HomeMy WebLinkAboutPD-230-89)N: P /STAT
TOWN OF NEWCASTLE
MEETING: General Purpose and Administration Committee
DATE: Monday, September 18, 1989
PHU�T #: PD- 230 -89 FILE #: PLN 11.1
SUBJECT: ONTARIO GOVERNMENT POLICY STATEMENT ON
LAND USE PLANNING FOR HOUSING
FILE: PLN 11.1
RECOMMENDATIONS:
File # �,/ • % /
Res® #
By -Law #
It is respectfully recommended that the General Purpose and Administration
Committee recommend to Council the following:
1. THAT Report PD- 230 -89 be received for information; and
2. THAT Report PD- 230 -89 be forwarded to the Region of Durham and the Durham Region
Access to Permanent Housing Committee.
1. BACKGROUND:
1.1 On July 13, 1987, the Lieutenant Governor in Council approved the Ontario
Government Policy Statement on Land Use Planning for Housing under Section 3
of The Planning Act, 1983. Hereafter, the Council of every municipality
shall have regard to this Statement in exercising any authority that affects
any planning matter. The Policy Statement took effect August 1, 1989.
1.2 The Town of Newcastle previously considered the draft Policy Statement on
Housing and adopted Report PD -60 -89 as the Town's comments on the matter on
March 13, 1989. The Town endorsed the general concept of the Policy
Statement as a good first step but noted a number of significant concerns,
particularly with regard to the implementation of the Statement.
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The Policy Statement as approved has a number of significant revisions.
It provides more details for some aspects and greater flexibility with
regard to implementation. Some of the concerns raised by the Town have
been addressed.
2. SUMMARY OF POLICY STATEMENT
2.1 The Policy Statement on Land Use Planning for Housing is attached. It
addresses the relationship between housing and the land use planning,
the Policy Statement recognizes that many factors (e.g. interest rate)
outside of the control of the land use planning framework must also
contribute to the provision of an adequate supply of reasonably priced
housing in our communities. As well, land use planning regulations cannot
regulate such matters as: the price of housing; whether housing is owned
or rented; or, who can occupy a dwelling. However, it is the hope of the
Ontario Government that by establishing appropriate policies, regulations
and approval procedures, municipalities and other planning jurisdictions
can create the opportunity for a range of housing types to be built.
2.2 The Policy Statement has changed in emphasis to focus on land use
planning rather than housing production, clearly in recognition of the
limitations noted above. The Policy Statement has been changed from
"Housing" to "Land Use Planning for Housing".
The revised objectives of the Policy Statement on Land Use Planning for
Housing are as follows:
1. To foster municipal land use planning practices which are responsive
to housing needs throughout the Province.
2. To contribute, along with other provincial initiatives, to the
overall goal of providing a sufficient supply of a range of housing
types which are accessible, affordable, adequate and appropriate to
the needs of the full range of households in Ontario.
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i) The Supply of Land
Each municipality is required to designate sufficient lands to
maintain a ten year supply at all times. This requires demographic
and economic forecasts over a twenty year timeframe and planning
for the servicing of these lands. Specific servicing policies must
be incorporated into the Official Plan. Furthermore, a continuous
three-year supply of draft approved and registered plans must be
maintained. Regional municipalities are responsible to determine
how much growth will occur in each area municipality and the
servicing allocations required.
ii) Streamlining the Planning Process
All municipalities are required to adopt a guideline outlining time
frames and procedures to streamline the planning approval process,
including the incorporation of the time frames in the Official Plan.
iii) Range of Housing Types
All municipalities are required to provide for a range of housing
types by policy in its official plan including specific policies to
identify the form of housing identified as Affordable.
iv) Residential Intensification
Municipalities are required to identify opportunities to increase
supply of housing through better use of existing resources,
buildings, and serviced sites. This includes the designation of
areas where residential intensification will be permitted;
revisions to the zoning by-law to permit rooming, boarding and
lodging houses and accessory apartments as-of-right; adopting
policies and standards to allow future alterations in new building
stock.
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REPORT NO.® PD- 230 -89
WKWE
2.4 A new section has been included requiring municipalities to monitor how
the provisions of the Policy Statement are being achieved. This will
include monitoring the adequacy of the supply of land, range of housing
forms and house prices relative to income distribution.
3. IMPLEMENTATION OF THE POLICY STATEMENT
3.1 The Policy Statement on Land Use Planning for Housing has significant
implications for the Town which will need to be addressed immediately.
Municipalities will have the primary responsibility for its
implementation as follows:
the Town must have regard for the Policy Statement when any planning
application is being considered for approval
the Town must consider the Policy Statement during the decision to
review the Official Plan or a Zoning By -law
the Town is required to streamline the review and approval of all
housing applications
the Town shall provide monitoring reports to the Minister of
Municipal Affairs and Housing
The Town of Newcastle falls within the priority area for the immediate
implementation of the Policy Statement. In this regard, the
municipalities are required to meet the following timetable:
by November 1, 1989 An approved Work Program is required
by August 1, 1990 A Public Meeting to consider Official Plan
revisions
by August 1, 1991 Adopt official plan and zoning provisions to
fully implement the Policy Statement
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4.1 The implementation of the Policy Statement will require the close
co-ordination of the Region of Durham with its constituent area
municipalities. Given the Region's role in determining growth
projections and providing appropriate servicing allocations, Staff have
requested the Region to establish a consultation mechanism.
4.2 Staff have also contacted the Ministry of Municipal Affairs and
Housing regarding possible funding for implementing the Policy
Statement. Although details have not been finalized, funding will be
available for three aspects:
i) Municipal Housing Statement
Funding will be made available to prepare a Municipal Housing
Statement to identify the Town's housing requirements and policy
directions. A Provincial Grant will be available to cover 750
of consulting costs.
ii) Monitoring Program
Funding will be made available for the Town to develop and maintain
a monitoring program to ensure the objectives of the Policy
Statement are being achieved.
iii) official Plan Review
Community Planning Grants are available for implementation of the
mandatory five (5) year review of the official Plan. This will
include the incorporation of the appropriate housing policies to
meet the requirements of the Policy Statement.
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4.3 This Report is to inform Committee and (%xxucil of the Policy Statement
issued by the Ontario Government.
Staff will be following up these initial contacts and will be reporting
back to Council on the results of discussions with Regional and
Provincial officials pertaining to implementation of the Policy
Statement. Staff will also prepare Z\Work Program to be adopted by
Council prior to the November l, 1989 deadline.
Respectfully submitted,
Franklin WO" M.C.I.P.
Director of Planning & Development
DC*FW*''
*Attach.
3apteodoec 5, 1989
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Recommended for presentation
to the Committee
-�r------ -----------------
Lawrence Kotaeff
Chief &dn\i��otrative officer
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PLANNING
ACT
V 1" V
WIf POLICY STATEMENT
Ontario
A statement of Ontario .Government
policy issued under the authority of
Section 3 of the Planning Act 1983
Approved by the
Lieutenant Governor in Council
Order in Council No. 1812/89
July 13, 1989
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Chaviva Hosek
Minister of
Housing
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John Eakins
Minister of
Municipal Affairs
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This document is prepared under the authority of the Planning Act and is the Province
of Ontario's Policy Statement on Land Use Planning for Housing.
This Provincial Policy Statement:
® is issued by the Minister of Municipal Affairs and the Minister of Housing;
• does not supersede or take priority over other policy statements issued under
section 3 of the Planning Act, or any other policy approved by the Lieutenant
Governor in Council;
• takes effect as of August 1, 1989.
For the purposes of this Policy Statement:
Accessory Apartments means:
Self- contained apartments created through converting part of or adding on to existing
homes (single detached, semi - detached, duplexes, triplexes, row houses, etc.).
Affordable means:
Annual housing costs (gross rent, or mortgage principle and interest (amortized over 25
years and assuming a 25% down payment) and taxes) which do not exceed 30% of gross
annual household income.
Affordable Housing means:
Housing which would have a market price or rent that would be Affordable to households
of low and moderate income. Households of low and moderate income are defined as
households within the lowest 60 percent of the income distribution for the Housing
Region. Affordable Housing could also include any government assisted housing
recognized, from time to time, as Affordable Housing by the Minister of Housing.
Housing Region means:
The area defined by the Ministry of Housing in an annual Information Bulletin for the
purpose of identifying the 60th percentile of household incomes to be used by each
municipality in the Housing Region, for the purposes of defining Affordable Housing.
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These regions have been determined based on Statistics Canada housing labour market
area boundaries (Census Metropolitan Areas and Census Areas), along with contiguous
Census Divisions (Counties, Regions) where income variations between the Census
Divisions at the 60th percentile are within tolerable limits.
Infill means:
Development on vacant lots or underdeveloped lots in a developed area to create
additional New Residential Units.
New Residential Development means:
Creation of New Residential Units on vacant land, where development has not previously
taken place.
New Residential Units means:
Residential units constructed primarily for use as a principal residence.
Redevelopment means:
The creation of New Residential Units on land previously used for residential or non-
residential purposes in existing communities, where demolition of the previous structures
is to take place, or has taken place.
Residential Intensification means:
The creation of New Residential Units or accommodation in existing buildings or on
previously developed, serviced land generally including:
• creation of rooming, boarding and lodging houses;
• creation of Accessory Apartments;
• conversion of non - residential structures to residential use;
• Infill;
• Redevelopment.
Zoning Standards means:
The provisions currently found in zoning by -laws such as (but not ,limited to): lot size;
unit size; setbacks; lot coverage; parking requirements; density; etc.
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It is essential to Ontario's economic and social well -being that a sufficient supply of
housing be available — housing that is affordable, accessible, adequate and appropriate
to the needs of the full range of households across the Province.
Several trends contribute to the need for housing.
The population of Ontario is expected to continue to grow significantly, largely as a
result of immigration from outside Canada and migration from other provinces.
As well, household growth and composition is changing. As the population ages and
family patterns change, the number of smaller households is expected to increase
substantially. Housing supply has not adequately responded to all of these needs.
411, Growth pressures are experienced primarily, but not exclusively, in the major urban
centres of the Province. The most critical effects are likely to continue to be felt in the
urban areas of Southern Ontario, with less pressure being experienced in some small or
rural municipalities in the Province.
Land use planning must respond effectively to these housing needs. The land use planning
process is an important element of the overall response to changing housing needs — it
must help to advance provincial housing objectives, rather than impede them.
All municipalities and planning jurisdictions must take into account the housing needs of
the broader community; all Ontarians must have the assurance that their housing needs
are considered at every stage of the planning process.
This Policy Statement addresses the relationship between housing and the land use
planning process. To achieve housing objectives, the Policy Statement deals with the
following issues which can be addressed through land use regulation:
4111, • the supply of land for residential development;
• the land use planning approval process;
• land use standards which regulate the range of housing types which can be provided;
• the effective use of existing building stock and previously developed land for new
housing.
Under the Planning Act, a Policy Statement is the mechanism used by the Province to
establish provincial expectations regarding matters relating to land use planning. This
Policy Statement describes how the foregoing housing issues are to be addressed by
planning jurisdictions in Ontario using the authority under the Planning Act, including:
• official plan policy;
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zoning provisions; and,
® the development approvals process.
This Policy Statement recognizes that many factors which are outside of the control of
the land use planning framework must also contribute to the provision of an adequate
supply of reasonably priced housing in our communities. The most obvious of these
factors is the operation of the housing market itself. As well, land use planning regulations
cannot regulate such matters as: the price of housing; whether housing is owned or
rented; or, who can occupy a dwelling. However, by establishing appropriate policies,
regulations and approval procedures, municipalities and other planning jurisdictions can
create the opportunity for a range of housing types to be built.
BASIS OF THE POLICY
Objectives:
A. To foster municipal land use planning practices which are responsive to housing
needs throughout the Province.
B. To contribute, along with other provincial initiatives, to the overall goal of providing
a sufficient supply of a range of housing types which are accessible, affordable,
adequate and appropriate to the needs of the full range of households in Ontario.
Principles:
A. Each planning jurisdiction has a responsibility to contribute to fulfilling the objectives
of this Policy Statement.
B. A sufficient supply of land for housing purposes should be planned for in order to
help make land available for development at a more reasonable cost.
C. The planning approvals process should be streamlined to help reduce the cost of
housing by allowing the market to respond effectively to housing demands and to
reduce the land carrying costs associated with housing construction.
D. Land use regulations should allow for a full range of housing types and sizes in
order to provide the opportunity for more households to be appropriately and
affordably housed.
E. New residential units should be planned for in established communities in order to
produce housing efficiently and cost - effectively by maximizing existing resources,
both in building stock and community and physical services.
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c.
DIM
It is the policy of the Province of Ontario that:
1. GENERAL
1.1 All planning jurisdictions, including municipalities and planning boards,
consider the implications of their actions on the availability of housing to
meet future local, regional and provincial needs.
2. SUPPLY OFLAND
2.1 All municipalities and planning boards maintain a supply of land for future
residential use by:
4EI. a. designating sufficient lands for residential use, in the official plan, so
that at least a ten -year supply of residential land is maintained at all
times;
The amount of land to be designated will be based on:
i. A planning jurisdiction's reasonable share of the overall
population growth and increased number of households in the
broader community, reflecting the demographic and economic
forecasts affecting the planning jurisdiction over a twenty -year
time - frame;
ii. existing servicing capacity and future planned servicing
expansion required to accommodate household growth for
twenty years;
iii. residential densities to accommodate the range of housing types
identified in accordance with section 4.1;
iv. the potential for Residential Intensification identified in
accordance with section 5.1.
b. incorporating servicing policies in the official plan, to identify how
growth on the lands designated for residential use will be accommodated;
These servicing policies will address:
i. existing servicing capacity;
ii. servicing improvements necessary to accommodate household
growth over the twenty -year planning time - frame;
iii. implementation of future servicing improvements.
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C. establishing a target, to be reflected in the official plan, to maintain at
least a continuous three -year supply of a combination of draft approved
and/or registered lots and blocks on plans of subdivision in New
Residential Development.
2.2 In regional municipalities and counties where the upper tier municipality is
responsible for providing piped water and sewers, the upper tier official plan
specify:
a. how much residential growth will occur, in accordance with section
2.1.a., in each area municipality within its jurisdiction;
b. servicing allocations and planned servicing improvements for all
municipalities within its jurisdiction, identified in accordance with
Section 2.1.b.
3. STREAMLINING THE PLANNING PROCESS
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3.1 All municipalities and planning boards reduce the time to process residential
applications, to the greatest extent practical by: ;
a. adopting a guideline outlining time frames and procedures at each
stage of the approval process; ,
This guideline will be based on information provided from time to
time by the Ministry of Municipal Affairs;
b. incorporating a policy in the official plan to:
i. indicate council /planning board commitment to adhere to the
procedural guidelines; and,
ii. include time frames, identified in the procedural guidelines, for
each stage of the approval process.
4. RANGE OFHOUSING TYPES
4.1 All municipalities and planning boards provide for a range of housing types,
in New Residential Development and Residential Intensification by:
a. designating lands in the official plan specifying, at least, appropriate
residential uses and densities;
These land use designations will be based on:
i. housing needs, taking into consideration household size and
income of new households expected in accordance with section
2.1.a., normally identified in a Municipal Housing Statement;
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ii. the forms of housing which could be produced by the market
or with government assistance to meet these housing needs;
iii. the forms and proportion of housing, identified as Affordable
Housing in section 4.2.
b. establishing policies in the official plan so that the range of housing
types, including the forms of housing identified as Affordable Housing
in accordance with section 4.2., is distributed throughout the
municipality/planning area on lands designated for residential use, but
is not necessarily included in every application for New Residential
Development or Residential Intensification;
C. incorporating implementation policies in the official plan to assist in
achieving the identified range of housing types;
d. zoning lands to accommodate the range of housing types identified in
the official plan, by:
i. establishing zones which permit the identified range of housing
types;
ii. including zoning standards such as, but not limited to, residential
densities, minimum lot standards, and unit and building areas
and sizes, to permit the development of the identified range of
housing types, and by eliminating any zoning standards which
serve to preclude uses permitted by the official plan;
iii. where minimum unit size standards are provided, including
standards which do not exceed those established in the Ontario
Building Code for the protection of health and safety.
4.2 All municipalities and planning boards establish appropriate planning policies
and standards which will enable at least 25% of New Residential Units resulting
from New Residential Development and Residential Intensification through
conversion of non - residential structures, Infill and Redevelopment, to be
Affordable Housing, by:
a. identifying the forms of housing which could be developed as Affordable
Housing;
These forms of housing are to be locally determined based on an
analysis of:
i. incomes up to the 60th percentile in the Housing Region;
ii. the full range of housing needs for households within the lowest
60 percent of the income distribution for the Housing Region;
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iii. a range of housing prices /rents to meet these needs;
iv. expected housing production costs and market prices/ rents;
V. the ability of the market to produce housing to meet the
Affordable Housing definition;
vi. the amount of government- assisted housing needed in the
municipality, normally identified in a Municipal Housing
Statement.
5. RESIDENTIAL INTENSIFICATION
5.1
E3
All municipalities and planning boards identify opportunities to increase the
supply of housing through better use of existing resources, buildings or
serviced sites to meet changing demographic trends and housing demands,
and adopt a strategy to make use of those opportunities, by: k.
a. designating areas in the official plan where each form of Residential
Intensification will be permitted;
These uses are to be permitted in areas which meet the following
criteria:
i. the physical potential of the existing building stock or previously
developed sites can accommodate the identified forms of
Residential Intensification;
ii. the existing services can support new households in the affected
area; and,
iii. the potential demand for these forms of accommodation, based
on the housing needs of the composition of households in the;
broader community, in relation to the typical characteristics `of; ,
units which could be roduced through the various forms;
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Residential Intensification, can be demonstrated.
b. including zoning provisions to permit rooming, boarding and lodging
houses, and Accessory Apartments as-of -right where they are permitted
uses in the official plan;
C. adopting policies and development standards for New Residential
Development so that alterations to create additional units in new building
stock can take place in the future, as needs change within those
communities, in keeping with the principles identified in 5.1.a.
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6. MONITORING
6.1 All municipalities and planning boards monitor how the provisions of this
Policy Statement are being achieved, by:
a. adopting procedures to review:
i. the adequacy of the supply of land, at least every five years;
ii. the range of housing forms produced through New Residential
Development and Residential Intensification, annually;
iii. house prices for each housing form relative to income distribution
for the Housing Region, annually;
iv. how targets for processing of land use planning applications are
being achieved, every two years;
b. preparing a report to be endorsed by council on the results of the
review conducted in accordance with section 6.1.a.;
C. updating planning documents and development approval procedures on
the basis of the review conducted in accordance with section 6.1.a., as
necessary, to maintain consistency with the intent of this Policy
Statement;
d. incorporating a policy in the official plan to outline municipal/ planning
board commitment to implement the provisions of this section.
7. APPLICATION OF THE POLICY STATEMENT
7.1 Counties with official plans may implement those policies in this Policy
Statement relating to official plans, within the county official plan, on behalf
no& of any or all municipalities within its jurisdiction, at the request of the council
of the affected municipality.
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7.2 Townships and villages with populations below 5,000 may use alternative
approaches to reflect the Principles and to fulfill the Objectives of this Policy
Statement except:
i. villages bounded by a township with a population in excess of 5,000;
ii. those townships and villages within the Census Metropolitan Areas of
London, Toronto and Windsor.
7.3 Alternative approaches to implementing the Principles and fulfilling the
Objectives of this Policy Statement may be adopted by planning boards,
except for those portions of planning areas, which are either cities or towns.
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The Ministries of Municipal Affairs and Housing will:
• prepare guidelines to assist in implementing the Policy Statement;
• monitor implementation of the Policy Statement by reviewing planning documents
and monitoring reports, as necessary;
• provide program support where necessary and available to assist in fulfilling the
provisions of this Policy Statement.
The Ministry of Housing will:
• provide advice and assistance to municipalities and planning boards on demographics
and housing need projections, income data for Housing Regions and price data for `,l?J
new home construction issued on an annual basis;
• review and comment on planning documents, as necessary;
• make representations or provide technical expertise at Ontario Municipal Board
hearings, as necessary.
The Ministry of Municipal Affairs will:
• ensure that all planning documents submitted for review or approval have had
regard to this Policy Statement;
• co- ordinate streamlining of the provincial review of planning documents;
• provide advice on methods of meeting Policy objectives through the land use
planning process;
• su pp ort the implementation of this Policy Statement through Planning Act powers,
as necessary.
Municipalities with approval authority delegated by the Minister of Municipal Affairs
will have regard to this Policy Statement in exercising the delegated responsibilities.
Other ministries and agencies having an interest in planning documents which relate to
housing will review planning documents in keeping with provincial government objectives
to streamline the planning approvals process.
Municipalities and Planning Boards will:
• consider this Policy Statement during the decision to review the official plan required
by section 26 of the Planning Act;
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® have regard for this Policy Statement when a zoning bylaw /order comes up for
review;
have regard for this Policy Statement, when any planning document is being
considered for approval;
• streamline the review and approval of all housing applications as required by this
Policy Statement;
• provide monitoring reports required in section 6.1.b. to the Ministers of Municipal
Affairs and /or Housing upon request;
• inform and advise applicants and the public on the content of this Policy Statement.
Priority Areas
The Regional Municipalities of Metropolitan Toronto, Durham, York, Peel, Halton,
Hamilton - Wentworth, Ottawa - Carleton, Niagara and Waterloo and the municipalities
within those regions, and all other municipalities within the Census Metropolitan Areas
of London, Toronto and Windsor will:
• adopt official plan and zoning by -law provisions to fully implement this Policy
Statement by August 1, 1991; and,
• approve a work program required to implement the full intent of this Policy Statement
by November 1, 1989;
• conduct the public meeting required under the Planning Act to consider official
plan revisions which would meet the full intent of this Policy Statement by August
1, 1990;
• when requested by the Minister of Municipal Affairs or Housing, provide a record
of council's consideration of the work program or the official plan revisions required
above.
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