HomeMy WebLinkAboutPSD-049-13 0
REPORT
PLANNING SERVICES DEPARTMENT
Meeting: GENERAL PURPOSE AND ADMINISTRATION COMMITTEE
Date: September 9, 2013 Resolution #: dA4- --/.may-law #: N/A
Report #: PSD-049-13 File #: PLN 38.6.2.2
Subject: OFFICIAL PLAN REVIEW
RELEASE OF THE COUNTRYSIDE DISCUSSION PAPER
RECOMMENDATIONS:
It is respectfully recommended that the General Purpose and Administration Committee
recommend to Council the following:
1 . THAT Report PSD-049-13 be received for information.
Submitted by: Reviewed byy_ �
avi J. Crome, MCIP, RPP Franklin Wu
Director, Planning Services Chief Administrative Officer
KK/FL/df
27 August 2013
CORPORATION OF THE MUNICIPALITY OF CLARINGTON
40 TEMPERANCE STREET, BOWMANVILLE, ONTARIO L1C 3A6 T 905-623-3379
REPORT NO.: PSD-049-13 PAGE 2
1. BACKGROUND
1.1 The Official Plan Review has been broken into several major components including:
Main Themes
Built Environment and Planning Process;
Planning for Prosperity and Growth (Growth Management and Intensification);
Planning for the Countryside; and
Planning for Sustainable and Healthy Communities.
Special Projects
Courtice Main Street;
Courtice Employment Lands; and
Parks, Open Space and Trails.
1.2 Each component follows the same process, beginning with Discussion Papers and
finishing with an Official Plan Amendment. Public input and review opportunities are
presented as often as possible to ensure that the Official Plan Amendments proposed to
Council meet the needs of the community and conform to Provincial Plans and policies.
2. COUNTRYSIDE DISCUSSION PAPER
2.1 The Countryside Discussion Paper was released on August 19, 2013. It reviews the role
of the rural area in: food and crop production; hamlets and rural settlements; continuous
systems of open space; natural heritage conservation; recreation; and the aggregate
resource industry. The top five issues facing the countryside are identified and explored
in this Discussion Paper. These are: Agricultural Uses, Major Recreational Uses,
Secondary and Accessory Uses, Urban/Rural Fringe and Whitebelt Lands, and Rural
Settlements.
2.2 Specific discussion is also provided regarding the Provincial and Local policies that
support the protection of the rural countryside. A major part of the Planning for the
Countryside component is ensuring that the Clarington Official Plan is in conformity with
the Province's Greenbelt Plan policies; Provincial Policy Statement; and Region of
Durham's conformity exercise, Amendment 114 to the Regional Official Plan.
3. PUBLIC CONSULTATION
3.1 Four Public Information Sessions were scheduled as follows:
Wednesday, August 28, 2013 - Carriage Country Baptist Church (6:30 p.m. - 8:30 p.m.)
Friday, September 6, 2013 — Orono Fair (6:30 p.m. - 8:30 p.m.)
Saturday, September 7, 2013 — Orono Fair (1:00 p.m - 4:00 p.m.)
Wednesday, September 11, 2013 —Tyrone Community Centre (6:30 p.m. - 8:30 p.m.)
REPORT NO.: PSD-049-13 PAGE 3
A variety of times were scheduled to provide multiple opportunities, particularly for
farmers who are busy at this time of year.
3.2 A notice was sent to all interested parties announcing the release of the Countryside
Discussion Paper and the public information sessions.
3.3 The Countryside Discussion Paper is available on the Official Plan Review website
http://www.clarington.net/ourplan/. Compact discs of all Discussion Papers are
available. The Discussion Papers are available to the public in all Clarington Library
branches. The public is encouraged to provide comments.
4. CONCURRENCE - Not Applicable
5. CONCLUSION
5.1 The Countryside Discussion Paper explains the existing policy framework, evaluates the
effectiveness of rural and agricultural Official Plan policies in achieving the goals and
objectives identified, and recommends sections where existing policy could be improved
or further developed.
CONFORMITY WITH STRATEGIC PLAN
The recommendations contained in this report conform to the general intent of the following
priorities of the Strategic Plan:
X Promoting economic development
Maintaining financial stability
Connecting Clarington
X Promoting green initiatives
Investing in infrastructure
Showcasing our community
Not in conformity with Strategic Plan
Staff Contact: Faye Langmaid, Manager, Special Projects
Attachments:
Attachment 1 - Countryside Discussion Paper (Under Separate Cover)
Countryside
Discussion Paper
BMW
OFFICIAL
PLAN
R EVI EW
Compass to our ,future
Prepared By:
MUNICIPALITY OF CLARINGTON
PLANNING SERVICES DEPARTMENT
August, 2013
This page left intentionally blank, for double-sided printing
Table of Contents
EXECUTIVE SUMMARY........................................................................................................ 1
1. INTRODUCTION........................................................................................................... 3
1.1 Purpose of the Discussion Paper ...................................................................... 4
2 PLANNING FRAMEWORK............................................................................................ 6
2.1 Land Use Planning............................................................................................. 6
2.2 The Planning Act ............................................................................................... 6
2.2.1 Provincial Policy Statement (PPS)............................................................. 7
2.2.2 Oak Ridges Moraine Protection Act and Conservation Plan .................... 7
2.2.3 Greenbelt Act and Plan............................................................................. 8
2.2.4 Places to Grow Act and Growth Plan for the Greater Golden Horseshoe 8
2.3 Regional and Local Planning Structure ............................................................. 9
2.3.1 The Rural System in the Regional Plan ................................................... 10
2.3.2 The Greenlands System in the Regional Plan ......................................... 10
2.3.3 Watershed Plans..................................................................................... 10
2.3.4 Clarington's Official Plan......................................................................... 11
2.3.5 Relationship to Zoning............................................................................ 12
2.4 Other Provincial Legislation ............................................................................ 12
2.4.1 Farming and Food Production Protection Act........................................ 12
2.4.2 Nutrient Management Act...................................................................... 13
2.4.3 Clean Water Act...................................................................................... 13
2.4.4 Green Energy Act .................................................................................... 14
2.4.5 Aggregate Resources Act ........................................................................ 14
2.4.6 Conservation Authorities Act.................................................................. 14
3. PHYSICAL SETTING .................................................................................................... 16
3.1 Natural Heritage System................................................................................. 17
3.2 Aggregate Extraction....................................................................................... 19
3.3. Agriculture ...................................................................................................... 20
3.4 Rural Settlements ........................................................................................... 22
4. RURAL LAND USE ISSUES .......................................................................................... 24
4.1 Natural Heritage System................................................................................. 24
4.1.1 Open Space System................................................................................. 25
4.2 Agriculture ...................................................................................................... 25
4.2.1 Economic Impact..................................................................................... 26
4.2.2 A Single Agricultural Designation............................................................ 27
4.3 Farms and Farm-related Uses......................................................................... 28
4.3.1 Accessory Farm Uses (Agriculture-Related Uses)................................... 28
4.3.2 Farm-related Industrial and Commercial Uses....................................... 30
4.4 Rural Non-farm Use Policies ........................................................................... 31
4.4.1 Open Space (recreational uses) .............................................................. 31
4.4.2 Golf Courses............................................................................................ 32
4.4.3 Tourism Nodes........................................................................................ 32
4.4.4 Special Policy Area .................................................................................. 33
4.4.5 Gas Stations and/or Gas Bars.................................................................. 34
4.4.6 Other Non-farm, Non-residential Uses................................................... 34
4.5 Rural Consent Policies..................................................................................... 37
4.5.1 Retirement Lots ...................................................................................... 37
4.5.2 Second Dwelling...................................................................................... 37
4.5.3 Surplus Farm Dwellings........................................................................... 38
4.5.4 Severance for Heritage Structures.......................................................... 38
4.6 Other Uses/Issues........................................................................................... 39
4.6.1 Aggregate Extraction............................................................................... 39
4.6.2 Alternative (Renewable) Energy Projects............................................... 40
4.6.3 Infrastructure/Utilities............................................................................ 41
4.6.4 The Greenbelt Legislation ....................................................................... 42
4.6.5 Urban/Rural Fringe and Whitebelt Lands (the 8 percent)...................... 44
4.6.6 Buffers/Setbacks..................................................................................... 46
5. RURAL RESIDENTIAL.................................................................................................. 48
5.1 Rural Settlement Policies................................................................................ 48
5.1.1 Hamlets................................................................................................... 49
5.1.2 Country Residential Subdivisions............................................................ 52
5.1.3 Rural Residential Clusters ....................................................................... 53
5.1.4 Vacant Rural Lots of Record.................................................................... 53
5.2 Orono Employment Area ................................................................................ 54
6. OFFICIAL PLAN POLICY RECOMMENDATIONS .......................................................... 56
6.1 Key Issues for the Countryside........................................................................ 56
6.2 Implementing the Recommendations............................................................ 58
GLOSSARYOF TERMS........................................................................................................ 60
REFERENCES:..................................................................................................................... 64
FIGURES
Figure 1— Residential Building Permits in Rural Areas of Clarington, 1994-2012............ 48
Figure 2— Rural Population............................................................................................... 49
Figure 3— Hamlet Households.......................................................................................... 49
Figure 4— Existing Official Plan Map Al Darlington ......................................................... 73
Figure 5— Existing Official Plan Map Al Clarke ................................................................ 74
Figure 6— Proposed for Discussion Map Al Darlington ................................................... 75
Figure 7— Proposed for Discussion Map Al Clarke.......................................................... 76
Figure 8— Greenbelt Schedule.......................................................................................... 77
APPENDICES
APPENDIX1....................................................................................................................... 65
What about Secondary Uses in the Countryside?.................................................... 65
APPENDIX2....................................................................................................................... 68
What about Golf Courses?........................................................................................ 68
APPENDIX3....................................................................................................................... 71
Excerpt from "Economic Base and Employment Lands Discussion Paper, July 2,
2010" for the Clarington Official Plan Review................................................ 71
The soil of the Townships of Darlington and Clarke is of very
considerable variety, and that fact has had great influence upon
what has been produced in the area, whether we regard the
forest growth of early days, or the field, or orchard crops of later
times.
John Squair, 1927, Page 443.
EXECUTIVE SUMMARY
Clarington's countryside is composed of the agricultural and open space lands, rural
settlements and aggregate resources. The natural heritage system weaves its way
through these other land uses providing connectivity for flora and fauna. The
identification and protection of the resources whether they are agricultural soils, natural
heritage or aggregates are the primary goals of land use policies in the countryside.
Clarington's rural areas play a significant role in:
• Protecting agricultural land for food and crop production;
• Identifying a continuous major Open Space System for natural heritage
conservation and in some cases recreation;
• Supporting hamlets and rural settlements; and
• Hosting the aggregate resource industry.
Clarington's rural area comprises 88.6 percent of our land base and houses
approximately 20 percent of our population; it is also home to one of our top economic
priorities, agriculture. The predominance of good soils and growing season, plus the
proximity to global markets, supports a prosperous agricultural industry in Clarington.
The top five issues identified and explored in this Discussion Paper are:
Agricultural Uses — Merging the two tier agricultural designation into a single
designation on Map A will protect the resource while allowing farmers to make use of
and changes to their lands in response to the agricultural market place. It also means
major recreational uses, like golf courses that had previously been allowed on "general"
agricultural lands will no longer be allowed.
Major Recreational Uses — Major Recreational uses had been restricted from all of the
Oak Ridges Moraine (ORM) when Amendments 33 and 34 to Clarington's Official Plan
were adopted in 2005. Advances have been made in how certain recreation uses such
as golf courses are designed, developed and maintained. At the same time there is a
growing demand for major recreational uses in proximity to urban areas and as
rehabilitation of aggregate resource areas. The Protected Countryside area of the ORM
allows for major recreational uses, Clarington could allow for this type of use by
Amendment to the Official Plan.
Secondary and Accessory Uses — Agriculture-related accessory uses are allowed as of
right on agricultural lands. Secondary uses that are recommended as additions by way
of Zoning Bylaw amendment are agri-tourism, RV storage and small-scale landscape
industry uses. Other Secondary uses are constrained by the proposed definition in the
Countryside Discussion Paper—August 2013
0
Provincial Policy Statement to those that are "agriculture-related". Should a secondary
use be proposed that is in-keeping with the decision-making framework outlined in
Appendix 1, they should be allowed by amendment to the Official Plan.
Urban/Rural Fringe and Whitebelt Lands — The urban separators between
Courtice/Bowmanville and Bowmanville/Newcastle plus some lands to the north of
Newcastle were not included in the Greenbelt. These lands are some of the highest
production agricultural lands in the Province. The challenge for the agricultural
community is to have an urban population that respects, understands and supports
farming. Additional policies limiting growth through intensification and redevelopment
within the urban boundaries, plus the imposition of firm boundaries for urban areas will
be included as part of growth management policies. No urban expansions are
recommended as part of this Official Plan Review and additional "tests" are proposed to
help retain the urban separator agricultural lands.
Rural Settlements — The rural population is declining as a percentage of the overall
population of Clarington and will continue to. Opportunities for housing development
in the countryside have been and will continue to be very constrained. There is
opportunity for limited minor rounding out of hamlets in the Greenbelt as part of this
Official Plan Review.
Clarington's Official Plan when adopted in 1996 set new standards for environmental
protection and limited residential development in the countryside, focusing
development on the urban areas and setting out a vision that the rural areas are to
remain rural. For the most part the policies have been successful in achieving this
overall vision and moving Clarington towards sustainability. This Official Plan Review
takes that established policy basis and proposes further refinements that will assist the
agricultural community to continue as the economic engine for Clarington.
�.447 ! 'ti.s
Countryside Discussion Paper—August 2013
2
Section 1
Introduction
1 . INTRODUCTION
Land use planning is central to the way we live and work, our quality of life and ultimately to our
sustainability on this planet. The major focus of the Background Papers leading up to Clarington's
first comprehensive Official Plan in 1996 was the question of "how to become a sustainable
community". Fifteen+ years later the basic premise that "community growth and development
must be placed on a more sustainable basis" resonates even more.
In undertaking the Official Plan Review we have looked back to see if the three key principles set
out in the 1996 Official Plan served the Municipality well. The principles of Sustainable
Development, Healthy Communities and Growth Management have effectively guided planning
decisions. In the community meetings, held in June 2008, those attending confirmed that we need
to further build upon and strengthen these principles and act on them to a greater degree.
The responsibility and impacts of one generation on future generations, and the interdependencies
between our social, economic and ecological systems is the premise upon which the concept of
sustainable development is founded. Thus, decision-making is the delicate balance between
numerous competing and ever-changing factors with a long-term view. Our social, economic and
environmental systems are interconnected. Decision-making regarding these competing interests
must be balanced in order to achieve sustainable development for our generation and future
generations.
The Province's vision for land use planning in Ontario is set out in the Provincial Policy Statement,
2005 (currently under review). The vision seeks to focus growth within settlement areas and away
from significant or sensitive resources. It also promotes the conservation of natural heritage
resources, water, agricultural lands, aggregate resources, and cultural heritage. Resources are to
be managed in a sustainable way to protect essential ecological processes, while minimizing
environmental and social impacts, and meeting long-term needs.
The current Official Plan took a strong stance on protection of the Oak Ridges Moraine, natural
features are the Lake Iroquois Beach landform. The Natural Environment and Resource
Management Section (Chapter 4) of the Official Plan provides the basis for watershed planning and
the protection of ecological functions. Aggregate Extraction, which had priority, was balanced with
other considerations such as significant woodlands and the protection of areas such as Ganaraska
and Long Sault Forests.
The Oak Ridges Moraine Conservation Plan, 2002 and the Greenbelt Plan, 2005 strengthened the
foundation for environmental conservation policies that were already present in the Clarington
Official Plan. Because many of the policies are already present within the Official Plan; the review
of the policies that affect the countryside is a technical exercise to determine conformity with
Provincial legislation, and to simplify for a more user friendly Official Plan.
Countryside Discussion Paper—August 2013
0
1.1 Purpose of the Discussion Paper
This Discussion Paper examines Clarington's countryside, providing an evaluation of the
effectiveness of rural and agricultural Official Plan policies in achieving the goals and objectives
identified; it is being released after the Natural Heritage Discussion Paper. The Natural Heritage
System (NHS) is the framework for sustainability of the
natural environment. Other aspects of land use planning "On a clear day, over one-third of
designations fit into the NHS. The NHS, agricultural and rural Canada's best agricultural land
polices work hand-in-hand to protect and conserve the can be seen from the top of
countryside while allowing for compatible development. Toronto's CN Tower."
The Official Plan brings together the natural environment, Source: (Statistics Canada, 1999)
economy and social aspects as a balanced whole.
The countryside is made up of two major components: agricultural lands and the Open Space
System. The natural heritage system weaves its way through other land uses and provides the
connectivity flora and fauna require to stay healthy and sustainable. The identification and
protection of the natural heritage system, plus the countryside with its agriculture land, aggregate
resources and settlement areas add to Clarington's quality of life and economic prosperity.
The term countryside is commonly used to describe the non-urban areas of Clarington. Protected
Countryside has a specific meaning within the context of the Greenbelt Plan, which is addressed as
part of this Discussion Paper and noted as Protected Countryside.
Clarington's rural areas play a significant role in:
• Protecting agricultural land for food and crop production;
• Identifying a continuous major Open Space System for natural heritage conservation and in
some cases recreation;
• Supporting hamlets and rural settlements; and
• Hosting the aggregate resource industry.
Clarington's rural area comprises 88.6 percent of our land base and houses approximately 20
percent of our population; it is also home to one of our top economic priorities, agriculture. The
predominance of good soils and growing season, plus the proximity to global markets, supports a
prosperous agricultural industry in Clarington.
Countryside Discussion Paper—August 2013
4
Clarington's location on the eastern edge of ,Agriculture across the GTAH (Greater Toronto
the Greater Toronto Area (GTA) creates both and Hamilton) continues to show high levels of
challenges and opportunities for our productivity as measured by gross farm
agricultural industry. Development pressures receipts per acre. In 2006, agriculture across
pose a constant threat to the stability and the GTA averaged $998 per acre compared to
sustainability of agriculture in the urban $776 per acre at the provincial level."
shadow, issues include farmland
fragmentation and the difficulty of operating Source: Greater Toronto Countryside Mayors
as an agricultural enterprise in near urban Alliance, Phase Two Report, Nov. 2012, page
areas. However, easy access to major 11.
transportation routes and global markets also
offers opportunities for the growth of Clarington's agricultural industry. The development of
secondary agricultural uses, such as agri-tourism and on-farm processing, have potential to
improve the viability of farm operations.
Another important contribution of the Municipality's countryside is its role as urban separators.
Large stretches of open land between urban areas help to contain urban sprawl and reinforce
community identity by breaking the monotony of continuous urban development. The two urban
separators in Clarington are located between Courtice and Bowmanville, and Bowmanville and
Newcastle. These urban separators are constantly under pressure from development interests;
however, they possess some of the most productive, high quality farmland in Ontario. Protection
for agricultural lands becomes even more critical if one considers a statistic from a recent Guelph
University Farm Preservation Project which
"Protecting farmland helps to preserve a states that only 11 percent of Canada's land
productive land base for the agricultural can support agricultural production. One of
economy, preserve the amenity values of open the questions that will be addressed in this
space and rural character, slow suburban Discussion Paper is how can these urban
sprawl, provide wildlife habitat, and provide an separators be reinforced to ensure their
opportunity for groundwater recharge in areas profitability as agriculture production areas for
where suburban development is occurring." the long-term?
Source: Ontario Farmland Trust
(http://www.ontctriofctrmlandtrust.ccilresources
/saving-farmland)
Countryside Discussion Paper—August 2013
5
Section Z
Planning Framework
PLANNING FRAMEWORK
The countryside of Clarington is affected by both bio-physical aspects and the legislation that
governs activities that occur upon it. First and foremost among the legislative framework are the
Acts that create and affect land uses. These Acts are the basis of the planning framework.
However, as in all endeavors there are other pieces of legislation that affect how an enterprise,
such as agriculture is carried out on a daily basis, the major Provincial Acts influencing how farmers
operate their businesses are addressed later in this chapter. Additional forces and influences, such
as the federal regulations, world health organization initiatives and global market place, are well
beyond the controls that can be implemented through land use planning policies; however, they
too play a role in the economic viability and ultimately the sustainability of the countryside.
2.1 Land Use Planning
Land Use planning in Ontario is a hierarchical layered set of policies and procedures. There are
many pieces of legislation which in some manner, affect land use planning or employ land use
planning controls to achieve health and safety, environmental and economic priorities. It is
important to understand how Provincial Planning impacts the way in which Clarington is able to
determine rural land uses.
Places r
•
Durham Region I f [ I
Official
Plan
Clarington
Official Plan
1
2.2 The Planning Act
Many of the regulations in the Planning Act are designed to facilitate the processes necessary to
divide and develop land. The Planning Act also sets out the criteria for Official Plans and the overall
framework of how balance is to be achieved between the competing interests of different land
uses. Essentially the Planning Act is the rule book for how the over-arching policy requirements
and processes are to be employed to achieve the goals and objectives of the Provincial Policy
Statement (PPS).
Countryside Discussion Paper—August 2013 6
2.2.1 Provincial Policy Statement (PPS)
®Ontario Rural areas are intended to be the focus of resource activity, resource-
based recreational activity and other rural land uses. As such, the PPS
places a substantial emphasis on the protection of prime agricultural areas,
. Provincial aggregate resources (mineral aggregates, minerals and petroleum), natural
P0I1Cy heritage features, water resources, cultural heritage resources and
Statement archaeology sites.
Agriculture policies in the PPS are quite simple, prime agricultural areas
shall be protected for long term use of agriculture (PPS 2.3.1). The
permitted uses of prime agricultural areas are agricultural uses and secondary uses defined as
agricultural related uses.
The Provincial Policy Statement is Rural areas are recognized as having interdependent
currently under review. One of the markets contributing to the economy in addition to
proposed changes in the 2012 review of being an important asset to our environment and
the PPS is greater clarity surrounding quality of life. The proposed new Provincial policy
secondary uses on agricultural lands. The defining secondary uses as agriculture-related
clarification lies in the definition of strengthens agricultural activities in the rural areas. The
secondary uses as "agricultural-related Municipality recognizes the need to protect the viability
uses, on-farm diversified uses and normal of agricultural practices and welcomes the clarification
farm practices". The Municipality supports of secondary uses proposed in the 2012 PPS review
this clarification of secondary uses as it provides.
promotes the protection and vitality of Source: Staff Report PSD-050-12
farm operations.
2.2.2 Oak Ridges Moraine Protection Act and Conservation Plan
The Oak Ridges Moraine is an environmentally sensitive, geological landform in south central
Ontario which covers 190,000 hectares and is one of Ontario's most significant landforms. The
Province of Ontario has recognized the special qualities of the moraine through the passage of the
Oak Ridges Moraine Protection Act, 2001 and the Oak Ridges Moraine (ORM) Conservation Plan in
2002. The Oak Ridges Moraine Conservation Plan provided land use and resource management
planning direction to all levels of government and agencies involved in administering the ecological
and hydrological features and functions of the Moraine.
The Municipality of Clarington, as per the direction set out in the ORM Conservation Plan brought
its Official Plan into conformity with this legislation in June 2005.
Countryside Discussion Paper—August 2013 0
2.2.3 Greenbelt Act and Plan
The Greenbelt Act and Plan, 2005 identified where the Province of
Ontario wants urbanization to not occur, at the same time it provided
protection of the agricultural land base and ecological features and
functions in the countryside (the Protected Countryside in the Greenbelt
Plan). The Greenbelt Plan focuses on the Greater Golden Horseshoe of
which the Greater
"The overall vision for the Greenbelt Plan is " T ;,► +`° "+�
protect[ion] against the loss and fragmentation Toronto Area (GTA)
is a component. ,
of the agricultural land base and supports
Clarington is the
agriculture as the predominant land use"
eastern most municipality of the GTA. The
Source: Greenbelt Plan-Introduction
Greenbelt Plan contains policies that impact
the use of land in the Protected Countryside and provides protection for agricultural operations
and the natural heritage system. The Official Plan Review intends to bring Clarington's Official Plan
policies into conformity with the Greenbelt Plan.
One of the anomalies created by the Greenbelt, which also encompasses the Oak Ridges Moraine,
is the area between the Greenbelt boundary and the designated urban boundary. These lands are
often referred to as the "whitebelt" area. While Clarington has 81 percent of its land area covered
by the Greenbelt, 8 percent of the lands are whitebelt, with the remaining 11 percent being urban
areas. These whitebelt lands are located between Courtice and Bowmanville, and Bowmanville and
Newcastle -- the urban separators mentioned in the introduction of this paper. In addition, there
are also some whitebelt areas north of Newcastle.
2.2.4 Places to Grow Act and Growth Plan for the Greater Golden Horseshoe
Places to Grow Act, 2005 provides the framework for growth
planning in the Greater Toronto and Golden Horseshoe Area. Its
main policies require intensification of the existing urban areas and
build-out of the urban areas prior to any expansion into the
"whitebelt" lands. The whitebelt lands are not protected by the
policies of the Greenbelt Plan. Proximity to the urban areas means
that many view the whitebelt as the logical extension of the urban
areas; however the Provincial Growth Plan, enforced by the Places
'
to Grow Act, sets out density targets for the urban areas. This in y
effect, reduces the land area required for development and
restricts the expansion of urban areas until a number of tests have
been applied and proven. In Clarington, these tests mean that there will be no urban boundary
expansions as a result of this comprehensive review of the Official Plan beyond what has already
Countryside Discussion Paper—August 2013 g
been approved as part of Durham Region's Growth Plan conformity exercise enacted by the
Ontario Municipal Board (OMB) in January 2013.
The whitebelt lands are not necessarily destined to become urban lands. It is up to local and
regional decision makers to plan for and determine the future use of these lands. It is this tricky
and complicated balancing of many interests, economic viability and environmental protection to
achieve overall sustainability that makes land use planning in the countryside challenging.
2.3 Regional and Local Planning Structure
In 1974 the Provincial Government changed the County, Township and separated Towns land use
planning regime in future growth areas in Ontario. The development of the Regional planning
system substantially altered the way land use planning policy was carried out in Ontario.
Clarington, more particularly the two former townships of Clarke and Darlington, the separate
urban areas of the Town of Bowmanville and Village of Newcastle became a single lower tier
municipality within the Region of Durham, the upper tier. Overall land use guidance in the form of
a Regional Official Plan was one of the responsibilities assigned to the upper tier. The Region of
Durham developed a Regional Official Plan which came into force in 1978; the overall structure
established at that time continues to be the basis of the current plan; although many of the policies
have been revised.
The Durham Regional Official Plan (DROP) is the principal planning document guiding land use for
the Region of Durham. Clarington's Official Plan must be in conformity with the Region's, however;
it is more specific and focused on Clarington's unique physical characteristics, socio-economic and
planning objectives.
The Region's Official Plan sets out:
• Urban System including distinct urban areas defined by fixed urban boundaries, which
include Centres and Corridors, Living Areas and Employment Areas;
• Rural System including rural settlements and nodes; large tracts of land protected for
agricultural purposes; and Aggregate Resource Extraction Areas;
• Greenlands System including a continuous greenlands system consisting of Major Open
Space (protected environmentally sensitive areas, valley lands, significant natural features
and some agriculture), the Oak Ridges Moraine and Waterfront Areas; and
• Transportation System including an inter-connected transportation system consisting of all
modes of transportation and designating where major infrastructure in the form of roads,
transit, rail, harbour and airport facilities will be located.
Countryside Discussion Paper—August 2013 g
2.3.1 The Rural System in the Regional Plan
The Rural System constitutes lands where the primary activities are agricultural operations and
resource management and where the agricultural character of the landscape is to be preserved.
Designations within the Rural System include: Prime Agricultural Areas, Rural Settlement, Regional
Nodes and Aggregate Resource Extraction Areas. Lands that are within the Rural System are
generally intended to be preserved in large measure so that they will always form part of Durham's
landscape and scenery.
Overall goals for the rural area within Durham are:
• To protect and maintain agricultural land for food production for future generations, and to
support a healthy and productive agricultural industry;
• To maintain the distinction between the character of urban and rural areas; and
• To identify, manage and protect significant features and resources of the natural
environment in an orderly, efficient and responsible manner.
2.3.2 The Greenlands System in the Regional Plan
The Greenlands System incorporates connected natural areas and open spaces to preserve the
more sensitive parts of the natural environment. Designations within the Greenland System are
Major Open Space Areas, Oak Ridges Moraine and Waterfront. Environmentally Sensitive Areas are
included as an overlay within the Greenland System and includes land and water areas that contain
significant natural features or ecological functions to warrant their identification and protection.
Lands that are within the Greenlands System are to be maintained in their current form and extent,
with as little disruption or encroachment as possible, and with the concept of landscape
permanence. The Greenlands System includes natural features that connect the urban and rural
systems.
The Region of Durham Official Plan was brought into conformity with the Greenbelt Act and Plan by
Amendment 114, in 2006.
2.3.3 Watershed Plans
Watershed planning is a requirement in the ORM and Greenbelt Plans. Watershed Plans are also
endorsed by the policies of the Regional Official Plan and existing Clarington Official Plan. The
Conservation Authorities play a significant role in the preparation of watershed plans because of
the baseline information and data they compile on an ongoing basis about the watershed.
Watershed Plans and sub-watershed plans typically are the basis of Secondary Plans which provide
the urban land use planning framework at a local level. The 1996 Clarington Official Plan
highlighted the need for planning on a watershed basis.
Countryside Discussion Paper—August 2013 10
The goal of watershed planning is to provide a framework to protect, maintain and restore a
healthy natural ecosystem (e.g. the natural heritage system).
A watershed plan recommends how water resources are to be protected and improved as land
uses change, and allows for smaller sub-watershed or site management plans. A watershed plan
can be initiated by any individual, group, provincial ministry, municipality, or conservation authority
for a variety of reasons, such as:
• Future resource extraction threatening water or related In the countryside, the primary
resources; challenge will be to manage
• Future urban development; flows and restore a balanced
• Environmentally sensitive watershed conditions; or flow regime to rivers, creeks
• Rehabilitation of watersheds.
and their tributaries. By
managing flows, the root
A watershed plan often contains the following information: causes of many of the
environmental problems that
• Watershed management strategy; afflict the watershed such as
• Identification of form and function of natural systems; ongoing flooding and erosion,
• Relationship of watershed plan to sub-watershed plans; poor water quality, and
• Watershed issues;
deteriorating aquatic and
terrestrial communities can be
• Plan recommendations; and addressed.
• Implementation plans.
Watershed Plans for all of the major streams and valley systems in Clarington have been prepared
by the Conservation Authorities and used as background information for this Official Plan Review.
2.3.4 Clarington's Official Plan
Clarington's Official Plan for the countryside is a combination of Agricultural Areas which have the
natural system woven through them; and other Open Space System lands that make up the
majority of the countryside. Additional elements of the countryside are settlement areas,
aggregate extraction areas and infrastructure (e.g. transportation) and utilities. The Open Space
System is composed of a number of elements including environmental protection areas which are
more fully explored in the Natural Heritage Discussion Paper; and the ORM natural core and
linkages areas plus the green space lands and waterfront greenway. Figures 4 and 5, pages 73 and
74 are the Existing Official Plan Land Use Maps for Darlington and Clarke.
The basis of the existing Official Plan is the natural heritage system which is composed of the valley
systems and other natural heritage features and functions. All other land uses fit around the
natural heritage system. Clarington's existing Official Plan has already been brought into
Countryside Discussion Paper—August 2013 0
conformity with the Oak Ridges Moraine Conservation Plan and includes many of the elements of
the Greenbelt Plan; however, there are policy adjustments required to bring the Official Plan into
conformity, these are explored in Sections 4 and 5 of this Discussion Paper.
2.3.5 Relationship to Zoning
Zoning By-laws are the site specific implementation of the policies outlined in the Official Plan.
The Official Plan policies are the enabling legislation and the zoning by-laws are the regulations of
what can occur on individual property parcels. As part of the Official Plan Review, there is a
continual checking of the existing zoning by-laws in relationship to the policies being proposed. In
addition, as part of the review, other implementation tools such as Community Improvement Plans,
Corridor studies, Secondary Plans, and other existing regulatory by-laws (e.g. site plan and site
alteration) may be affected or employed to achieve the proposed policies. Once the Official Plan
amendments are adopted, they will be implemented through updates to the Zoning By-law(s) and
other implementing tools.
2.4 Other Provincial Legislation
There are many other Provincial Acts that influence the policies of the local Official Plan with regard
to the countryside; these are taken into consideration as the policies are being reviewed. The
following summarized Acts while not specifically related to land use affect the way in which
activities and operations are carried out in the countryside, thus they influence land use policy.
2.4.1 Farming and Food Production Protection Act
The Farming and Food Production Protection Act, 1998 was
enacted to protect farmers employing normal farm practices
from nuisance court actions over agricultural odours, noises,
dusts, etc. Ontario is not alone in providing nuisance
protection to its farmers. However; because a farmers right to
farm is protected does not mean that there are not conflicts at
the rural/urban fringe; defense against a claim can be a costly
and time consuming. Many in the agricultural community
believe that setbacks and buffers keeping non-farm uses and <
residences away from prime agricultural operations should
apply.
The Farming and Food Production Protection Act is not a
license to pollute. Every farm activity, particularly those
affecting water, land or wildlife, involves legal obligations
including setbacks. To benefit from the limited protection of
the Farming and Food Production Protection Act 1998, farmers
Countryside Discussion Paper—August 2013 12
must be in full compliance with the Environmental Protection Act 1990, the Ontario Water
Resources Act 1990, the Pesticides Act, 1990 and the Health Protection and Promotions Act 1990. In
addition, they must comply with numerous other provincial laws as well as relevant municipal by-
laws. Farmers demonstrate their commitment to environmental responsibility through their
support of Environmental Farm Plans, Grower Pesticide Certification and Nutrient Management
Plans.
Under the common law of nuisance, a person may be found guilty for creating odours, noises,
dusts, etc. that interfere with their neighbours right to the full enjoyment of their property. A
nuisance occurs when one person uses their property in a way that interferes with another's
enjoyment of their property. Farmers facing nuisance complaints over agricultural odour, noise,
dust, light, vibration, smoke or flies have limited protection under the Farming and Food Production
Protection Act.
2.4.2 Nutrient Management Act
The Nutrient Management Act, 2002 was designed to reduce the potential for contamination of
water and other natural resources by some agricultural practices. The Act requires that Ontario's
farmers use nutrients wisely so that nutrients such as nitrogen, phosphorus and potassium will
have minimal impact on the environment.
The Nutrient Management Act establishes the framework for best practices in nutrient
management (particularly in managing manure) and creates standards which give best
management practices the force of law. The Act also provides standards for how nutrients are
stored and how/when nutrients are applied to farmland, so that the likelihood of ground or surface
water contamination can be reduced.
Non agricultural source material (NASM) that benefit the nutrient levels in the soil are available and
can be used to supplement on-farm sources providing they are part of an overall nutrient
management plan. The spreading of sewage biosolids is a permitted activity providing it is part of a
NASM Plan and nutrient management strategy.
2.4.3 Clean Water Act
1 F
The Clean Water Act, 2006 is legislation designed to protect the existing 00 0
and future sources of drinking water in the Province of Ontario. It has
set out the process to establish Source Water Protection Authorities
across Ontario. Clarington falls within the Trent River Source Water
Protection Authority for the lands within the Ganaraska and Kawartha
Region Conservation Authority jurisdictions (most of the former Clarke =_-
Township) and the CTC (Credit Valley, Toronto and Central Lake Ontario)
Source Water Protection Authority for the lands within the Central Lake
Countryside Discussion Paper—August 2013 13
Ontario Conservation Authority jurisdiction (most of the former Darlington Township). Once the
results of the Source Water Protection Authority studies and plans are complete the Municipality
will be required to bring its Official Plan into conformity with the policies and regulations set out in
these documents.
In general, the over-arching policies required to bring Clarington's Official Plan into conformity with
the Clean Water Act for the most part already exist in some form as part of the existing policies.
The areas that will require additional policy protection are well-head and water plant intake
protection zones.
2.4.4 Green Energy Act
Ontario's Green Energy Act, 2009 was created to expand renewable energy generation, encourage
energy conservation and promote the creation of clean energy jobs.
The Green Energy Act treats renewable energy projects by private proponents in a similar manner
to the exemption provided by the Electricity Act for Hydro One and Ontario Power Generation
projects; they are exempt from land use planning controls but must meet the requirements of the
Environmental Assessment Act and obtain the approval of the Ministry of Environment. Renewable
energy projects are allowed in any land use designation provided the conditions set out in the
Green Energy Act and Renewable Energy Applications are adhered to, the proponent must have an
approved contract to feed into the electrical grid from the Ontario Power Authority.
Recent changes to the Renewable Energy Applications process have provided some opportunity for
municipalities to have input into the siting of renewable energy projects.
2.4.5 Aggregate Resources Act
The provincial Aggregate Resources Act introduced in 1990 provides for the regulation and
management of aggregate resources and their extraction in Ontario. Aggregate resources are
defined by the Act as gravel, sand, clay, earth, shale, stone, limestone, dolostone, sandstone,
marble, granite, and rock.
The Aggregate Resources Act requires the minimization of adverse environmental impacts from
aggregate operations, as well as the rehabilitation of excavated lands. Underground aggregate
mining and the extraction of materials other than those identified as Aggregate Resources in the
Act are regulated under the Mining Act.
2.4.6 Conservation Authorities Act
The Conservation Authorities Act(1990) sets out protocols for the establishment and governance of
conservation authorities (CA) in Ontario. Conservation authorities were established to address
environmental damage, erosion and flooding within watershed areas. The Act gives CAs the power
Countryside Discussion Paper—August 2013 14
to put certain regulations in place in their jurisdiction, subject to approval of the Minister of Natural
Resources, such as prohibiting, regulating or requiring the permission of the Authority for
development if the control of flooding, erosion, dynamic beaches or pollution or the conservation
of land may be affected by the development; or for interference in any way with the existing
channel of a river, creek, stream, watercourse, or wetland.
The Development, Interference with Wetlands & Alternations to Shorelines and Watercourses
Regulation, made under the Conservation Authorities Act, affects what and where a Conservation
Authority (CA) can regulate. Ontario Regulation 42/06 requires technical reviews and permits for
development proposals involving activities adjacent to watercourse, wetlands, shorelines and
hazard lands, as well as any activity that causes interference with a watercourse or wetland.
Permissions are only granted if in the opinion of the CA staff there will not be an adverse effect on
the control of flooding, erosion, dynamic beaches or the pollution or conservation of land.
Under the Act, CAs may have the authority to enter onto private property without the consent of
the owner and without a warrant for the purpose of considering requests related to these
regulations, or to enforce a regulation where the authority has reasonable grounds to believe that
a contravention of the regulation is causing or likely to cause significant environmental damage and
that the entry is required to prevent or reduce the damage.
Countryside Discussion Paper—August 2013 15
Section 3
Physical Setting
3. PHYSICAL SETTING
The Clarington landscape was created by the glacial actions of the late Pleistocene period. The
predominant features of the landscape include, the Oak Ridges Moraine along the northern
limit of Clarington plus the Lake Iroquois Beach Shoreline that skirts the northern urban limits
of Courtice, Bowmanville and Newcastle and includes the southern portion of Orono. Both of
these features are remnants of the ice age.
The numerous creeks that have carved their paths and valleys through the glacial till and
overburden generally run from the heights of the Oak Ridges Moraine to the Lake Ontario
waterfront. Many of these streams emerge as seeps and springs in the former Lake Iroquois
beach landform and former shoreline edges and then submerge below the sands to reappear
further to the south, some creeks have their headwaters in the Lake Iroquois Beach shoreline.
Clarington inherited a rich landscape of hills and valleys and varied soils that provide a wealth
of plant cover from the glacial period.
When Europeans began to settle in Clarington in the late 1700's, they found a land abundant
with dense forests. In 1792, Lieutenant Governor Simcoe established the original townships of
Clarke and Darlington. The Townships Lot and Concession grid pattern are a manmade
imposition of "order" over the natural landscape. Forestry was a major industry in the early
191h century; however, it soon gave way to agriculture.
Today, Clarington's countryside is a product of the glacial soil deposits and subsequent plant
growth, and of man's intervention in the form of surveying, forestry and farming. Over the past
two hundred years the countryside has evolved; the numerous visible changes occurring in the
urban environment are not as evident in the countryside. However, the countryside is
continually changing and evolving. Inherently many rural residents understand these changes
as necessary to maintain a productive working landscape (e.g. agriculture, forestry, aggregate
extraction). The introduction of policies without understanding the constraints they impose
and/or the introduction of uses without understanding how they will enhance or detract from
maintaining the countryside as a working and productive place could mean that the qualities
and characteristics many wish to protect could be easily lost. The resources of the countryside
have to be carefully considered and managed sustainably.
The countryside is composed of the natural heritage system, aggregate extraction, agriculture
and rural settlements. Each of these distinct landscapes is described in the following
paragraphs.
Countryside Discussion Paper—August 2013 16
Natural Heritage System
Natural heritage includes geological features and landforms, terrestrial and aquatic ecosystems;
plant species, populations and communities; and all native animal species, their habitats and
sustaining environment. It is a term used across North America and has been adopted by the
Ontario Government for use in Provincial Policy Statement and land use Plans. While the term
simply means the nature we have inherited, the definition essentially describes ecosystems and
the geological landforms that support them. A fulsome discussion on the natural heritage
system, its importance, identification and definition is contained in the Natural Heritage
Systems Discussion Paper released in April 2013.
When the settlers arrived, the majority of Clarington was forested. Today, forest covers 28.9
percent of Clarington which is slightly below the 30 percent recommended target established
by the Durham Region Official Plan. The recommendations of the Natural Heritage Systems
Discussion Paper are that the retention of forests and woodlots adjacent to valleylands and
stream corridors, plus the regeneration of areas will maintain strong linkages across the
landscape.
The distribution of forest cover in Clarington is skewed towards the north end of the
Municipality on the Oak Ridges Moraine, which has the benefit of helping with water retention
and maintains the health of stream headwaters originating on the Moraine. The Ganaraska and
Long Sault Forests having no comparators in the southern portions of the Municipality, where
forest cover is sparse except for narrow corridors along stream valleys, resulting in poor
connectivity and lower capacity to support wildlife populations. Streams originating in the Lake
Iroquois Beach shoreline are challenged to maintain water levels and sustain fish species.
Wetlands cover 8.7 percent of Clarington's total land area. The Natural Heritage Systems
Discussion Paper suggests that 10 percent or more should be wetland. However, the amount of
wetland in a given area is, to a large degree, based on soil types and precipitation patterns. A
recent study (Ducks Unlimited, 2010) notes that for Durham Region, the pre-settlement
wetland cover was 12.6 percent and that by 2002 this had decreased to 7.8 percent. Some of
this loss undoubtedly occurred in Clarington, as the draining of wetlands was a common
practice in agricultural and urban areas. Agriculture and wetlands continue to compete for the
same lands, as such, when opportunities arise to restore the remaining wetlands, they should
be encouraged.
Most of the wetlands in Clarington are composed of forest swamp as would have likely been
the case historically. Large wetlands include the marshes along the Lake Ontario shoreline, and
the seeps/springs along the Lake Iroquois Beach Shoreline. Most have been identified as
Provincially Significant Wetlands and have protection through Provincial Policy.
Countryside Discussion Paper—August 2013 17
PINK
mz
Photo looking north-easterly toward the Bondhead Bluffs from Lake Ontario. Photo courtesy of GRCA.
Beach and bluff habitats are created by very specific conditions, the presence of which dictates
the natural cover and distribution of these native ecosystems. In Clarington the cover figure for
these is only 67.6 ha, or 0.11 percent of the Municipality. In general the native beach
vegetation communities are not suitable for agriculture so they are left at the edge of fields
along the Lake. Providing larger setbacks from the bluff edge will help with the protection of
natural beach and bluff communities.
Open water, primarily in the form of ponds and portions of rivers without tree cover, makes up
only 0.31 percent of the Clarington landscape. Much of the open water is made up of man-
made ponds as it is difficult to distinguish these from natural ponds. Many of these ponds have
been created by farmers for use as irrigation sources, cattle water sources or in urban areas as
stormwater management.
Based on the 2008 air photos, meadow habitats cover 8.1 percent of Clarington's land area. The
Natural Heritage Systems Discussion Paper defines meadow habitats as open grassland,
grassland with minimal tree cover (savannah), and early successional communities such as
thickets. Most meadows in Clarington are old field habitats, areas that historically would have
been forest, but which were at one time or another cleared of tree cover and farmed. A large
percentage of the area mapped as meadow is fallow field which may be reclaimed for
agriculture.
Overall the natural heritage system in Clarington covers 38 percent of the Municipality.
Provincial, regional and local policies seek to protect and enhance the natural heritage system.
To ensure balance we need to be strategic about additions, targeting critical linkages and
Countryside Discussion Paper—August 2013 1g
under-represented habitats rather than just adding land mass. The Watershed Management
Plans prepared as background information to this Official Plan Review recommend
enhancements to the natural heritage system and provide specific directions as to how and
where the natural heritage system could be grown for the greatest benefit to the overall
system. However, within the context of the countryside, resource driven economic activities
such as aggregate extraction and agriculture have to be equally considered.
Aggregate Extraction
Created by the retreats and advances of the glaciers, Clarington's landscape has two distinct
geological formations. The great range of morainic hills crossing the northern portion of the
Municipality from east to west and the old beach of Lake Iroquois which can be identified by its
shore cliffs and gravel ridges to the north of today's urban areas. These glacial deposits are rich
aggregate resources that continue to be used for economic prosperity.
R JU
Aggregate resources are the sand, gravel, clay, earth and bedrock that underlie our natural
landscape. They play a significant role in the everyday life of all Ontario residents. They are an
integral part of our roads, sidewalks, sewers, as well as our homes, offices, hospitals, schools
and shopping centres. Aggregates are critical ingredients in a number of manufactured
products such as glass, coated paper, paint and pharmaceuticals and several manufacturing
processes, including the making of steel, aluminum and plastic.
Countryside Discussion Paper—August 2013 19
Aggregate is obtained from unconsolidated deposits of sand and gravel, or by crushing quarried
stone. The material is utilized by the construction industry in all types of building and road
construction. Potential aggregate extraction areas cover 3800 ha or 6.2 percent, while active
existing operations occupy 925 ha or 1.5 percent of Clarington. Aggregate resources are
typically found in the area of natural heritage features on the Oak Ridges Moraine, the Lake
Iroquois Beach landform, and within agricultural areas. As such the extraction of aggregate is
highly regulated and sometimes controversial. Conflict exists between the aggregate extraction
industry and those wishing to protect and preserve natural heritage areas and agriculture lands.
Areas of potential aggregate extraction have been identified and well documented within the
current Official Plan (Map G). The criteria set out in the Official Plan for the approvals process
and operations have served Clarington well.
St. Mary's Cement has proposed and is exploring the possibility of a mine, off-shore in Lake
Ontario. The proposal is being reviewed and considered by the Provincial regulating agencies.
Lake Ontario is beyond the land use controls of the Official Plan and the Municipality. However,
any off-shore mining operations will have an impact on the length of time and the extent of the
on-shore facilities at St. Mary's.
Agriculture
The majority of the countryside of
Clarington is used for agricultural "Agriculture in the GTA has the following
production. Agricultural production is a advantages: an abundant fresh water supply, heat
reflection of the capability of the soil in units conducive to high crop yields, proximity to
combination with the physical markets and consumers, an extensive
topography, water, stoniness, richness transportation network, and proximity to research,
of the nutrient regime, management of development and learning facilities.
the resource and weather conditions. Aside from these physical advantages, good
The land area of Clarington devoted to business management also plays an enormous role
agriculture is 47.2 percent. There are in the competitiveness of farming in the GTA."
additional lands used for farming in
urban areas which will be lost once Source: GTA Agricultural Action Plan
urban development occurs on these
lands.
Agriculture is anything but homogenous; there is a great deal of variability in commodities and
production. In Clarington, there are large modern dairy farms and cash crop operations, tender
fruit production, agri-tourism and small market garden operations. Farms range from over 500
hectares (on a number of properties) to 2 ha intensive greenhouse operations. The total
number of farms in Clarington in 2006 was 437, with the total area of farms reported by
Countryside Discussion Paper—August 2013 20
Statistics Canada as 33,074 hectares, slightly higher than the 47.2 percent land area; however
farms include some environmental protection lands and as stated previously, some farms
remain within the urban area.
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Enniskillen Valley, Photo Courtesy of CLOCA,2008
The crops grown in Clarington cover a wide range and differ from year to year. The selection of
crops will depend on the rotation farmers employ to manage and replenish soil nutrients and
commodity prices. Typically corn, soybeans, and canola predominate as cash crops. Other field
crops include hay, alfalfa, clover, wheat and oats. Tender fruit crops grown in Clarington
include apples, strawberries, blueberries. Vegetable crops that are grown in quantity to supply
external markets are sweet corn and cabbage-family varieties. Nursery products include sod,
nursery stock, Christmas trees and maple trees used in the production of maple syrup. Other
specialty crops include greenhouse flowers and vegetables, and niche crops (i.e. bird seeds).
With regard to livestock, Clarington has dairy, beef, hog, sheep/goat and poultry, some farms
being a combination of animals and crops. In addition there are a number of horse farms and
specialty farms for alpaca and mink.
Countryside Discussion Paper—August 2013 21
Part of the expression of agriculture on the landscape is the composition of the cultivated and
cropped fields, farm structures and hedgerows that residents visually identify with. This visual
impression is very important and at the basis of the character that residents and visitors
attribute to Clarington's countryside.
In Clarington there are micro-climate areas along "The great factors to consider in the matter
the Lake Ontario shoreline south of Highway 401 of agriculture are the men and women
and in the area known as the "Bowmanville Plain" engaged in it, the soil upon which they
being the Lake Iroquois Beach lands between work, the climate of their region, the forms
Bowmanville and Newcastle. These areas have of rival like surrounding them, and the
some of the highest yield lands on a per acre markets for their produce."
basis for Ontario and are also the areas where Source: The Townships of Darlington and
tender fruit can be grown. Clarke, page 440
At one time all housing clusters in Clarke and Darlington Townships were rural settlements.
Four of these settlements have grown beyond their rural companions into urban areas
(Newcastle, Bowmanville, Courtice and Orono) and are addressed in the Growth Management
Discussion Paper. These four urban areas cover 11.4 percent of Clarington's land area.
Clarington's hamlets collectively occupy 1.9 percent of the land area. Most hamlets developed
as agricultural service centres and contain churches, parks, community halls, some have a
convenience store or coffee shop. Since the 1970's, in response to the demand for a rural
lifestyle and improved transportation, most of the hamlets have undergone some form of
expansion and new development. During the preparation of the first Official Plan in the early
1990's, time was devoted to how development in the hamlets would occur and the limits to
development. The majority of the rural population live in the hamlets.
There are many other collections of homes and facilities in the countryside. In addition to the
thirteen hamlets there are nine rural clusters and six country residential subdivisions. The
specific land use issues with regard to settlements are addressed in Section 5 of this Discussion
Paper.
Countryside Discussion Paper—August 2013 22
Additionally, there are individual farmsteads related to the farming operations; however as
agriculture has evolved the need for farmers to live in close proximity to the lands they work
has become less important than it was at one time. This has lead to many farmsteads being
occupied by residents that may not necessarily work in the countryside.
Farmsteads, rural settlements and hamlets are an integral part of the countryside and cater to a
base population; however major growth beyond what currently exists is not anticipated or
encouraged. Today, there are very limited numbers of vacant lots remaining in the hamlets and
countryside for residential development. The Greenbelt Act and Plan constrains expansion of
the hamlets; for the most part they will remain much the same as they currently appear.
Countryside Discussion Paper—August 2013 23
Section 4
Rural Land Uses
4. RURAL LAND USE ISSUES
The countryside is made up by the physical characteristics described in the previous section and
influenced by the symbiosis and competition between different land uses set out in the Official
Plan. Some land uses compete for the same limited physical resources while others are
complementary. Different land uses are necessary for economic prosperity and social well-
being; they are part of the overall mosaic that makes Clarington sustainable.
The 1992 Background Papers for the existing
Official Plan identified issues such as
Environment fragmentation, incompatible uses, rural
residential expansion and non-farm uses as
some of the issues to be addressed at that
time. Stringent policies constrained residential,
Social Economic commercial and industrial growth to the urban
areas, conserving the countryside for its
resources, primarily being the natural
environment and agricultural lands.
The policies of the Official Plan have for the most part been successful in achieving the goals
and targets outlined; however, there is new legislation to be adhered to, some issues that
persist and new challenges in the countryside. The following discussion of issues is not
specifically related to any one land use designation per se, rather the issue has been identified
as part of the background preparation work for the Official Plan Review, it is introduced,
discussed and policy directions suggested.
Natural Heritage System
Clarington's first Official Plan policies adopted in 1996 set a new standard for the protection of
natural heritage features in Southern Ontario. Almost twenty years later these policies are still
considered pioneering.
There are many diverse natural heritage features and their functions that collectively comprise
Clarington's existing natural heritage system (NHS). A goal of the Official Plan is to protect the
NHS from incompatible development. Some of the best stewards of the NHS are farmers. The
NHS weaves its way along the stream valleys through the agriculture fields of the countryside.
In most cases, these environmental lands serve a practical function to an agricultural operation
assisting with wind and erosion protection, they may also be a source of firewood, cedar
posts/rails and maple syrup.
Countryside Discussion Paper—August 2013 24
Environmental Protection land is one component of the Open Space System identified in the
Official Plan Maps A, C and D. It should be noted that many farms are not just affected by the
proposed refinements to the NHS they may also be wholly located within the Open Space
System. The other components of the Open Space System are described in more detail later in
this Section.
Proposed Policy Direction
The Natural Heritage Systems Discussion Paper released in April 2013 contains a number of
proposed policy directions. It includes the current approach, the methodology of how natural
features and functions are identified and proposes how the system is to be refined and
protected. The Maps for the proposed Natural Heritage System are the basis for Figures 6 and
7, the Proposed for Discussion Land Use Map A on pages 75 and 76.
4.1.1 Open Space System
The Open Space System is comprised of environmental protection areas (the proposed natural
heritage system), the ORM natural core and linkage areas, green space, and waterfront
greenway. Combined these elements provide a continuous system of open space woven
through the countryside. The Open Space System laces its way into the urban areas and down
to Lake Ontario tying the overall landscape together as a green tapestry. The Open Space
System defines the boundaries of distinct urban areas, enhances ecological health, and protects
environmental features and their functions including the Lake Ontario shoreline. The Open
Space System contains viable farmland, and recreational areas that contribute to the quality of
life of residents. Its natural heritage features and functions contribute to the sustainability of
the countryside and Clarington.
Except for within the features of the natural heritage system, the Open Space System is used
for agriculture and farm and farm-related uses are allowed. The distinction is that the Open
Space System elements (ORM linkage, green space and waterfront greenway) can also be used
for recreational uses as noted in Section 4.4 below.
Agriculture
Agriculture is identified in the Economic Base
and Employment Lands Discussion Paper as a
major economic driver of Clarington's economy.
The importance of agriculture is not confined to
the agricultural sector but includes various ., I
types of agri-businesses, food retailing and -_
processing, and agri-tourism. The spin-off
employment and economic impact of
Countryside Discussion Paper—August 2013 25
agriculture are felt far beyond the borders of Clarington and Durham Region (see Appendix 3).
The average area of a farm in Clarington is reported by Statistics Canada as 76 hectares.
Although, the number of farming operations has been in decline their size is increasing. Farms
are business enterprises, often with ownership of multiple properties and rental of lands held
by non-farm property owners. Overall, since 1996 when the Official Plan came into being there
has been a slight decrease in the amount of land being farmed, due to the conversion of
agricultural lands within the urban boundary to development, the retirement of poorer soils,
conversion to natural habitat, and the development of infrastructure. There will continue to be
a decline in lands currently being farmed as the remaining agriculture lands within urban
boundaries are converted to other uses. In addition the construction of infrastructure projects
on agricultural lands such as Highway 407, Clarington Transformer and proposed renewable
energy projects; have a number of impacts such as removing lands from production, affecting
adjacent lands and in the case of Highway 407 creating remnant parcels that may be converted
to other uses, such as natural heritage.
4.2.1 Economic Impact
Agriculture is an important part of the economy in Clarington. A significant portion
(approximately one third) of agricultural economic activity for Durham Region takes place
within Clarington. The importance of agriculture is not just confined to the agriculture lands and
farming. It also includes a number of businesses in other areas such as food manufacturing,
food retail, and agri-tourism, and therefore is also significant as an economic cluster.
The importance of protecting the
soil, in combination with the
micro-climatic and lake effects,
contiguous parcels and the
amount of land required to
- leis
A maintain the economic viability of
g
Aftk a
riculture as the number one
f'`� '� economic sector in Durham
-) — cannot be overstated. Prime
ton
agricultural lands in Clarington
� g g
are protected through Offical
` . It Plan designations and zoning.g g
is important that adequate buffering and transition lands surrounding farm operations
(particularly livestock farms) be provided to help existing farms remain viable and operate
without additional undue impediments. The issue of local food security and capability to feed
the residents of Durham are also factors to be considered.
Countryside Discussion Paper—August 2013 26
Proposed Policy Direction
The existing Official Plan policies recognize the importance of other industries to the economic
well-being of Clarington, specific recognition of the importance of the agricultural sector in the
local and regional economy is recommended.
4.2.2 A Single Agricultural Designation
The number one asset of any agricultural operation is the land base and the soil. One of the
goals of the Regional Official Plan is to conserve agricultural resources. Traditionally, the Region
has designated agricultural lands for protection in their Official Plan based on the soil capability
for agriculture (Canada Land Inventory) information. Blocks of land containing soils with a high
potential for agriculture were designated Prime Agriculture in the Regional Official Plan in
accordance with the PPS. Lands designated included the extensive tracts of class 1 to 3 soils in
the Region as well as contiguous areas of farming on class 4 soils.
The DROP previously included two Agricultural Area designations: "Permanent Agricultural
Reserve" and "General Agricultural Area". The two designations, for the most part had been in
place since the original Regional Official Plan was approved in 1978. In 2006, Amendment 114,
the Region's Greenbelt Conformity exercise, merged the two designations into one land use.
This designation is consistent with the PPS definition of "prime agricultural area".
In the past, there have been implementation issues as the prime agriculture area was for food
production. Horse stables, sod and tree farms and other non-food production farms were
limited to the general agriculture area. When a farmer wished to change a commodity group
conformity issues were created due to the different agricultural designations that were limiting.
Prime
Agricultural
Area Prime
Agricultural
R Area
General •
Agricultural'O •
Areaw Urban �' Urban
11 T
• ireal • Area'
• •
Existing Official Plan Designations Proposed For Discussion Designations
Countryside Discussion Paper—August 2013 27
Proposed Policy Direction
Merging Clarington's two Agricultural Area designations into one land use designation would
bring the Official Plan into conformity with the PPS and Region's Official Plan. It would also
assist in securing the protection of Clarington's agricultural land base, by forming a large,
continuous designation that preserves large tracts of land suitable for agricultural uses. The
merged Agricultural designation would allow for the most part the full range of uses permitted
by the current "general agriculture" designation, with the exception of major recreation uses.
Figures 6 and 7 on pages 75 and 76 show the Proposed for Discussion Land Use Maps A.
4.3 Farms and Farm-related Uses
Farms and farming occurs on the land regardless of the labels, mapping and designations
denoted on maps and in policy documents. Farms can occur in any land use designation,
typically they are the underlying use in all urban and employment areas until development
occurs. As part of the two tier
system Clarington had been
targeting certain uses for less
productive soil classes; commercial
kennels, greenhouses, sod, tree,
and horse farms; however the use
of the land is a response to its
productivity and occurred without
i
triggering land use planning ;
approvals. Agriculture-related and
accessory farm-related industrial/commercial uses assist farmers in carrying out their business
operations and help maintain the viability of farms in the ever-changing global market place.
4.3.1 Accessory Farm Uses (Agriculture-Related Uses)
Typically, an accessory use that is part of an agricultural operation is already permitted. Some
additional uses that are not accessory but rather secondary could hamper and impede typical
farm practices and operations. The clarification that has been provided by the 2012
recommended changes to the PPS specifying that secondary uses can only be agricultural
related will assist with being able to make adjustments when the Zoning By-law is being
updated to address specific uses that are viewed as being of benefit.
The DROP provides a general framework to guide local municipalities in their plans and detailed
policies related to accessory and secondary uses based on scale, number, and potential impacts
on surrounding uses. The DROP general framework, plus the PPS proposed definitions provide
the basis for Secondary Uses however it also limits such used to being agriculture related.
Countryside Discussion Paper—August 2013 28
Some rural residents may wish to introduce secondary uses that are not specifically related to
or beneficial for adjacent agricultural operations. These secondary uses may be more in the
nature of industrial uses, tourism activities and/or special events. While this type of activity
may be of benefit to the individual property owner/organizer and could enhance tourism
opportunities they can create conflict with proximate agricultural operations.
Some activities or events are short-term in duration and have minimal impact on the land and
could be allowed by permit. Permits can have specific conditions that limit the length of time
and scale of an activity such that impacts on surrounding agricultural uses could be addressed.
However, the use must be recognized in the zoning of the land, for the Municipality to be able
to issue a permit that complies with the zoning. As such, secondary uses will require specific
permissions within both the Official Plan and the zoning.
The 2012 Review of the PPS proposed the addition of The Official Plan allows uses that are
the following additional language to help clarify accessory to agricultural operations,
secondary uses; "agricultural uses, agricultural- such as retail stands for the sale of
related uses, on-farm diversified uses and normal farm produce and a second dwelling
farm practices should be protected and promoted" to accommodate farm help.
Further, revised definitions are proposed as follows: Accessory farm uses have to be
subordinate or incidental to the
"Secondary uses" is replaced with "on-farm principal farm use. As such,
diversified uses". The definition for on-farm
severances for accessory uses are not
diversified uses has been revised to directly relate the
permitted. Farmers have to carefully
use to the farm operation. The proposed definition
consider the investment they are
means small scale uses that are secondary to the
making in a retail stand as they are a
principle use of the property and help support the
permanent fixture on the farm which
farm. On farm diversified uses include, but are not may be an asset or detriment in the
limited to, home occupations, home industries, agri-
future.
tourism uses, and uses that produce value-added
agricultural products from the farm operation". Other accessory farm uses are home
occupations/businesses contained
within residential dwellings and small-scale home industries normally contained within existing
farm out buildings, provided such uses do not alter the principal use of the property for
agriculture.
Proposed Policy Direction
The current policies of the Official Plan are sufficiently restrictive to protect the agricultural
resource while allowing for farmers to have accessory uses specifically related to their farming
operation.
Countryside Discussion Paper—August 2013 29
Agri-tourism uses, such as farm vacation homes, cottage wineries, bed and breakfast
establishments, pick-your-owns, and farm tours that offer the "farm experience" are
considered to be consistent with the intent of the Official Plan policy regarding secondarry uses.
These uses give a farmer the opportunity to supplement income derived from the farm, they
must be incidental or subordinate to the principal agricultural use. They are permitted only if
they are small in scale and directly related to, or exclusively devoted to, the existing farm
operation. Each proposal is evaluated for conformity with the intent of the Plan when being
reviewed for zoning conformity and site plan. The decision-making framework included in
Appendix 1 will be used to assist in the evaluation of applications for secondary uses.
4.3.2 Farm-related Industrial and Commercial Uses
In the proposed changes to the PPS, agricultural-related uses have been revised to strengthen
farm operations. "Agricultural-related uses" is defined as "industrial and commercial uses that
are directly related to the farm operation (they can be a big or small operation) but have to
support agriculture and are required to be in close proximity to farm operations, and provide
direct service to farm operations as an exclusive activity". An example of this type of use is the
packaging and processing plant at Algoma Orchards.
Where farming occurs and is outside of Environmental Protection designation, the Official Plan
permits, as-of-right, farm-related industrial/commercial uses including grain drying, bulk
storage and sorting of produce, farm cooperatives, livestock sale barns, abattoirs, animal
husbandry services and farm machinery sales and repair. These facilities directly service
agriculture, and require locations in proximity to farm operations. The Regional and Clarington
Official Plans permit the consideration of severances for agri-business uses of an industrial
nature provided that it does not result in the creation of a non-viable farm parcel.
Farm-related industrial/commercial uses are to be subordinate to and maintain the rural
character and avoid conflicts with adjacent agricultural uses, such that:
Countryside Discussion Paper—August 2013 30
• The potential for farm-related industrial/commercial uses to evolve into uses that may
not be compatible in rural areas is minimized;
• Enforcement of the types and source of goods/farm produce that would be sold;
• Permanent versus seasonal farm markets; and
• The fragmentation of the rural land base.
Proposed Policy Direction
The current policies of the Official Plan are sufficiently restrictive to protect the agricultural
resource and yet permissive enough to allow farmers to have industrial/commercial uses
specifically related to their farming operation. The development of "stand-alone" farm-related
industrial and commercial uses are directed towards employment lands or existing
appropriately zoned parcels in the rural area, if they are not part of a farm.
An accessory commercial use being considered is the storage of Recreational Vehicles (RV) in
existing barn structures. Storage could be within existing barns that dot the countryside; this
policy would also achieve the goal of protecting these cultural heritage resources. The intent is
to allow RV storage operations in structures that existed prior to 2000 and not purpose built for
this commercial use, the scale would be limited to the size of the structure.
Another secondary use, being considered, are small scale landscape contracting and retail sales
which are secondary to farms that focus on nursery and horticultural crops. Stand-alone
landscape contracting uses are addressed in Section 4.4.6.
As with other secondary uses it would be best to evaluate each proposal for conformity with
the intent of the Official Plan by requiring that they proceed through a rezoning process rather
than providing general approval. The Zoning By-law review will address the scale of operations
and other restrictions necessary to not impede normal farm practices on adjacent farming
operations.
4.4 Rural Non-farm Use Policies
4.4.1 Open Space (recreational uses)
As part of the countryside there are areas where the soil maybe less productive, the growing
conditions not as favourable, or the area is separated from other prime agricultural lands, or
surrounding uses challenge farm operations. These lands are designated as open space and
have some additional allowed recreational uses plus all of the agricultural uses (noted above).
The basis established in the Regional Official Plan for prohibiting active recreational uses on
prime agricultural lands was to ensure that where prime agricultural areas predominate they
can be better protected from the interference by non-agricultural uses.
Countryside Discussion Paper—August 2013 31
The distinction of major recreational uses within rural open space areas is detailed in
Clarington's existing Official Plan and allowed in the green space and waterfront greenway
areas. The policies allow for recreational uses, such as golf courses and compatible tourism
uses, by Amendment to the Regional and local Official Plan.
4.4.2 Golf Courses
Currently the Clarington Official Plan allows for golf
courses in Agricultural areas provided they meet a
number of tests. Typically golf courses were not
allowed on first class agricultural soils. Golf courses
are also allowed in the green space and waterfront
portions of the Open Space System. Golf courses
may be considered by amendment to both the DROP
and Clarington Official Plan and have detailed
policies have been included to guide development.
The current restriction of golf courses on the Oak
Ridges Moraine in Clarington's Official Plan plus the
merging of the "general" and "prime" agricultural
designations means that this policy needs to be re-
examined. There have been significant
advancements in golf course design and maintenance/management practices, as well the
anticipated demand for golf course means the criteria allowing them should be updated. The
new Ontario Pesticides Act and regulations regarding cosmetic pesticide use, plus the
restriction on site alteration in the Greenbelt Plan are in keeping with the advances made in
golf course design and development.
Proposed Policy Direction
The change to a single agricultural designation will mean the restriction of golf course
development from the prime agricultural lands designation (see Section 4.2.2). Golf courses are
allowed in the Green Space and Waterfront Greenway designations. The ORM amendments to
the Official Plan restricted golf courses; however, with new and updated criteria they could be
developed in the Protected Countryside Green Space lands. Appendix 2 provides an overall
context for the discussion of golf courses and proposed policy directions for how golf courses
should be developed.
4.4.3 Tourism Nodes
Canadian Tire Motorsport Park (formerly Mosport Park) and Brimicombe (formerly Kirby Ski
Club) are Regional Nodes in the DROP and Tourism Nodes in Clarington's Official Plan. In
Countryside Discussion Paper—August 2013 32
addition, Tyrone Mill, Bowmanville Zoo, Jungle Cat World and the Ports of Darlington and
Newcastle are local tourism nodes in Clarington's Official Plan. The existing policies permit the
existing uses and expansion based on criteria established for the different tourism nodes.
Some of the local tourism nodes are further defined in Secondary Plans.
Proposed Policy Direction
Clarington's policies may require updated wording to reflect the intent of the Regional Official
Plan amendment which removed the need for a Regional Official Plan amendment for the uses
at Canadian Tire Motorsport Park to be expanded and diversified.
4.4.4 Special Policy Area
When the 1996 Official Plan came into being, the legal agreement for the Port Granby Waste
Management Facility, identified as Special Policy Area A had not been negotiated. Much has
happened in the past 15 years. In 2001, the legal agreement came into force, and since then
the Environmental Assessment has been completed and approved. The Canadian Nuclear
Safety Commission has issued a license for the new waste facility and construction is beginning.
In 2010 an End Use Concept Plan was adopted by Council for the residual federal lands.
Countryside Discussion Paper—August 2013 33
Proposed Policy Direction
The policies set out for the Port Granby Special Policy Area A in the Official Plan should be
updated to reflect the actions that have been taken and to lay out the vision expressed in the
End Use Concept.
f 4 _
Lake Onun0
't
Y 0 115 [ Y.1
4.4.5 Gas Stations and/or Gas Bars
The DROP Amendment 114 deleted the policies that permitted the consideration of gas stations
and/or gas bars in the Agricultural Areas and the Major Open Space System by amendment. The
Region concluded that there does not appear to be demand for establishing such uses in the
rural area, given that no amendments permitting them have been approved in the past 15
years. It also concluded that land uses such as gas stations and/or gas bars should be directed
to settlement areas, where potential land use conflicts with resource-related activities can be
minimized.
Proposed Policy Direction
Clarington's policies will be revised to bring them into conformity with the Region's policies.
4.4.6 Other Non-farm, Non-residential Uses
In addition to golf courses, Regional and local Tourism Nodes, aggregate extraction, and gas
stations/gas bars, the DROP currently provides for the development of other non-farm related,
Countryside Discussion Paper—August 2013 34
non-residential uses within the rural area, outside of rural settlement areas on lands
appropriately zoned. Such uses include:
• Cultural, health and community facilities;
• Cemeteries; and
• Secondary Agricultural and Non-Agricultural Uses.
Cultural, Health and Community Facilities:
Cultural facilities (for such purposes as education, the arts, heritage, religion), health facilities,
and community facilities, are encouraged to locate within Urban Areas. However, such uses are
also permitted in the countryside, outside of settlement areas, within Green Space and
Waterfront Greenway designations.
The intent was to permit traditional community uses of a "single-purpose" nature on a limited
basis. However, as institutional organizations seek more efficiencies in the use of land and
facilities, such uses have expanded to be multi-purpose. Churches and schools, for example,
are being expanded, used for day care facilities, and organizations are using such facilities "after
hours" for meetings, etc. The scale of such uses has the potential of impacting surrounding
rural areas, with activities and traffic throughout the day and into the evening.
Proposed Policy Direction
Such facilities, which are normally small scale are evaluated on a site-by-site basis, based on
planning merits, through an amendment to the zoning. Conditions can be imposed in the
zoning to limit the size of any expansions or change of use of facilities. The Greenbelt Plan adds
an additional caveat that expansion and/or conversions have to bring a use more into
conformity with the intent of the Greenbelt Plan.
Cemeteries:
The Clarington Official Plan recognizes existing cemeteries and expansion is permitted in all
designations. New cemeteries require an amendment to the Official Plan, they are not
permitted in Agricultural Areas. In addition, within the Oak Ridges Moraine and Greenbelt, new
cemeteries are only permitted in the Protected Countryside and Settlement areas, identified in
the Official Plan, subject to the requirements of the natural environment and resource
management policies of the Greenbelt Plan (see Figure 8 for the Greenbelt Schedule, page 77).
Proposed Policy Direction
Clarington's policies are in general conformity with these policies but the addition of the
Schedule showing the Greenbelt Protected Countryside is necessary.
Countryside Discussion Paper—August 2013 35
Secondary Agricultural Uses:
Secondary uses on agricultural lands that are allowed are forest, fish and wildlife management,
conservation, infrastructure, aggregate extraction and existing uses. Severances of agricultural
lands for secondary uses are not allowed. In addition, some other uses have been interpreted
as being permissible.
• Veterinary clinics have been interpreted as being permissible secondary uses on
agriculture lands. Kennels and other forms of animal husbandry are also acceptable
providing they meet the appropriate zoning and kennel by-law requirements.
• Landscape industry uses which consist of businesses associated with horticultural
maintenance and construction are encouraged to locate in "dry' Employment Areas,
especially if they are large scale and include retail aspects. Small-scale landscape
industry uses may be permitted on existing lots of record outside of agriculture areas in
the green space designations by amendment to the Official Plan.
Proposed Policy Direction
Secondary agricultural uses could be allowed by amendment to the Official Plan based on the
criteria set out in the decision-making framework (see Appendix 1). The proposed framework
for decision-making would help screen out proposed secondary uses that are not compatible.
The framework is being reviewed with the Agriculture Advisory Committee of Clarington.
Non-Agricultural Secondary Uses:
Non-Agricultural Secondary Uses in the countryside can be beneficial to the individuals that are
seeking to have such a use but can also be detrimental to others living and working in the
countryside. There are locations which are more appropriate than others.
• Contractor Yards, Auto Mechanics and similar uses are encouraged to seek out
appropriately commercially zoned properties, or locate in Employment Areas. They may
be allowed on existing lots of record in the green space designations by amendment to
the Official Plan, provided they are small scale, visually screened and do not create
noise, dust, odours that could impact abutting properties.
• Recurring large scale Special Events such as music festivals, arts and crafts shows/sales,
and conventions are encouraged to use facilities that are designed to accommodate
them (e.g. parks, community halls). Traffic management/parking, health and safety,
emergency and evacuation plans must be addressed well in advance of the special
event. Small scale, one-time, limited duration Special Events may be allowed by permit.
• Other Secondary uses in the green space designation may be acceptable provided that
they do not impede surrounding agricultural operations as outlined in Appendix 1.
Countryside Discussion Paper—August 2013 36
Proposed Policy Direction
Secondary non-agricultural uses are encouraged locate on properties that are appropriately
zoned. They could be allowed by amendment to the Official Plan based on the criteria set out
in the decision-making framework (see Appendix 1). The proposed framework for decision-
making would help screen out proposed uses that are not compatible in predominately
agricultural areas. The framework is being reviewed with the Agriculture Advisory Committee of
Clarington and as part of the public information sessions for this Discussion Paper.
Rural Consent Policies
A number of rural consent policies exist to allow for residential uses of rural lands in keeping
with the traditions of agricultural enterprises. In addition to allowing for minor adjustments,
policies addressing retirement lots, a second farm help dwelling and surplus dwelling
severances when farms are being consolidated are separate policy areas as noted below.
The consideration of "minor adjustment of lot lines, provided that non-viable farm parcels are
not created, agricultural land is not fragmented and agricultural activities are not adversely
affected" is allowed. The intent of this policy is to enable minor adjustments to lot lines to
create or alter easements or rights-of-ways, correct title and rectify problems created by the
encroachment of buildings, structures, or individual private water supply or private sewage
disposal facilities on abutting lots. In these circumstances, a relatively small amount of land
area is involved, and only minor (small) adjustments to lot lines are required.
4.5.1 Retirement Lots
For farm parcels of 40 hectares a one-time severance of a retirement lot was previously
allowed; however, since 2005 the PPS no longer permits the severance of a farm retirement lot
from a farm holding.
Proposed Policy Direction
The policy regarding retirement lots
should be deleted from the Clarington
Official Plan.
4.5.2 Second Dwelling
The DROP and Clarington Official Plan
allow for a second dwelling to ,
accommodate persons employed full-
time on the farm, where the size and
nature of the operation warrants
Countryside Discussion Paper—August 2013
additional employment. Applications to sever such an accessory dwelling are not allowed. In
addition, on the Oak Ridges Moraine, the secondary dwelling may only be a temporary, mobile
or portable unit.
The investment in a permanent dwelling must be carefully considered since the unit cannot be
severed. Often, second dwellings force a property owner to become a landlord when the
second dwelling is no longer required for full-time farm employment. The size and nature of
farming operations that warrant additional on-site employees have become a rarity; where
they are warranted it is often for seasonal help who are commonly accommodated in
temporary, mobile or portable units.
Proposed Policy Direction
Extend the policy established for the Oak Ridges Moraine to the remainder of the rural area,
restricting secondary dwellings to a temporary, mobile or portable unit.
4.5.3 Surplus Farm Dwellings
With the increase in farm size, many farmers are purchasing abutting and non-abutting but
proximate properties and do not wish to retain the residential unit as part of the holding. The
DROP and Clarington Official Plan provide conditions when severance of a surplus dwelling from
an abutting and/or non-abutting farm are considered by amendment. This policy allows
farmers to obtain additional non-abutting lands for farming without having to become
residential landlords and encourages consolidation of farms.
Proposed Policy Direction
The existing policy requires a minimum amount of land (generally less than 0.6 ha) to be
retained with a surplus dwelling and sets out other criteria. However, additional criteria for the
severed parcel would be to allow the parcel size to increase to include features that cannot be
farmed (e.g. well, septic, building foundations) while ensuring that the maximum size remains
less that 2 ha. An additional policy stating that within the Protected Countryside of the
Greenbelt Plan Area, the dwelling was in existence as of December 16, 2004 is required for
conformity.
4.5.4 Severance for Heritage Structures
When the Regional Official Plan was being reviewed the Clarington Heritage Committee
requested consideration of a policy that would permit the severance of non-agricultural rural
parcels to accommodate the relocation of heritage structures threatened by urbanization and
deemed to have architectural or historical significance.
Countryside Discussion Paper—August 2013 38
The DROP review concluded that the preferred locations for such heritage structures are urban
areas, followed by hamlets. While the Regional and Clarington Official Plans encourage the
preservation and reuse of cultural '
attributes, specific policies to
permit the relocation of heritage
structures to rural severed lots or a
heritage subdivision were not 'a
deemed the appropriate response ; �!'! �;� . �" hgj ;{f" ��IL. ;l
,�' _� " �P '61
to the issue. Opportunities to w !; ' �.
ILI
preserve structures on-site with
new purposes or relocate
structures to vacant lots of record r,
are preferred, to creating new
subdivisions in rural areas. _ '' :, =
,,.
However, the concern expressed by the Clarington Heritage Committee goes beyond heritage
homes. Heritage structures include many types of structures such as barns, driving sheds, silos,
former churches and schools. As such the problem is not particularly a land use issue but rather
a cultural awareness issue. The adaptive reuse of these structures rather than relocation is
preferred from a land use perspective.
Proposed Policy Direction
The policies of Chapter 8 are applicable and each case reviewed on its merits including potential
solutions. The Clarington Heritage Committee has been working on capturing rural heritage
structures through a photographic inventory.
Other Uses/Issues
As part of the countryside there are other allowed uses that have unique characteristics and
legislative rights. Often these uses appear in conflict with the surrounding countryside as they
require the resources found in the rural area. They can be imposing, often impacting other land
uses, visually impacting the landscape and disturbing rural residents.
4.6.1 Aggregate Extraction
Clarington's Aggregate Extraction policies aim to manage mineral aggregate extraction activities
and minimize impacts on the natural heritage system and socio-cultural impacts. The Official
Plan protects high potential resource areas from incompatible land uses. Clarington's policies
for aggregate resources were reviewed in the late 1990's and Amendment 19 was approved by
the Ontario Municipal Board in 2001. The environmental protection and aggregate policies set
the standard for other municipal Official Plans and the Oak Ridges Moraine Plan.
Countryside Discussion Paper—August 2013 39
Proposed Policy Direction
Minor changes are required to bring the Official Plan into conformity with the Greenbelt Plan
and the 2012 Review of the PPS. These minor changes will increase the already stringent
policies around resource conservation and require a more comprehensive approach to
rehabilitation. In addition, visual impact analysis and mitigation measures will be added to the
criteria that Aggregate Extraction Area Studies must meet.
4.6.2 Alternative (Renewable) Energy Projects
Farmers may choose to establish on-farm energy sources such as bio-gas, solar, wind, etc. to
power their farm operations; this type of use is considered to be accessory to the farm
operation.
Most renewable (alternative) energy projects that produce in excess of 10 megawatts of energy
for commercial sale onto the grid will require a Renewable Energy Approval (REA) process
under the Green Energy Act. Applications for REA begin when a contract with Ontario Power
Authority has been awarded to sell power onto the grid.
Most small-scale renewable energy projects that produce less than 10 megawatts of energy do
not require a REA as they are deemed not likely to cause significant adverse environmental
effects due to their small scale, although other legislation and approvals continue to apply.
The Greenbelt Plan and ORM have permissive (subject to) policies that allow "infrastructure" to
be located in the Protected Countryside providing they meet the criteria of the Environmental
Assessment Act or similar environmental approval. The existing Official Plan contains policies
that would allow the Municipality if it were an approval agency to better address adverse
impacts on adjacent land uses.
Currently REA projects are not subject to the Planning Act. The Municipality is a commenting
agency but not an approval authority. There are two proposed industrial wind turbine farms,
one in the Newtonville/Port Granby area of five (5) turbines the other in the Kirby/Orono area
of ten (10) turbines. Some rural residents may benefit from the installations, others are
opposed, expressing concern over health issues, property value decline and the impacts on the
environment and visual landscape. The Provincial government is currently reviewing how
municipalities could be more involved in REA approvals. In the future, Clarington may have a
greater voice and be able to set out criteria for where it would be willing to support renewable
energy projects.
Currently, Clarington Council has specifically declared Clarington an "unwilling host" to
industrial wind turbines (see next page).
Proposed Policy Direction
Countryside Discussion Paper—August 2013 40
The current policies of the Official Plan allow for new electrical generation proposed by private
corporations by amendment to the plan. Should changes to the Renewable Energy Act provide
municipalities with approval authority over the siting and land use aspects of renewable energy
projects, additional criteria regarding visual impact assessment and mitigation measures to
address the importance of landscapes, vistas and ridge-lines would be added to the existing
policies.
Resolution #C-161-13
WHEREAS there are two (2) proposed industrial wind projects in the Municipality of Clarington (Clarington
Wind Farm and Ganaraska Wind Farm);
WHEREAS the Premier of Ontario has recently conveyed the Government's desire to limit Industrial Wind
Turbines (IWT) Projects to communities that are willing hosts;
WHEREAS the Council for the Municipality of Clarington has received a clear message from its residents that
they are not willing to host Industrial Wind Turbines;
AND WHEREAS the Council for the Municipality of Clarington has taken a consistent position on the issue of the
siting of IWTs;
NOW THEREFORE BE IT RESOLVED THAT the Council for the Municipality of Clarington declares that it is
currently not a willing host; and
THAT, based on the consistent position of the Council for the Municipality of Clarington and the input received
from the community regarding IWTs, the Province of Ontario and specifically the Ministry of Environment be
now advised that the Municipality of Clarington is currently not a willing host for IWTs; and
THAT this resolution be circulated to Premier Kathleen Wynne, Minister of Agriculture and Food; Honourable
Bob Chiarelli, Minister of Energy; Honourable James J Bradley, Minister of Environment; Honourable Jeff Leal,
Minister of Rural Affairs; Doris Dumais, Director of Environmental Approval and Service Integration Branch of
the Minister of the Environment; John O'Toole MPP Durham; Association of Municipalities of Ontario (AMO).
4.6.3 Infrastructure/Utilities
Infrastructure and utilities are important to the overall functioning of both the countryside and
urban areas. Major utilities and facilities include water supply plans, pollution control plants,
electricity generating stations, hydro transformer stations and corridors for hydro, pipelines,
telecommunications and gas. In addition the transportation system is considered
infrastructure. Infrastructure and utilities are expected to be in place when required and as
such, generally are allowed within any land use designation with the appropriate mitigation
measures.
For the most part residents are accepting of infrastructure and utilities that service Clarington;
however, the imposition of large facilities and corridors that service national, provincial and
regional needs are less accepted. Typically, infrastructure and utilities that service beyond the
Clarington market are impositions within the countryside which residents would prefer not to
Countryside Discussion Paper—August 2013 41
see. In addition, they are often located within areas that the Province has provided additional
protection to such as the Oak Ridges Moraine and/or Greenbelt.
Infrastructure and utilities must obtain environmental approvals as set out in legislation such as
the Environmental Assessment Act, Telecommunications Act or Electricity Act. In cases where
natural heritage features are being impacted, mitigation and compensation are required.
The Municipality is a review agency for environmental approvals being sought by a proponent
for approval and construction of infrastructure and utilities. The Municipality evaluates on a
case by case basis whether it will seek to obtain funding from the proponent for peer review of
the environmental reports. The goal of peer review is to strengthen the reports and obtain
mitigation of disruptive aspects of the project, not oppose the project.
The August 2011 report of the Joint Review Panel for the Darlington New Nuclear Project
recommended that appropriate measures be implemented to prevent the establishment of
sensitive land uses within 3 kilometers of the nuclear site for the lifetime of the nuclear facility.
This 3 kilometer radius for the entire Darlington nuclear site, touches the existing urban edges
of Bowmanville and Courtice north to Bloor Street; however, depending on where the
measurement is centered on it could grow. Currently there is no Provincial or Regional policy
directive to impose development restrictions in the vicinity of the Darlington nuclear station.
The Municipality is working with the Canadian Nuclear Safety Commission, the Province and the
Region to determine how additional development constraints for sensitive lands uses should be
addressed.
Proposed Policy Direction
The applicable enabling policies with regard to infrastructure from the Greenbelt Plan should
be added to the Official Plan. In addition, the need to coordinate emergency planning/
response and traffic management planning for all infrastructure and utility projects with the
appropriate agencies should be added as policy requirements.
4.6.4 The Greenbelt Legislation
The Municipality has the right to regulate land use. One of the complaints from the farming
community is the over-regulation that they perceive has occurred, the addition of layers over
and above what had previously existed. There often appears to be a lack of understanding of
how the land is being used and the impact additional regulation has on normal farm practices.
In addition many other pieces of legislation (noted in Section 2) already constrain farming
practices and add complexity to land use planning. However, there is also a misconception by
some rural property owners that they should have the right to do whatever they please with
their land.
Countryside Discussion Paper—August 2013 42
Land use regulation is necessary to protect the resources that exist, be they soil, aggregate or
natural heritage, ensure health and safety of residents and enable harmonious co-existence.
Not all land uses are going to be visually pleasing or enjoyable sensory experiences, and what is
beautiful to some is not to others. The Greenbelt legislation has been viewed by many as over
regulation of a resource that was already well managed. It was an intervention by the Province
in Greater Toronto and the Golden Horseshoe Areas to provide an overarching strategy,
provide clarity and structure of where growth is to be accommodated for current and future
generations. There is also a need from a provincial perspective to have infrastructure and
resources (including agriculture) available to service the growing urban population.
In anticipation of the 2015, ten year review of the Greenbelt Plan, the Greenbelt Foundation
has undertaken a focused research study' to determine "the key issues affecting [a] farm's
viability in the context of the specific constraints of operating in near urban areas, including any
issues that arise out of the Greenbelt Plan's policies and/or their implementation."
It is often perceived that the Greenbelt legislation has restricted agricultural uses and added
undue layers of red tape. "Upon reflection, the range of uses permitted is virtually identical to
the policies in effect for prime agricultural land in the rest of the province. For example, lot
creation is discouraged for non-agricultural uses, while the creation of lots for large farm
parcels is permitted, as is the severance of
surplus residences as a result of farm The near-urban challenges for agriculture as
consolidation in the Greenbelt as elsewhere "having to defend normal farming practices,
(draft report, page 13)." social isolation as traditional farm
communities become more populated by
Farming in the Greenbelt by definition means non-farmers, lack of political influence,
that it is near urban areas. There are increased taxes to support new services for
commercial fill issues, vandalism, trespass, non-farm residents, and reduction in local
traffic and transportation issues that are not as farm services."
prevalent for farmers further away from urban
areas. There are also opportunities because of Source: Bunce, 2005
the proximity to large urban markets. Sod farms, nurseries, pick-your-own operations, agri-
tourism and horse farms tend to benefit from near-urban locations as they have enhanced
access to consumers.
By working with the agricultural community, Clarington recognizes the contribution agricultural
lands and operations make towards sustainability and the role farmers play in land stewardship.
The goal of becoming a more sustainable community is being pursued and in many ways
achieved; however that does not mean that we can rest easy. Rather it is only through the
1 A Clarington Planning Services senior staff member was part of the advisory committee for this study and report.
Countryside Discussion Paper—August 2013 0
continued management and enhancement of the countryside that the Municipality will be able
to remain resilient and address the imbalances created by growth, global actions and climate
change.
Proposed Policy Direction
The Durham Region Official Plan came into conformity with the Greenbelt Plan through
Amendment 114, proposed policy directions recommended as part of this Discussion Paper
would bring Clarington's Official Plan into conformity. The proposed Figure 8 reflecting the
Greenbelt Protected Countryside and Natural Heritage System should be added to meet the
Greenbelt legislation, proposed policies reflect the Greenbelt Plan and policies.
4.6.5 Urban/Rural Fringe and Whitebelt Lands (the 8 percent)
One of the criticisms of the Greenbelt Plan was that some of the best agricultural lands were
not included. The logic behind leaving certain lands
out of the Greenbelt was, that given the growth "Many farmers questioned why the
estimates for the Greater Golden Horseshoe and best farm land is not being protected
policies in local and regional Official Plans these by the Greenbelt".
other lands, known as the whitebelt would at some
point, many years into the future, be logical Source: Cummings and Juhasz, 2007
extensions of urban areas.
The whitebelt lands in Clarington are some of the best agricultural lands in all of southern
Ontario. As such the policies of the Province require that prime agricultural areas be protected
for long-term use for agriculture. It would only be when sufficient opportunities for growth are
exhausted that prime agricultural areas could be considered for urban development.
Clarington and Durham residents have also expressed concern for economic viability of the
agricultural sector and some have concerns about food security. The lands between the urban
centres of Courtice, Bowmanville and Newcastle are part of Clarington's economic engine
(agriculture). These whitebelt lands provide much needed open spaces that counter balance
urban growth and contribute to the overall sustainability and character of the Municipality.
In 2001, Clarington Council established the Agricultural Advisory Committee of Clarington
(AACC). The AACC provides advice to Council, Planning Staff and input on policies that affect
the agricultural sector. On August 25, 2011 the AACC recommended and Council endorsed, on
September 19, 2011 the following:
"Whereas the Municipality of Clarington is in the process of reviewing the
Official Plan;
And whereas part of the mandate of the Agricultural Advisory Committee of
Clarington is to advise Council with regard to:
Countryside Discussion Paper—August 2013 44
a) implementation of municipal agricultural goals, objectives and policies;
b) alternative solutions, approaches, plans or studies dealing with agriculture
and related rural issues which are within the responsibilities and financial
capabilities of the Municipality of Clarington; and
c) monitor and report on changes within the agricultural industry including
agricultural land inventory;
And whereas agriculture is the #1 industry in Clarington;
And whereas agriculture is necessary for food security;
And whereas some of Canada's best agricultural land is in Clarington, more
particularly immediately adjacent to the current urban boundaries and in the
"whitebelt" areas;
And whereas there are not stringent tests for the expansion of urban
settlement area boundaries with regard to prime agricultural lands and soil
capability;
Now therefore be it resolved that Council instruct Planning Staff to include
additional policies in the Growth Management and Agricultural Sections of the
Official Plan to ensure that:
a) Growth be provided through intensification, and redevelopment; and within the
existing urban boundaries;
b) That agricultural soil capability be included as an additional criteria for determining
where future growth happens (e.g. avoid Classes 1, 2 and 3 soils, in this order of
priority) ;
c) That impacts from settlement areas on agricultural operations be mitigated; and
d) That all types, sizes and intensities of agricultural uses and normal farm practices be
promoted and protected in accordance with Provincial standards."
The Land Evaluation and Area Review (LEAR) evaluation system model was developed by the
Ontario Ministry of Agriculture, Food and Rural Affairs (OMAFRA). It considers other factors,
such as fragmentation, micro-climatic effects, heat units, land use of surrounding parcels, and
size of holdings, in addition to soil capability for agriculture to determine potential. The LEAR
alternative evaluation system is used to identify Prime Agricultural Areas by more than just soil
type. However, it has not been consistently applied across Southern Ontario.
A full LEAR study of the "whitebelt" lands prepared in consultation with the agricultural
community, using area specific data and ground truthed, in advance, of the next Regional
Official Plan Review would provide the Municipality with additional information to be able to
further verify the type of future uses that should occur in the areas between the existing urban
centres.
Countryside Discussion Paper—August 2013 45
There is the opportunity to grow the Greenbelt. The provincial government laid out the process
for how it would consider additions to the Greenbelt and thus afford additional lands with the
protection of the Greenbelt designation. The process to grow the Greenbelt would require
additional study of the whitebelt lands to justify their inclusion in the Greenbelt, for
environmental, agricultural land protection or other reasons. Clarington will have to address
prior to the 2015 Greenbelt Plan review and before the next Regional Official Plan review
whether it wishes to seek additional protection for some whitebelt lands through their addition
to the Greenbelt.
Proposed Policy Direction
The growth management and agricultural sections of the Official Plan include additional criteria
and tests to ensure that any urban boundary expansion proposals only occur once all other
options such as intensification and redevelopment within the urban boundaries have been
explored. Clarington could investigate expanding the Greenbelt by preparing the necessary
background documentation such as a LEAR.
4.6.6 Buffers/Setbacks
The proximity of agricultural operations to residential subdivision areas (urban/rural fringe) are
often areas where the different land uses do not mesh together. Setbacks and buffers would
assist in separating the
ax
different land uses and create
4
'� - a neutral territory.
Buffers and setbacks have
been established to assist
I �
with the protection and
management of natural
features within the PPS and
Official Plans. The
Municipality is required to
ensure that new residential
uses adjacent to agricultural lands comply with the minimum distance separation (MDS)
formulae; however MDS specifically relates to livestock not other forms of agriculture. Another
example is the request by the CNSC to investigate a buffer around the Darlington Nuclear site
for sensitive land uses, providing for an enhanced safety zone is an example.
The addition of buffers around existing urban settlement areas to further separate urban and
rural uses is a difficult issue. Unfortunately there are not always opportunities to create such a
buffer. And questions arise as to who would own and maintain the buffer and what would it be
used for? Currently many of the lands surrounding urban settlement areas are owned by
Countryside Discussion Paper—August 2013 46
investors holding the land for future development while renting it back to farmers. This
ownership pattern acts as a buffer while remaining in agricultural production but with no
longevity or relief of land use conflicts for the renting farmer.
The lands around rural settlements are often agricultural, and while there can be better
understanding by hamlet residents of agricultural practices, there is still the potential for
conflict and nuisance. When examining the potential for rounding out of rural settlements (see
Section 5.1) the same type of setbacks and buffers proposed for urban areas should be applied
to rural settlements.
Proposed Policy Direction
In areas where urban and hamlet settlement boundaries are proposed to be expanded there
should be, as a minimum, a hard boundary between the agricultural uses and residences such
as a roadway, valley system or woodlot. The setback distances set out in the guidelines for
odour, noise, dust, light and pesticide applications require at minimum, 30 metres of separation
from a potential source.
Countryside Discussion Paper—August 2013 47
Section 5
Rural Settlement
5. RURAL RESIDENTIAL
The Introduction of Clarington's Official Plan, in 1996, placed environmental
conservation at the forefront. It led the way with regard to its stringent policies that
constrained residential, commercial and industrial growth to urban areas and set new
standards for the integration of natural heritage systems within other land uses.
Much of the new rural residential growth since 1996 has been on existing lots of record,
or in previously approved country residential estates and within the boundary limits of
hamlets. Clarington's rural housing growth has exceeded the targets established in the
1996 Official Plan for its 25 year lifespan. Residential construction on rural lots of record
continues to add residential households to the countryside; however, it has slowed
significantly since the late 1990's.
Figure 1— Residential Building Permits in Rural Areas of Clarington, 1994-2012
140
120
100
a of Building 80 oHamlets
Permits Issued
wClarke
60
®Darlington
40
20
0 7.
1994199519961997199819992000200120022003200420052006200720082009201020112012
Year
5.1 Rural Settlement Policies
The existing Official Plan policies have been effective in curbing the increase in rural
population growth for the longer term. Much of the uptake in rural housing was on lots
of record and within country residential estates that had been approved prior to the
1996 Official Plan. Even with this growth, the rural population has decreased from
almost half of Clarington's population in the 1970's to about 20 percent today.
Countryside Discussion Paper—August 2013
48
Figure 2— Rural Population
Percentof Rural Population
80%
70000
78%
60000
76%
50000 74%
40000
68%
30000
56%
20000 53% 53% 26% 24% 22% 20%
47% 47% 44% 32%
10000
0
1976 1981 1986 1991 1996 2001 2006 2011
■Urban Population 16998 17169 19118 33613 44856 52781 60781 67561
■Rural Population 14,930 15,060 14,955 15,866 15,759 17,053 17,039 16,987
The trend of diminishing population in the countryside is not unique to Clarington;
rather it is an across-Canada trend and will continue due to many factors. An additional
factor for Clarington is the provincial Places to Grow legislation. The policy framework of
provincial land use legislation forces the majority of the population to now locate within
urban settlement areas, through requirements for intensification and redevelopment.
The policies that previously had allowed for rural residential developments are now
severely restricted. Approvals for additional housing units in the countryside are limited.
5.1.1 Hamlets
All of Clarington's hamlets are either within the Protected Countryside of the Greenbelt
or the Oak Ridges Moraine. Therefore any infill or redevelopment within the approved
hamlet boundary as of February 28, 2005 can only occur subject to private water and
septic availability. Hamlets are the principle location for rural housing. The Region
identified potential for 235 additional units in Clarington's hamlets. However, the
Region's count did not eliminate lands that were zoned Environmental Protection; when
the zoning is taken into consideration there are only 102 buildable parcels* remaining
within the existing boundaries of the thirteen hamlets (*some of these parcels may have
the potential to be severed if the zoning and Greenbelt policy conditions can be met).
Figure 3— Hamlet Households
Countryside Discussion Paper—August 2013
49
1981** 1991 1 2001 2011 Remaining Parcels
Hamlet #of Households that are buildable
Brownsville t 68 0
Burketon 42 125 133 138 2
Enfield 16 18 21 21 3
Enniskillen 41 110 143 153 9
Hampton 203 236 250 257 12
Haydon 28 44 49 49 1
Kendal 53 55 58 65 7
Kirby 9 9 10 11 8
Leskard 64 65 66 67 4
Maple Grove 77 83 84 85 7
Mitchell Corners 152 159 159 162 3
Newtonville 131 135 144 182 27
Solina 61 98 102 127 14
Tyrone 82 105 108 126 5
Total 959 1242 1327 1511 102
** Based on the number of current households and the number of building permits
issued for new residences overthe past 30years
t Brownsville became a hamlet underthe 1996 Official Plan
The Hamlets in the Oak Ridges Moraine being Enfield and Burketon have been
delineated as part of the conformity exercise in 2005 and no rounding out can occur. In
addition, the northern portions of Enniskillen, Haydon and Kirby have also been
delineated as part of the Oak Ridges Moraine conformity exercise. The Greenbelt Plan
allows for a one-time rounding out of hamlets when the Official Plan is brought into
conformity.
Minor rounding out of hamlet boundaries are allowed based on the Ministry's
modifications to the Region's conformity exercise, which clarified that minor rounding
out is permitted in the Greenbelt's Protected Countryside and not into the Natural
Heritage System. The Natural Heritage Systems Discussion Paper addresses the
refinements to the Greenbelt natural heritage system which may allow certain hamlets
to have minimal rounding out. However, any rounding out is dependent on the refined
boundaries of the natural heritage system being approved and the policy conditions set
out in the existing local and regional official plans (see DROP 96.2.8, 96.2.11, 96.2.12
and 96.2.13 policies).
Countryside Discussion Paper—August 2013
50
The existing policies of Clarington's Official Plan for Rural Settlement Areas require:
a) An analysis of the hydrogeological regime in the area to determine the
availability and quality of groundwater on a long-term basis;
b) An assessment of servicing alternatives, such as municipal and communal
services, including research into the feasibility of connecting existing
development to such systems;
c) An assessment of the long-term suitability of the soil conditions for the effective
operation of private sewage disposal systems, where an investigation has
demonstrated that private services provide the optimal servicing alternative;
d) An assessment of surface drainage;
e) An identification of any existing restrictions to future development;
f) An inventory of cultural heritage resources and an assessment of how new
growth will be complementary to, and consistent with, the historic character of
the area;
g) An environmental inventory and assessment of the impact of new growth on the
natural, built and cultural environments;
h) An assessment of servicing alternatives such as communal systems;
i) An assessment of the impact on agricultural lands and the identification of
directions for growth which will minimize such impacts, and a statement of
conformity to the Minimum Distance Separation Formulae; and
j) Other information as may be deemed necessary by the Municipality or the
Region of Durham.
Given these requirements and the
analysis carried out during the
preparation of the 1996 Official
Plan there are very limited
opportunities for minor rounding
out of hamlet boundaries.
.I
M Y
Countryside Discussion Paper—August 2013
51
Proposed Policy Direction
The rounding out of hamlets in the land use schedules will be dependent upon approval
of the "refined" natural heritage systems boundaries and proponents for rounding out
providing the necessary documentation to address the existing policies of the Official
Plan. In addition the character of hamlets is very important to the residents. As part of
the studies identified in f) above, proponents will have to show how they are
maintaining and complimenting the existing housing character through the positioning
of the homes on the lots, scale, building materials and other design elements. Further,
as set out in Section 4.4.6 the edge of hamlets should be setback from agricultural
operations by a roadway, valley system, woodlot or other similar buffer.
5.1.2 Country Residential Subdivisions
Country Residential Subdivisions are large lot residential subdivisions situated outside of
designated urban areas. They consist of single detached dwellings, serviced by individual
private wells and sewage disposal systems, with their own internal road system. These
rural settlements are generally characterized by a slow rate of construction/build out.
Country estate housing is part of the overall mix of residential available within
Clarington; however, to remain desirable and in balance with other rural land uses it
needs to be a limited commodity. As of 2010, Clarington had 51 vacant lots available in
six country residential subdivisions.
Countryside Discussion Paper—August 2013
52
Proposed Policy Direction
Consistent with the Greenbelt Plan and DROP, Country Residential subdivisions are no
longer permitted. Section 12.5 of the Clarington Official Plan will be amended to bring it
into conformity with the Regional and Greenbelt policies.
5.1.3 Rural Residential Clusters
Distinct clusters of non-farm residential development exist in Clarington's rural areas.
These clusters were created either as part of a grouping of existing non-farm dwellings
or as a special exception. Clusters are not identified in the Regional Official Plan but
were identified in the 1996 Official Plan. The majority of the non-farm lot creations
occurred between 1976 and 1991, most (87 percent) prior to 1986. Rural clusters occur
near road intersections and are not linear in layout, having homes on both sides of the
road(s), as listed below:
• Darlington/Oshawa Townline and Taunton Roads
• Courtice and Pebblestone Roads
• Highway 2 and Solina Road
• Highway 2 and Rundle Road
• Rundle Road just south of Nash Road
• Bondhead
• Port Granby
• Taunton and Ochonski Roads
• Newtonville Road and Concession 4
In accordance with the Region's Official Plan infill development within the boundary of
such clusters may be permitted subject to the conditions set out in the Region's Official
Plan.
Proposed Policy Direction
In conformity with the Greenbelt Plan no new residential clusters are allowed. Policy
12.6.3 of Clarington's Official Plan should be deleted.
5.1.4 Vacant Rural Lots of Record
There are significant concentrations of rural non-farm residential lots created between
1947 and 1968 as 4 ha (10 acre) parcels when the Planning Act allowed for such land
divisions. The creation of new rural residential lots within or adjacent to these
concentrations is not permitted by the Region's Official Plan or the Greenbelt policies.
Clarington had 620 lots created in such a manner, virtually all of these lots have been
built upon and very few remain vacant.
Countryside Discussion Paper—August 2013
53
To be eligible to construct a single family home on a rural lot, the lot must have the
appropriate zoning, and there are limitations as to which lots can be developed because
of environmental and/or access restrictions; the capability of the property to have a well
and septic system and other physical constraints. In addition, some properties have
been severed from a farm/residential lot and have zoning restrictions that would not
allow for residences. Currently, there are some 700 vacant rural lots, ranging from 2.5 to
22.2 acres that may or may not have development rights to construct a single family
home.
The implementation of the approved Highway 407 and East Link has the potential of
creating additional vacant rural lots in Clarington with development rights because it will
split parcels. To avoid the creation of additional residential lots in proximity to the 407
through the Greenbelt, the Municipality has requested the formulation of a specific
policy, as part of the 407 East Environmental Assessment to address how these lots will
be disposed of by the Ministry of Transportation of Ontario (MTO) in the future. MTO
has been apprised of the issue and the desire to limit new residential development in
the Greenbelt. Zoning restrictions on the remnant parcels to limit housing development
would be in keeping with the policies of the Greenbelt, current Official Plan and 407 EA
mitigation measures.
MTO will be examining whether to use some of its remnant parcels as sites for natural
heritage compensation. While on the surface this approach would appear to be
beneficial, the amount of suitable and productive agricultural land that could be lost
could have a significant impact on Clarington's agricultural community and its
productivity.
Proposed Policy Direction
The Official Plan will include polices to reflect the intent of the Greenbelt with regard to
limiting additional residential development in the countryside. The creation of remnant
parcels caused by "natural severances" (e.g. the development of roadways) should be
limited.
5.2 Orono Employment Area
The DROP does not permit the consideration of applications to establish new
Employment Areas in the rural area. However, Deferral Area D4 remains from the 1993
Regional Official Plan. It was an application for an employment area to the east of
Orono and has yet to be resolved. Clarington, as part of ROPA 128, requested the
designation be approved and the Region agreed. However, Deferral Area D4 was not
Countryside Discussion Paper—August 2013
54
approved by the Ministry of Municipal Affairs when ROPA 128 was approved; rather it
was a non-decision item and conditions were included in the Minutes of Settlement.
The employment area proposed for Orono encompasses a number of existing industrial
buildings serviced by wells and septic systems (e.g. dry industries). "Dry" means the
industrial uses that do not require municipal services. Approving the deferral would
allow for the continued expansion and development of this "dry" industrial area.
As urban services are expanded to the employment areas in Newcastle, Bowmanville
and Courtice it is anticipated that there will be continued demand for industrial areas
that do not require full municipal services for businesses such as prefabrication of
housing components, storage units, and the landscape industry. In the Clarington
Official Plan, employment areas are anticipated to have full municipal services.
The Economic Base and Employment Lands Discussion Paper provided an overview of
construction based employment and showed a significant increase from 2001 to 2006
with approximately 1,000 construction workers employed at fixed places of work.
Roughly 200 businesses are categorized in the Clarington on-line Business Directory as
being in the construction sector, the vast majority of these are small businesses, having
one to four employees. Growth is expected in the construction sector due to housing
demand and large projects such as the Port Granby Project, Highway 407 and Darlington
New Nuclear Build.
As noted in Section 4.4.6 there is pressure on rural areas for many urban related
industrial uses such as contractors yards, landscape industry and auto mechanics;
businesses that do not require full municipal services.
Proposed Policy Direction
A "dry" employment area to the east of Orono must meet the requirements set out in
the Minutes of Settlement for ROPA 128 and the general policies and development
standards set out in Clarington's Official Plan. Additional specific polices for a "dry"
employment area will be formulated to clearly articulate criteria for development. This
"dry" employment area will be an exception to some of the general criteria (e.g. full
municipal services) and include specific standards to provide for visual screening,
landscape and design criteria.
Countryside Discussion Paper—August 2013
55
Section 6
Next Steps
OFFICIAL PLAN POLICY RECOMMENDATIONS
As described in the preceding Sections, it is proposed that a number of minor and
technical modifications be made to the existing policies of the Official Plan to bring them
into conformity with the Greenbelt Plan and the DROP. The most significant change will
be how the Land Use Schedules, Map A of the Official Plan will be revised to show the
natural heritage system (as proposed in the April 2013 Discussion Paper) and the
elimination of the two tier system of agricultural lands to a single designation. The
Natural Heritage Systems Discussion Paper recommended that the natural heritage
features previously identified on Maps C and D combined with the floodplain mapping
to create the Environmental Protection designation be shown on Map A.
Key Issues for the Countryside
The top five issues identified and explored in this Discussion Paper are:
Agricultural Uses — Merging the two tier agricultural designation into a single
designation on Map A will protect the resource while allowing farmers to make use of
and make changes to their lands in response to the agricultural market place. It also
means major recreational uses, like golf courses that had previously been allowed on
"general" agricultural lands will no longer be allowed.
Major Recreational Uses —
Major Recreational uses had
been restricted from all of the
ORM when Amendments 33
and 34 to Clarington's Official
Plan were adopted in 2005.
Advances have been made in
how certain recreation uses
such as golf courses are
designed, developed and
maintained. At the same time
there is a growing demand for major recreational uses in proximity to urban areas and
as rehabilitation of aggregate resource areas. The Protected Countryside area of the
ORM allows for major recreational uses, therefore Clarington could allow for this type of
use by Amendment to the Official Plan.
Secondary and Accessory Uses — Agriculture-related accessory uses are allowed as of
right on agricultural lands. Secondary uses that are recommended as additions by way
of a Zoning By-law amendments are agri-tourism, RV storage and small-scale landscape
Countryside Discussion Paper—August 2013
56
industry uses related to the primary agricultural use. Secondary uses are constrained by
the proposed definition in the PPS to only those that are "agriculture-related". Any
proposed Non-Agricultural Secondary Uses that are in-keeping with the decision-making
framework outlined in Appendix 1, could be allowed by amendment to the Official Plan
in the green space designation of the countryside.
Urban/Rural Fringe and
Whitebelt Lands — The
urban separators between
Courtice/ Bowmanville and
Bowmanvil le/Newcastle
plus some lands to the
north of Newcastle were
not included in the
Greenbelt. These lands are
- ���,�, �°•.. ,per'`' -some of the highest
production agricultural
lands in the Province. They '
challenge for the
agricultural community is to have an urban population that respects, understands and
supports farming. Additional policies limiting growth through intensification and
redevelopment of areas within the urban boundaries first, plus the imposition of firm
boundaries for urban areas will be included as part of growth management policies. No
urban expansions are recommended as part of this Official Plan Review and additional
"tests" will be included to help retain the urban separators and agriculture lands.
Rural Settlements — The rural population is declining as a percentage of the overall
population of Clarington and will continue to. Opportunities for housing development
in the countryside have been and will continue to be very constrained. There is
opportunity for limited minor rounding out of hamlets in the Greenbelt as part of this
Official Plan Review.
The following changes to the current Official Plan policies are proposed:
• Include a policy addressing the importance of agriculture to Clarington's
economy.
• Merging of the "prime agricultural" and "general agricultural" into a single
"prime" agricultural land use designation.
• Include agri-tourism, RV storage, small scale landscape industry as agriculture-
related secondary uses.
Countryside Discussion Paper—August 2013
57
• Eliminate major recreation uses on lands designated as agricultural lands and
only allow them to be located in the green space, and waterfront greenway
designation and ORM in the green space designation.
• Update the policies relating to expansion and diversification of uses for tourism
nodes.
• Update the Port Granby Special Policy A to reflect the vision set out in the End
Use Concept.
• Remove the policies that allow for gas stations and gas bars to locate in the
countryside, and direct them to settlement or urban areas.
• Update the rural consent policies to reflect the changes to the PPS and DROP.
• Update the aggregate resources policies to bring them into conformity with the
Greenbelt Plan and add a requirement for visual impact analysis and mitigation.
• Include policies to address the visual impacts of infrastructure, utilities and
renewable energy projects.
• Review and amend all policies to ensure their conformity with the Greenbelt
Plan and DROP.
• Add policy tests to ensure that urban boundary expansion proposals protection
agricultural lands.
• Add policies for growth management and rural settlements to address
separation between housing development and agricultural lands.
• Allow for minor rounding out of hamlets in the Greenbelt Protected Countryside.
• Delete the policies that allow for the creation of country residential subdivisions
and rural residential clusters in keeping with the DROP and Greenbelt.
• Address the creation or remnant lots by natural severances in the countryside.
• Add policies to address a "dry" employment area and its development criteria.
The following changes to the Official Plan schedules are proposed as follows:
• Update the existing Map Al, Land Use (Figures 6 and 7) to reflect the updated
Environmental Protection as recommended in the Natural Heritage Systems
Discussion Paper and the merging of the two tier agriculture designation into a
single land use designation.
• Greenbelt Schedule showing the Protected Countryside (which includes the Oak
Ridges Moraine, its countryside, natural core and linkage).
It is proposed that this Discussion Paper and the proposed policy directions for the
Official Plan be presented to the Clarington community at a series of public information
Countryside Discussion Paper—August 2013
58
sessions. Any feedback received regarding the proposed directions will be considered
prior to the preparation of an Official Plan Amendment.
It is necessary to ensure that the recommendations from the Growth Management and
Natural Heritage Systems Discussion Papers are considered and brought together into
an overall vision for the Clarington community as part of the Official Plan Review. The
Natural Heritage Systems Discussion Paper and the Countryside Paper are the
background documents that provide the support for the Official Plan Amendment(s) to
implement the Greenbelt Plan.
Once an Official Plan amendment(s) has been adopted by Council; concurred to by the
Region of Durham Council, who are the approval authority for Clarington's Official Plan,
and any appeals addressed, the next step will be updating of the Zoning By-laws.
Countryside Discussion Paper—August 2013
59
Glossary of Terms
GLOSSARY OF TERMS
The following terms used in the Discussion Paper are defined only for the benefit of the
reader in understanding the concepts presented. All definitions are from the current
Clarington Official Plan (or proposed revisions from the Growth Management Discussion
Paper) unless noted otherwise.
Accessory Use: the use of any land, building or structure which is subordinate or
incidental to the principal use located on the same lot.
Aggregate resources: (Draft Provincial Policy Statement, 2012) means gravel, sand, clay,
earth, shale, stone, limestone, dolostone, sandstone, marble, granite, rock or other
material prescribed under the Aggregate Resources Act suitable for construction,
industrial, manufacturing and maintenance purposes but does not include metallic ores,
asbestos, graphite, kyanite, mica, nepheline syenite, salt, talc, wollastonite, mine tailings
or other material prescribed under the Mining Act.
Agricultural Uses: (Draft Provincial Policy Statement, 2012) means:
a) Growing crops, including nursery, biomass, and horticultural crops;
b) Raising livestock and other animals, including poultry and fish, for food and fur;
c) Aquaculture;
d) Apiaries;
e) Agro-forestry and maple syrup production; and
f) Associated on-farm buildings and structures, including, but not limited to livestock
facilities, manure storages, value-retaining facilities, and accommodation for full-
time farm labour when the size and nature of the operation requires additional
employment.
Agriculture-Related Uses: (Draft Provincial Policy Statement, 2012) means those farm-
related commercial and industrial uses that are:
a) Directly related to a farm operation;
b) Support agriculture;
c) Required in close proximity to the farm operation; and
d) Provide direct service to farm operations as an exclusive activity.
Cultural Heritage Resource: means man-made or natural features, including structures,
objects, neighbourhoods, landscapes and archaeological sites that have been identified
Countryside Discussion Paper—August 2013
60
as significant by the local municipality or the province for being meaningful components
of a community's cultural heritage or identity.
Development: means the creation of a new lot, a change in land use, or the
construction of buildings and structures, any of which require approval under the
Planning Act, the Environmental Assessment Act, or the Drainage Act, but does not
include:
a) the construction of facilities for transportation, infrastructure and utilities uses,
by a public body, or
b) for greater certainty:
i. the reconstruction, repair or maintenance of a drain approved under the
Drainage Act and in existence on November 15, 2001: or
ii. the carrying out of agricultural practices on land that was being used for
agricultural uses on November 15, 2001..
Minimum Distance Separation Formulae: means formulae developed by the Province
to separate land uses so as to reduce incompatibility concerns about odour from
livestock facilities.
Natural Heritage System: means a connected group of natural areas, and the native
flora, fauna, and related geological features and landforms that contribute to the health
and biodiversity of the natural environment.
The natural heritage system includes core areas, natural corridors, and linkages
including naturalized road or rail allowances See the Natural Heritage Discussion Paper
for a fulsome definition of the different features and areas that are included.
Non-agricultural source materials or "NASM" (Nutrient Management Act): means any
of the following materials, other than compost (as defined in the Act) or a commercial
fertilizer, if the materials are intended to be applied to land as nutrients:
1. Pulp and paper biosolids.
2. Sewage biosolids.
3. Anaerobic digestion output, if less than 50 per cent, by volume, of the total amount
of anaerobic digestion materials that were treated in the mixed anaerobic digestion
facility were on-farm anaerobic digestion materials.
4. Any other material that is not from an agricultural source and that is capable of
being applied to land as a nutrient;
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61
Normal farm practices: (Draft Provincial Policy Statement, 2012) means a practice, as
defined in the Farming and Food Production Protection Act, 1998, that is conducted in a
manner consistent with proper and acceptable customs and standards as established
and followed by similar agricultural operations under similar circumstances; or makes
use of innovative technology in a manner consistent with proper advanced farm
management practices. Normal farm practices shall be consistent with the Nutrient
Management Act, 2002 and regulations made under that Act.
On-farm diversified uses: (Draft Provincial Policy Statement, 2012) means small scale
uses that are secondary to the principle use of the property and help support the farm.
On-farm diversified uses include, but are not limited to, home occupations, home
industries, agri-tourism uses, and uses that produce value-added agricultural products
from the farm operation.
Prime agricultural area: (Draft Provincial Policy Statement, 2012) means areas where
prime agricultural lands predominate. This includes: areas of prime agricultural lands
and associated Canada Land Inventory Class 4 to 7 soils; and additional areas where
there is a local concentration of farms which exhibit characteristics of ongoing
agriculture. Prime agricultural areas may be identified by the Ontario Ministry of
Agriculture, Food and Rural Affairs using guidelines developed by the Province as
amended from time to time. A prime agricultural area may also be identified through an
alternative agricultural land evaluation system approved by the Province.
Prime agricultural land: means land that includes specialty crop areas and/or Canada
Land Inventory Classes 1, 2, and 3 soils, as amended from time to time, in this order of
priority for protection.
Provincially Significant Wetlands: means those areas identified by the province as being
the most valuable. They are determined by a science-based ranking system known as
the Ontario Wetland Evaluation System (OWES).
Quarry (Aggregate Resources Act): means land or land under water from which
consolidated aggregate is being or has been excavated, and that has not been
rehabilitated, but does not mean land or land under water excavated for a building or
structure on the excavation site or in relation to which an order has been made under
subsection (3) of the Aggregate Resources Act.
Redevelopment: means the creation of new units, uses, or lots on previously developed
land in existing communities, including brownfield sites.
Rehabilitate (Aggregate Resources Act): means to treat land from which aggregate has
been excavated so that the use or condition of the land,
Countryside Discussion Paper—August 2013
62
(a) Is restored to its former use or condition, or
(b) Is changed to another use or condition that is or will be compatible with the use of
adjacent land.
Renewable energy systems: (Draft Provincial Policy Statement, 2012) means the
production of electrical power from an energy source that is renewed by natural
processes including, but not limited to, wind, water, biomass resource or product, or
solar and geothermal energy.
Residence surplus to a farming operation: (Draft Provincial Policy Statement, 2012)
means an existing habitable farm residence that is rendered surplus as a result of farm
consolidation (the acquisition of additional farm parcels to be operated as one farm
operation).
Rural Residential Cluster: shall mean a definable node of non-farm residential lots
located in the rural area. A Cluster shall consist of a minimum of five dwellings with
frontage on an open public road and located either on both sides of a road or within the
quadrant of an intersection.
Settlement areas (PPS): (Draft Provincial Policy Statement, 2012) means urban areas
and rural settlement areas within municipalities (such as cities, towns, villages and
hamlets) that are:
a) Built up areas where development is concentrated and which have a mix of land
uses; and
b) Lands which have been designated in an official plan for development over the
long-term planning horizon. In cases where land in designated growth areas is not
available, the settlement area may be no larger than the area where development
is concentrated.
Countryside Discussion Paper—August 2013
63
References
REFERENCES:
Review of Land Use Policy and Related Implementation Measures
Regarding Agricultural Value Added Activities, by Planscape, for Niagara Region,
September 2009.
http://www.niagararegion.ca/living/ap/agricultural-study.aspx
Official Plan Review- Background Report Greenbelt Plan Conformity, by Meridian
Planning consultants, Inc., fro Town of Milton, May 2007.
Golden Horseshoe Agriculture &Agri-Food Strategy, by Planscape,January 2012,
Food and Farming: An Action Plan 2021, Region of Peel, November 2008.
Greenbelt Plan Conformity, by Clean Air Partnership, for Greater Toronto Clean Air
Council, September 2010.
Local Food Procurement in Ontario, by Planscape. April 2009.
Sustainabile Halton Phase 3: Agricultural Countryside Strategy, by Planscape, April
2009.
Jurisdictional Analysis and Best Practices for Land Use Planning Affecting Direct
Marketing and Agri-tourism Operations in Ontario Report, by Wayne J. Caldwell , for
Ontario Farm Fresh Marketing Association, May 2006.
Farming in the Greenbelt: Challenges, Barriers, and Planning Strategies, by Wayne J.
Caldwell, for The Greenbelt Foundation, Draft: April 22, 2013.
Ontario Ministry of Municipal Affairs and Housing, Oak Ridges Moraine Conservation
Plan, Queen's Printer for Ontario, 2002
Ontario Ministry of Municipal Affairs and Housing, Provincial Policy Statement, 2005
Ontario Ministry of Municipal Affairs and Housing, Proposed Changes to Provincial Policy
Statement, 2012
Ontario Ministry of Municipal Affairs and Housing, Greenbelt Plan, Queen's Printer for
Ontario, 2005
Squair, John; The Townships of Darlington and Clarke, University of Toronto Press,
Toronto, 1927
Draft Region of Durham Agricultural Strategy and Action Plan, 2013-2018, Durham
Region, April 2013.
Countryside Discussion Paper—August 2013
64
Appendices
APPENDIX 1
What about Secondary Agricultural and Non-Agricultural Uses in the Countryside?
Primary Use in the Countryside
Agriculture is the primary use in the countryside. Any secondary uses need to be made with
the primary use in mind. While there may be demand for other uses they should be viewed
through the lens of how they are going to affect normal agricultural practices and if they are
compatible.
Demand
The Draft 2012 Provincial Policy Statement says that agricultural uses, agriculture-related uses,
on farm diversified uses and normal farm practices should be protected and promoted in
accordance with provincial standards. Clarington's agricultural lands have been facing
increasing development pressures due to their location on the eastern edge of the GTA. Access
to major transportation routes and markets offers the opportunity for the development of
secondary agricultural uses such as on-farm processing of value-added products and agri-
tourism that will have the potential to increase the viability of some agricultural operations. In
consultation with the Agricultural Advisory Committee of Clarington the addition of accessory,
secondary and non-farm (non-agricultural) uses beyond those that are already permitted,
should be considered with caution. Some uses could hinder or disturb adjacent farm
operations.
Issues: Scale—generally small scale not an issue
Special events/non-farm related uses
Compatibility with surrounding agricultural and rural residential uses
Existing Policies
Currently the Clarington Official Plan states that non-farm uses are to be directed to settlement
areas. Agriculture Areas are to be used only for farm and farm-related uses, including the use
of land, buildings, and structures for nurseries, the growing of crops and the raising of livestock.
Home-based occupations, limited home industry use, and seasonal farm produce stands for
local produce are also permitted uses. Farm-related industrial/commercial uses, home-based
occupations, and home industry uses such as riding and boarding stables, dog kennels, farm
produce outlets, and sod farms are allowed.
Countryside Discussion Paper—August 2013
65
Framework for decision-making for agri-related secondary uses and non-agriculture uses
In dealing with diversification of uses in the countryside, the following principles should be used
to determine what constitutes an acceptable diversified and/or secondary use:
a. The right to farm, including the right of an adjacent property to farm.
b. Protection of the agricultural land base (e.g. parcel size, fragmentation).
c. Protection of the integrity of agricultural lands for farming (e.g. does the use require the soil
nutrients to be a viable use).
d. Main purpose of allowing on-farm diversified uses is to increase financial returns for
farmers and as a result improve the viability of farming.
e. On-farm diversified uses and value-added activities must not detract from the primary
agricultural function.
f. The potential for land use conflicts that may arise from the allowing of non-farm (non-
agricultural) uses should be minimized (e.g. traffic impacts, nuisance).
g. Allowing non-agricultural uses in the countryside should not negatively impact the financial
situation of adjacent farms.
h. Given the diverse rural countryside, controls for scale and impact should be considered on a
case-by-case basis for secondary non-agricultural uses (e.g. zoning amendment).
Council requested staff consult on secondary agricultural and non-agricultural uses as part of
the Official Plan Review:
"WHEREAS the Clarington Planning Services Department will be holding public meetings in rural
Clarington as part of the Municipality's "Public Engagement Strategy" component of the Official
Plan Review to gather feedback for the Natural Heritage Systems and the Rural Countryside
Discussion Papers;
WHEREAS it is time to address the needs of rural landowners, including both farmers and rural
property owners, by amending Clarington's Zoning By-law to consider for greater flexibility that
reflects the modern reality that many agriculturally and rurally based operations in Clarington
now include various secondary uses;
WHEREAS a "Zoning amendment to cover rural areas" has already been identified as an
objective in the Part II, "Planning for the Countryside" component of the Official Plan Review
process in order to conform with Amendment 114 to the Region of Durham Official Plan, the
Greenbelt Plan and the Provincial Policy Statement, 2005;
AND WHEREAS promoting efficient government resource management is a desirable policy
objective;
Countryside Discussion Paper—August 2013
66
NOW THEREFORE BE IT RESOLVED THAT the Clarington Planning Services Department expand
the scope of the public consultation process that will be taking place as part of the Official Plan
Review to collect additional feedback relevant to updating the Zoning By-law for the rural areas
of the Municipality to examine greater flexibility for potential secondary uses to agriculture and
non-agricultural uses;
THAT an updating of the Zoning By-law for the rural areas of the Municipality to consider
greater flexibility for potential secondary uses to agriculture and non-agricultural uses be
commenced by the Clarington Planning Services Department no later than January, 2013; and
THAT the Agricultural Advisory Committee be invited to provide input and collaborate with the
Planning Services Department through the entire process of updating the Zoning By-law for the
rural Clarington areas to consider for secondary uses to agriculture and non-agricultural uses."
Council Resolution#C-095-12
Proposed Policy Direction
Agricultural secondary uses will have to meet the PPS proposed direction of being agricultural-
related. The framework for decision-making should be employed when considering an
amendment for a secondary agricultural use. Non-agricultural Secondary Uses that meet the
criteria set out in listing above could be considered by amendment to the Official Plan in the
green space designation.
Next iej:�,
Obtain feedback on the proposed framework for decision-making and proposed policy
direction, for secondary agricultural uses and non-agricultural uses. The questionnaire for the
Public Information Sessions will include questions about secondary agricultural and non-
agricultural uses.
Countryside Discussion Paper—August 2013
67
APPENDIX 2
What about Golf Courses?
Demand
There will be significant demand to develop new golf courses in rural areas within the Greater
Toronto Area (GTA) in the future. In 2002, it was estimated that there were approximately 270
golf courses in the GTA. It is anticipated that there may be need for an additional 150 golf
courses in the GTA within the next twenty years.
Currently there are five 18-hole golf courses, three 9-hole courses and three driving ranges
within the Municipality of Clarington. It is suggested that the average golfer will travel 30 to 35
minutes to play golf. Considering Clarington's proximity to the urban areas of the eastern GTA,
it is anticipated that the Municipality's rural areas may be seen by developers as ideal for the
siting of new golf courses.
In 2000, Durham had 41 golf courses and it was estimated that an additional 58 to 84 golf
courses would be required by 2021, depending on whether demand remains consistent or
continues to grow. It is anticipated that Clarington will be one of the Municipalities that will
have golf course growth as the urban population increases because of its proximity to the
population and available land suitable for golf course development.
Existing Policies
Currently golf courses can be allowed by amendment to the local and regional Official Plans
based on the policies noted below. Requiring amendments means that the Municipality and
Region have the ability to control the type of development, and review the design,
maintenance and management program of the golf course. In addition, input of other approval
agencies that have an interest (e.g. conservation authority) can be obtained.
Golf course development in Clarington has been constrained due to the policies of the existing
Official Plan. They are allowed by amendment in the designations of green space, waterfront
greenway and in agricultural areas if a number of conditions can be met. With the change from
the two tier agricultural designation of "general" and "prime" to a single designation, golf
course development in the agricultural areas is necessary.
Once golf courses are developed on agricultural lands, the value of the land is diminished from
a public interest perspective as they are no longer producing food for consumption and their
conversion back to productive land is difficult. Thus, it is important to ask when the principle of
protecting agricultural land takes precedence over the development of golf courses, especially
Countryside Discussion Paper—August 2013
68
when such developments take agricultural land out of production and can introduce
incompatible uses into a predominantly rural area.
Proposed Policy Direction
In dealing with the design and development of golf courses in the Municipality of Clarington,
the following should be addressed:
• An enhanced understanding of and coordinated approach to the development of criteria
for golf course location, design, development and maintenance, based on
considerations of sustainability.
• Golf course locations that do not eliminate prime agricultural lands from production and
do not disturb significant environmental features.
The following list comprises potential policy options:
• Revisit the policy direction on the ORM. The Oak Ridges Moraine Conservation Plan
Amendment 33 and 34 to the Clarington Official Plan restricted golf courses from being
located on the Moraine; however they could be allowed within the Protected
Countryside on soils of lesser value for agriculture (e.g. areas designated as green space
in Clarington's Official Plan and in particular aggregate rehabilitation areas).
• Add policies to direct golf courses to lands considered less viable for agricultural use.
An alternative agricultural land evaluation system approved by the Province, such as the
Land Evaluation and Area Review (LEAR) system, can be utilized to determine if the
agricultural lands in the green space and waterfront greenway designations should be
allowed to develop as golf courses. According to the LEAR guide prepared by the
Ministry of Agriculture Food and Rural Affairs, "central to this process is the evaluation
of the land resource based on soil capability for agriculture. Notwithstanding the
capability rating, lands are also subjectively reviewed against several factors which could
either enhance agricultural potential (i.e. irrigation systems, capital investment for farm
infrastructure, tile drainage etc.) or diminish its long term capability for food production
(i.e. property fragmentation, intrusion of non farm uses, etc.)"
• Encourage golf courses to locate within and adjacent to designated urban areas. Direct
new golf courses to lands immediately adjacent to existing urban areas, permitting golf
courses as close to their market as possible and on lands that are designated as urban
separators, thus, reducing the likelihood for land use conflicts in the rural area. The golf
course could be considered an ideal buffer between active agricultural lands and urban
uses. Golf courses are a long-term business venture with large initial capital costs that
rely on many years of use to obtain an overall return on investment. There are
Countryside Discussion Paper—August 2013
69
examples of integrated housing and golf course developments and this type of
development could be considered in the whitebelt by amendment.
• Additional policies setting out criteria for how golf courses should be developed.
Include new policies in the Official Plan requiring a "net environmental gain" policy for
projects. Include a recognized standard from the golf industry such as the Audubon
Cooperative Sanctuary Program Standards. Include development policies requiring that
irrigation water be obtained primarily from surface run-off and surface sources, that the
natural topography be maintained, that buffer strips along streams be used and
operational practices manage and maintain the golf course on an ecological basis.
Countryside Discussion Paper—August 2013
70
APPENDIX 3
Excerpt from "Economic Base and Employment Lands Discussion Paper, July 2, 2010"
for the Clarington Official Plan Review
Agriculture: Agriculture is an important part of the economy in Clarington. A significant portion
of agricultural activity in the Region takes place within Clarington. The importance of
agriculture is not just confined to the agriculture sector which is strictly defined as farming. It
also includes a number of businesses in other areas such as food manufacturing, food retail,
and agri-tourism, and therefore is significant as an economic cluster.
The total number of farms in Clarington in 2006 was 437, with the total area of farms reported
by Statistics Canada as 33,074 hectares (25 percent of farm hectares reported for Durham
Region). The average area of farms in Clarington is reported by Statistics Canada as 76
hectares. The number of farms and the number of hectares farmed in Clarington decreased
between 2001 and 2006. Based on Statistics Canada data, there were 462 farms and 34,363
hectares of farmland in Clarington in 2001: the number of hectares being farmed decreased by
nearly 1,300 or 6 percent between 2001 and 2006. The total value of farm receipts (excluding
any forest products sold) in Clarington in 2005 was roughly $57.6 million, which represents
about 24 percent of the gross farm receipts in Durham Region. As shown in Table 6, most of
the farms in Clarington are relatively small operations, with about 33 percent having gross
revenues of under $10,000. About 24 percent had gross revenues of $100,000 or more
(including nearly 7 percent that had gross revenues of $500,000 or more), which is consistent
with Durham Region overall. Based on Statistics Canada Agricultural profile information, 78 of
the 437 farms had paid agricultural workers year-round in 2005 (about 18 percent); 111 had
seasonal or temporary paid workers.
The number of farm operators in Clarington in 2006 was 640, which represents about 26
percent of the farm operators in Durham Region, which was considerably higher than the
portion Clarington comprised of jobs overall in the Region (around 10 percent). The number of
farm operators in Clarington in 2006 was slightly lower than in 2001 (665). It appears that most
farm operators also do other non-farm related work, with about 48 percent of farm operators
only working at the farm. About 25 percent worked more than 40 hours a week at a non-
agricultural operation in 2005.
Further data is available on the Agriculture Sector in Clarington through Statistics Canada's
Agriculture Community Profiles.
Countryside Discussion Paper—August 2013
71
Table 6 Farms in Clarington Classified by Total Gross Farm Receipts for 2005
Value of Total Gross Farm Receipts Number of Farms Percenta
Under $10,000 144 33.0%
$10,000 to $24,999 80 18.3%
$25,000 to $49,999 63 14.4%
$50,000 to $99,999 44 10.1%
$100,000 to $249,999 55 12.6%
$250,000 to $499,999 21 4.8%
$500,000 to $999,999 17 3.9%
$1,000,000 to $1,999,999 8 1.8%
$2,000,000 and over 5 1.1%
Total number of farms 437 100.0%
Source: Statistics Canada, 2006, Census of Agriculture
It is likely that the supply of agricultural lands presently being farmed in Clarington will decline
slightly as a result of a redevelopment since a portion of these lands are designated for
residential and employment uses, as well as farm land that will be lost as a result of the
Highway 407/401 Link. Agricultural employment may also be reduced due to the trend towards
greater automation in farming, resulting in the need for fewer employees, and larger farms for
greater economies of scale.
Prime agricultural lands in Clarington will be protected through Offical Plan designations and
zoning, and it will be important that adequate buffering and transitioning of lands surrounding
farm operations (particularly livestock farms) be provided to help existing farms remain viable.
The importance of agriculture is not just confined to the agriculture sector which is strictly
defined as farming. It also includes a number of businesses in other sectors such as food
manufacturing, food retail, and agri-tourism, and therefore is significant as an economic cluster.
Countryside Discussion Paper—August 2013
72
Figure 4— Existing Official Plan Map Al Darlington
Countryside Discussion Paper—August 2013
73
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Countryside Discussion Paper—August 2013
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Countryside Discussion Paper—August 2013
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Figure 7— Proposed for Discussion Map Al Clarke
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Countryside Discussion Paper—August 2013
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