HomeMy WebLinkAboutPD-332-90 TOWN OF NEWCASTLE
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EENLA.GPA REPORT
File #J:6
Res. #
By-Law #
MEETING: General Purpose and Administration Committee
DATE: November 5, 1990
REPORT #: PD-332-90 FILE #: Pin 17 . 11
ACT: TOWN OF NEWCASTLE COMMENTS RE:
OPTIONS FOR A GREATER TORONTO AREA
GREENLANDS STRATEGY
RECOMMENDATIONS:
It is respectfully recommended that the General Purpose and
Administration Committee recommend to Council the following:
1. THAT Report PD-332-90 be received;
2 . THAT Report PD-332-90 be forwarded to the Ministry of
Natural Resources as the Town's position with respect to
the recommendations contained within. "Options for a
Greater Toronto Area Greenlands Strategy" ; and,
3. THAT the Region of Durham Planning Department be forwarded a
copy of this report and informed of Council's decision.
1. BACKGROUND
1. 1 On October 17, 1989, Premier Peterson asked Ron Kanter,
M.P.P. St. Andrew-St. Patrick, to conduct a study and
recommend option for a Greenlands Strategy for the Greater
Toronto Area. On July 26, 1990, Ron Kanters overview,
'Options for a Greater Toronto Area Greenlands Strategy
19901 , was released and received by the Town of Newcastle.
REPORT NO. : PD-332-90 PAGE 2
1.2 To examine options for developing a Greater Toronto Area
Greenlands Strategy, three main tasks were undertaken:
i) the identification of areas to be included in a
regional greenlands system;
ii) the examination of various mechanisms to secure and, as
appropriate, to rehabilitate or enhance greenlands;
and,
iii) the examination of alternative institutional
arrangements to assist.
1. 3 On September 3, 1990, Staff presented Report PD-261-90 to
the General Purpose and Administration Committee. This
report outlined the content and conclusions of the report
"Options for a Greater Toronto Area Greenlands Strategy" .
1.4 The study overview notes that "Greenlands" have
traditionally been viewed primarily as public recreation
parks . In recent years, however, a fundamental shift in
thinking has occurred so that people are starting to
consider greenlands as significant with respect to their own
personal health and enjoyment as well as to the overall
health of the environment. The importance of natural
ecosystems, significant wildlife habitat, of rested areas
and major physiographic features is an emerging public
value.
"Greenlands" were thus defined within the study to include:
natural, cultural or archaeologically significant
areas;
REPORT NO. : PD-332-90 PAGE 3
areas performing important natural functions such
as water recharge and discharge or habitat links;
and,
green corridors or open space areas for walking,
jogging, hiking, cycling, or cross country skiing.
1.5 Acknowledging that future growth within the GTA could
jeopardize the balance between our built and natural
environments, this study suggests that a Greenland Strategy
would aid in:
providing clear direction;
addressing the pressures on greenlands associated
with rapid urbanization;
providing information so that significant open
space and natural areas can be incorporated
upfront in the planning and development process;
and,
providing a common, consistent starting point for
all interests: governments, developers, interest
groups and residents .
1 . 6 The purpose of this report is to respond to the sixteen
recommendations made by Mr. Kanter within the context of his
report. This report has been prepared in consultation with
the Town's Public Works Department and Community Services
Department.
REPORT NO. : PD-332-90 PAGE 4
2. COMMENTS ON THERECOMMENDATIONS OF THE GTA GREENLANDS
GTA GREENLANDS OPTIONS REPORT
2 . 1 The complete list of sixteen recommendations form Attachment
#1 to this report. Due to their length, the most salient
features are summarized below with the Town's comments .
2 .2 Recommendation 1:
The Province provide clear direction through the
endorsement of a Greater Toronto Area Greenlands
Strategy with the goal of improving the quality of life
through the establishment of a regional greenlands
system.
The Town of Newcastle is supportive of the development of
the Greater Toronto Area Greenlands Strategy. The Strategy
must be comprehensive in its approach broadly supported and
developed in a co-operative manner by all those affected
(ie. Conservation Authorities, the local and regional
municipalities, the provincial ministries, and the various
special interest groups) . Similarly, participation and co-
ordination in the development of a Strategy must also
involve all those who are affected.
2 . 3 Recommendation 2:
To guide land use planning and development, appropriate
ministries prepare guidelines addressing:
a) urban drainage/storm water management;
b) water conservation (including groundwater) ;
and,
c) how existing tools under the Planning Act can
appropriately address greenlands.
REPORT NO. : PD-332-90 PAGE 5
The Town of Newcastle is generally supportive of
Recommendation 2 . At present items (a) and (b) are
addressed through an individual case by case basis with
little guidance from the provincial ministries . The
development of guidelines in these instances would greatly
benefit the development review process .
It is suggested that like other provincial policy
statements, the guidelines considered in (c) should be
incorporated into an overall package of Implementation
Guidelines for the proposed Provincial policy statement
noted in Recommendation 4 .
2 .4 Recommendation 3:
As greenlands serve a variety of functions, the
provincial resource based ministries review their
management and land stewardship programs to ensure that
they are more widely ecologically based rather than
based primarily on economic yield or being singular in
purpose.
The Town of Newcastle offers no comment with respect to
Recommendation 3 .
2 .5 Recommendation 4:
The Province prepare a Greater Toronto Area Greenlands
policy statement pursuant to section (3) of the
Planning Act.
The overall thrust of the policy statement would be to:
limit uses to those which would not reduce the
attributes of greenlands;
leave valleys and watercourses, in as natural a
state as possible.
promote the establishment of riparian (natural)
buffer zones of at least 10-15 m (33-50 ft. )
adjacent to watercourses;
REPORT NO. : PD-332-90 PAGE 6
stress the significance of nodes, such as
municipal parks, and of pathways and corridors in
linking regional greenland systems.
stress the need for more intensive and clustered
forms of development, thereby maximizing the lands
available for greenlands and other uses.
The Town of Newcastle would agree with the principle of
developing a comprehensive planning approach for the Greater
Toronto Area Greenlands Strategy. The development of a
policy statement pursuant to section (3) of the Planning Act
would be appropriate and supported by the Town. However, it
should be noted that the development of such a policy
statement may conflict with some of the objectives of the
Mineral Aggregate Resources Policy Statement and the
Foodland Guidelines . Consequently, the new Policy Statement
should provide the means for resolving conflicting
provincial policies. The Town of Newcastle would be
interested in participating further in the study process .
2 . 6 Recommendation 5:
Due to the significance and sensitivity of the Oak
Ridges Moraine Area, the increasing development
pressure it is under and the increasing concerns about
the types of development and how development occurs,
the Province declare a general expression of provincial
interest for the Oak Ridges Moraine Area, under section
(2) of the Planning Act.
The objective of declaring provincial interest would be
to provide the time required to conduct a comprehensive
land use planning study of the Oak Ridges Moraine Area.
In the interim, the Province would review all proposed
official Plan amendments and rezoning applications
within the Moraine Area.
A two year comprehensive planning study of Oak Ridges
Moraine Area would be co-ordinated by the Province and
would include upper and lower tier municipalities,
conservation authorities and other interested groups.
D ! �>
REPORT NO. : PD-332-90 PAGE 7
The Town of Newcastle has previously offered no objection to
a similar recommendation for the Ganaraska Headwaters.
Furthermore, staff are supportive of comprehensive study of
the Oak Ridges Moraine Area. The Town would, however,
recommend a Ministerial zoning order, as per Section 46 of
the Planning Act, be imposed for the Oak Ridges Moraine.
2 .7 Recommendation 6:
Through the official plan process, regional
municipalities more clearly establish development,
greenlands, and rural envelopes. Development envelopes
could be broken down into urban and near urban areas.
Regional municipalities need not designate
specific land uses within each envelope. This
would remain the responsibility of the local
municipalities.
For the greenland envelopes, each regional
municipality would prepare a regional greenlands
action plan to assist in implementation.
The action plans would also concentrate on linking
local park systems to regional greenlands systems.
3-5 year implementation packages would be
prepared.
The Town of Newcastle is supportive of this recommendation.
The areas between urban areas are often treated as a void
between urban areas . Rural areas and greenland areas should
be viewed in terms of their positive qualities rather than
as impedances to development. Within the context of the
Town's response to the Draft Changes to the Durham Regional
Official Plan, the Town has noted the following concerns:
The concept of 'Permanent' Agricultural Reserves
needs further examination to ensure that there is,
indeed, a permanence to this designation.
5 9 `i
REPORT NO. : PD-332-90 PAGE 8
Much of the area now proposed for urban expansion
is presently designated 'Permanent' Agriculture
Reserve.
The Town wishes to see that stronger policies are
developed which would clearly define the function
of urban separators .
Adoption of Recommendation 6 would ensure that, among other
things, these above-mentioned concerns are addressed.
2 .7 Recommendation 7:
Amendments to the Planning Act be made such that site
preparation, eg. removal of vegetation, stockpiling of
top soil, etc. cannot occur until the necessary
development approvals or draft approvals have been
obtained.
Amendments to the Planning Act also be made such that
valley lands may be dedicated to the local
municipality, in addition to lands dedicated for park
purposes.
Although the Town of Newcastle would generally be supportive
of amendments to the Planning Act, regarding site
preparation in that such amendments would help to avoid the
type problems which have been experienced in Courtice. The
Town believes that such efforts may in turn conflict with
the objectives maintaining a supply of affordable housing
and streamlining the development approvals process.
The Town of Newcastle would be supportive of amendments to
the Planning Act regarding valley lands. It is noted that
the current parkland dedication by-law requires the
gratuitous dedication of valleyland areas. Any amendment
0 '-
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REPORT NO. : PD-332-90 PAGE 9
should clarify that valleyland dedication would be over and
above the current 5% dedication.
2 . 9 Recommendation 8:
Amendments be made to the Conservation Authorities Act
such that he regulatory powers under section (28) of
the Act are expanded so that the placing or dumping of
fill, the location of buildings and structures and the
alteration of a waterway, anywhere in a valley system,
can be regulated from a conservation/protection aspect
as well as a hazard aspect.
The Town of Newcastle would be supportive of expanding the
Conservation Authorities criteria to which proposals for
placing and dumping of fill, the location of buildings and
structures and the alteration of waterways are judged, to
include conservation and protection aspects . However, the
Town would further want insurance that there is some arms
length dealing achieve and away from municipal development
approvals by the Conservation Authorities
2 . 10 Recommendation 9:
The Ministry of the Environment investigate ways of
undertaking studies such that the overall extent of
the water resources of a watershed or aquifer system
can be assessed to prepare a water budget for existing
and future uses.
The Ministry of the Environment undertake research into
more efficient septic system designs and materials for
use in areas with rapidly draining soils.
A large number of the households in the Town of Newcastle
are dependent upon groundwater supplies, and as such the
Town of Newcastle would be supportive of this
recommendation.
59 ` i �
REPORT NO. : PD-332-90 PAGE 10
2 . 11 Recommendation 10:
The Province establish a 5 year, $100 million Greater
Toronto Area greenlands acquisition program set up on a
matching grant basis with half the funds provided by
the Province and the other half by local or interest
groups, other government bodies, the private sector,
etc.
The Town of Newcastle agrees that this option warrants
further investigation. Questions of maintenance, control
and liability must be resolved. The Town of Newcastle would
further note that it can not afford to become the playground
of the Greater Toronto Area. Greater Toronto Area
acquisition maintenance and programming funds must be pooled
to enable the Toronto or the Conservation Authorities to
undertake a more significant role.
2 . 11 Recommendation 11:
The guidance and monitoring required to assist in the
implementation of a Greater Toronto Area Greenlands
Strategy be provided through a co-ordinating body.
Representation on the co-ordinating body would include
the Province, regional and local municipalities, and
local conservation authorities.
The Town of Newcastle concurs with the need for a co-
ordinating body to assist in the implementation of a
Greenland Strategy. This should be closely tied with the
Greater Toronto Area Urban Structure Study and thus linked
to the Greater Toronto Co-ordinating Committee (G.T.C.C. )
and the Office for the Greater Toronto Area (O.G.T.A. ) .
The Town of Newcastle is concerned, however, that the
G.T.C.C. does not have effective representation from area
municipalities and the Conservation Authorities . This issue
should be addressed.
5 9
REPORT NO. : PD-332-90 PAGE 11
2 . 12 Recommendation 12:
The existing wording of the Trees Act be reviewed to
determine if the focus could include other factors,
more environmental in nature, as well as wood
production. This would:
Reduce the number of instances where wood
lots are eliminated without the knowledge of
local municipalities cut without the prior
knowledge of the municipality.
Establish minimum area size provisions and
exemptions, such as cutting for personal use,
as presently defined in the Act.
Include the power to issue stop work orders.
Increase the size of penalties for the
contravention of a by-law passed under the
Act.
The Town of Newcastle is supportive of Recommendation 12 .
The Town also wishes to reaffirm its request to the Region
of Durham to enact a Tree By-law.
2 . 13 Recommendation 13:
All levels of government be encouraged to investigate
and promote more compact urban forms (ie. intensive
versus extensive forms of development) . To reduce the
amount of land that is developed, as opposed to
reducing the amount of development.
The Town of Newcastle has affirmed its support of a more
compact urban development pattern in its review of the Draft
Changes to the Durham Region Official Plan.
2 . 14 Recommendation 14:
The Province establish a Greater Toronto Area
Greenlands Foundation to assist in giving a more co-
ordinated focus to greenlands' and to provide a means
for public/private partnerships to protect greenlands.
J 9
REPORT NO. : PD-332-90 PAGE 12
The Foundation would:
be responsible for the administration of
provincial acquisition funds;
actively encourage the formation of an Oak
Ridges Moraine Conservation land Trust or
other types of management bodies;
explore landowner incentives including
recognition awards, use of personal income
tax deductions for land bequests or
easements, the transfer and/or sale of
property development rights, etc.
The Town of Newcastle agrees that a foundation of this type
would be advantageous in providing an objective vehicle to
which public/private partnerships can be formed. it would
also be a means of distributing the available funds to
enable the more rural municipalities to protect significant
greenlands and develop parkland.
2 . 15 Recommendation 15:
More formalized public involvement in securing,
managing and enhancing greenlands be encouraged through
such means as establishing regionally based Ecological
and Environmental Advisory Committees.
The Town Council has previously expressed concern with
setting up an advisory committee, when there exists
provincial bodies entrusted with developing public policy
and acting on behalf of the good of the province.
2 . 16 Recommendation 16:
The implementation of a Greater Toronto Area Greenlands
Strategy will take the collective effort of many
different bodies particularly for educating the public
D )V 11)
REPORT NO. : PD-332-90 PAGE 13
on the significance of greenlands in the Greater
Toronto Area.
The Town of Newcastle offers no comment with respect to
Recommendation 16 .
Respectfully submitted, Recommended for presentation
to the Committee
Franklin Wu, M.C. I.P. Lawrenc . Kotseff
DIrector of Planning Chief Administrative
and Development Officer
JB*DC*FW*df
*Attach
26 October 1990
I
ATTACHMENT 1
2s
RECOMAIENDATIONS Further,the policy statement would stress the
need for more intensive and clustered forms
of development, thereby maximizing the
(1) The Province provide clear direction through lands available for greenlands and other uses.
the endorsement of a Greater Toronto Area
Green]ands Strategy with the goal of improv-
ing the quality of life through the establish- (5) Due to the significance and sensitivity of the
ment of a regional greenlands system consist- Oak Ridges Moraine Area, the increasing
ing of a variety of types of greenlands, development pressure it is under,particularly
accessible to as many people as possible, for that section in the Towns of Richmond
where appropriate. Hill and Aurora,and the increasing concerns
about the types of development and how
development occurs, the Province declare a
(2) To guide land use planning and development, general expression of provincial interest for
appropriate ministries prepare guidelines the Oak Ridges Moraine Area,under section
addressing: (a) urban drainage/storm water (2)of the Planning Act.
management;(b)water conservation(includ-
ing groundwater); and (c) how existing tools The objective of declaring provincial interest
under:the .Planning. Act can 'appropriately would be to provide the time required to.' �
address greenlands. conduct a comprehensive land use planning
study of the Oak Ridges Moraine Area.In the 1
interim, the Province would review all pro-
(3) As greenlands serve a variety of functions,the posed official plan amendments and re-
provincial resource based ministries review zoning applications within the
their management and land stewardship pro-
grams to ensure that they are more widely Moraine Area.In the specific instances of the
ecologically based rather than based primar- Towns of Richmond Hill and Aurora, the
fly on economic yield or being singular in Province would also review plans of
purpose. subdivision.
Where a proposed land use change has not
(4) The Province prepare a Greater Toronto adequately addressed the sensitivities of the i
Area Greenlands policy statement pursuant Moraine Area or where a proposed land use
to section (3)of the Planning Act. change is considered premature prior to the
completion of the comprehensive land use
The overall thrust of the policy statement planning study, the Minister of Municipal
would be to limit uses to those which would Affairs could make a specific statutory decla-
not reduce the attributes of greenlands. ration of provincial interest, which would
result in the matter going to the Ontario
With particular reference to valleys and Municipal Board and Cabinet making the
watercourses,they should be left in as natural final decision,or make use of other powers,as
a state as possible.Thus,various uses,includ- provided for under the Planning Act.
ing some types of intensive recreational
endeavours,would be limited. A two year comprehensive planning study of
the Oak Ridges Moraine Area would be coor-
To help maintain the integrity of such areas dinated by the Province and would include
as valleys and watercourses, and to assist in upper and lower tier municipalities, conser-
visually separating such areas from adjacent vation authorities and other interested
development, the establishment of riparian groups.
(natural)buffer zones of at least 10-is m(33
-50 ft)would be promoted. The overall intent of the study would be a
more consistent treatment of development
The policy statement would stress the signifi- within the Moraine Area from one munici-
cance of nodes,such as municipal parks,and pality to the next. The study would examine
of pathways and corridors in linking regional the types of land uses acceptable or not
greenland systems. It would also stress the acceptable within the Moraine Area and the
value of municipal parks and other areas in types of background studies and controls that
providing public access to valley systems. would be appropriate to help safeguard the
sensitivity ot the area.
j 9 9
26 Greenlands Strategy 1990
(6) Through the official plan process, regional (8) To fill the gap betv6-een the definition of
municipalities more clearly establish devel- development under the Planning Act and the
opment,greenlands, and rural envelopes. specific hazard orientation of a conservation
authority's regulation.amendments be made
Development envelopes could be broken to the Conservation Authorities Act such that
down into urban and near urban areas. the regulatory powers under section (28) of
the Act are expanded so that the placing or
Regional municipalities need not designate dumping of fill,the location of buildings and
specific land uses within each envelope.This structures and the alteration of a waterway,
would remain the responsibility of the local anywhere in a valley system,can be regulated
municipalities. However, regional munici- from a conservation/protection aspect as well
palities would be responsible for assessing the as a hazard aspect.
overall implications of each envelope on a
region wide basis from environmental,social Also, with the view to clarifying respon-
and economic perspectives.The limits of the sibility, the Minister of Natural Resources
envelopes could not be modified for at least a investigate any possible duplication of
five year period and then could only be mod-. responsibilities between a conservation
ified as part of a regional municipality's over-, authority's regulation and the.application of,
all review of its'official plan. the Lake's and Rivdrs Improvement Act.
With regards to the greenlands envelopes,
each regional municipality would prepare a (9) As part of its responsibility in issuing water
regional greenlands action plan to assist in taking permits under the Ontario Water
implementation. Resources Act, the Ministry of the Environ-
ment investigate ways of undertaking studies
Each respective regional municipality would such that the overall extent of the water
fine-tune the appropriate sections of a resources of a watershed or aquifer system
Greater Toronto Area Greenlands Strategy can be assessed.After which,a water budget
and augment it with input from the local could be determined for all the various uses,
} conservation authorities and local present and future, which would include an
municipalities. analysis of the amount available for water
taking purposes.
The action plans would also concentrate on
linking local park systems to regional green- The Ministry of the Environment undertake
lands systems throuer the most appropriate research into more efficient septic system
series of pathways and lateral connectors. designs and materials for use in areas with
rapidly draining soils. This research could
Upon completion of the respective action also examine communal type septic systems
plans, 3 - 5 year implementation packages servicing 2 or more dwellings,thus potentially
would be prepared, identifying which public reducing the present space requirements for
body or group was responsible for what estate residential lots.
aspects.
(10) The Province establish a 5 year.$100 million
(7) To minimize the length of time between when Greater Toronto Area greenlands acquisi-
a site is prepared for development and devel- tion program.The program to be set up on a
opment actually commences,amendments to matching grant basis with half the funds pro-
the Planning Act be made such that site vided by the Province and the other half by
preparation,egg.removal of vegetation,stock- local or interest groups, other government
piling of top soil, etc., cannot occur until the bodies,the private sector, etc.
necessary development approvals or draft
approvals have been obtained. While recognized that total reliance on acqui-
sition to secure greenlands is not feasible in
Amendments to the Planning Act also be general,acquisition would only be considered
made such that valley lands may be dedicated where a site was threatened and other means
to the local municipality,in addition to lands to secure it had failed or where the site would
dedicated for park purposes. provide for public access and other means to
er.e_nouiabl
27
(11) The guidance and monitoring required to (13) As a general approach to reducing the
assist in the implementation of a Greater amount of land that is developed,as opposed
Toronto Area Greenlands Strategy be pro- to reducing the amount of development, all
vided through a coordinating body. levels of government be encouraged to inves-
tigate and promote more compact urban
A new level of government or a new public forms(ie. intensive versus extensive forms of
body need not be created. development). Concepts such as cluster
development and more creative layouts sensi-
Representation on the coordinating body tive to the surrounding landscape should be
would include the Province, regional and explored.
local municipalities, and local conservation
authorities. To help facilitate moves in this direction, the
Province, through the Ministries of Munici-
As greenlands form the framework within pal Affairs,Housing, Natural Resources and
which urban development can occur,consid- the Environment,would research the matter
eration could be given to having the coor- and prepare a guideline document.
dinating body responsible for overseeing the
implementation of the Greater Toronto Area
Greenlands Strategy.linked with the•body (14) The Province establish a Greater Toronto
responsible for bverseeing therimplementa- ' Area Greenlands'Fobndation to assist in giv-
tion of the Greater Toronto Area Urban ing a more coordinated focus to greenlands
Structure Strategy. and to provide a means for public/private
partnerships to protect greenlands.
(12) The existing wording of the Trees Act be The Foundation would be responsible for the
reviewed to determine if the focus could administration of provincial acquisition funds
include other factors,more environmental in on a matching grant basis. Local interest
nature,as well as wood production. groups, other public bodies, or the private
sector would be responsible for raising the
To reduce the number of instances where remaining funds.
wood lots are eliminated without the knowl-
edge of local municipalities and thus the The Foundation would actively encourage
opportunity to explore other avenues to the formation of an Oak Ridges Moraine
achieve what is desired, amendments be Conservation Land Trust or other types of
made to the Trees Act so that trees cannot be management bodies.
cut without the prior knowledge of the munic-
ipality. Notwithstanding this proposed Further, the Foundation would be charged
amendment, minimum area size provisions with exploring landowner incentives includ-
and exemptions,such as cutting for personal ing recognition awards, the expansion of the
use,as presently defined in the Act,should be Conservation Land Tax Rebate Program to
retained. include all lands identified as regional green-
lands, greater availability or use of personal
Also, amendments be made to the Act to income tax deductions for land bequests or
include the power to issue stop work orders easements, the transfer and/or sale of prop-
and to increase the size of penalties for the erty development rights, etc.
contravention of a by-law passed under the
Act.
59C' i I
28 Greenlands Strategy 1990
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(15) More formalized public involvement in secur- Also, conservation authorities are to be
ing,managing and enhancing greenlands is to encouraged to establish working groups to A
be encouraged. assist in major endeavours such as the prepa-
ration of watershed management strategies.
In particular, it is strongly encouraged that
regional municipalities give consideration to
establishing regionally based Ecological and (16) The implementation of a Greater Toronto
Environmental Advisory Committees as exist Area Greenlands Strategy will take the Col-
in areas such as Halton, Waterloo and lective effort of many different bodies and
Niagara. groups.To this end, local groups and special
interest groups,as well as government bodies,
Such groups could assist Regional Councils are to be encouraged to assist in various ways,
on a range of environmental matters, includ- including informing and educating the public
ing greenlands. on the significance of greenlands in the
Greater Toronto Area.
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