. Future growth areas should be policy driven and not mapped
. The province needs to recognize Clarington's emerging cluster of energy-related
industries
. Incentives for intensification are necessary for it to be viable including changes to
the development charges regime, property assessment and taxation, income and
sales tax
. Municipalities need stronger tools to control the phasing of development in urban
areas
. Performance measures should include provincial ministries
Many of the issues raised by Clarington have been addressed in one form or another in
the Draft Growth Plan.
1.2 On February 16th, 2005 the Province released the Draft Growth Plan for the Greater
Golden Horseshoe. Around the same time, the Ministry of Public Infrastructure and
Renewal released four technical studies that were used in developing the Draft Growth
Plan. The four papers are:
1. Urban Growth Centres in the GT A
This paper describes the 25 Urban Growth Centres (UGCs) proposed in the Draft
Growth Plan for the Greater Golden Horseshoe. It addresses the characteristics that
led to the designation, and discusses the opportunities to accommodate future
growth.
2. The Growth Outlook for the Greater Golden Horseshoe
This paper provides population, household and employment forecasts to 2031 in the
Greater Golden Horseshoe. Based on current trends, the forecast anticipates that
the Greater Golden Horseshoe will increase by more than 3.7 million people to a
total of 11.5 million. Jobs will increase by almost 1.8 million to a total of 5.6 million by
2031. The paper examines three growth distribution scenarios: current trends,
compact and more compact.
,
REPORT NO.: PSD-057-05
PAGE 3
3. A Current Assessment of Gross Land Supply in the Greater Golden Horseshoe
This paper is a review of long-term land supply in the Greater Golden Horseshoe.
There are approximately 1,109,400 acres of designated settlement area, of which
352,000 remain unbuilt and available for development.
4. Application of Land-Use Intensification Target for the Greater Golden Horseshoe
This paper is a review of the approaches to intensification in other jurisdictions
around the world and a proposed methodology for measuring targets for the Growth
Plan.
1.3 In concert with the Greenbelt Plan, the Draft Growth Plan represents a watershed
moment for planning in Central Ontario. It represents the culmination of the studies and
work undertaken over the last 10 years by the Greater Toronto Co-ordinating
Committee, the Greater Toronto Services Board, and the Smart Growth Panel, among
others. For the first time, the various elements have all been assembled into a Plan that
the Province appears to be committed to leading and funding. It is very clear that the
Province intends to significantly alter growth management by using both its planning
powers and its infrastructure funding capacity.
2.0 SUMMARY OF THE DRAFT GROWTH PLAN
2.1 The Draft Growth Plan is intended to address the problem of sprawl and the economic
competitiveness of Central Ontario as reflected in clogged transportation corridors,
inefficient public transit, conversion of employment areas, high infrastructure costs,
degradation of the natural environment and human health.
The key principles of the Plan are as follows:
. Growth will be directed to built-up areas where the capacity exists to best
accommodate the expected population
. Strict criteria for urban boundary expansions
. Transit-supportive densities and a healthy mix of residential and employment land
uses
. A transportation network that links urban centres through an extensive multi-modal
system
. Sustainable water and wastewater services
. Enhance the conservation of agricultural lands and natural heritage system to
connect with the Greenbelt
2.2 The Provincial Draft Growth Plan has recognized that there will be different needs in
different areas and thus sets the stage for a series of sub-area growth strategies. The
sub-areas are as follows:
. The inner ring (Lands inside the Greenbelt from Hamilton to Clarington)
. The outer ring divided into four sub-areas as follows:
,
REPORT NO.: PSD-057-05
PAGE 4
. The Niagara Area
. The West of Greenbelt Area (Kitchener/Waterloo/Guelph/Brantford and
surrounding areas)
. The North of Greenbelt Area (Barrie, Simcoe County, north part of York Region)
. The East of Durham Area (Peterborough. Kawartha Lakes, Northumberland)
For each sub-area, the Province will lead the preparation of individual growth strategies
that will eventually find their way into upper-tier and lower-tier official plans. The sub-
area strategies will be approved and incorporated into the Draft Growth Plan.
2.3 The main elements of the Plan are as follows:
. Strong Province Role in determining the underpinnings of local plans
The province will determine population, household and employment targets that will
eventually filter down into local official plans,
. Strong new policies on Intensification
. All municipalities will establish policies and strategies to promote intensification
within existing built-up areas.
. Within the inner-ring (which includes the urbanizing portion of Clarington) there
will be a phased increase in the yearly percentage of intensification so that by the
year 2015 a minimum of 40% of all residential development occurs by
intensification. The target is measured on the upper-tier (Regional) basis so that
some local municipalities will be higher and some will be lower.
. Intensification areas are to achieve a density of development not less than 200
residents or jobs per hectare,
. Urban Growth Areas are the focus of new growth
. The Plan identifies Urban Growth Areas (the terms Priority Growth Centres and
Emerging Growth Areas has been dropped), which includes Oshawa Downtown,
Pickering Downtown and Peterborough Downtown.
. A network of Urban Growth Areas and intensification corridors will be planned to
accommodate a significant portion of population growth and serve a major
employment centres.
. Policies to protect the conversion of employment lands
. Conversion of employment areas to non-employment or major retail uses will
only be permitted where it has been demonstrated that it is necessary to address
other provincial priorities or where the land is not required over the long term for
employment purposes and does not result in settlement area expansion to meet
future employment needs.
. Major office development will be located where higher order transit services exist
(e.g. dedicated right of way).
,
REPORT NO.: PSD-057-05
PAGE 5
. Greenfield development will be transit-supportive
. New greenfield development will occur at not less than 50 residents and jobs per
hectare.
. Small Cities and Towns are to develop as "complete and self.sufficient
communities"
. While Urban Growth Centres will be the focus of growth, small cities and towns
(communities that do not have an Urban Growth Centre) will continue to grow
with a balance of residential and employment growth, meeting intensification
targets and may only expand where expansions result in improvements to
employment (one full time job per resident).
. Strong policies controlling urban expansion
. The Province's sub-area strategies will determine the need for urban boundary
expansions.
. The achievement of intensification targets will be one standard used in the
consideration of expansions (e.g. no intensification = no expansion),
. No expansions will be permitted prior to sub-area strategies unless there is
insufficient land within the regional market
. The Province will promote integrated planning of land use and transportation
. All planning and investment decisions, including those of the proposed Greater
Toronto Transportation Authority, must conform to the Growth Plan.
. Transit infrastructure will be used to shape growth
. Transit will be the first priority for investment.
. Investment decisions will focus on connecting Urban Growth Centres within sub-
areas.
. The first priority for highway investment is to facilitate goods movement
. There is an emphasis on moving goods through the GTA and down to the border.
. Comprehensive approach to aggregates
. The Province will work with the municipalities and the aggregate industry to
develop comprehensive approaches for co-ordinated and orderly extraction and
rehabilitation.
REPORT NO.: PSD-057-05
PAGE 6
. The Growth Plan supersedes other municipal and provincial policies
o Municipalities must amend their plans to conform but there is no prescribed time
and it will occur in the usual way (e.g. local plan conformity amendments could
be appealed to the OMB),
o The Growth Plan prevails over the Provincial Policy Statement, Official Plans and
Zoning By-law in the event of a conflict.
o In the event of conflict with policies regarding the natural environment or human
health, the provincial plan or policies providing more protection to the
environment or human health would prevail over the Growth Plan (e.g. natural
environment policies of the Greenbelt).
. The Province will monitor the success of the Plan
o The Province will set up a framework and a set of indicators to measure the
implementation of the Plan.
o Municipalities must measure and report on their targets.
. The Province will develop a multi-year Infrastructure Strategy
o The Province will use the Growth Plan as the basis for developing a 10 year
infrastructure strategy. This will ensure that investment meets strategic priorities
of the Province.
3.0 MUNICIPAL COMMENTS
3.1 Support for the Region of Durham's recommendations on the Draft Growth Plan
The Regional Planning Department prepared a response to the Province on the Draft
Growth Plan (2005-P-30) that was presented to Planning Committee on March 29, 2005
(Attachment 1). Prior to the presentation of this report, the Region hosted a meeting
attended by area municipalities to discuss and comment upon the Draft 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.
3,2 Bowmanville should be identified as an Urban Growth Centre
Downtown Bowmanville is not unlike several of the smaller Urban Growth Centres such
as Milton and Barrie. As the eastern anchor for the inner ring, Bowmanville has several
characteristics that make it suitable as an Urban Growth Centre - a mix of employment,
residential and institutional uses; GO bus and local transit with a future GO rail station
site recently acquired by GO; mixed-use developments and higher density
developments planned, approved and under construction; institutional facilities including
a hospital, court house, and municipal offices; and cultural facilities including a museum
REPORT NO.: PSO-057-05
PAGE 7
and art gallery, With a planned allocation of 2 Million sq. ft. of retail floor space and the
expansion of GO Rail proposed in the Draft Growth Plan, it would be appropriate to
designate Bowmanville as an Urban Growth Centre and plan for its future development
in that context.
3.3 Clarington supports phased intensification targets that are tailored for the
realities of each municipality
The Draft Growth Plan provides for an intensification target to be phased in gradually in
the inner ring to reach 40 percent per annum by 2015. The 40 percent target is
calculated on an upper tier basis, allowing for individual municipalities within Durham to
strive for attainable targets that meet their own market reality and development
circumstances. Whereas the Durham target would be an overall 40 percent, the greater
share of intensification would be within the Downtown Oshawa and Downtown Pickering
Urban Growth Centres. This clarification responds to the Municipality's initial concerns,
noting the limited intensification opportunities in Clarington.
3.4 The Province must put in place incentives that attract development that will
intensify urban areas
Municipal plans have had provisions to encourage intensification for a number of years;
however, the market success of intensification in edge communities is limited. The
transformation of societal expectations will be difficult but it is recognized that the
current pattern of growth is not sustainable. To be successful, there will need to be a
true partnership between municipalities and the Province. It will require a mixture of
both regulation and incentives. With municipalities required to regulate the pattern of
growth, the Province must not only provide infrastructure funds but also provide for
fiscal incentives to encourage intensification, If "incentives" are to be provided for
intensification, they cannot come at the Municipality's expense but should be from a
surcharge on Greenfield development. A whole variety of implementation mechanisms
should be explored including provincial funding of community improvement plans and
changes to the property, sales and income tax systems for intensification, mixed-use
development and decked parking. The Province should also investigate ways to make
it easier to finance mixed-use development. The Province needs to complete the review
of financial tools prior to adoption of a Growth Plan.
3.5 The sub-area growth strategies have the prospect of becoming time-consuming
and onerous planning exercises, overlapping current regional planning
responsibilities. If they are to be undertaken, they should be limited to key
structural aspects and be concluded within a year
The sub-area growth strategies are intended to develop and refine the area municipal
targets, define intensification areas, undertake sub-area economic analysis to determine
significant employment clusters and infrastructure needs, and to determine the need for
and phasing of urban boundary expansions. These planning exercises could take some
time and possibly evolve into greater detail than appropriate. Any sub-area strategy
should be limited to key structural components of the future growth of the area. The
sub-area strategies should be done quickly and expeditiously.
REPORT NO.: PSD-057-05
PAGE 8
3.6 Clarington is concerned that the "inner circle" sub-area may be too large and
recommends that regional working groups be used for completing the task
efficiently
The development of the sub-area strategies will be crucial to the implementation of the
Plan. At this time there is no clear process as to how this will occur. There is the
possibility that the larger municipalities and regions will dominate these discussions.
Clarington must have a seat at the table and cannot be lost in the focus on "big city"
issues. The process for creating sub-area growth strategies must be developed with a
full partnership with regional and area municipalities, ensuring that all parties are fully
involved. This type of collaborative planning process would work best with Regional
working groups to address local issues.
3.7 There needs to be further elaboration of the Small Cities and Towns policies
Bowmanville, Newcastle and likely Courtice are considered as small cities or towns
under the Draft Growth Plan. Small Cities and Towns are to develop as "complete
communities", must comply with intensifications targets established in the sub-area
strategies and may only expand with employment growth. In particular, there must be
support for the development of employment opportunities in small cities and support for
lower-order transit initiatives. If Small Cities and Towns are not to be "the next wave of
sprawl", provincial investment will be critical to bring employment growth, particularly to
Durham and Clarington. Support for downtowns through funding of community
improvement plans (local studies) will be critical to maintaining vibrant downtowns.
3,8 The Province must clarify the urban boundary expansion policies for there is the
strong possibility of no further expansions of the urban boundaries in Clarington
The Draft Growth Plan would only permit the expansion of urban boundaries in
compliance with the urban boundary expansion policies and where it can be
demonstrated that such expansions can achieve a minimum of one full-time job per
three residents or where such expansion will directly result in moving significantly
toward such a ratio. Given the problems with attracting employment to Durham in
general and on the eastern periphery in particular, this may be an insurmountable
problem leaving the Clarington urban boundaries frozen as they are. This further
underscores the need for provincial investment in supporting economic expansion in
Clarington.
3.9 Clarington supports the early extension of GO Transit to Bowmanville
The 2004 Growth Plan Discussion Paper did not include the extension of GO Transit to
Bowmanville so we fully support the changes now made in the Draft Growth Plan. The
GO rail extension is identified as a "Proposed Higher Order Transit" to be constructed
by 2031. The Municipality supports the earliest possible extension of GO Rail from
Oshawa along the CP Rail alignment to the lands recently purchased by GO Transit
south of the West Main Central Area. This is an ideal location for a transit hub given its
link to the Regional Transit Spine along Highway 2, buses to the City of Peterborough
and local transit service.
REPORT NO.: PSD-057-05
PAGE 9
3.10 Clarington supports the extension of Highway 407 to Highway 35/115 with the
connecting East Durham link
Council passed a resolution on March 1, 2004 in support of the Province extending of
Highway 407 to Highway 35/115. The Growth Plan firmly identifies this Highway as a
Future EconomicfTransport Corridor. It does not include the extension of higher order
transit beyond the future Pickering Airport beyond the 2031 timeframe. It is recognized
that transit investments will be better spent along the Highway 2 and GO Rail corridors
through Durham. However, this should not preclude the planning for and securing the
right of way necessary to extend transit easterly along the Highway 407 corridor beyond
the 2031 period.
3.11 There must be transition provisions to provide municipalities with a "breathing
space" to "re-plan" Greenfield Areas without the threat of OMB hearings
The Draft Growth Plan will prevail in the event of a conflict with the official plan, zoning
by-law or Provincial Policy Statement. This will mean, among other things, that the
development densities in the Growth Plan will prevail over the development densities
currently in force in our Official Plan. Consequently, the Municipality will be in a
situation where the infrastructure planned for the neighbourhood (schools, parks, sewer
and water) no longer meets the population that now must be accommodated. In
Clarington, this will be particularly true for Newcastle Village, where development
densities are considerably lower than now mandated by the Province (approximately 40
residents per hectare versus the 50 residents per hectare in the draft Growth Plan).
The Growth Plan should provide for a "breathing space" to allow Municipalities to
undertake the appropriate planning exercises without the possibility of a challenge to
the Ontario Municipal Board, The existing mechanism available under the Planning Act
is the passing of an interim control by-law when Council initiates a Study. However this
can lead to appeals to the OMB, another costly exercise for the Municipality in
appropriately implementing the provincial plan. The Province should exclude the
possibility of an appeal to an Interim Control By-law where the by-law was passed to
allow the Municipality to implement the Growth Plan.
3.12 There must be recognition that even in neighbourhoods built to be transit-
supportive, there will be limitations on the ability of municipalities to extend and
operate transit in the shorter term
The Growth Plan will require new neighbourhoods to be built at more transit-supportive
densities and the inner cores of cities and towns to be intensified. The Province will
also be developing performance criteria for municipalities in regard to achieving the
goals of the Plan. It must be recognized that it will take time for transit to be feasible.
Municipalities should not be penalized when they cannot afford to extend transit to new
neighbourhoods.
REPORT NO.: PSD-057-05
PAGE 10
3,13 Provincial agencies and crown corporations must adopt a "built-form policy and
use their infrastructure investments to support more intensive, transit-friendly
forms of development
The Province must adopt a "built form" policy that will require provincial agencies and
crown corporations, like the LCBO, to comply with the intensification and transit
objectives of the Growth Plan. It does not help municipalities to meet the Provincial
objectives if agencies, such as the LCBO stores, partner with power centres to develop
centres which are not compliant with the Province's vision.
3.14 The Province should recognize in Clarington a Special Employment Area for the
emerging cluster of energy-related industries at the proposed Energy Park in
Courtice and the new Science and Technology Park in Bowmanville where the
first tenant is currently constructing its first building
The Draft Growth Plan provides for the sub-area strategies to determine the regionally
significant employment clusters/opportunities to be promoted. The Municipality's
initiatives to attract research and development industries and to host start up industries
associated with research undertaken at the University of Ontario Institute of Technology
should be recognized and supported through provincial investment.
3,15 The Province must give municipalities greater controls under the Planning Act for
the phasing of development in urban areas to ensure that sunken infrastructure
costs are effectively utilized and the pressures to move to new areas prematurely
is avoided
The current Planning Act does not give Municipalities enough control over the phasing
of development to ensure that growth can occur in an orderly manner that efficiently
uses sunken infrastructure costs. Developers are interested in maintaining an ongoing
inventory of development properties and in their competition for land may exert pressure
on the municipalities to prematurely open up new areas. In Clarington, where there are
four separate urban areas, it has been difficult to manage the competing demands and
keep up with the infrastructure required. Municipalities must often expend funds at the
OMB to prevent premature developments or using those same funds to address the
infrastructu re deficit.
4.0 CONCLUSION
4,1 The Province, through the Growth Plan for the Greater Golden Horseshoe and the sub
area strategies will establish the long-range parameters for growth in Clarington. The
Growth Plan will determine population, household and employment forecasts,
intensification targets and areas, the need for expansions to urban boundaries and
where and when major transportation/infrastructure improvements will occur. It is crucial
that Clarington has a strong voice during formulation of the sub area strategies.
.
REPORT NO.: PSO-057-05
PAGE 11
4.2 In return for the loss of municipal autonomy over the broad planning framework for
Durham, the Province must make the critical infrastructure investments to support the
economic development of Durham Region and Clarington. The most critical need in
Clarington is ensuring a better balance of live-work opportunities. The Provincial 1 0 year
infrastructure plan is keenly anticipated.
4.3 In order to meet the April 18, 2005 deadline for comments, a copy will be forwarded to
the Ministry of Public Infrastructure Renewal with the appropriate qualifications.
Attachments:
Attachment 1 - Region of Durham Commissioners Report 2005-P-30
ATTACHMENT 1
The Regional Municipality of Durham
To: The Planning Committee
From: Commissioner of Planning
Report No.: 2005-P-30
Date: March 29, 2005
SUBJECT:
Province's Draft Growth Plan for the Greater Golden Horseshoe, File: 026-02-04
Standing Committee Correspondence No. 2005-020, dated February 16, 2005 from
David Caplan, Minister of Public Infrastructure Renewal
RECOMMENDATIONS:
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, Draft Growth Plan for the Greater Golden
Horseshoe:
i) The Province's forecast decline in the jobs to population ratio for
Durham is unacceptable. The Province must support and build upon
the Region's on-going efforts to attract jobs, to meet the Draft Growth
Plan objective of "complete communities";
ii) The Province must assist the Region to accommodate a higher
percentage of employment growth by developing appropriate
incentives and infrastructure funding to realize the major structural
elements of the Regional Official Plan, including: the completion of
Highway 407 through the Region and improvements to Highway 401 ;
iii) The Province must develop and put in place the incentives required to
attract development that will intensify our existing urban areas;
iv) To achieve the desired state of 200 residents and jobs per hectare, the
Province will have to invest heavily in water, sewer and transportation
infrastructure and provide other incentives to attract the scale and
density of development contemplated for these areas;
45
Report No.: 2005-P-30
Page No.2
v) The inclusion of policies that protect employment lands is supported.
This is consistent with the policies of the new Provincial Policy
Statement, and is desirable to ensure that municipalities can effectively
maintain an adequate supply;
vi) Policy direction that encourages the early integration of transit services
in our communities is consistent with the Regional Official Plan and the
Transportation Master Plan, and this is supported;
vii) The assessment of land required for urban development is currently
Durham's responsibility, and is a key component of the on-going
Regional Official Plan Review. It is imperative that Durham and its
area municipalities continue to have a key role in planning for growth in
the Region;
viii) Ajax is part of the Region's western anchor with Pickering. Whitby and
Courtice are part of the central anchor with Oshawa. Accordingly,
these communities (Ajax, Whitby and Courtice) should not be subject
to the small cities and towns policies of the Draft Growth Plan;
ix) The Ministry should clarify whether the policies for small cities and
towns and the population, household and employment forecasts apply
to settlements located in the Greenbelt Plan Area;
x) It is recommended that Schedule 5, Moving People, be revised to
include the following Regional transportation corridors in Durham, as
reflected in the Transportation Master Plan:
. Highway 407 transitway to the East Durham Link, and along the
East and West Durham Links to Highway 401;
. Regional Highway 2 between the Toronto-Durham boundary and
Newcastle;
. Taunton Road from the York-Durham boundary to the East Durham
Link;
. Brock Road from the Pickering GO Station to the Highway 407
transitway;
47
Report No.: 2005-P-30
Page No.3
. Brock Street from the Whitby GO Station to the Highway 407
transitway; and
. Simcoe Street from the Oshawa GO Station to the Highway 407
transitway;
xi) It is recommended that Schedule 6, Moving Goods, be revised to
clearly show the CN Rail line, which runs south of Highway 401
through Durham, as an "Existing Major Rail Line", and the future
Highway 404 extension to Highway 12/48;
xii) Durham Region must be involved in the development of the
Transportation Strategy and be represented on the Greater Toronto
Transportation Authority, particularly as it may involve future Provincial
investment in transportation infrastructure, including transit;
xiii) It is recommended that the Draft Growth Plan merely provide the
framework for mapping and policies to protect the Natural System.
The details should be established in upper and single-tier official plans;
xiv) It is recommended that the Draft Growth Plan merely provide the
framework for mapping and policies for the Agricultural System. The
details should be established in upper and single-tier official plans;
xv) The Province should clarify whether the Mineral Aggregate Resources
policy is intended to apply to the entire Greater Golden Horseshoe or
only those areas outside the Greenbelt Plan Area;
xvi) The Province must reconsider whether Sub-area Growth Strategies
are necessary given the duplication of current responsibilities of upper
and singe,tier municipalities and the onerous logistics and time
necessary to complete them. It is recommended that the Growth Plan
merely provide a policy framework as a basis for implementation by
upper and single-tier municipalities, through their official plans and
regular infrastructure studies. Should the Province continue with the
Sub-area Growth Strategy approach, it is essential that the Sub-area
Growth Strategies add value to the current planning system and be
prepared in partnership with the affected municipalities;
48
Report No,: 2005-P-30
Page No.4
xvii) The Province must declare its intent regarding transition issues, in
order that we may assess the impact on applications, as well as the
on-going lands needs assessment component of the Regional Official
Plan Review;
xviii) The Province must direct its energies to develop the necessary fiscal
tools to support the goals and objectives of the Growth Plan, including:
committing a sustainable source of funding for transit; amending the
Development Charges Act to allow municipalities to finance the full
cost of services; and amending the Environmental Assessment Act to
streamline the process of approval for infrastructure that supports the
Growth Plan objectives. Tools should be developed to influence a shift
in: market preferences for housing types; location of residence; and
transportation choices that support intensification. The Province
should also establish a policy that Provincial infrastructure
investments, particularly in the area of human services, will be
supportive and implement the Growth Plan;
xix) The Province should put in place a multi-year infrastructure strategy
concurrent with the enactment of the Growth Plan;
xx) The Ministry of Public Infrastructure Renewal should recognize the
Region's existing practices of developing and implementing its own
long-term infrastructure planning and financing strategies, as the
Province develops its multi-year infrastructure strategy; and
xxi) The Province must recognize that large municipalities, like the Region,
do not permit development without ensuring that the necessary capital
infrastructure is available and funded. Capital planning and budgets
should continue to be developed at a Regional level to reflect our
responsibilities for the provision of those services, while reflecting the
goals and objectives of the Growth Plan; and
b) THAT a copy of Commissioner's Report No. 2005-P-30 be forwarded to the
Minister of Public Infrastructure Renewal, the Minister of Municipal Affairs and
Housing, and the area municipalities in Durham.
,19
.
Report No.: 2005-P-30
Page No.5
REPORT:
1. PURPOSE
1.1 On February 16, 2005, the Province released a document entitled, Places to
Grow: Better Choices, Brighter Future, Draft Growth Plan for the Greater
Golden Horseshoe (DGP), requesting comments by April 18, 2005,
1.2 The Region had previously commented on a Discussion Paper for the
Provincial Growth Plan initiative in September 2004, through Commissioner's
Report No, 2004-P-73.
1.3 As part of the review of the DGP, 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 the Durham Environmental
Advisory Committee (DEAC).
1.4 The purpose of this report is to review and provide a Regional response to the
DGP.
2. DRAFT GROWTH PLAN
2.1 The purpose of the DGP is to plan for the 3.7 million additional people
expected to make the Greater Golden Horseshoe (GGH) home over the next
30 years,
2,2 The DGP is intended to "guide decisions on a wide range of issues -
economic development, land-use planning, urban form, housing, natural
heritage and natural resource protection, provincial infrastructure planning,
and the development of municipal official plans and local servicing and
implementation strategies".
2.3 The DGP has an anti "Urban Sprawl" theme noting the following as
symptoms:
5.1)
Report No.: 2005-P-30
Page NO.6
. increasing number of cars;
. longer work trips;
. clogged transportation corridors;
. a form of development not conducive to transit;
. conversion of employment areas to uses that reinforce sprawl;
. underutilized infrastructure in existing built-up areas;
. degradation of natural environment, air quality and water; and
. consumption of agricultural lands.
Vision and Policv Directions
2.4 The DGP's Vision for the GGH has not changed from the earlier "Discussion
Paper" and consists of the following elements:
. a variety of choices for living;
. modern, well maintained infrastructure;
. easy access to socio-cultural amenities (food, shelter, education, health-
care, arts and recreation, and information technology);
. an integrated transportation network;
. a healthy natural environment;
. protection of agricultural lands; and
. compact settlement and development patterns offering diversity of
opportunities for living, working and enjoying culture.
As previously noted in the review of the Discussion Paper, these elements of
the Vision are generally consistent with the fundamental principles of the
Regional Official Plan (ROP),
2,5 To achieve the vision, the DGP provides more detailed strategies and policy
directions that:
. direct growth to built-up areas, while providing strict criteria for urban
boundary expansions;
. promote transit-supportive densities and a healthy mix of residential and
employment land uses;
. identify and support a transportation network that links urban centres
through an extensive multi-modal system;
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. ensure sustainable water and wastewater services are available to
support future growth; and
. identify a natural system and an agricultural system, to enhance the
conservation of these resources and connect with the Greenbelt Plan.
Where and How to Grow
2.6 In determining where and how to grow, the DGP focuses on planning for
more efficient use of land, which can be best achieved by accommodating
significant growth within existing urban areas. To achieve this, the GDP
provides direction on where more compact form can be achieved and it
identifies growth centres within built-up areas that will be a focus for growth
and investment. It also recognizes that a healthy mix of jobs and housing is
fundamental to the establishing and maintaining vibrant, healthy and
complete communities.
2.7 The directions are implemented through a series of policies related to:
. population, household and employment forecasts;
. intensification and compact development;
. urban growth centres and intensification corridors;
. employment areas;
. designated growth areas (greenfields);
. urban boundaries; and
. small cities and towns.
Population. Household and Emplovment Forecasts
2.8 The DGP sets out the population, household and employment forecasts to be
used for planning our communities, The Plan requires that municipal official
plan updates and related municipal growth studies be based on these
forecasts. The forecasts are to be reviewed by the Province every five years,
2.9 The following table compares the forecasts included in the DGP with the
forecasts presented in the ROP Review, Population and Employment
Discussion Paper,
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Page No.8
Comparison of Population, Household and Employment Forecasts
Draft Growth Plan and Reaional Official Plan Review
ill! ~ lm
PODulallon
Growth Plan 660,000 810,000 960,000
ROP Review 664,000 850,000 1,054,000
Difference ,4,000 -40,000 -94,000
Households
Growth Plan 230,000 290,000 350,000
ROP Review 217,000 279,000 347,000
Difference 13,000 11,000 3,000
EmDlovment
Growth Plan 260,000 39.4% 310,000 38.3% 350,000 36.5%
ROP Review 222,000 33.4% 311,000 36.6% 423,000 40.1%
Difference 38,000 -1,000 -73,000
Note: ROP Review numbers have been rounded to the nearest 1 ,000
for comparison purposes.
2.10 The DGP's population forecast is significantly lower than the ROP Review
forecast (94,000 less at 2031). However, the DGP's household forecast is
relatively consistent with the ROP Review forecast (350,000 vs. 347,000 at
2031). This indicates that the Province expects fewer people to occupy the
same number of households. Since land supply is directly affected by the
number of households or units, the overall impact on the land supply is similar
for both the Regional and Provincial forecasts. The ROP Review Discussion
Paper concluded that Durham has sufficient designated "Living Area" to
accommodate its forecasted growth, with 20% intensification, until the period
between 2026 and 2031'.
2.11 The DGP's employment forecast is also significantly lower than the forecast
presented in ROP Review Discussion Paper. A healthy community should
1 Note: This does not account for individual area municipal circumstances.
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Page No.9
have a population to employment ratio of 50% (i.e. 1 job for every 2 persons),
consistent with the existing policies of the ROP. The ROP Review recognized
that the Region would not likely achieve a population to employment ratio of
50% by 2031 , but that it could expect the ratio to improve over time, from
around 30% (1 job for every 3 persons) in 2001, to 40% (1 job for every 2.5
persons) by 2031, However, the DGP forecast suggests the opposite, with
Durham's population to employment ratio declining over the planning period
from 39.4% (1 job for every 2,5 persons) in 2006, to 36.5% (1 job for every
2.7 persons) by 2031. The Provincial forecast shows all other GTA
municipalities at 50% or better with the exception of Hamilton, which is at
45%. The Province's forecast decline in the jobs to population ratio for
Durham is unacceptable. The Province must support and build upon the
Region's on-going efforts to attract jobs, to meet the DGP objective of
"complete communities". The Region's long-term Strategic Property Tax Plan
will see the eventual elimination of the Large Industrial Tax Class, making the
Region very competitive across the GTA and Ontario.
2,12 According to the DGP forecasts, the Region of Durham is expected to
accommodate 15% of the population growth, and only 12% of the
employment growth in the Greater Toronto Area and Hamilton (GTAH)
between 2001 and 2031. The Region needs to be in a position to
accommodate a higher percentage of employment growth. The Province can
assist in this regard by developing appropriate incentives and infrastructure
funding to realize the major structural elements of the ROP, including: the
completion of Highway 407 through the Region and improvements to
Highway 401.
Intensification and Compact Development
2.13 The DGP requires upper-tier municipalities to plan for a phased increase in
the yearly percentage of intensification so that by 2015, a minimum of 40% of
all development will occur in "built-up areas". The ROP calls for 20%
intensification and the ROP Review recommended that this remain the target
for Durham. In response, many of the area municipalities expressed concern
that even the 20% level of intensification would be difficult to achieve.
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2.14 Achieving a 40% rate of intensification over a 10-year period will be extremely
difficult. In the near term, there are several years supply of unbuilt units in
draft approved and registered plans of subdivision that will continue to build-
out at lower density. In the longer term, serious financial and fiscal incentives
will be required to attract the level of intensification envisioned by the DGP so
that the rate of 40% is achieved by 2015. In addition, adequate infrastructure
may not be in place in our centres and along our primary arterial road
corridors, to accommodate this level of intensification. The Province must
develop and put in place the incentives required to attract development that
will intensify our existing urban areas,
Urban Growth Centres and Intensification Corridors
2.15 The DGP identifies "Urban Growth Centres" (UGC) and "intensification
corridors" as the focus of residential and employment growth that are
intended to accommodate the majority of intensification efforts. These areas
will be the focus of Provincial investment.
2.16 Municipal official plans are required to include policies to establish these
intensification areas, as well as other key growth areas. The DGP suggests
that these areas should be planned to achieve development densities of 200
residents and jobs per hectare (:t80 residents and jobs per acre). The Plan
recognizes UGC's as typically being core metropolitan areas and economic
hubs that serve as destinations with a regional focus. Downtown Oshawa
and Pickering are identified as UGC's.
2.17 Intensification corridors are lands along major arterials that can provide a
focus for higher density mixed-use development, higher order transit, and
infrastructure investment.
2.18 The focus on directing the majority of growth to designated "Centres" and
"Corridors" is consistent with ROP and ROP Review Directions, as well as the
proposed Revitalisation Program, which will provide incentives to encourage
revitalisation and redevelopment in the Region's Main Central Areas (MCA).
However, a preliminary assessment of our MCA's suggests that densities of
200 residents and jobs per hectare may not be realistic over the planning
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Page No. 11
period. According to a background document recently released by MPIR
entitled, Urban Growth Centres in the Greater Golden Horseshoe, this scale
of development exists today at the Yonge-Eglinton Centre in Toronto. The
same study indicates that downtown Oshawa currently only has a density of
46.9 residents and jobs per hectare (19.0 residents and jobs per acre); and
downtown Pickering has a density of 51.2 residents and jobs per hectare
(20.7 residents and jobs per acre). To achieve the desired state of 200
residents and jobs per hectare, the Province will have to invest heavily in
water, sewer and transportation infrastructure and provide other incentives to
attract the scale and density of development contemplated for these areas.
Emplovment Areas
2.19 The DGP discourages major retail uses in employment areas and requires
that the conversion to non-employment uses or major-retail uses only be
considered through a 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 and the conversion would not result in
an urban boundary expansion to meet future employment needs. The
inclusion of policies that protect employment lands is supported, This is
consistent with the policies of the new PPS, and is desirable to ensure that
municipalities can effectively maintain an adequate supply.
Desionated Growth Areas - Greenfields
2.20 The DGP requires that designated growth areas (Le. greenfields), currently
within urban boundaries designated in official plans, develop at 50 residents
and jobs per hectare (:t20 residents and jobs per acre). This density is
generally consistent with the densities planned for Greenfield development in
the Region and used to determine land needs for the ROP Review (17
units/ha or 7 units/ac).
2.21 New development in greenfield areas is to be "designated, zoned and
designed in a manner that encourages street configurations that support the
early integration of transit services". This would include: prohibiting reverse
lot frontages; generally providing a grid system of roads that are pedestrian
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oriented; and providing higher densities adjacent arterial roads. Policy
direction that encourages the early integration of transit services in our
communities is consistent with the ROP and the Transportation Master Plan,
and this is supported.
Urban Boundaries
2.22 The Province estimates that there is sufficient designated land in the GGH "to
accommodate the majority of growth for approximately two development
cycles". (We are unsure whether this is intended to include the entire
planning period to 2031, as no clear definition is provided.) However, as
noted earlier, the ROP Review Discussion Paper concluded that Durham
would require additional designated "Living Area" to accommodate its
forecasted growth, with 20% intensification, between 2026 and 20312. The
DGP recognizes that planning for sustainable growth to 2031 and beyond
requires the realization of more compact, transit-efficient forms of
development, with an emphasis on intensification and re-urbanization.
However, it also recognizes that settlement area boundaries will eventually
have to be expanded.
2.23 The need for and phasing of increases to the amount of greenfield areas
within a municipality and any requirements for settlement area expansions is
to be assessed as part of the preparation of Sub-area Growth Strategies3
(SAGS), to be prepared jointly by the Province and municipalities, No
expansions to urban boundaries will be permitted until SAGS are prepared.
The DGP provides no indication of the expected timing for the preparation of
SAGS.
2.24 The assessment of land required for urban development is currently
Durham's responsibility, and is a key component of the on-going ROP
Review. It is imperative that Durham and its area municipalities continue to
have a key role in planning for growth in the Region,
2 Note: This does not account for individual area municipal circumstances.
3 Detailed later in this Report.
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Small Cities and Towns
2.25 The DGP recognizes that while urban growth areas will be the focus of major
growth, small cities and towns can also grow, consistent with the policies of
the Plan, including intensification targets established through the SAGS.
Small cities and towns are defined as, "settlement areas that do not include
an urban growth centre within their current settlement area". It is unclear if
this policy is intended to apply to Lake Ontario Shoreline municipalities within
the Region that do not include a UGC (i.e. Ajax, Whitby and Clarington). Ajax
is part of the Region's western anchor with Pickering. Whitby and Courtice
are part of the central anchor with Oshawa. Accordingly, these communities
(Ajax, Whitby and Courtice) should not be subject to the small cities and
towns policies.
2,26 It is also unclear, whether this policy applies to the settlement areas within the
Greenbelt Plan Area. The Ministry should clarify whether the policies for
small cities and towns and the population, household and employment
forecasts apply to settlements located in the Greenbelt Plan Area.
2.27 The DGP also recognizes that an expansion to a small city or town would only
be permitted "where it can be demonstrated that such expansion would
achieve a minimum of one full-time job per three residents or where the
expansion will directly result in the settlement area moving significantly
toward such a ratio". Given the employment forecast for Durham overall, it is
questionable whether such a ratio can be achieved in our smaller
communities (should these proposed policies apply). This only accentuates
the need for the Province to support the Region's efforts to attract jobs, to
meet the DGP objective of "complete communities".
Infrastructure to Support Growth
Transportation
2.28 The DGP provides the policy framework for an integrated transportation
network focussed on transit and goods movement. It recognizes the future
extension of Highway 407 through Durham and the links to Highway 401, as
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Page No. 14
well as the future airport in Pickering. This is consistent with the Region's
previous comments on the Discussion Paper. It also recognizes the planning
for higher order transit between Oshawa and Bowmanville; the Havelock rail
line through Durham to Peterborough; and a transit link between the Town of
Markham and the future airport in Pickering. It does not however, recognize
any potential north-south links between the future airport and the urban areas
in south Durham, or future transit service on the Stouffville rail line to
Uxbridge.
2.29 It is recommended that Schedule 5, Moving People, be revised to include the
following Regional transportation corridors in Durham, as reflected in the
Transportation Master Plan (TMP):
. Highway 407 transitway to the East Durham Link, and along the East and
West Durham Links to Highway 401;
. Regional Highway 2 between the Toronto-Durham boundary and
Newcastle;
. Taunton Road from the York,Durham boundary to the East Durham Link;
. Brock Road from the Pickering GO Station to the Highway 407
transitway;
. Brock Street from the Whitby GO Station to the Highway 407 transitway;
and
. Simcoe Street from the Oshawa GO Station to the Highway 407
transitway.
These higher order transit corridors provide important linkages between
Urban Growth Centre's in the Region and GGH, and promote transit
supportive development along the corridors in urban areas. It should be
noted however, that the Havelock and Stouffville (Uxbridge) rail lines are
recognized in the TMP as having limited ridership potential in the Region of
Durham, relative to other transit corridors.
2.30 It is also recommended that Schedule 6, Moving Goods, be revised to clearly
show the eN Rail line, which runs south of Highway 401 through Durham, as
an "Existing Major Rail Line", and the future Highway 404 extension to
Highway 12/48.
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2.31 The DGP recognizes that the Ministry of Transportation is in the process of
developing a Transportation Strategy for the GGH, which will be consistent
with the Growth Plan. The Transportation Strategy will set out more specific
objectives such as: increasing transit ridership; reducing commute time;
building up a balanced transportation system; reducing the environmental
impact of transportation; and co-ordinating transportation investment. The
Plan also recognizes the Province's intention to establish the Greater Toronto
Transportation Authority (GTT A), which will "plan, co-ordinate, and finance
transportation activities in the GTA". The Province has provided no details on
the potential mandate and governance model for the GTT A. Durham Region
must be involved in the development of the Transportation Strategy and be
represented on the GTTA, particularly as it may involve future Provincial
investment in transportation infrastructure, including transit.
Water and Wastewater Svstems
2.32 The DGP recognizes that water and wastewater systems will need to be
expanded to support future population, household and employment growth, It
provides particular attention to future considerations of establishing inter-
connections between municipal water and wastewater systems, such as the
existing York-Durham Sewage System. Full cost recovery for such services
is a key objective, consistent with the Sustainable Water and Sewage
Systems (SWSS) Act.
2.33 The Province should provide municipalities with the opportunity to assess the
implications of the Regulations to the SWSS Act, in terms of potential funding
and strategies to increase rates over time to reflect "the true costs of water
and waste water services". Water user rates are expected to increase
dramatically to address lagging investment levels for infrastructure
replacement and full cost recovery, Should the Regulations place a cap on
municipal user rates, municipal funding sources will continue to face
increasing financial pressures.
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Protectina What is Valuable
The Natural Svstem
2.34 The Province intends to develop and establish a Natural System outside of
the Greenbelt Plan area that will include:
. natural heritage features and areas;
. surface and ground water features, and hydrologic functions; and
. recognition of linkages.
SAGS may also identify policy and implementation approaches to protect the
Natural System and the features within it.
2.35 Since the majority of Durham is included in the Greenbelt Plan area, this
policy will only affect the southern portions of the Region. The proposal to
map and provide policies to protect the Natural System is consistent with
Regional Official Plan and ROP Review Directions. As such, the Province's
intent to include mapping and pOlicies to protect the natural system in the
SAGS, would be redundant. It is recommended that the DGP merely provide
the framework for mapping and policies to protect the natural system. The
details should be established in upper and single-tier official plans.
The Aaricultural Svstem
2.36 The Province intends to identify and map an Agricultural System (prime
agricultural areas and rural areas), outside of the Greenbelt Plan area. The
Agricultural policies cannot be less protective than the PPS, and must permit
normal farm practices and a full range of agricultural, agriculture,related, and
secondary uses. Rural areas are intended to accommodate the same uses
as prime agricultural areas, in addition to a range of recreational, tourism, and
resource-based commercial and industrial uses. Municipal official plans will
be required to incorporate the Agricultural System,
2.37 Since the majority of Durham is included in the Greenbelt Plan area, this DGP
policy will only affect the southern portions of the Region that are outside the
Greenbelt and the existing Urban Areas. These policies are similar to the
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Report No.: 2005,P-30
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Agricultural System policies of the Greenbelt Plan, which will be incorporated
into the policy structure and mapping in the ROP. As such, the Province's
intent to include mapping and policies for the Agricultural System in the SAGS
would be redundant. It is recommended that the DGP merely provide the
framework for mapping and policies for the Agricultural System. The details
should be established in upper and single-tier official plans,
Mineral Aaareaate Resources
2.38 The Province intends to develop a long-term strategy for mineral resource
management in the GGH. The strategy will examine:
. approaches for coordinated and orderly extraction of aggregates to
minimize conflict with other land uses;
. approaches for coordinated rehabilitation between adjacent operations;
and
. opportunities for alternative and innovative ways to both conserve and
extract aggregates.
The approach regarding coordinated rehabilitation is consistent with the ROP
Review directions. The Province should clarify whether this policy is intended
to apply to the entire GGH area or only those areas outside the Greenbelt
Plan Area.
Sub-Area Growth Strateaies
2.39 As previously noted, the Growth Plan will be implemented through a series of
"Sub-Area Growth Strategies" (SAGS). The intent is to address cross
boundary and area specific issues at a smaller geographic scale, through the
preparation of this intermediary planning framework (i.e. between the Growth
Plan and upper-tier official plans), By further detailing Provincial interest in a
sub-area, the Province feels that the overall goals and objectives of the
Growth Plan can more effectively be implemented.
2.40 The GDP has identified five distinct sub-areas within the GGH. Durham is in
a Sub-Area with Toronto, York, Peel, Halton and Hamilton,
(1)
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2.41 The Sub-Area Growth Strategies will address the following:
· distribution of population, household and employment forecasts for upper
and lower tiers;
· identification of intensification areas and establishment of targets for such
areas;
· establishment of intensification of targets for each area municipality;
· delineation of the built boundary within each area municipality;
· establishment of affordable housing targets for the sub-area;
· completion of a sub-area economic analysis;
· completion of a comprehensive infrastructure planning needs analysis;
· determination of the need for and phasing of expansions to the amount of
Greenfield area within municipalities, the potential expansion of specific
settlement areas;
· identification and priority of key infrastructure to service forecasted
growth;
· mapping of the natural system and establishment of protection measures;
and
· mapping of the agricultural system and establishment of protection
measures.
2.42 The matters to be addressed in the SAGS are all essential elements of
growth management. At present, the majority of these matters are being or
can be addressed by the Region in its official plan (population distribution,
identification of intensification areas) or other studies that are regularly
undertaken by the Region (development charges studies, servicing and
financing studies). As such, SAGS are redundant and will duplicate the
planning policy and implementation efforts currently undertaken by upper and
single-tier municipalities. The preparation of the SAGS will also provide an
unnecessary, third level of Provincial policy (Le. PPS, Growth Plan, SAGS), in
addition to the Regional Official Plan and area municipal official plans, which
will be excessive from a policy coordination and implementation perspective.
2.43 The logistics involved in preparing the SAGS will also be very onerous, All of
the matters to be addressed will have to be coordinated amongst all of the
sub-area municipalities. Inevitably, there will be competing interests.
Approvals will be required from all Councils. The task of preparing SAGS will
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be onerous and very time consuming. It would be far more effective for the
Growth Plan to merely provide a policy framework, a basis for implementation
by upper and single-tier municipalities through their official plans and regular
infrastructure studies.
2.44 The Province must reconsider whether SAGS are necessary given the
duplication of current responsibilities of upper and singe-tier municipalities
and the onerous logistics and time necessary to complete them. Should the
Province continue with the SAGS approach, it is essential that the SAGS add
value to the current planning system and be prepared in partnership with the
affected municipalities.
Imolementation
2.45 The DGP recognizes that the key to its success is its implementation. Key
mechanisms include providing a legislative framework, an appropriate range
of tools, and ensuring ongoing monitoring and review,
Places to Grow Act
2.46 The proposed Places to Grow Act (Bill 136) will provide the legislative
framework for the Province to establish a growth plan area, and allow the
Minister of Public Infrastructure Renewal (PIR) to prepare a growth plan for all
or part of that area. (The Act has had one reading.)
2.47 The proposed Act includes processes for making and amending growth plans
and outlines the general contents of a Growth Plan,
2.48 The proposed Act would require municipalities to amend their official plans to
conform to the Growth Plan. Decisions made under the Planning Act,
Condominium Act or other acts as may be prescribed, must conform to the
Growth Plan.
2.49 Only the Minister can initiate an amendment to a Growth Plan. This could
occur when an SAGS is to be added or after a review of the plan, which
would take place at least every 10 years,
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2.50 The proposed Act does not include any transition provisions. Therefore, it is
unknown if applications made prior to the effective date of the Growth Plan
would be impacted. The Province must declare its intent regarding transition
issues, in order that we may assess the impact on applications, as well as the
on-going lands needs assessment component of the ROP Review.
Implementation Tools
2.51 The DGP recognizes that regulatory and fiscal tools are necessary to assist in
the implementation of the Growth Plan. The regulatory tools generally fall
under the Planning Act, some of which have been realized through the recent
changes to the Planning Act and the PPS.
2,52 The most important tools will be fiscal. While the DGP recognizes that the
Province is examining tools to provide infrastructure and leverage private
investment to support compact development and intensification, no details are
provided. As noted in our previous comments, the Province must direct its
energies to develop the necessary tools. Municipalities face fiscal constraints
with limited opportunities to generate revenue (Le. property taxes, fees and
development charges). Innovative and sustained funding sources and
options related to education property taxes and developrnent charges will be
required to implement the Growth Plan. GTA municipalities are still struggling
with financial burdens imposed by GTA pooling, GO Transit needs, aging
infrastructure and unmet community expectations, such as affordable
housing. New revenue sources, especially those that would fund social
programs, are essential.
2.53 More specifically, the Province must commit a sustainable source of funding
for transit; the Development Charges Act should be amended to allow
municipalities to finance the full cost of services; and the Environmental
Assessment Act should be amended to streamline the process of approval for
infrastructure that supports the Growth Plan objectives. Tools should be
developed to influence a shift in: market preferences for housing types;
location of residence; and transportation choices that support intensification,
The Province should also establish a policy that Provincial infrastructure
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Report No.: 2005-P-30
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investments, particularly in the area of human services, will be supportive and
implement the Growth Plan.
Monitorinq and Review
2.54 The monitoring and review of the Growth Plan will be necessary to assess its
effectiveness. The DGP recognizes that the Province will develop a
framework and a set of indicators to measure the implementation and
achievement of the goals and targets of the Growth Plan. Municipalities (Le.
the Region) will be required to undertake the actual monitoring for their
jurisdiction. Although no details have been provided, we can assume that
they will be onerous, given the requirements outlined in the Growth Plan and
for the SAGS, This will require on-going staff time and resources to collect
and maintain the required information.
Provincial Multi-vear Infrastructure Strateav
2.55 The DGP recognizes the Province's intent to implement a multi-year
infrastructure strategy. MPIR has been mandated to manage a centralized
infrastructure planning process, including transfers for capital purposes to
partners in the broader public sector. The DGP places a priority on Provincial
infrastructure investments that support the Growth Plan, including the
development of an integrated transportation network. However, no details are
provided. It is unclear how or if this will benefit the Region. It is also not clear
if Provincial investment will be tied to the performance indicators referenced
above. The Province should put in place a multi-year infrastructure strategy
concurrent with the enactment of the Growth Plan.
2.56 Many of the proposed policies identified in the DGP imply that municipalities
have not been proactive in developing infrastructure planning needs and
infrastructure investment strategies. For example, the DGP suggests that
"short-term thinking" has contributed to a decline in infrastructure investments
and adversely affected the delivery of critical public services, While this may
be true for some smaller municipalities, such generalizations are
disconcerting to larger municipalities that have been committed to addressing
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Report No.: 2005-P-30
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infrastructure needs and investments, through the implementation of long-
term fiscal strategies.
2.57 The Region of Durham, which has a proven track record of successfully
developing and implementing its own long-term infrastructure planning and
respective financing strategies, including:
· developing five-year economic and financial forecasts to address all
aspects of Regional operations when preparing its annual operating and
capital budgets. As observed by Moody's Investors Services in assigning
the Triple AAA rating to Durham Region: "the conservative nature of the
forecast, which incorporates various risk scenarios, facilitates far-sighted
decision-making and has sustained strong financial performance";
· relying upon pay-as you-go financing to cover major capital projects.
Water and sewer rates and the user rate structure, development charges,
general property taxation and long-term capital requirements are reviewed
annually to ensure efficient operations and continued viability of capital
programs, including water supply and sanitary sewerage; and
· implementing an asset management team to closely monitor the state of
the Region's infrastructure, prioritize capital infrastructure needs and
optimize rehabilitation and replacement decisions.
2.58 The Region's procurement and financing strategies for infrastructure have
been endorsed by major credit rating agencies, suggesting they are best
practices for long term, responsible financial planning. The MPIR should
recognize the Region's existing practices of developing and implementing its
own long-term infrastructure planning and financing strategies, as the
Province develops its multi-year infrastructure strategy.
3. CONCLUSIONS
3.1 While the Vision and general directions of the DGP are consistent with the
ROP, the need for another layer of planning policy through SAGS is clearly
not necessary. If the Growth Plan is approved it will focus the activities of the
Region to the development of the SAGS for the GTAH, as the basis for all of
our planning activities. This will be a very onerous and time-consuming task,
and it would duplicate the on-going work being undertaken for the ROP
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Review and other Regional infrastructure and financing studies. It is
recommended that the Growth Plan merely provide a policy framework as a
basis for implementation by upper and single-tier municipalities, through their
official plans and regular infrastructure studies.
3.2 The Province must recognize that large municipalities, like the Region, do not
permit development without ensuring that the necessary capital infrastructure
is available and funded. Capital planning and budgets should continue to be
developed at a Regional level to reflect our responsibilities for the provision of
those services, while reflecting the goals and objectives of the Growth Plan.
3.3 The Province must develop and implement 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 should be considered.
3.4 The Province must support and build upon the Region's on-going efforts to
attract jobs to Durham, to meet the DGP objective of "complete communities".
3.5 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,
Draft Growth Plan for the Greater Golden Horseshoe document.
3.6 This report has been prepared in consultation with the Finance and Works
Departments.
A&/
A.L. Georgieff, M.C.I.P., R.P.P.
Commissioner of Planning
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Report No.: 2005-P-30
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RECOMMENDED FOR PRESENTATION TO COMMITTEE
:I:~ar-
Garry H. Cubiti, M.S.w.
Chief Administrative Officer
Attachment:
1.
Draft Growth Plan (under separate' cover)
H:\1-2Iagendas\200S\03-29-0S\Draft Growth Plan CR.doc
Ga