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HomeMy WebLinkAboutPSD-114-04 Report 115 ~ CiaLe U L'adingt~ REPORT PLANNING SERVICES Meeting: COUNCIL Date: Monday, September 27,2004 Report #: PSD-114-04 File #: PLN 1 .1.12 Kes -/I- - c . q CJo-crl By-law #: Subject: PLACES TO GROW: A GROWTH PLAN FOR THE GREATER GOLDEN HORSESHOE, DISCUSSION PAPER. SUMMER 2004 RECOMMENDATIONS: It is respectfully recommended to Council the following: 1. THAT Report PSD-114-04 be received and endorsed as the Municipality's comments on the Discussion Paper for "Places to Grow" - A Growth Plan for the Greater Golden Horseshoe. 2. THAT Report PSD-114-04 be forwarded to the Ministry of Public Infrastructure Renewal and the Region of Durham Planning Department. Submitted by: Da' . Crome, MCIP, RP.P. Director of Planning Services /"l z ,J f' . Il "'( R. db ..' ,c;.:. ~.\::'..---..:, ('.........'... eVlewe y: ___ ' - c Franklin Wu, Chief Administrative Officer FUDJC/df 22 September 2004 CORPORATION OF THE MUNICIPALITY OF CLARINGTON 40 TEMPERANCE STREET, BOWMANVILLE, ONTARIO L 1C 3A6 T (905)623-3379 F (905)623-0830 ~~ ~ REPORT NO.: PSD-114-Q4 PAGE 2 1.0. BACKGROUND 1.1 In July, 2004 the province released a discussion paper fOr growth management for the Greater Golden Horseshoe area entitled "Places to Grow". The discussion paper is the initial step of the Province in developing a growth plan for the Greater Golden Horseshoe that will shape land use planning policy, infrastructure priorities adn investment by the Province and a new regulatorylfiscal environment for municipalities. Comments are to be submitted by September 24, 2004. 1.2 The release of the growth management discussion paper for the Greater Golden Horseshoe is supported by other initiatives announced as part of the Province's strong communities agenda. This includes the Strong Communities Act (Bill 26); the Greenbelt Protection Act (Bill 27), which has led to the reports of the Greenbelt Task Force. In addition, the 3 discussion papers on Planning Reform Initiatives addressed in reports PSD-105-04 and PSD-106-04 apply. 1.3 The major issues that the series of discussion papers and proposed legislation attempt to address are growth and growth management, especially in the GTAlGreater Golden Horseshoe Area, what the roles of local and provincial decision-making should be and new tools to achieve the policy framework. All the discussion papers propose to comprehensively bring together reforms proposed by the government for land-use planning; as such, they cannot be read in isolation from each other. 1.4 In preparing our comments, staff has attended the stakeholder sessions hosted by the Ministry of Public Infrastructure Renewal and other information meetings. The Director attended a stakeholder meeting with the Ontario Association of Chief Planning Officials. Staff have provided comments to the Region for their report (Attachment 1). 2.0 SUMMARY OF DISCUSSION PAPER 2.1 The proposed Growth Plan for the Greater Golden Horseshoe is the first time since the early 1970's for the Province to develop a blueprint for growth in the Toronto Region, an area recognized as the economic engine of Canada. Over the past decade there has been a growing recognition that the status-quo is not working and that sprawl will overwhelm the area unless significant action is taken. Business-as-usual over the next 30 years will consume 1,000 sq. km of farmland, gridlock will worsen and our environment will suffer. 2.2 A summary of the Discussion Paper is contained in Section 2 of the Region's report. The growth plan addresses three key areas: . Where and how we should grow . What critical infrastructure we need to support growth; and . What are the most valuable things we need to protect The emerging growth plan als.o begins to develop ways to implement the strategy through coordinated decision-making and prioritized infrastructure investments. The .'!l,'"" 4.~ REPORT NO.: PSD-114-Q4 PAGE 3 growth plan is to be integrated with the 10 year infrastructure plan that the Province is developing. 2.3 Some of the key highlights of the Plan relative to Clarington are as follows: . Oshawa "Downtown" is identified as a Priority Urban Centre while no urban center in Clarington is identified as even an emerging urban center. Priority and emerging urban centers were selected on the basis of criteria including being major employment centers, having employment activities of provincial or national significance; having high population and high employment densities; having or being borderline transit supportive densities; having infrastructure or redevelopment capacity and providing broad regional level public services, such as hospitals, colleges or universities, social services, etc. . With the exception of some lands north of Courtice, no lands are identified as potential Future Growth Area, that is lands to be assessed for future growth beyond the current urban boundary limits. . The growth plan will promote economic development by making the Greater Golden Horseshoe an attractive place for business and workers to invest their skills, by improving transportation efficiency, ensuring a diversity of employment lands are available and serviced, supporting vibrant downtowns and urban areas and by supporting and build on the strength of local industry clusters. . Small towns and rural communities are to be strengthened not through large- 'scale growth and development but by such means as ensuring sufficient population and employment growth to sustain local economies, maintaining and renewing infrastructure, and by supporting the revitalization of downtowns, waterfronts and brownfields. . Urban transit will be the focus of provincial infrastructure investment, mostly in larger urban centers including Toronto, Mississauga and York Region. It is unlikely that Clarington will see any significant urban transit investment over the next 30 years. . GO Rail capacity is to be built and ridership increased an average of 3% per year. However, the extension of GO Rail service to Bowmanville is not one of the identified investments. . A new inter-regional transit link is schematically identified from Peterborough to Bowmanville. . Highway 407 extension to Highway 35/115 is identified as a priority. . Protecting high quality aggregate areas, such as those lands around Regional Road 20 and Highway 35/115. 2.4 The Province's vision for Clarington IS In keeping with the principles and policies articulated in Clarington's Official Plan. Specifically Places to Grow supports the themes of sustainable development, healthy communities and growth management, the overarching principles of the Official Plan. ,,--C ~-! REPORT NO.: PSD-114-04 PAGE 4 3.0 COMMENTS ON "PLACES TO GROW" 3.1 The Province should be commended for undertaking the task of addressing land use planning and growth management. There is a growing recognition that the problems of the GTAlGreater Golden Horseshoe can only be tabled by coordinated provincial and municipal initiatives. Combined with the other initiatives underway, the full package of solutions is being considered. 3.2 Support for the Region of Durham's recommendations on "Places to Grow" The Regional Staff report in Attachment 1 reflects a number of the comments provided by our staff. The Municipality of Clarington generally supports the Region of Durham's recommendations unless otherwise noted. This section of the report will not repeat what has been stated by the Region in its report to the Province. The comments and recommendations of the Municipality of Clarington set out below are intended to reinforce and expand on the Region's recommendations and no.t to detract from them. 3.3 Infrastructure Funding, in particular for transit, needs to occur in many growing areas outside of the Priority and Emerging Urban Centres While specific urban growth centres have been identified (e.g. Peterborough and Oshawa), the Province should be aware that infrastructure funding (especially transit) will have to be provided to areas not identified to address the growth in those communities as well. The creation of urban form and spaces throughout the Greater Golden Horseshoe area that are adaptable and flexible over the long term is the overall goal; any funding formula or incentives have to promote this type of thinking throughout the entire area. 3.4 The extension of GO Rail to Bowmanville is a critical infrastructure element to be identified in the Plan The Discussion Paper identifies the addition of new tracks to Oshawa as part of the GO Rail improvements. Both Durham and Clarington have identified Bowmanville as the eastern terminus for GO Rail in their respective Official Plans. The Greater Toronto Transportation Authority recently acquired a 13.6 acre site for a GO Rail station in Bowmanville. This significant acquisition should be accompanied by the investment in extending GO Rail service to Bowmanville within the 10 year timeframe of the infrastructure plan and the development of a transportation hub at its terminus. 3.5 A clear definition of intensification is required and the intensification objectives need to be undertaken on a regional not area municipal basis A clear definition of Intensification, common to all the Ministries needs to be articulated. Further intensification should take into account the existing servicing capacity of an area. The province will either have to be willing to provide incentives, funding or other regulations to ensure that the development and real estate industries offer a full complement of housing types. Currently the development and real estate industries respond to market trends and forces. The 40% target set out in Places to Grow is arbitrary and unrealistic for many municipalities, given the existing infrastructure and strong desire to protect historic downtowns and neighbourhoods. Intensification !.-(:. .,,,. REPORT NO.: PSD-114-04 PAGE 5 objectives like to 40% target can only be met on a regional basis given the differing characteristics of each community. 3.6 The Province should recognize in Clarington a Special Employment Area for the emerging cluster of energy-related industries As part of the Province's plan for recognizing and supporting a diversity of economic activity and to meet the 2:1 ratio of population to employment growth, the Province will need to intervene in supporting economic development. In particular, Clarington is recognized as a major centre for the nuclear power industry. Building on this base, international recognition gained throughout the ITER process and the establishment of the University of Ontario Institute of Technology, Clarington is working to create a cluster of specialized energy research and development industries. Developing this expertise centre will require provincial assistance. 3.7 The Province needs to carefully consider the relationship between the Greenbelt and the Growth Plan with respect to Future Growth Areas The Greenbelt Plan will be identifying lands in the GTA which are to be permanently protected. This includes natural heritage areas, aggregate extraction areas and prime agricultural lands. Prime agricultural lands which are not included in the Greenbelt may be considered as lands for future growth. While the Province may not have identified these lands for provincial protection through the Greenbelt, area municipalities may still want to retain these lands in an agricultural designation. 3.8 Future Urban Growth Areas should be policy driven and not mapped The Discussion Paper identifies "fuzzy peach" areas to indicate lands that may be considered for future urban development beyond the existing official plan boundaries and intensification. This will lead to land speculation and other economic forces that will push these lands to be designated for urban purposes. Rather than mapping additional lands, there should be a set of policy criteria that would assist in determining how new lands will be identified in years to come. 3.9 The Development Charges regime, income and sales tax policy and property assessment/taxation policy must support intensification and discourage greenfield development A number of provincial documents have indicated implementation ideas to encourage intensification and infilling through the provision of incentives, including the waiver or reduction of development charges. Provision of such incentives by the Municipality can only be offered if the Municipality is willing to assign a portion of growth-related costs to the tax base. Rather than funding incentives from the existing tax base, the development charges legislation should have a provision for a municipality to provide a surcharge on greenfield development to fund incentives for brownfield and greyfield development. This would not only provide a source for funding incentives but would be a strong economic incentive for the development industry to undertake the complicated and time-consuming processes required for infill development and intensification. Similar provisions to income tax, sales tax and property tax policy could provide incentives for infill or higher density development. !-.O- Z'" REPORT NO.: PSD-114-04 PAGE 6 3.10 Amendments to other legislation to address alternative standards and foster intensification Amendments to other legislation could address the alternative standards that the Province is recommending. For example amendments to the Building Code to address energy efficiency standards, sustainability (green roof technology), fire suppression and more flexibility in renovation and re-use of heritage buildings would be beneficial. 3.11 The Municipality's need stronger tools to control the phasing of development in urban areas Implementation of the vision articulated in Places to Grow will in part be through the Planning Act and Provincial Policy Statements (PPS). In our previous comments on those discussion papers, we have asked the Province to reinforce the ability of municipalities to determine the timing of development through the efficient use of existing infrastructure (e.g. sunk costs) by limiting challenges to' the OMB that open up new areas of development when existing areas could accommodate the proposed expansion or development. 3.12 Performance Measures should include both Provincial Ministries and Municipal Governments The performance measures suggested in this and other recent discussion papers focus on local and regional govemment indicators. To maintain the focus, the performance measures must include the policies and practices of all Ministries in achieving the vision set out, the determination of a "yardstick" and how to advance it over time through the continual improvement of the policy framework, legislation, incentive funding and infrastructure from the provincial government is a necessary to maintain the focus over the long term. 4.0 CONCLUSION 4.1 The Province should be commended for its recent initiatives to improve the planning system through this and other recently released discussion papers. The combination of the 3 discussion papers on Planning Reform and this growth management plan shows the Province is serious about providing the implementation tools, policies and provincial direction necessary to address how the Greater Golden Horseshoe will develop and look in the next 30 years. We trust that our comments in combination with those from the Region will be helpful to the Province in their efforts to manage growth and provide strong leadership for municipalities. Attachments: Attachment 1 - Regional Planning Committee Report 2004 Attachment 2 - Places to Grow: A Growth Plan for the Greater Golden Horseshoe (under separate cover) !.. The Regional Municipality of Durham To: The Planning Committee From: Commissioner of Planning Report No.: 2004-P-** Date: September 14, 2004 SUBJECT: Province's Discussion Paper, Places to Grow: Better Choices. Brighter Future. A Growth Plan for the Greater Golden Horseshoe, File: 026-02-04. RECOMMENDATIONS: a) THAT Regional Council advise the Province of it's general support of the Provincial Growth Plan initiative and offer the following comments on the Discussion Paper: (TO BE COMPLETED) b ) THAT the Province consider the above comments in conjunction with previous submissions of the Region on the Provincial Planning Reform Initiatives, Bill 26 - the Strong Communities Act, Bill 27 - the Greenbelt Protection Act, Smart Growth, Brownfields, the draft Drinking Water Source Protection Act, and the GT A Agricultural Action Plan; and c) THAT a copy of Commissioner's Report No. 2004-P-** be forwarded to the Minister of Public Infrastructure Renewal, the Minister of Municipal Affairs and Housing, and the area municipalities in Durham. REPORT: 1. PURPOSE 1.1 On July 12, 2004, the province released a Discussion Paper entitled, Places to Grow: Better Choices. Brighter Future. A Growth Plan for the Greater Golden Horseshoe (Discussion Paper). Comments must be submitted to the Ministry of Public Infrastructure Renewal by September 24, 2004. I.. 1 ~ , Report No.: 200*-P-** Page NO.2 1.2 The release of this Discussion Paper is another in a series of initiatives, which form part of the Province's "Strong Communities" agenda. The other initiatives include: . Provincial Planning Reforms; . Bill 26, the Strong Communities Act; . Bill 27, the Greenbelt Protection Act and the appointment of the Greenbelt Task Force; . A Growth Plan for the Greater Golden Horseshoe; and . Source Water Protection. Regional Council has commented on these initiatives through Commissioners' Reports: 2004-P-68; 2004-P-7; 2004-P-20; 2004-P-60; and 2004-COW-03. 1.3 The purpose of this report is to review and comment on the Discussion Paper. 2. CONSULTATION 2.1 Following the release of the Discussion Paper, Regional Planning staff attended a public information session hosted by the Province; convened a meeting of planning staff from the area municipalities; and solicited comments from the Durham Agricultural Advisory Committee (DAAC) and the Durham Environmental Advisory Committee (DEAC). 2.2 The Region's position has considered and incorporated the comments and suggestions received from the staff of the area municipalities and the Advisory Committees. The report was prepared in consultation with the CAO's Office, Finance, Works, Health and Economic Development and Tourism Departments. 3. PLACES TO GROW, DISCUSSION PAPER Toward a Growth Plan for the Greater Golden Horseshoe 3.1 The Places to Grow Discussion Paper presents the Province's vision and strategies for managing growth over the next 30 years in the Greater Golden ,.. . ~ ' Report No.: 200*-P-** Page NO.3 Horseshoe (GGH) area. It is intended to stimulate discussion and input to the preparation of a Greater Golden Horseshoe Growth Plan (GGHGP) that will guide decisions on a wide range of issues, including: land-use planning; urban development; housing; local services; transportation and environmental infrastructure and economic development. 3.2 The Province's Vision for the GGH is to provide: . a variety of choices for living in the area; . modern, well maintained infrastructure; . easy access to socio-cultural amenities (food, shelter, education, health- care, arts and recreation, and information technology); . an integrated transportation network; . a healthy natural environment; . protection for agricultural lands; and . compact settlement and development patterns offering diversity of opportunities for living, working and enjoying culture. 3.3 All of the tenets of the Province's Vision for the GGH are consistent with the fundamental planning principles that form the key directions of the Regional Official Plan (ROP), including: . providing distinct urban boundaries; . encouraging developments that utilize land efficiently; . protecting significant features of the natural environment; . encouraging development that will not have adverse cumulative impacts on the natural, built and cultural environments; · increasing employment opportunities and balancing growth in population with growth in employment; . encouraging the production of an increased mixture of housing by type, size and tenure; . creating urban areas that are people-oriented; . protecting agricultural lands; . encouraging stewardship of the land; · improving transportation linkages both within the Region and between the Region and adjacent areas; . developing the Region in a fiscally responsible manner; and . identifying and protecting resources in the Region. '-' Report No.: 200*-P-** Page NO.4 The on-going work of the Regional Official Plan Review exercise only serves to further strengthen these fundamental directions of the ROP. 3.4 To implement the Vision the Province proposes to: . make decisions on where and how to grow; . protect significant natural and resource features and areas; and . utilize available tools to implement the above objectives. Where and How to Grow 3.5 In determining where and how to grow within the GGH the Discussion Paper focuses on using existing urban land more efficiently. It presents five main objectives that seek to maximize existing opportunities to accommodate growth in existing growth areas before looking for new growth areas. These include: . Intensification and Compact Development - to promote the efficient use of land and infrastructure resources within existing designated urban areas; . Priority Urban Centres - to support priority and emerging urban centres as residential and employment anchors; . Future Growth Areas - to manage the amount of land required to accommodate future growth through expansions to urban boundaries; . Economic Strength - to promote economic vitality and competitiveness; and . Small Towns and Rural Communities - to provide necessary tools to assist in addressing their unique growth pressures. Intensification and Compact Development 3.6 The concept of intensification and compact development in existing urban areas is consistent with the primary directions of the ROP. However, it should be recognized that intensification on arterial roads takes time to achieve. In addition, some downtowns and older areas have antiquated infrastructure, which is costly to upgrade. Therefore, appropriate funding is required to accommodate necessary infrastructure improvements to accommodate significant intensification throughout the existing urban areas. !..' . ' Report No.: 200*-P-** Page NO.5 3.7 The proposed actions of the province to assist in achieving intensification and compact development, including: a review of the Development Charges Act to ensure new development pays its fair share; accelerating brownfields redevelopment through various funding mechanisms; and exploring incentives for greyfield redevelopment is generally supported. However, further information andlor clarification is required regarding any changes to existing legislation, funding or incentives in order to assess the implications they may have on the Region. Further, it must be recognized that the Region is already committed to fiscal strategies to ensure growth pays its fair share, through the imposition of Development Charges to recover the costs of development and cost recovery through water and sewer rates. 3.8 The proposal to identify and maintain a supply of employment lands is also supported. New provincial policies and implementation tools are needed however, to ensure the long-term stability of employment areas. Designating and preserving these areas and protecting them from non-compatible uses should be a priority. In this regard, the conversion of land uses on individual sites from employment to residential use, on a site-by-site or incremental basis, should be strictly controlled or prohibited. The Provincial Policy Statement (PPS) needs to provide strong direction to allow municipal official plans to maintain a sufficient long-term supply of employment lands. 3.9 The province also proposes to ensure that a wider range of affordable housing and a mix of housing types are built, through the capital funding under the federal-provincial affordable housing program and other fiscal tools and incentives. While the intent is supported further details are required in order to assess the potential implications on the Region. In addition, the PPS should be strengthened to confirm the importance of rental housing, and in particular, affordable rental housing. The PPS should emphasize the need to promote new rental and protect existing rental housing from demolition and conversion to other uses, as well as support various rental types such as emergency, supportive and transitional housing, second suites and rooming houses, in addition to requirements for minimum affordable housing targets for low and moderate income households. Priority Urban Centres ,. Report No.: 200*-P-** Page NO.6 3.10 The GGHGP will identify priority urban centres throughout the GGH, which are hubs of employment and residential growth and development. They are recognized as key centres that attract industrial and commercial activity, and public and private institutions. 3.11 The Discussion Paper recognizes priority urban centres as having the existing infrastructure (water, waste water and transportation, educational, health and social services, institutions and industrial activity) that can be built upon, and the capacity to absorb further residential and employment growth in an efficient manner. Downtown Oshawa is identified as a priority urban centre. Emerging urban centres are recognized as having some of the characteristics of priority urban centres, but not all. With time and investment they will become priority centres. Downtown Pickering is identified as an emerging urban centre. 3.12 Encouraging growth and development in established urban areas is supported. However, the identification of priority and emerging urban centres should be expanded to reflect the broader urban area around the "downtowns". Downtowns are not the focus of industrial activity within the urban fabric. In addition, it should not apply that investments will only be targeted to the "downtowns" of the designated centres, but rather will be available to other "downtowns" within the "priority area" (eg. downtown Whitby, within the Oshawa-Whitby-Courtice urban area). 3.13 The GGHGP should recognize that the centres must be linked by connecting corridors and higher order transit. To achieve this objective it may be necessary to give emerging urban centres higher priority in order to allow communities to address the urgencies of consumer preference related to transit. 3.14 To co-ordinate the efficient development of priority growth areas, the PPS should be utilized to provide separate and distinct policies relating to jobs, housing, transit and other infrastructure for high growth areas. Such policies should encourage the establishment of centres and corridors as key urban structural elements. '\.0. I" Report No.: 200*-P-** Page No. 7 3.15 The Discussion Paper recognizes that significant infrastructure investment is planned for the Seaton lands in Pickering, subject to the provincial planning exercise under the Ontario Planning and Development Act (OPDA). We anticipate that a meeting will held with the province on this matter in the near future. However, the Region must retain its normal planning and investment roles in the development of Seaton. 3.16 The establishment of the Pickering Airport and its potential to become an employment hub in the eastern part of the GGH is recognized in the Discussion Paper. To increase its priority status it is suggested that it be identified as an "emerging airport" in order that it is recognized for provincial investment support. 3.17 The proposed strategies to assist urban centres to attract growth are generally supported, however as stated earlier further information andlor clarification is required regarding any changes to existing legislation, funding or fiscal incentives in order to assess the potential implications they may have on the Region. 3.18 Additional and more flexible planning tools (i.e. conditional zoning, development permit system, Community Improvement Plans, density bonusing) which assist municipalities and support intensification and redevelopment are supported. However, municipalities should have the fiexibility to determine which tools work best, based on local conditions. 3.19 A streamlined and integrated planning and environmental assessment (EA) process will implement growth management policies in a more efficient and timely manner. A comprehensive official plan process provides the sound basis for infrastructure projects and should be deemed to comply with the need requirements of an EA. Specifically, the Class EA process should be amended to recognize projects dealt with through a comprehensive planning process (such as a secondary plan) as having achieved their Phase 2 approval status. Consideration should be made to exempt all major infrastructure projects within priority urban growth areas, such as transit projects on existing rights-of-way, from a full EA. We note that in April of this year, the Minister of Environment has established a Task Force to examine and streamline the EA process. ',-' Report No.: 200*-P-** Page NO.8 3.20 The Discussion Paper indicates that the Province will develop standards and performance measures for urban centres, including jobs, transit ridership, density targets and targets for a range of affordable and appropriate housing choices. While the concept of performance measures is supported, the use of such standards is questioned. If standards are not met, will provincial funding be jeopardized? Standards and performance measures should not be applied generically across the GGH. Communities are at various levels of maturity and are experiencing growth at different levels. Local circumstances must be considered in the development of standards and measures, which should be operationalized at the Regional level. Future Growth Areas 3.21 The Discussion Paper recognizes that it may be necessary to consider expansions to some urban areas to accommodate growth over the next 30 years within the GGH. It includes a conceptual map depicting the future growth areas at a very general level. However, the conceptual map does not account for natural heritage systems and resources that may be protected through Regional and local municipal Official Plans, although the text is clear in this regard. The map should be revised to include such clarification, since there has been a tendency for the interpretation that the GGHGP will have the effect of overruling the policies of the ROP that establish and protect the urban separators as part of the Major Open Space System. 3.22 While 30-year time horizon is appropriate for determining land requirements and urban expansions at the Regional level, the GGHGP and PPS should provide for the analyses of land use pattern and infrastructure requirements based on a 50-year time horizon for the Greater Golden Horseshoe. In setting the planning horizon for the provision of sufficient land, recognition and special treatment must be given to matured and maturing communities where the supply of raw lands is limited or exhausted. 3.23 The proposed criteria for the consideration of expansions to urban boundaries over the next five years is generally supported, however: . The requirement for a minimum of 40% of projected growth to be accommodated through intensification requires further clarification. '"... Report No.: 200*-P-** Page NO.9 Intensification takes time to achieve, particularly in emerging centres. 40% may not be achievable in all communities on an annual basis at this time. The GGHGP and the PPS should include clear directions and policies on what constitutes an acceptable level of "intensification" and "redevelopment", as well as establish development guidelines and measurable performance standards to assist with implementation. Such policies and guidelines should be structured to accommodate communities of varying sizes and/or densities; . The realization of balanced population and employment growth of 1 job for every 2 persons (consistent with the target of the ROP) can only be achieved in Durham if current infrastructure deficits materialize, such as the completion of Highway 407 and widenings to Highway 401 through the Region, and the construction of the airport in Pickering; and . Additional criteria should be added to require targets for improvements to the live work relationship in growth areas. 3.24 The GGHGP would require the Region to prepare a growth plan in compliance with the GGHGP. On the basis of the information provided in the Discussion Paper it would appear that such Regional Growth Plan would be consistent with the directions, policies and fiscal strategies already contained in the ROP, DC By-law, and yearly Servicing and Financing Studies. Economic Strenqth 3.25 The GGHGP will promote economic development in the GGH by: . removing disincentives to development in urban centres and establishing urban economic development tools to attract investment (TIF's, brownfield redevelopment incentives, and economic development corporations); . improving transportation efficiency; . improving efficiency of key infrastructure; and . ensuring there is a diverse and readily available inventory of employment lands. 3.26 While it is agreed that the competitiveness of the Region is important, we question if there should be an economic strategy to accompany the GGHGP initiative. Also, it is agreed that a diverse and readily available inventory of employment land is important to ensure the Region's competitiveness, as "-/< " Report No.: 200*-P-** Page No. 10 noted earlier, new policies and implementation tools are needed to ensure the long-term stability of our designated employment lands. Small Towns and Rural Communities 3.27 Although the GGHGP focuses mainly on making efficient use of land and resources in urban areas, it recognizes that there is a great deal of land outside these areas. The GGHGP will build upon the recommendations of the Greenbelt Task Force and the Plan for Building Strong Rural Communities by establishing measures to foster the vitality of rural communities, including; . ensuring provincial infrastructure strategies support rural municipalities; . examining how fiscal and regulatory tools could be used to better support rural communities; and . promoting revitalization of downtown areas, waterfronts and brownfields. 3.28 It is important to recognize these areas as "communities" and ensure that they continue to receive the necessary funding and tools to maintain their vitality. Infrastructure to Support Growth 3.29 The Discussion Paper focuses on a new approach to infrastructure planning and investment by: . optimizing the use of existing infrastructure; . identifying strategic infrastructure investments to support urban growth and development; . establishing a more integrated transportation network; and . coordinating long range provincial infrastructure plans in partnership with the municipal and federal governments and other partners. 3.30 Priority investment will be integrated into a new 1 O-year Strategic Infrastructure Investment Plan that will: . focus infrastructure investment in priority urban centres; and Report No.: 200*-P-** Page No. 11 . evaluate infrastructure investment in terms of their consistency with the GGHGP and other initiatives such as the Golden Horseshoe Greenbelt (GHG). Inteqrated Reqional Transportation Network 3.31 The Discussion Paper includes strategies for moving people and identifies Transit as a main priority, to achieve growth objectives, including: . building urban transit systems, including the 407 Transitway; . establishing new interregional transit services; and . strengthening the GO Transit Rail System, including adding new tracks along the Lakeshore corridor through to Oshawa; and . building a network of high occupancy vehicle lanes. 3.32 While building the 407 Transitway in Durham is a laudable objective, without an integrated system of local and regional routes to feed this facility, ridership may be limited. Capital is required to bring our transit services up to the level of those provided in other Regions. Transit needs in Durham are less focused on developing transit infrastructure for rapid transit as opposed to increasing levels of service through conventional bus service. The acquisition of additional rolling stock is paramount to achieving a higher level of service within Durham. A clearer commitment from the Province to be involved in the purchase of rolling stock would be consistent with its objective to optimize existing infrastructure. 3.33 Opportunities for implementing some transit priority facilities and intelligent transportation systems (i.e., transit priority signals, queue jump lanes, dedicated transit lanes, etc.) for urban transit should also be considered. 3.34 Funding and support of interregional transit services is supported, however the Region faces a major impediment to connections to the west because of the Rouge Valley. Emphasis should be placed on rapid transit links to the west from Durham to York Region and the City of Toronto. 3.35 The Discussion Paper recognizes the proposed extension of Highway 407 easterly to highways 35 and 115 as a future economic corridor, providing a connection between the GTA and regions to the east, which has long been '.,.. t" Report No.: 200*-P-** Page No. 12 recognized as an important structural element of the ROP and critical to the Region's future development. Consideration should also be given to recognizing the 404 as a priority for its potential to influence the economic vitality of the northern communities. 3.36 Strengthening of the GO Transit Rail System, particularly the addition of new tracks to Oshawa will benefit the Region. However, the extension of GO rail service to Bowmanville should also be re-examined. Bowmanville should be recognized as a possible transit hub to interconnect with local transit and the future interregional transit link between Durham and Peterborough. Other links that should be given consideration include a lakeshore east link to Port Hope and Cobourg, and a possible link to Lindsay. 3.37 While mention is made of facilities to support carpooling and HOV lanes, none are recognized in Durham. In addition to these initiatives there should be a stronger commitment from the Province to champion and support Transportation Demand Management (TDM) initiatives, financially and otherwise. Greater investment in TDM has the potential for limiting or delaying the implementation of costly infrastructure, and will optimize the use of the infrastructure mentioned in the report (i.e., HOV lanes, carpool lots, and intelligent transportation systems). The Province should therefore take this opportunity to reference and support the Smart Commute Initiative and the TDM programs of municipalities, both financially and otherwise. 3.38 The Discussion Paper also includes strategies for moving goods. It recognizes significant components of the transportation system for the movement of goods including the 400 series highways, rail corridors, shipping ports and airports. It is suggested that the significance of the Oshawa harbour and the future airport in Pickering also be recognized. 3.39 The Discussion Paper proposes strategies to implement the proposed integrated transportation network including: . establishing the Greater Toronto Transportation Authority; . providing 2 cents per litre of provincial gas tax for public transit; · streamlining the EA process, particularly for the transit initiatives of the GP; and . providing incentives for transit-supportive development. <......;' .. Report No.: 200*-P-** Page No. 13 3.40 While streamlining the EA process, providing incentives for transit supportive land use, promoting alternative development standards, fast tracking development, and corridor protection are positive implementation objectives, are supported the document provides very little detail of how these might be achieved. The key to implementation appears to be funding, and it may be argued that 2 cents per litre of provincial gas tax is not enough to accomplish the goals of the GGHGP. Further, the mandate and function of the Greater Toronto Transportation Authority is rather vague, and therefore further information is required before a fulsome assessment can be made of its value to assist in achieving the goals of the GGHGP. Sustainable Water and Wastewater Services 3.41 The Discussion Paper recognizes that the Sustainable Water and Sewage Systems Act will make it mandatory for municipalities to assess the full cost of providing their water and sewer services and to prepare long-term cost- recovery plans that consider all operating and capital costs; all sources of revenue; and the investment required to maintain and expand their system. Full cost recovery is intended to ensure that adequate funding is available for water and sewer infrastructure over the long term. 3.42 A draft of the proposed new legislation is not available at this time. Therefore a comprehensive assessment of the implications on the Region cannot be completed. Particular details are required regarding potential funding and strategies to increase rates over time to reflect "the true costs of water and wastewater services". As noted earlier the Region already has policies and mechanisms in place to recover the costs of development and on-going maintenance through Development Charges and user rates. 3.43 In addition, the Region's position on communal servicing systems prohibits the use of such services, except for justified health reasons. It is recommended that the new legislation, the GGHGP and the PPS should not promote private communal servicing systems. This is also relevant in light of new directions and requirements of the Safe Drinking Water Act and the potential municipal responsibility and liability that accompany them. '. . ...., .' Report No.: 200*-P-** Page No. 14 Protecting What is Valuable 3.44 Protecting and enhancing our resources is recognized as an important part of managing growth. The GGHGP will recognize the protection of resources, including: . Water Resources - through existing and proposed legislation; . Natural Heritage and Greenspace Systems - through the establishment of the GHG; . Agricultural Resources - by ensuring that urban boundary expansions onto farmland be considered only when justified and feasible, and through the establishment of the GHG; and . Mineral Aggregate Resources - through conservation, protecting high potential aggregate areas, and undertaking extraction and rehabilitation in a timely manner. 3.45 While the protection of our natural resources is consistent with the major tenets of the ROP and the CSP, it is necessary for the GGHGP and the PPS to provide clarity on provincial priorities among the various policy areas (i.e. natural heritage features vis-a-vis agricultural lands and mineral aggregates). Water Resources 3.46 The GGHGP relies on source water protection (SWP) to protect water resources. However, SWP will only address local water issues. As such, some previously identified questions related to the draft SWP legislation remain, including: . How source protection planning fits into a broader Provincial source protection policy program; and . How will investment in source protection planning be balanced with spending on infrastructure improvements or actions to deal with known threats to drinking water. Natural HeritaQe and Greenspace Systems 3.4 7 The Discussion Paper provides for the integration of the GGHGP with the Golden Horseshoe Greenbelt by recognizing that the implementation of the ....-..,.0 . \ Report No.: 200*-P-** Page No. 15 GHG initiative will provide for the protection of natural heritage and greenbelt systems. The integration of these initiatives is essential to a broader growth management approach. However, such approach should be founded on upper and single tier official plans, which establish the direction and structure for growth. The ROP, as well as the other plans in the Golden Horseshoe define and secure the significant environmental elements of the greenbelt. In Durham, the ORM is protected by special legislation and the system of north and south fiowing stream and river valleys and other environmental features are protected to varying degrees, through the approved hierarchy of official plans. 3.48 Municipalities could, however benefit from stronger tools to secure wetlands (other than provincially significant wetlands) and tableland woodlands not adequately protected by current provincial legislation. 3.49 The GHG should also ensure the same level of protection is provided for the natural heritage system, including streams off the Oak Ridges Moraine, as is provided by the Oak Ridges Moraine Conservation Plan for these features on the Moraine. 3.50 As part of its initiative to protect the Oak Ridges Moraine, the Province recognized the importance of land securement as an effective implementation tool for key natural heritage features. The Greenbelt Task Force also recognized this as an essential element to protect a Golden Horseshoe Greenbelt. The Province should set aside sufficient funds consistent with the scale and significance of this greenbelt initiative, to secure the most sensitive lands. Aqricultural Resources 3.51 The Province needs to consider the economic viability of agricultural operations in the planning of rural areas, while affording a higher level of protection for farmland. The current practice of using the soils classification under the Canada Land Inventory should be augmented. An alternative evaluation system for identifying prime agricultural areas that takes into account additional criteria such as capital investment, should be further developed. ..~.. ...-\ ... . Report No.: 200*-P,** Page No. 16 3.52 The Discussion Pilper recognizes that within the Greater Golden Horseshoe, the protection of prime agricultural areas will be undertaken within the context of establishing the permanent Greenbelt. The recommendations of the GT A Agricultural Action Plan, endorsed by Regional Council, provide guidance for agricultural land protection and advancing farming as an industry, and thus should be recognized by the GGHGP and incorporated in the PPS. Aqqreqate Resources 3.53 The proposed strategies for protecting the aggregate resources are consistent with the directions of the ROP and the proposed directions to enhance the policies through the ROP Review exercise. However, the implementation of these proposed strategies would be enhanced through the inclusion of additional policies in the PPS and detailed implementation guidelines to properly assess the feasibility of new extraction operations, conduct analyses of social and environmental impacts, and balance resource need against other Provincial interests. Additional policies, such as those recommended by the Greenbelt Task Force, would also strengthen the requirement for timely progressive rehabilitation of extraction areas. Implementation 3.54 The Discussion Paper recognizes that plans and policies are only as successful as their implementation. It suggests that the implementation of the GGHGP requires: · Provincial Leadership and Partnership - by ensuring provincial programs and investments are based on the GGHGP; · Effective Implementation Tools - through the provision of regulatory and fiscal tools and programs; . Legislative Framework - may be required to ensure the implementation of clear roles and responsibilities, and consistency with other legislation; and . Monitoring and Review - to assess the impact on quality of life and the performance of communities. Provincial Leadership and Partnership ...........\.- ' .. R rt N 200*-P-** epo 0.: Page No. 17 3.55 Strong leadership from the Province will be required to ensure the effective implementation of the GGHGP, particularly as it relates to the coordination of all of the interrelated initiatives that have been initiated as part of the Province's Strong Communities agenda. However, the effectiveness or need for a blue ribbon panel to monitor and advise on the GGHGP is questioned. Effective Implementation Tools 3.56 Various regulatory and fiscal tools are proposed to assist in the implementation of the GGHGP. The regulatory tools generally fall under the Planning Act and are covered under the on-going Planning Reforms initiative. While the proposed reforms are generally supported, as noted herein and in previous reports, additional actions and further revisions to existing legislation and the PPS will strengthen the effectiveness of these tools. 3.57 The most important tools to facilitate the implementation of the GGHGP and other provincial initiatives are the available fiscal tools. While the Discussion Paper provides some further details on the types of tools that may be made available, it does not go far enough to provide sufficient detail that can be analysed to assess their potential implications on the Region. It must be recognized that there are fiscal constraints and limits to revenue generation from property taxes and fees and charges. Leqislative Framework 3.58 Provincial legislation may be enacted to ensure compliance and ongoing implementation of growth strategies. Should the Province decide to enact legislation it is recommended that it be implemented through regulation in order that it may be changed without the requirement to amend the legislation, similar to the Oak Ridges Conservation Plan. Further, any legislation should have the effect of defining the roles and responsibilities of the Province as well as municipalities. We would anticipate that this would involve the Region being responsible for preparing a Regional Growth Plan to be implemented through area municipal official plans and capital budgets. ..""......,...,.. Report No.: 200*-P-** Page No. 18 3.59 Alternatively, the Province may consider implementing the GGHGP under the Ontario Planning and Development Act or through the PPS and upper and single tier official plans. Monitorinq and Review 3.60 The monitoring and review of the GGHGP is necessary to assess its effectiveness. It is unclear however how this will be completed or by whom. Further details are required to clarify if such monitoring will undertaken by the Region and if it will represent additional monitoring that is not currently being undertaken. 4. OTHER COMMENTS 4.1 Although the Discussion Paper goes a long way to address the broader growth management issues facing the Greater Golden Horseshoe area, it does not address other important growth related issues, including: · waste management and the related capacity and infrastructure costs; and · human resources, including the need for new revenue sources to fund social programs. 5. CONCLUSION 5.1 The Province should be commended for initiating a broad growth management approach for the Greater Golden Horseshoe that will help to sustain the anticipated growth in population and employment in the region. The integration of this initiative with the other initiatives to achieve the Provincial Strong Communities agenda is an important step in maintaining the high quality of life and the competitive advantage of the area. The comments included in this report, as well as previous submissions by the Region are provided to assist the Province in their efforts to secure strong communities. 5.2 Should Planning Committee support the recommendations of this report, in order to meet the September 24, 2004 deadline for comments, a copy will be forwarded to the Ministry of Public Infrastructure Renewal prior to Council consideration on September 29, 2004, with appropriate qualifications. --"tL"t--...... Report No.: 200*-P-** Page No. 19 AL. Georgieff, M.C.I.P., RP.P. Commissioner of Planning RECOMMENDED FOR PRESENTATION TO COMMITTEE G.H. Cubitt, M.S.w. Chief Administrative Officer Attachment: 1. Provincial Growth Plan, Discussion Paper (Under Separate Cover) Document1 y ATTACHMENT 2 L A Cft 1 Em S TU'Oft LG R U^W Better Choices. Brighter Future. A GROWTH PLAN for the Greater Golden Horseshoe Discussion Paper N Summer 2004 Table of Contents A Message from the Minister of Public Infrastructure Renewal . . .i Tell Us What You Think: Be Part of Planning a Brighter Future in Ontario . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .iii Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .1 A New Approach to Growth for Canada's Economic Engine . .1 Toward a Growth Plan for the Greater Golden Horseshoe . . . .2 A Key Component of our Prosperity and Strong Communities Strategies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .3 Where and How to Grow . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .7 Intensification and Compact Development . . . . . . . . . . . . . . . .10 Priority Urban Centres . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .13 Future Growth Areas . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .18 Economic Strength . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .22 Small Towns and Rural Communities . . . . . . . . . . . . . . . . . . . .24 Infrastructure to Support Growth . . . . . . . . . . . . . . . . . . . . . . . . . .26 Integrated Regional Transportation Network . . . . . . . . . . . . . .27 Sustainable Water and Wastewater Services . . . . . . . . . . . . . . . .36 Protecting What is Valuable . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .38 Protecting Water Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . .38 Protecting Natural Heritage and Greenspace Systems . . . . . . .39 Establishing the Golden Horseshoe Greenbelt . . . . . . . . . . . . .41 Agricultural Resources . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .43 Mineral Aggregate Resources . . . . . . . . . . . . . . . . . . . . . . . . . . .46 Implementation: Moving Forward . . . . . . . . . . . . . . . . . . . . . . . . .48 Provincial Leadership and Partnership . . . . . . . . . . . . . . . . . . .48 Effective Implementation Tools . . . . . . . . . . . . . . . . . . . . . . . . .49 Legislative Framework .51 Monitoring and Review . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .52 NextSteps .. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .54 Appendix. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .56 Glossary of Terms . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .56 Ontario A Message from the Minister of Public Infrastructure Renewal On behalf of the McGuinty government I am eager to hear your input on our discussion paper on a proposed growth plan for the Greater Golden Horseshoe. Ontarians have asked us to deliver the real, positive change needed to build strong, prosperous communities with a healthy environment and an excellent quality of life. We are responding by acting now so that future generations will not be burdened with many of the challenges we face today, such as sprawl and gridlock. The strength of the province depends on the strength of its people. By 2031, more than four million additional people will call Ontario their new home and more than two million new jobs will be created. A large percentage of these people will settle in the Greater Golden Horseshoe. We need to make sure that we can accommodate this growth so that they have a place to live, work and play. Ontario has a strong track record of planning for growth in a way that contributes to our overall quality of life. However, we have fallen behind in meeting the public infrastructure needs that this growth brings. This proposed growth plan is complex and fundamentally important. It will be the first of its kind in Ontario. It will set out a clear vision and articulate a long-term plan for growth in the Greater Golden Horseshoe. The growth plan will propose a strategy to regenerate Greater Golden Horseshoe communities through creative solutions in three key areas: • Where and how we should grow; • What critical infrastructure we need to support that growth; and, • What are the most valuable things we need to protect. Finally, this proposed growth plan will articulate ways to implement the strategy so that it can truly be a vehicle for co-ordinated decision-making and prioritized infrastructure investments. It will also be integrated with the long-term 10-year infrastructure plan for the province that we are also developing. Municipal and community leaders have been asking the province to take a leadership role in building strong and attractive cities, towns and rural areas - and we are. But we cannot do it all alone. Municipalities, other levels of government, the private sector, community groups, and academic institutions all have to be part of the solutions. ®Ontario i They too are seeking clarity and a sound plan for how this large region should grow over the next 30 years. The growth plan will provide that guidance. It identifies priority urban centres where new economic and population growth will be encouraged, while providing for a greater quality of life and protection of the environment. I want to hear your views on this discussion paper. We will be hosting public information sessions and encouraging you to submit your input in writing. Please read this document, attend an information session, visit our website and send us your feedback. There are a lot of ways for you to be heard and I look forward to receiving your input. Hon. David Caplan, Minister �� Q Ontario PLACES TO GROW-A Discussion Paper,Summer 2004-Better Choices,Brighter Future I it Tell Us What You Think: Be Part of Planning for a Brighter Future in Ontario The government of Ontario is now seeking public feedback on the strategies contained in this discussion paper. Implementing our strategic vision demands the contributions of all stakeholders. Governments, institutions, community groups, businesses and residents must all work together. We will be holding information sessions throughout the Greater Golden Horseshoe in the early summer of 2004. Based on input and further technical studies, we will develop a final growth plan and release it in late 2004. To submit your comments electronically, you can complete an online survey at www.placestogrow.pir.gov.on.ca Written comments can also be submitted to - Growth Plan for the Greater Golden Horseshoe Ministry of Public Infrastructure Renewal Smart Growth Secretariat 777 Bay Street, 16th floor Toronto, ON M5G 2E5 Fax: 416-585-7639 E-mail: placestogrow @pir.gov.on.ca For more information or to order additional copies of the discussion paper, please call our toll free line at 1-866-479-9781. Toronto-area residents can call 416-585-6746. We kindly ask that your comments be received by September 24, 2004. ®Ontario iii Introduction A New Approach to Growth for Canada's Economic Engine The Greater Golden Horseshoe is one of the fastest-growing regions in North America. It is the economic engine of Ontario and of Canada. By developing and releasing the plan for growth outlined in this discussion paper, the Government of Ontario is recognizing and acting on this reality. People from other parts of Canada and the world are drawn here because of the enviable quality of life and the economic opportunities that are available. This region offers people a chance to build a great future. We must continue to ensure a high quality of life, economic prosperity, and the creation of quality jobs throughout the Greater Golden Horseshoe. For the last decade, urban regions across North America and around the world have been competing with each other to attract high-quality jobs and investment in innovative industries. Innovators have recognized that urban regions allow a concentration of public and private resources - skills, knowledge, creativity, investment, infrastructure, natural resources - that drives economic development. They are competing to enhance the quality of life for their communities in order to draw in talent, future investment and innovation. Map 1:Greater Golden Horseshoe Growth Plan Area The Greater Golden Horseshoe has a strong advantage in this competition. Our > ��,a� ,t highly-educated population, strong natural PETERBOROUGH resource base, and tradition of community _ t1 planning have given us a quality of life that SIMCOE /se I<AwAITHa is the envy of the continent. But we cannot _ , t LAIfES �, �� rest on our laurels: we can and must plan for future growth. A r.—°` DUFFERIN _ �,YORK � ` DURHAM NORTHUMBE�ND' Clearly we can and must do a better job of planning or the future instead of responding - g ure res p g � [� WELLINGTON PEEL � to problems caused by growth as they arise. \ TOR( TO like Ontanb For example, as traffic congestion increased HALTOO commute times and lowered air quality, new 'WATERLOO roads were built instead of investing n g IHAMILTON transit infrastructure. As urban sprawl kept BRANT\ f families away from their homes and �, _,NIAGARA y" ) swallowed greenspace farmlands and natural HALDIMAND resources, some developments were allowed to proceed haphazardly. As rapid growth in take We the region put strain on the ability of I Introduction ®Ontario 1 municipalities to respond to and manage new development, previous governments often blamed partners rather than building cooperative working relationships. The McGuinty government will not squander the opportunity to enhance the competitiveness of what will soon become North America's third-largest region. We recognize the importance of accommodating growth in ways that maintain a high quality of life for our people and present stable and attractive conditions for businesses deciding where to locate jobs and investments. We recognize that urban regions are becoming hubs of commercialization and competition as well as magnets for the highly skilled workers so necessary for innovation and productivity. As urban regions compete for these resources we can no longer afford to think short- term or municipality-by-municipality. Through our growth plan, the provincial government will show leadership to provide a long-term vision for regional growth. This vision will guide critical decisions and infrastructure investments by all levels of government, by residents, and by businesses large and small for the next 30 years. The Ontario government has adopted a new approach to planning and investing. We will judge - and wish others to judge - our actions and investments based on whether they achieve meaningful results that matter to people and to communities. As the government makes decisions on where and how to grow,which areas to protect and where to invest our infrastructure, we will not succeed if we only address the problems caused by growth. We will succeed if we harness new growth to ensure greater prosperity for people, improved quality of life and reduced urban sprawl in our communities, Through protection of our greenspace and natural resources we can promote a healthier population. Toward a Growth Plan for the Greater Golden Horseshoe Over the coming months, the Government of Ontario will translate its vision for growth into a concrete plan to guide decisions on a wide range of issues - land-use planning, urban development, housing, local services, transportation and environmental 'infrastructure and economic development. We will ensure that better investment decisions are made that will get the results we want for the prosperity of the Greater Golden Horseshoe. To provide a provincial vision and strategy for managing growth in the region over the next 30 years we will: . Decide where we want to grow by identifying priority urban centres, strengthening the transportation linkages among them, 2 ®Ontario PLACES TO GROW-A Discussion Paper,Summer 2004-Better Choices,Brighter Future and encouraging more compact development in urban areas to maximize the benefits of new growth. The Greater Vancouver Regional District's • Protect and manage valuable greenlands, Livable Region Strategic Plan includes targets for natural systems and agricultural lands so population, housing and employment for the entire that they continue to contribute a full region and for municipalities identified as growth range of environmental, social and concentration areas. Targeting growth in these areas economic benefits to Ontario. allows more people to live closer to their jobs and make better use of public transit and community • Use the tools at our disposal to implement services. The plan's target is to capture 70 per cent of these objectives: growth by 2021 in the growth concentration areas. - Invest strategically in infrastructure that Waterloo Region's Growth Management Strategy supports our growth priorities. plans for growth over the next 40 years. Key - Create a legislative and regulatory components of the strategy include a countryside line planning framework that promotes that sets the limit of the region's urban area; a central greater collaboration between the transportation corridor that features light rail transit province and its partners to strategically connecting key destinations; a greenlands strategy accommodate growth. that will help define, identify and protect natural -Provide a suite of new regulatory and features and linkages; and a re-urbanization corridor fiscal tools to assist municipalities and that will accommodate the majority of future other stakeholders in attracting and intensification and job growth. locating growth strategically and protecting what is valuable to us. Focusing development in priority urban centres is good for the quality of life of our people and good for economic growth. By focusing on areas where our capacity to service new development already exists or can be most efficiently provided, we will build vibrant communities where the services people need daily are close at hand. We will ensure better and more affordable choices for where to live and how to get to work. We will create the conditions for clusters of interrelated and supporting industries to locate in the Greater Golden Horseshoe and compete with each other, making Ontario a leader in innovation. We will maximize the productivity of Ontario's diverse, highly-skilled, well-educated and creative workers, a key source of our strength. And we will better preserve the natural areas that Ontarians cherish for their prosperity, health and recreation. A Key Component of our Prosperity and Strong Communities Strategies The growth plan the government will propose is a key component of the provincial government initiatives to ensure Ontario's future prosperity and strengthen its communities: Introduction QQ Ontario 3 • Clean Water, Clean Air and Greenspace Protection. The growth plan will build on the work of the Greenbelt Task Force, the watershed-based source water protection planning initiative, and planning reform to ensure that our valuable greenlands, agricultural lands, natural resources and watersheds will be protected now and in the future. • Planning Reform. The government's strategic vision will be incorporated into the review of the Provincial Policy Statement, Planning Act, and Ontario Municipal Board reform. While consistent with planning reform, the growth plan will provide more specific direction to municipalities in the Greater Golden Horseshoe. • Transportation. The plan will identify an integrated transportation network that connects the region to vital markets in the United States and other parts of Canada, as well as linking communities within the Greater Golden Horseshoe. The work of the Greater Toronto Transportation Authority will be critical in implementing the transportation directions of the growth plan. • Infrastructure Planning. The growth plan will provide guidance for infrastructure investment decisions through the 10-year infrastructure plan being prepared by the Ministry of Public Infrastructure Renewal. The growth plan will allow us to plan infrastructure from a larger-scale, longer-term perspective with an understanding of the real costs of new development and how they will be financed. • Strong Rural Communities Plan. The growth plan will ensure that the province's rural communities also enjoy prosperous economies, a rich cultural and natural heritage, and the capacity to sustain a high quality of life. It will moderate urbanization pressures on smaller communities that want to keep their small- town rural environment. • Partnerships.Implementation of the plan will require collaboration at all levels of government and across all sectors. We must take advantage of the unique relationship between the province and its municipal partners to co-ordinate decisions on land-use planning, transportation and housing development, environmental planning and economic development. The growth plan builds upon past work of many partners, including municipalities, agencies and boards, and bodies such as the Central Ontario Smart Growth Panel, Toronto Board of Trade, Neptis Foundation, University of Toronto, the Regional Planning Commissioners of Ontario, the Pembina Institute and various chambers of commerce. 4 ®Ontario PLACES TO GROW-A Discussion Paper,Summer 2004-Better Choices,Brighter Future Growth Potential in the Greater Golden Horseshoe During the 30 year period between 2001-2031, the population of More than 154,000 acres the Greater Golden Horseshoe will grow by almost four million of land in the GTA have people, and its economy will grow by about two million jobs. Each been developed for year, the region receives about half of all new immigrants to Canadal. urban uses since 1993, The importance and benefits of new growth are clear. Our representing nine per cent of society and cultural diversity are our strength and will be the the LTA's total land area. source of continuing growth. It is this growth that allows the region to prosper, generating nearly two-thirds of Ontario's GDP and nearly one-third of Canada's output2. But we must harness the potential of this growth by planning for Over the past 10 years, it strategically. Land is a scarce commodity: we need it for housing, the GTA posted the third open space, recreational enjoyment, shopping, transportation and strongest rate of population farming. If we continue to consume land for urban development at and job creation growth in the rate we have been for the past three decades, we will jeopardize North America. the financial, social and environmental factors that make the region so attractive to new residents and new economic growth. • Business-as-usual development will consume 1,000 sq km of primarily agricultural land by 2031, an area twice the size of Toronto3. • Gridlock will continue to worsen over the next 30 years. Commute times in the GTA could increase by 45 per cent4. Gridlock on the 400-series highways is already costing us over $2 billion a year in lost productivity5. • Our environment will suffer. Air quality will decline with automobile-related emissions increasing by 42 per cent6. The number of smog advisories in the GTA has already increased from one in 1993 to 20 in 20017. • Affordable housing could become harder to find. Currently 20 per cent of all GTA households and 35 per cent of GTA renter households face affordability problems$. • More compact development could save about 20 per cent in infrastructure costs compared to existing growth patterns9. To reverse this trend and take full advantage of the opportunities presented by new development in the next 30 years, we must implement a strategic vision to ensure that new growth is healthy growth and contributes to the prosperity and sustainability of our communities. To do this, we must maximize the benefits of growth while minimizing the costs. Planning for growth is not new to Ontario: efforts to guide growth in Central Ontario date back to 1960. Some major exercises for the GTA include the Toronto-Centred Region Plan (1970), the Central Ontario Lakeshore Urban Complex (1974), Shaping Growth in the GTA (1992), the Report of the GTA Task Force (1996) and the recent work of the Central Ontario Smart Growth Panel. Introduction QQ Ontario 5 Our history of planning, our diverse society, and our abundance of natural resources and greenspace make this region the envy of the continent. However, recently,we have not lived up to expectations. This government's focus is on restoring Ontario's place as a leading jurisdiction for attracting and reaping the benefits of new growth. A Vision for the Greater Golden Horseshoe More than anything, the Greater Golden Horseshoe will be a great place to live in 2031. Its communities will be based on the pillars of a strong economy, a clean and healthy environment and social equity. The Greater Golden Horseshoe will offer a wide variety of choices for living. Thriving, livable, safe and productive urban and rural areas will foster community and individual well-being. The region will be supported by a modern, well-maintained infrastructure built in accordance with a broad plan for growth. Residents will have easy access to shelter, food, education and health-care facilities, arts and recreation and information technology. Getting around will be easy. An integrated transportation network will allow people choices for easy travel both within and between urban centres throughout the region. Public transport will be fast, convenient and affordable. Roads, while still a significant means of transport, will be only one of a variety of effective and well-used choices for transportation. Walking and cycling will be practical elements of our urban transportation systems. A healthy natural environment with clean air, land and water will characterize the Greater Golden Horseshoe. Significant natural features, such as the Oak Ridges Moraine and Niagara Escarpment, will be enhanced and protected in perpetuity. They will form the key building blocks of a regional natural heritage system. The region's rivers and streams, forests and natural areas will be protected and easily accessible for residents to enjoy their beauty. Open spaces in our cities, towns and the countryside will provide people with a sense of place. Unique and high-quality agricultural lands will be protected for future generations. Farming will be productive, diverse and sustainable. Throughout the entire area, urban centres will be characterized by compact settlement and development patterns and will supply a diversity of opportunities for living, working and enjoying culture. The evolving regional economy of the Greater Golden Horseshoe will have matured into an economic powerhouse of global significance. It will function as Canada's principal international gateway. The Greater Toronto Area will be a thriving, world-class metropolis with an extraordinary waterfront. And at the heart of this metropolis is Toronto,a celebrated centre of influence for commerce, culture and innovation. All of this will translate into a place where our residents enjoy a high standard of living and an exceptional quality of life that is world renowned. Adapted from the Central Ontario Smart Growth Panel I 6 ®Ontario PLACES TO GROW-A Discussion Paper,Summer 2004-Better Choices,Brighter Future Where and How to Grow Historical Growth Patterns In The The growth plan will Greater Golden Horseshoe ensure that as the Greater Golden Horseshoe grows over the next 30 years, residents will continue to - enjoy a high quality of life. r Moreover, it will ensure �• that the needs of the next iro, generation are not burdened by the decisions that are taken today. Population Growth 1981-2001 During the past 20 years, 1967: Urbanized Areas, 1992:Urbanized Areas we have seen robust growth throughout the region. Overall, the Greater Golden ab 4 Horseshoe has grown from � y about 5.4 million in 1981 to 7.8 million in 2001 - an ;' •�.���; increase of 2.4 million people. Eighty per cent of this growth occurred in the GTA and Hamilton. All of the "905" regions have seen rapid growth, collectively doubling their population between 1981- �*.. 2001,while Hamilton and Toronto saw more modest = growth of about 15 per cent during the 20-year period. In N . the outer ring surrounding the GTA and Hamilton, • r ., growth has been concentrated in areas north and west of the GTA, with Barrie, Guelph and Waterloo Region accounting for almost half of 2004:Designated Settlement Areas Map 20D4:Designated Settlement Area shows the growth in the outer ring data from upper,lower and singietiermunicipal Official Plans,reflecting lands designated for between 1981-2001. development to the year 2021.Sources:Ministry of Natural Resources,Ministry of Municipal Affairs and Housing,Ministry of Public Infrastructure Renewal and the former GTSB. Where and Howto Grow 7 Future Growth Based on past and current growth trends, the future population of the Greater Golden Horseshoe is expected to grow by almost four million, bringing the region's population to over 11 million people by 2031. This represents an increase of about 50 per cent over the next 25 years. Approximately 75 per cent of this growth is projected to occur in the GTA and Hamilton with most of the remaining growth expected to occur in the larger urban centres in the outer ring. Map 2:Areas Experiencing Rapid Growth �I Georgia; &7y `�X I%q - A n • + s vUU r , Lake Ontario i w t (r s.� Lake Ene Legend Areas Experiencing Rapid Growth GDesignated Settlement Areas if Designated Settlement Areas Experiencing Rapid Growth W Oak Ridges Moraine = Greater Golden Horseshoe Area C3 Niagara Escarpment W Greenbelt Study Area Data for rapid growth areas based on munkipalltles/lower-tlam with an average annual growth of 1,000 persons/year from 1996-2001.(Statisdm Canada) Sour—Ministry of Natural Resourom,Ministry of pudic Infrastructure Renewal &Ministry of Municipal Affairs and Nousing Date:June 2004 20 10 0 20 40 Krn I „ 8 Ontario PLACES TO GROW-A Discussion Paper,Summer 2004-Better Choices,Brighter Future If present growth trends continue, most of the growth for the entire Greater Golden Horseshoe will occur within the GTA and Hamilton, Barrie and Waterloo-Wellington areas, as highlighted within the dark purple areas shown on Map 2. Together, these areas experiencing rapid growth will account for over 90 per cent of the new growth to the region. Throughout the region, municipalities have generally designated the places where growth should occur within the 20-year time span of their official plans, although there are some municipalities with a shorter-term land supply (10-15 years). Further, within these time frames, the supply of high, medium and low density lands can also vary, with the supply of low density lands generally being less than for medium and high density lands. These designated settlement areas, shaded purple on Map 2, comprise the current urban envelope of the Greater Golden Horseshoe. A large portion of that envelope has yet to be developed. For example, about one-third of the designated urban area of the GTA has yet to be developed. Various studies suggest that there is sufficient land available within the currently designated urban envelope to accommodate the majority of growth over the next 15 to 25 years10. That is, there is the capacity within the areas designated for development to accommodate a substantial portion of the projected four million additional people, even under a growth pattern that is similar to today's. By using our land in a more efficient manner, we will limit pressures to expand our urban boundaries and will be better able to protect prime agricultural lands and greenlands. Where and how we grow is not only affected by the supply of available land but is also influenced by and influences the pattern of economic development that emerges across the region. Businesses locate where there are skilled workers, where costs are competitive,where the infrastructure is good, and where their employees can find suitable housing and enjoy a high quality of life. The most innovative and thriving economies emerge in places where there is a rich diversity of people, skills and knowledge and a high quality of life. At the same time, by being more efficient and developing primarily within existing urban areas, we can build upon the business and investment attractiveness of existing communities, support our key economic and employment centres and enhance our economy's competitiveness. Where and How to Grow ®Ontario 9 Growth Plan Objectives To shape where and how we grow, five main objectives are proposed that seek to maximize existing opportunities to accommodate growth before looking for new growth areas: Historic growth patterns 1. Intensification and Compact Development: to promote the in central Ontario show efficient use of land and infrastructure resources within existing that urban land designated urban areas throughout the Greater Golden consumption-for Horseshoe by supporting compact form and intensification. residential, commercial, 2. Priority Urban Centres: to support priority urban centres and industrial development, emerging urban centres, located within existing and approved roads and servicing-has urban areas, as residential and employment anchors throughout grown proportionately the Greater Golden Horseshoe. faster than the population. 3. Future Growth Areas: to manage the amount of lands required Between 1967 and 1999 to accommodate future growth through the development of a the urbanized part of the more strategic approach to expansions of urban boundaries. GTA increased by 3.6 times while population 4. Economic Strength: to promote the economic vitality and grew by only 1.9 times. competitiveness of our communities through innovative partnerships, supportive tools and maintaining strategic employment lands. 5. Small Towns and Rural Communities: to reflect the diverse and local needs of small towns and rural communities by providing tools to assist them in addressing their own unique growth pressures. Underlying these objectives, the plan will provide municipal governments with a strong vision and framework, plus significant and flexible tools to ensure that growth is implemented in a way that supports shared provincial and municipal objectives to manage growth effectively and efficiently. Intensification and Compact Development Housing starts in the Efficient use of land is an economic and environmental major urban areas of foundation of Smart Growth initiatives practiced around the world. central Ontario have All the cities and towns of the Greater Golden Horseshoe, large or increased steadily from small, have a foundation of existing infrastructure capacity that can 25,000 units in 1993 to be built upon to increase compact urban form. By making best use 62,500 units in 2003, of existing infrastructure, we also reduce the need for large, costly accounting for three investments and maximize the value of the public investment that quarters of all housing has already been made. starts within the province in 2003. Many municipalities have considerable experience with compact urban form in their downtown areas. These areas provide a sense of place and history for many communities that have now become leading examples of redevelopment and intensification. The emphasis on strong downtown cores and the regeneration of brownfield sites is in keeping with best practices in urban economic development. 10 Q Ontario PLACES TO GROW-A Discussion Paper,Summer 2004-Better Choices,Brighter Future In making more productive use of existing urban areas, the growth plan will emphasize Key Redevelopment and Intensification Opportunities the preservation and enhancement of the Key opportunities exist throughout the Greater cultural heritage of existing communities Golden Horseshoe to accommodate further growth and their neighbourhoods, building upon through redevelopment or intensification of areas with the foundations and assets that we have excess capacity. already invested in and value. . Underused brownfields are ideal for redevelopment Intensification should assist in shaping the for industrial, commercial or residential uses. evolving form of communities to reflect the cultural and natural heritage and the needs Greyfields are also ripe for redevelopment in many communities because they are often located along and values of its past and future residents. key transportation routes. Communities must strive for a balanced � Areas where school, transit and infrastructure mix of growth, accommodating both jobs capacity already exist and can accommodate further and a range of housing choices. They must also strive to have a range of affordable growth. housing options in the urbanized parts of . Within urban areas, higher order transportation the region that will help increase housing stations (subway, LRT and GO Rail) are hubs that choice. This will ensure that there is a broad can be developed to accommodate greater residential range of choices for people to live closer to and employment capacity. where they work. . Encouraging growth in areas with densities that Providing a balance of jobs and housing border on being able to support viable transit and also depends on a well placed supply of improve the efficiency of the existing system. employment lands. The location of . Intensification along higher order transit corridors employment lands is important not only to within urban areas can increase the number of the communities and industries they serve, people taking transit without the additional costly but is also significant to the overall investments required for new transit lines. economy. It is important that the growth plan support municipalities by providing them with the tools necessary to maintain an adequate supply of employment lands that will meet their future needs. At the same time, in addition to the redevelopment opportunities within existing urban areas, within the urban boundaries of the Greater Golden Horseshoe there are many greenfield sites that are currently undeveloped, but that will likely be developed in the near future. These developments should also look to the application of growth principles, such as efficient use of infrastructure, walkable communities, a mix of land uses and a range of housing and transportation choices. The plan will lay out a set of tools to encourage and support development within existing urban boundaries. It will do so by addressing barriers that make it less financially viable for developers to invest in existing areas, such as lack of up-front financing for brownfield remediation and strict municipal zoning regulations in urban areas. It will also put in place incentives to encourage developers to take advantage of opportunities in already designated and serviced areas, while making sure the costs of servicing new Where and How to Grow Q Ontario 11 greenfield developments are more fully Redevelopment Success Stories... borne by the beneficiaries - not existing Cobourg cleaned up a waterfront site containing local or provincial taxpayers. former industrial lands that housed gasoline and oil Through the plan, we will continue to storage operations. The site was redeveloped for review the legislative and regulatory residential condominiums, parks and open space, a environment to ensure a level playing field waterfront trail and marina. The area is now a major for urban redevelopment and intensification. destination for residents and visitors with increased public open space and recreational uses. Strategies Toronto eased zoning and official plan To support implementation of the growth requirements in the "two Kings" area (King and plan, the following potential actions and Parliament Streets and King Street and Spadina tools to spur intensification and mixed-use, Avenue) to address a declining inner-city industrial compact development in existing urban areas base and growing demand for live/work could be used. These actions and tools both accommodation in the core. Previous land-use address barriers to investment in existing designations restricted the lands to industrial use only areas and also level the playing field in terms and considered residential uses as incompatible. The of ensuring that new greenfield development result of changing these restrictions has been a greater bears a fair share of its true costs. density and mix of industrial, residential and Through the growth plan, the province commercial uses and the revitalization of the will encourage compact, mixed-use neighbourhood. development within existing urban areas and Markham established a master plan for a future in new greenfield developments by downtown to achieve its vision of accommodating reviewing current regulatory, fiscal and growth without the need to expand into the planning measures to ensure that they countryside. Markham Centre will become a vibrant, promote compact urban form and intensive, mixed-use centre with a distinctive discourage growth that makes inefficient use character and a focus for the town's many of land. Specifically, the province will- communities. . review the Development Charges Act to Brantford developed a community improvement ensure that new development pays its fair plan in 2002 to encourage revitalization of its share of the costs of growth and downtown. As one component of a larger business encourages compact urban form as well as assistance program, it provides direct grants and consider making changes to the act to business incentive programs, including no-interest or provide incentives for redevelopment of low-interest loans and reduced building permit fees, existing areas with underused and other measures. So far, more than a dozen infrastructure capacity projects have been funded, including shops, . accelerate brownfields redevelopment by restaurants and medical projects. exploring options for easier access to front- Kitchener has recently passed a new development end financing, property tax financing and charges by-law which provides exemptions for eliminating impediments regarding mortgage development in its downtown area and reduced financing for remediated properties development charges for new residential development . explore the creation of greyfields in its central neighbourhoods. redevelopment incentives for mixed-use multi-storey development in underused retail areas • develop standards for greenfield development, including mixed- use, walkability and transit-supportive design standards 12 ®Ontario PLACES TO GROW-A Discussion Paper,Summer 2004-Better Choices,Brighter Future ® explore the potential use of special purpose municipal economic development In Sydney, Australia, extensive greenfield corporations as a catalyst for supporting development has been avoided by developing intensification and related objectives in underutilized sites in the existing urban area. In downtowns and other targeted the 1980s, a little over 60 per cent of new dwellings development areas were built in existing urban areas and almost . work with municipalities to identify and 40 per cent in greenfield areas. In the early 2000s, maintain a predictable supply of after the adoption of a growth management plan, employment lands across the Greater around 75 per cent of dwellings were built in Golden Horseshoe. established areas and 25 per cent in greenfields. The province will also ensure that a wider The national target of the U.K. is to build 60 per range of affordable housing and a mix of cent of new dwellings on previously-developed land housing types are built to achieve growth by 2008. Each year since 1997 the numbers have plan goals in the Greater Golden Horseshoe, increased, achieving 66 per cent in 2003. through the following actions - . encouraging the construction of more affordable and appropriate housing through capital funding under the federal-provincial Affordable Housing Program • reviewing existing fiscal tools such as the land transfer tax rebate program to promote resale housing or housing in urban areas • examine the possibility of a location-efficient mortgage pilot program to provide incentives for living closer to work that does not require commuting by car. Priority Urban Centres To facilitate development within urban areas and to use land more efficiently, the plan will identify priority urban centres throughout the Greater Golden Horseshoe. To do so, we will incorporate the work of both the Central Ontario Smart Growth Panel and the Regional Planning Commissioners of Ontario. Priority urban centres are the hubs of employment and residential growth and development. They are key centres that attract industrial and commercial activity, and the public and private institutions of a thriving urban region. The following criteria have been applied to identify priority urban centres. Priority urban centres - are major employment centres (highest percentages of jobs in the region) . have employment activities of provincial, national or international significance (e.g. location of corporate head offices) . have both high population (over 60 residents per hectare) and employment densities (over 60 jobs per hectare) Where and How to Grow ®Ontario 13 • have transit-supportive densities or borderline transit-supportive densities (over 3,000 person per sq. km) • are major road transportation and regional transit hubs • have easy transportation access to major trade corridors and border crossings • have a diverse mix of residential, commercial and industrial uses • have infrastructure and redevelopment capacity or opportunities • provide broad regional level public services, such as hospitals, colleges or universities,social services, etc. • are well distributed across the region. Possessing these characteristics makes priority urban centres attractive for further urban growth. Priority urban centres are generally located in the established downtown areas of the fast growing metropolitan areas of the Greater Golden Horseshoe. Their size will vary according to the size and scale of their municipality. In particular, it is recognized that downtown Toronto is the heart of the region and is an international centre of influence for commerce, culture and innovation. Priority urban centres have existing infrastructure —water,waste water and transportation, plus educational, health and social services, institutions and industrial activity — that can be built upon, and the capacity to absorb further residential and employment growth in an efficient manner. Emerging urban centres areas have some of the characteristics of priority urban centres, but not all. Over time, as the growth plan is implemented and investments are made to attract development to emerging urban centres, they too will become the hubs and emerge as regional centres of the Greater Golden Horseshoe. Many of these emerging urban centres have already been identified as targets for future growth in municipal official plans. In addition, significant infrastructure investment is planned for the Seaton Lands in Pickering. This area is designated urban and is subject to a provincial planning exercise under the Ontario Planning and Development Act. 14 ®Ontario PLACES TO GROW-A Discussion Paper,Summer 2004-Better Choices,Brighter Future Map 3:Priority and Emerging Urban Centres I 2 I � + Downtown aAe 9 { ie Barrie wntown terbolrough Newmarket y s * Centre q Downtown a -W - 3,� Richmond Hill/ Markham '.Downtown Oshawa Langstaff Gateway Centre Pickering ° Vaughan North ♦ +4, Corporate Centre York • rampton Yonge- Cencr Scarborough Centre , ity Centre Eglinton Pearson Airport Centr Downtown Downtown Mississauga Toronto Waterfront Guelph City Centre Downtown owntown Waterloo Milton Downtown Kitchener Downtown t Downtown Oakville Burlington Downtown Cambridge. Downtown St.Catharines 44` in ntown Downtown B Hamilton Munro Air r Downtown`, •- �• iagaraFalls,� !� Downtown Fort Erie Lake Erie Legend Priority and Emerging Urban Centres Priority Urban Centres Emerging Urban Centres International Airports C�3 Oak Ridges Moraine Q Greater Golden Horseshoe M Area W Niagara Escarpment M Designated Settlement Area W Greenbelt Study Area Sources:Ministry of Natural Resources,Ministry of Public infrastructure Ren—al &Ministry of Municipal Affairs and Housing Date:June 2009 20 t0 0 20 90 Km I I I I R Where and HowtoGrow QQ Ontario 15 The table below lists the priority and emerging urban centres in the Greater Golden Horseshoe. Urban Centres in the Greater Golden Horseshoe Priority Urban Centres Emerging Urban Centres Downtown Toronto Waterfront Scarborough Centre Yonge-Eglinton Centre Markham Centre North York Centre Newmarket Centre Mississauga City Centre Richmond Hill/Langstaff Gateway Brampton City Centre Vaughan Corporate Centre Downtown Oakville Downtown Burlington Downtown Hamilton Downtown Milton Downtown Oshawa Downtown Pickering Downtown Barrie Downtown Brantford Downtown Waterloo Downtown Guelph Downtown Kitchener Downtown Cambridge Downtown St. Catharines Downtown Niagara Falls Downtown Fort Erie Downtown Peterborough Priority urban centres will be the targets for intensification, promotion of mixed use and development of nodes on the transportation network. As such, they will be a key focus of transit investment and investment in other infrastructure required to ensure thriving and desirable communities. By building upon our priority urban centres and supporting the evolution of our emerging urban centres, we will - . develop a network of urban centres that will strengthen the economy of the entire region • form the building blocks to support future growth • provide a framework to guide future infrastructure investments •reduce pressures on our valuable natural environment. Airports Airports are economic anchors and generators of employment throughout the Greater Golden Horseshoe. The area surrounding Pearson International Airport is a unique employment node that has many characteristics of a priority urban centre. Unlike priority urban centres, it does not offer mixed-use development and is not a desirable area for residential growth. However, this area does serve 16 ®Ontario PLACES TO GROW-A Discussion Paper,Summer 2004-Better Choices,Brighter future a key role in the regional, provincial and national economy as a hub of employment and traded goods. The role of the John C. Munro International Airport in Hamilton has been growing to serve both expanding regional freight and passenger markets. Hamilton has identified the airport as its top economic development priority. Any future growth in this area should take advantage of the economic opportunities provided by the airport. There is also a long-term plan to establish the North Pickering Airport which has potential to become an employment hub in the eastern part of the region. It is anticipated that The Greater Toronto Airport Authority will release a draft plan in the fall of 2004 outlining a proposed North Pickering Airport. Strategies The province will encourage growth and prosperity in priority urban centres and emerging urban centres in the Greater Golden Horseshoe through a number of actions. To assist urban centres to attract growth, they will be provided with a number of benefits and incentives, which will encourage developers and investors to make location decisions that support the growth plan. The province will- • make growth-related decisions on infrastructure investments based on whether they will be consistent with growth plan objectives • align provincial investment decisions with the priorities of the growth plan (e.g. provincial institutions, health care and educational facilities, offices, and other facilities will be located within urban centres) • establish the Golden Horseshoe Greenbelt to clearly delineate those areas that are off limits to urban growth and to provide a valuable legacy of protected natural heritage systems, agricultural land (including the tender fruit and grape lands and the Holland Marsh), non-renewable natural resources, and cultural, recreational and tourism opportunities • develop new incentives for priority and emerging urban centres, such as planning and environmental approvals and greater zoning flexibility • explore innovative financial tools such as tax increment financing that may be useful to support investments in infrastructure or improvements to community facilities to attract residential, commercial and industrial development in areas where the market has failed to generate investment • develop standards and performance measures for urban centres, including jobs, transit ridership, density targets and targets for a range of affordable and appropriate housing choices Where and Now to Grow QQ Ontario 17 • work with municipalities to identify and preserve key strategic employment lands in urban areas that can be readily serviced • look at opportunities to streamline the environmental assessment process as it relates to critical infrastructure and transit projects in priority and emerging urban centres • identify strategies and opportunities to develop the Seaton Lands as a model development community that provides balanced housing choices, jobs and greenspace. Future Growth Areas As noted previously, recent analyses suggest that overall most municipalities have sufficient land designated to accommodate urban growth in the Greater Golden Horseshoe for the next 15 to 25 years, even without implementing compact urban form measures as proposed in this discussion paper. Through the support of priority urban centres and a greater commitment to compact form and intensification, this time period could be extended. However, those same analyses also indicate that there are varying growth pressures throughout the Greater Golden Horseshoe.Not all areas are growing or experiencing growth pressures at the same rate. While government policies and decisions do impact the rate at which some communities grow, it is important to note that there are a number of external and market forces (such as the global economy, shifts in technology, trade developments, etc.) that also have a significant impact on the growth patterns of our communities. Given the differences in growth pressures throughout the region, it may be necessary to consider expansions to urban boundaries in some areas to accommodate the projected growth for the overall Greater Golden Horseshoe. In anticipation of this, the plan will identify areas that will be further assessed for their abilityto accommodate additional growth beyond what is currently planned for in their municipal official plans over the long term. These areas include - ® the areas of the GTA that are south of the Oak Ridges Moraine and outside the proposed Golden Horseshoe Greenbelt • Hamilton, south of the Niagara Escarpment • Barrie • the Kitchener-Waterloo area. These areas have been identified for a variety of reasons. They have traditionally experienced a faster rate of growth due to such factors as — 18 Q Ontario PLACES TO GROW-A Discussion Paper,Summer 2004-Better Choices,Brighter Future • the availability of infrastructure or the ability to provide it • their strong, dynamic local economies • their proximity and access to transportation networks and trade corridors • the availability or accessibility of employment and a range of choices for affordable housing. Niagara-Fort Erie In addition,the growth plan will include the Niagara-Fort Erie area south of the Niagara Escarpment as an area to be assessed for its potential to accommodate additional growth. While this area has not traditionally experienced a high rate of growth, it does possess many of the same attributes associated with the other areas. Its greatest strength is its favourable location in proximity to major U.S. markets. This locational strength will be enhanced by capacity improvements already underway to the U.S. border crossing at Fort Erie. One objective of the assessment will be to examine whether encouraging development in this area can help relieve development pressures on tender fruit and grape lands. Where and How to Grow ®Ontario 19 Map 4:Future Growth Areas-Conceptual Haj !� r ` i.J Lake 49 I Simcce r � � r I tr _r l C3.„ : Lake Erie Lake Ontario Legend Future Growth Areas-Conceptual I� Priority Urban Centres Tender Fruits Lands 0 Emerging Urban Grape Lands Centres - Holland Marsh International Airports - DufFins-Rouge Agricultural Future Growth Areas Preserve -Conceptual W oak Ridges Moraine Greater Golden Horseshoe C3 Niagara Escarpment Area Designated Settlement Area Greenbelt Study Area sources:Ministry of Natursl Resources,Ministry of Pudic Infrastructure Renewal &Ministry of Municipal Affairs and Housing Date:June 2004 20 10 0 20 40 W I r In order to determine the implications of further growth in these areas, shown on Map 4, the province will commit to partnering with area municipalities to assess - . economic development and growth potential • the environmental capacity (air, water, land) and the potential impacts of additional growth • long-term infrastructure needs and costs to encourage and support growth. 20 Ontario PLACES TO GROW-A Discussion Paper,Summer 2004-Better Choices,Brighter Future While there are areas of the Greater Golden Horseshoe that may experience population growth pressure beyond what their urban boundaries may be able to accommodate, other areas where growth rates are slower should not require expansions in the short term. Adjustments to expand urban boundaries over the next five years should be considered only within the five areas identified in this plan as having the potential to accommodate future growth, provided- . there is less than a 15-year supply of land available • the proposed expansion provides a balance between population and employment growth (target ratio of 2:1) • there is a range and mix of housing to fulfill the needs of the identified housing market • the municipality has planned to accommodate a minimum of 40 per cent of the projected growth through intensification • a transportation infrastructure plan to support the growth plan has been incorporated • the environmental capacity to support the projected growth can be demonstrated, particularly sustainable water-taking • municipalities have sustainable water and sewage services to support the projected growth • natural heritage systems and resources, including areas inside and outside the greenbelt, have been planned for and protected as part of any expansion proposal • municipalities have a plan to ensure that the costs of new development are borne fairly by the beneficiaries of new development • municipalities give appropriate consideration to source water protection planning. It is important to note that communities outside of these five future growth areas will continue to grow. They will continue to provide options for population and economic growth and will be required to employ the same principles using land and resources in an efficient manner, maximizing the use of existing infrastructure, and maintaining an adequate supply of strategically located employment lands. Many of these communities outside of the five future growth areas have a sufficient supply of designated lands to accommodate growth over the next 20 years and beyond, and should not require boundary expansions during the first five years of the provincial growth plan. Any proposals to expand urban boundaries in these areas will need to be consistent with the upper tier growth plan (see below) and the directions provided in the growth plan. Where and How to Grow ®Ontario 21 Strategies The plan will propose the following actions to support a consistent and effective management of growth throughout the Greater Golden Horseshoe. These actions are aimed at increasing the collaboration between the province and municipalities in planning for the future growth needs of the Greater Golden Horseshoe. Through the growth plan, the province will - work with municipalities to conduct regular and co-ordinated population and employment growth projections • allocate the results of the projections to upper-tier municipalities throughout the Greater Golden Horseshoe • require upper-tier and single-tier municipalities to prepare growth plans in compliance with the plan, that - - establish goals and objectives to promote intensification - co-ordinate the environmental assessment and land-use planning process and infrastructure planning to ensure that appropriate infrastructure capacity is in place to support planned growth - include infrastructure plans and financing plans to support intensification and growth within priority urban centres and to ensure the costs of development are borne fairly by beneficiaries - establish regional standards for regional and local phasing of infrastructure and capital works investment to support intensification and growth within priority urban centres - establish regional standards for regional and local phasing strategies to accommodate at least 40 per cent of new growth through infill and intensification - require development of performance measures and five-year review of the (upper-tier and single-tier) plans - identify and preserve natural heritage systems and other valuable resources such as mineral aggregates, specialty crop lands,prime agricultural lands, water and air quality -provide direction to municipal official plans and capital budgets. Economic Strength: Attracting the Best Skills and Brightest Innovations The Greater Golden Horseshoe is Canada's premier wealth- generating region. Ontario's prosperity depends, in large measure, on the ability of the region to compete with major city-regions across North America and around the world. A key strength of the Greater Golden Horseshoe economy is its diversity relative to competing regions across North America. This 22 ®Ontario PLACES TO GROW-A Discussion Paper,Summer 2004-Better Choices,Brighter Future region is internationally competitive in a wide range of business clusters, ranging from advanced manufacturing and automotive industries, to information and communications technology, biotechnology, financial and business services, creative industries and tourism. The region is also highly export-oriented, with strong trade ties to the U.S. depending on efficient flows of people, goods and The GTA produces nearly information along trade corridors to nearby border crossings, 20 per cent of the country's through international airports and ports and sophisticated Gross Domestic Product. telecommunications networks. Toronto plays a unique and vital role in the international competitiveness of the region. Downtown Toronto competes with major international centres in providing a critical mass of specialized financial and business services, medical and related sciences facilities, creative industries, education, research and cultural institutions. A growth plan for this region's future must and will focus on making it a more attractive place for businesses and workers to invest their skills and capital. It will do so by enhancing the high quality of life, by lowering the costs of working and doing business in the area, and by maintaining the diverse character of the Greater Golden Horseshoe. To achieve these goals the growth plan will support vibrant A World Bank study downtowns and urban areas, manage congestion, reduce commute found that higher transit times, and protect the natural heritage and greenspace system. By ridership correlated to linking transportation and other infrastructure investments to greater overall economic growth objectives, the plan will ensure a transportation network success and a higher that moves people and goods efficiently within the region and along standard of living in the the major trade corridors to border crossings in the south and west. world's major cities. In addition, the provincial government will support the economic diversity that is a key strength for the region. We will support the wide range of business clusters in which we are already internationally competitive -from advanced manufacturing and automotive industries, to information and communications technology, financial and business services, creative industries and tourism - while ensuring that the conditions are in place for new, innovative businesses to locate strategically in a region with convenient infrastructure and close proximity to the United States. Strategies The growth plan will promote economic development in the Greater Golden Horseshoe by: . Removing disincentives to development in urban centres and establishing urban economic development tools to attract investment, including Tax Increment Financing, Brownfield redevelopment incentives, and economic development corporations. Where and How to Grow ®Ontario 23 • Improving transportation efficiency for workers and goods both within the region and across its borders to the United States. • Improving the efficiency of key infrastructure by making more strategic investments across the region, and ensuring that infrastructure costs are more accurately reflected in the costs of development and the provision of services. • Ensuring that a diversity of employment lands are available and can be readily serviced to provide flexibility in accommodating the needs of a wide range of businesses. The government will also implement complementary economic development strategies such as: . Partnering with business and economic development organizations in the urban centres to develop and implement innovative and forward-thinking economic strategies that build on the strength of local industry clusters and economic assets, including universities, colleges, research and training institutions, ports, airports and business networks. . Working with business cluster leadership groups and local economic development organizations in the urban centres on cluster development initiatives, such as the financial, medical sciences, and creative clusters in Toronto, the biotechnology and advanced materials management clusters in Hamilton, the wine and tourism clusters in Niagara, and auto-related industries throughout the region. . Implementing Ontario's commercialization strategy to link public research institutions with companies that can move the research into the market, help universities, colleges and hospitals to make promising research investor-ready, and help institutions establish pools of seed capital to help commercialize the best ideas. Small Towns and Rural Communities While the strategies of the growth plan will largely focus on making efficient use of land and resources within existing urban areas, it is recognized that there are vast tracts of land outside these areas. Such lands contain hundreds of small communities as well as natural and resource areas that should be protected from the impact of growth and development. Strong rural communities are key to the health and vitality of the province. Ontario's rural communities are diverse and have different characteristics and unique needs. Communities across Ontario face financial, economic, social and environmental challenges. Rural communities need a different approach than urban centres to address these challenges because they often cover broad geographic areas, and have smaller, more dispersed populations, smaller tax bases and a higher dependency on resource industries. 24 Ontario PLACES TO GROW-A Discussion Paper,Summer 2004-Better Choices,Brighter Future The plan.for Growing Strong Rural Communities is currently under development to respond to these, and other, diverse needs of rural communities. The province will work with rural communities to ensure that new development reflects local goals and visions and supports the viability and vitality of rural communities. Although the primary focus of infrastructure planning to support the growth plan will be to support future growth, it is also recognized that maintaining and renewing infrastructure is critical to economic prosperity, public safety and a high quality of life in rural Ontario. Building on the recommendations of the Greenbelt Task Force and the Plan for Growing Strong Rural Communities, the growth plan will establish measures to foster the vitality of rural communities, including- . encouraging sufficient population and employment growth within existing rural settlement area boundaries to sustain and promote local economies and community services . providing direction on the type of uses that are complementary and compatible with small rural communities . ensuring that provincial infrastructure strategies for rural communities focus on supporting municipalities in determining where infrastructure gaps exist, maintaining and renewing existing infrastructure, and building new infrastructure critical to the viability and vitality of rural communities . examining how fiscal and regulatory tools could be used to better support rural communities . promoting the revitalization of downtown areas, waterfronts and redeveloped brownfields in rural communities that will support economic vitality and opportunity . encouraging communities to develop partnerships to capitalize on economies of scale, access to professional and technical expertise and to share best practices . promoting the development and use of multi-purpose trails for biking and walking, and the use of public transit (where available). Where and How to Grow Q oltario 25 Infrastructure to Support Growth We need to ensure that we are maintaining the infrastructure that we currently have, and, at the same time, ensure that we can accommodate new development in the most effective way. The cost of maintaining existing infrastructure and developing new infrastructure is significant. The success of the plan will be dependent on finding creative partnerships and cost-effective ways to manage our assets and to make the investments we need in a manner that is affordable to families and businesses. To ensure value for money, use of existing infrastructure must be optimized. Ideally, investment in new infrastructure should be paid for by those who benefit from it. To ensure that resources are conserved and the environment is protected, infrastructure investment should support a pattern of development that emphasizes compact urban form within the Greater Golden Horseshoe. A more compact and Infrastructure decisions made today - in transit and efficient development transportation as well as water and wastewater pipes, hospitals, pattern could save over schools, cultural institutions, energy facilities, transmission lines, 20 per cent in and waste facilities -will help determine patterns of growth and infrastructure capital costs living for tomorrow. How we grow also affects the cost of growth. over the next 25 years in It has been estimated that over 20 per cent of infrastructure capital the GTA compared to costs could be saved over the next 25 years in the GTA by moving current development from lower density development to a more compact and efficient patterns. development patterns. The growth plan will establish a new approach to infrastructure planning and investment by- • optimizing the use of existing The Ministry of Public Infrastructure Renewal is infrastructure developing a framework that will guide the Ontario Government and its partners in selecting the best • identifying strategic infrastructure financing and procurement options for public investments to support urban growth and infrastructure. The framework will establish clear development in the Greater Golden guidelines for financing and procuring public Horseshoe, while protecting the infrastructure assets guided by the following environment; and identifying how to pay fundamental principles: for infrastructure investments • the public interest is paramount; ® establishing a more integrated transportation network to improve the . value for money must be demonstrable; movement of goods and services and • appropriate public control/ownership must be choices for people preserved; . co-ordinating long-range provincial . accountability must be maintained; and infrastructure plans in partnership with . the processes must be fair, transparent and efficient. the municipal and federal governments and other partners. 26 ®Ontario PLACES TO GROW-A Discussion Paper,Summer 2004-Better Choices,Brighter Future Strategies The plan will identify a set of criteria to be applied to provincial infrastructure investment in the Greater Golden Horseshoe. Based on these criteria, priority investments will be integrated into the new 10-Year Strategic Infrastructure Investment Plan currently being developed by the Ministry of Public Infrastructure Renewal. Provincial actions include — focusing infrastructure investment on priority urban centres and, through a phased approach, in emerging urban centres • evaluating infrastructure investment projects according to criteria such as - - consistency with the growth plan -promoting the application of growth standards in priority urban centres and emerging urban centres - consistency with proposed Golden Horseshoe Greenbelt principles for infrastructure siting and design - minimizing impact on natural heritage systems, agricultural lands and other natural resources - identifying and utilzing existing capacities - co-ordinated planning with adjacent jurisdictions - analysis of the social impacts - environmental impacts can be mitigated or minimized - analysis of economic and financial impacts and how to pay for infrastructure investments - demonstrated life-cycle costing of investment - infrastructure is transit-supportive. Integrated Regional Transportation Network Sustainable communities must be linked through an integrated Roughly 70 percent of transportation network. An integrated transportation network in GTA highways are almost the Greater Golden Horseshoe must connect the region to vital at total capacity during markets in the U.S. and other parts of Canada, as well as rush hours. connecting the people living and working in the communities within the region. The region's transportation systems are vital to the success of all other parts of Ontario and of Canada, since much of the wealth of the province and the nation passes through the Greater Golden Horseshoe. Pearson International Airport is the largest airport in Canada and is the main international gateway. Much of eastern Canada's and northern Ontario's trade must pass through the region, by-truck, Infrastructure to Support Growth ®Ontario 27 In Vancouver, SkyTrain train or ship, on its way to markets. Our transportation choices transit stations have been and priorities will be a key determinant of the economic a catalyst for regional competitiveness of the province and the country and critical to town centres. Each centre attaining the goals of the growth plan. is intended to serve In moving people through the urbanized parts of the region, 100,000 to 200,000 people transit will be the first priority for investment. Our objectives are living and working in to grow transit ridership in the urban centres, manage congestion the area. and reduce commuting times. To achieve these objectives, even greater investments will be needed in the transit systems and vehicle fleets, so that people can make better transportation choices and have the option of leaving the car at home when they travel for work, for school and for leisure activities. In addition, strong efforts will be made to link investments in transportation to the growth policies and plans implemented at the provincial and municipal levels. Compact form, mixed use and higher densities will need to be supported by complementary investments in the transit systems serving these communities. Building a more effective transit system is more than just building infrastructure. It is also about the co-ordination and integration of transit services across municipal boundaries. It is about an integrated ticketing system that allows customers to move seamlessly across the region, without having to worry about having the right change in their pockets. It is about having a comfortable, dependable and reliable transit system that is responsive to customer needs, rather than having customers plan their days around complicated and inconvenient transit schedules. The work of the new Greater Toronto Transportation Authority will be critical in implementing the transportation directions of the growth plan in the GTA and in rationalizing the provision of service across many different service providers. It will build upon existing plans; such as the GO Transit 10-year capital plan and the TTC Ridership Growth Strategy. While transit is the priority for moving people in the urban parts of the region, we will also need to invest in trade corridors to move people and goods across long distances and to the border crossings. Rail and highway corridors are critical to our trading and tourism economies. But these must be planned properly, to ensure that we do not fuel sprawl and to minimize impacts on the environment. While we must focus on the economic imperative of effective movement of people and goods within and through the region, we must also recognize how critical it is to provide safe and efficient movement of people between their homes,jobs; friends' homes, schools, cottages and recreational activities. They also need the assurance that emergency vehicles can reach them in their time of need. 28 Q Ontario PLACES TO GROW-A Discussion Paper,Summer 2004-Better Choices,Brighter Future All of these elements contribute to vibrant communities and a high quality of life for all. To ensure that we achieve the separate and interrelated needs of the regional transportation network, it is necessary to identify specific strategies. These strategies aim to increase the number of people using transit for most of their trips within the Greater Golden Horseshoe and to reduce the time that people spend commuting to work. Strategies for Moving People Transit is our main priority for moving people in the urban parts of the region. In order to achieve our growth objectives, we will need to change today's transportation habits. We will need creative and innovative approaches. To accomplish this, and to support the development of priority and emerging urban centres, the following overarching strategies are planned as illustrated on Map 5. 1. Build Urban Transit In our most urbanized regions, such as Toronto and Mississauga, On an average day in the we need to invest in the expansion of higher order transit systems. GTA and Hamilton, more These are the systems that provide the strongest incentive to build than 62 per cent of all trips mixed-use and high density development at key nodes and centres. are made by car, 13 per cent This discussion paper has a vision to pursue a variety of system by public transit and 6.3 per expansions over the next 30 years, including — cent by walking or cycling. • building and improving transit corridors along key routes, in already built-up areas such as St. Clair Avenue in Toronto 46 per cent of households in • extending the subway system, first to York University and over central Ontario have two the longer term extending rapid transit into Vaughan, Richmond or more cars. Hill and other centres • building urban transit systems in the urbanizing areas, like the Mississauga Transitway and the 407 Transitway and the York Region BRT. Investments of this nature will support and enhance the planned growth, including brownfield and greyfield redevelopment, in priority urban centres. 2. Establish New Interregional Transit Services The largest growth rate in travel demand in the Greater Golden Horseshoe is not in moving people to downtown Toronto or within individual communities. It is found in moving people across regional boundaries, connecting communities like Mississauga with Vaughan, Pickering with Markham, Toronto with Richmond Hill, and so on. This growth in travel is in all directions. Just about as many people commute from Toronto to York Region, as those who commute from York Region to Toronto. Infrastructure to Support Growth ®Ontario 29 Unfortunately, our transit systems have not been able to keep up with this demand, so people have been forced to rely on their cars. Our vision for the future is an interconnected system of transit corridors, providing a grid across the region - north to south and east to west. This system will involve buses on roads and highways to begin with, gradually becoming more intensive as demand warrants, with priority features to speed buses through intersections; providing dedicated lanes; building dedicated routes for transit only; and ultimately moving to rail-based transit where it makes sense. These corridors will accommodate all transit vehicles, whether operated by GO Transit, local transit authorities or intercity bus companies. All of this is to provide the incentive for people to get out of their cars and make the move to transit. 3. Strengthen the GO Transit Rail System GO Transit handles 44 GO Transit's rail network is the most effective way of moving million riders annually. people to Toronto from the regions. Each 10-car GO train can Estimates suggest that this carry the same number of people as 1,400 cars, resulting in a ridership displaces one significant relief from congestion12. However, growth in the GO billion auto kilometres system has been constrained due to a lack of rail line capacity. annually. If all of GO The vision for the GO system is to build its capacity by- Transit's riders were to . adding new tracks along the Lakeshore corridor, stretching from drive cars, 48 lanes of new highway would need to be Hamilton in the west to Oshawa in the east, to accommodate constructed to accommodate additional trains the increase in trafc. . moving to all-day, two-way service on all corridors, including Milton, Georgetown, Bradford, Richmond Hill and Stouffville . extending GO rail service to Barrie . establishing new services on additional corridors or extending existing services as demands warrants . adding rolling stock and maintenance and storage facilities to accommodate this growth. Through these measures, the objective is to build GO ridership by a minimum of three per cent each and every year. 4. Build a Network of High Occupancy Vehicle The Puget Sound region in Washington State has Lanes more than 170 miles of high occupancy vehicle (HOV) lanes on its freeways. An additional 106 High occupancy vehicle lanes provide a miles are in state and regional plans to complete the powerful incentive for people to carpool, central Puget Sound Core HOV system. Average reducing congestion and improving car occupancy in non-HOV lanes ranges from 1.07 efficiency. The province is planning to open to 1.14 people per vehicle, whereas the average for its first HOV lanes on Highways 403 HOV lanes ranges from 2.09 to 2.76 people per through Mississauga and 404 through vehicle. Most transit vehicles also use the HOV lanes. Toronto and Markham. 30 ®Ontario PLACES TO GROW-A Discussion Paper,Summer 2004-Better Choices,Brighter Future Municipalities have also been creating HOV lanes for buses, taxis and cars along major arterial roads. This will just be the start of a broad network of HOV lanes, supported by a growing system of carpool lots and intelligent systems to assist people in making carpooling a viable alternative to riding alone. Map 5:Moving People:Future Transit System �• r If Lake 9 R I simcoe u r a t l\ Legend Moving People: Future Transit System 1 Priority Urban Centres Existing/Proposed Emerging Urban Subway/RT Centres Existing/Proposed ox�/YJ International Airports GO Transit Proposed Rapid Future Growth Areas Transit/HOV Links -Conceptual Future Inter-Regional may',, Proposed Future Inter- Transit Links 1 ce Regional Transit Links Oak Ridges Moraine 0 Greater Golden Horseshoe Area C3 Niagara Escarpment Designated Settlement Area C3 Greenbelt Study Area Map based on data provided by the Ministry of Transportation and the Proposed Rapid Transit System 2035 from"Shape the Future"(Central Ontario Smart Growth Panel,Final Report,Smart 2003) Sources: Ministry of Natural Resources,Ministry of Public Infmshuctura Renewal Ministry of Transportation&Ministry of Municipal Affairs and Housing Date:June 2004 2,0 to 0 20 40 I I I N Infrastructure to Support Growth QQ Ontario 31 Strategies for Moving Goods The other key transportation priority is to move goods within, across and through the Greater Golden Horseshoe to support our manufacturing and commercial industries and provide for improved access for the vital tourism industry. The following strategies are proposed to support goods movement and tourism, as illustrated on Map 6. 1.The Strategic Goods Movement Network Some parts of the transportation system are particularly important for the movement of goods, including - . the highway network, including 400-series highways, the QEW, Gardiner Expressway and Don Valley Parkway • the mainline rail corridors, providing the east-west connections to national and international markets • intermodal facilities, providing the key connections between rail and trucking modes of transportation • the main shipping ports of Hamilton and Toronto on the St. Lawrence Seaway • the main airports (Pearson International and Hamilton International) • the border crossings along the Niagara frontier and, further afield, in Windsor and Sarnia. To support this strategic network, action is necessary. For example, grade separating the east-west freight rail corridor from the north-south GO rail corridors is critical to allow the goods movement system to operate efficiently, and to support expansion of the GO Transit system. Clogged and inefficient Intermodal rail/truck facilities need to have ready access to major border crossings cost highways. And investments will be necessary to relieve congestion the economy $5.25 at hotspots on the highway system. Investments from all levels of billion a year. government and from the private sector will be necessary to address these issues. Similarly, we need to invest in intelligent transportation systems to improve the efficiency of the system. Better systems to manage traffic at border crossings, to respond to incidents on highways, and to allow users to make the best routing choices to their destination will be needed in the future. 2. Future Economic Corridors Planning is necessary to lay out the future economic corridors. Planning for Highway 407 began in the 1950s, and the highway opened in the 1990s. Without foresight, we can close off options for future infrastructure corridors -for highways, transit, water and 32 ®Ontario PLACES TO GROW-A Discussion Paper,Summer 2004-Better Choices,Brighter Future sewer, and other forms of infrastructure so critical to the economic future of the region and the province. Planning for these economic corridors needs to be different from how it has been done in the past. No longer can we allow interchanges,which simply fuel development pressure and sprawl, to be constructed every few kilometres. No longer can we plan for single-purpose corridors, without planning for transit, highways and other infrastructure needs all at the same time to improve efficiency and reduce impacts. We need to take a best practices approach for how we plan, design, construct and operate economic corridors. The main routes for economic growth are the connections to the west and the south. For these reasons, this discussion paper includes potential future economic corridors: • Niagara to the GTA - connecting the Greater Golden Horseshoe with the border crossings at the Niagara frontier. • The GTA to the Guelph/Kitchener/Waterloo region - connecting the Greater Golden Horseshoe with the high growth centres in Waterloo; and providing relief in the 401 corridor that provides a major link to the border crossings at Windsor and Sarnia. In addition, the region acts as a node for the rest of the province and eastern Canada, providing critical economic links in the central Ontario transportation network to support provincial and national economic needs. For these reasons, this plan includes the proposed extension of Highway 407 easterly to highways 35 and 115 as a future economic corridor, providing a connection between the GTA and regions to the east. As a first priority, the focus for transportation through this area will be on existing infrastructure, such as optimizing the use of Highway 400, and extending GO Transit rail service to Barrie. Longer term initiatives, such as the Bradford Bypass, 404 extension and 427 extension are not immediate priorities. Overall transportation capacity for future roads, transit and other forms of infrastructure will continue to be developed in the context of the proposed growth plan. While planning will continue to protect for long-term corridors to ensure eventual capacity as required, the priority in the short- and medium-term will be in the economic corridors outlined above, Highway 400 optimization and transit expansion to support the achievement of the objectives of this growth plan. Infrastructure to Support Growth QQ Ontario 33 Map 6:Moving Goods 1 r w 400,11 t Northern Ontario and We tern Canada 6 j l ,r P 401 to F ! �IY` `J ,,, 1•�i b ; qqI to Windsor/Detroit/Sarnia �I a � C Lake Erie 1. i Legend Moving Goods Priority Urban Centres - Existing Major Highways O Emerging Urban - Existing Major Rail Lines Centres 11r� International Airports Economic Corridors CI Major Ports Future Growth Areas -Conceptual 0 Intermodal Hubs 1•L--Border Crossings W Oak Ridges Moraine Greater Golden Horseshoe Area f_j Niagara Escarpment Designated Settlement Area tC3 Greenbelt Study Area Sources: Ministry of Natural Resources,Ministry of Public Infrasbuctum Renewal, Ministry of Transportabon&MlnN"of Muniapal Affairs and Housing Date:June 2004 2,1 10 0 I 20 40 Km I I x 34 ®Ontario PLACES TO GROW-A Discussion Paper,Summer 2004-Better Choices,Brighter Future Strategies for Implementation In addition to the strategies outlined above, the following implementation strategies will be pursued for strengthening transit and alternative transportation modes in the Greater Golden Horseshoe. To move forward, we must - . establish the Greater Toronto Transportation Authority to support the ongoing development of an integrated transportation system across the region • provide two cents per litre of the existing provincial gas tax for public transit in the province (starting at one cent in October 2004) and encourage the federal government to support public transit through its gas tax revenues • continue investing in transit renewal and expansion, involving partnerships among all levels of government • implement an integrated ticketing system for transit services across the region • streamline the environmental assessment process, particularly for the transit initiatives contained in the plan • provide incentives for transit-supportive development and development forms for whatever non-auto modes are viable and attractive • implement a co-ordinated and integrated approach to transit planning across the region that - - invests in priority urban centres within urban areas - links priority urban centres within the urban areas of the GTA and Hamilton and Kitchener-Waterloo - invests in maintaining and upgrading current municipal transit infrastructure and systems to maximize accessibility, safety and efficiency. • optimize highway infrastructure and vehicle use, including- - planning, designing and constructing HOV lanes on provincial highways and major roads - managing traffic incidents more efficiently - focusing highway investment to trade corridors and international gateways. To capitalize on previous infrastructure investment, development along the corridors that link priority urban centres within the GTA, Hamilton and the Kitchener-Waterloo areas will be encouraged by - . recognizing the intraregional corridors that link priority urban centres in official plans and developing special official plan Infrastructure to Support Growth QQ Ontario 35 policies and alternative development standards for intraregional corridors that reflect growth principles and standards (such as reduced parking requirements for new developments) • developing a fast track approvals system and special tools to facilitate and spur development along intraregional corridors within the urban areas of GTA, Hamilton and Kitchener- Waterloo • providing a mechanism for protecting key corridors while they are being studied to assess their need for future uses • restricting access, prohibiting development, and establishing buffers and environmentally sensitive design for infrastructure located in or through the proposed Golden Horseshoe Greenbelt; and, where possible, minimize the impact of infrastructure development on natural heritage systems such as the Golden Horseshoe Greenbelt. Transportation and transit infrastructure are critical to fulfilling our growth plan objectives. The priority and emerging urban centres identified in this discussion paper, supported by land-use The Minneapolis St. Paul decisions and the transportation investments outlined above,will region's Metro 20 improve Ontario's landscape, environment, connectivity and growth management t plan livability. requires an increase in densities at the urban Sustainable Water and Wastewater Services fringe. It is estimated that this will save$1.6 billion The capacity of water and wastewater infrastructure helps to on new road and sewer determine where growth is possible. Investment in water and infrastructure over wastewater infrastructure has lagged significantly behind growth in 25 years. the Greater Golden Horseshoe as many municipalities are recovering much less than the full cost of their water systems. Some of the challenges facing communities include — . aging water and wastewater infrastructure . small, financially unsustainable water and wastewater systems . inadequate revenue to finance infrastructure repairs and expansion for growth . large capital investment needs to support new population and employment growth. In some areas, communities rely on groundwater, inland rivers or lakes for their sources of drinking water. Many of these communities will either face limits to growth as their systems reach capacity, or need to invest in Great-Lakes-based water supply systems, which is a significant and costly undertaking. At the regional level, we are concerned about where to invest in water and wastewater infrastructure to support future growth, and how to pay for and administer maintenance and upgrading of 36 Q Ontario PLACES TO GROW-A Discussion Paper,Summer 2004-Better Choices,Brighter Future existing systems to ensure reliable and safe water throughout. The Sustainable Water and Sewage Systems Act will make it mandatory for municipalities to assess the full cost of providing their water and sewer services and to prepare long-term cost- recovery plans that consider all operating and capital costs; all sources of revenue; and the investment required to maintain and expand their system. Full-cost recovery is intended to ensure that adequate financing is available for water and sewer infrastructure over the long term. For most municipalities, this will mean increased rates over an extended period of time to more accurately reflect the true costs of water and wastewater services. The planning and provision of water and wastewater services has been unco-ordinated across the Greater Golden Horseshoe. Numerous small and large municipalities and the private sector, with and without provincial involvement, have built treatment and distribution facilities to serve local or single-purpose uses. The province has recognized the need to review this situation and is working with stakeholders to assess options for investing, financing and delivering water and wastewater renewal. A key objective of the growth plan will be to ensure that our infrastructure, such as water pipes and sewage treatment plants, can support development in those places where it makes sense to grow. Strategies Water services will play an important role in supporting the growth plan by- . maintaining and upgrading existing water and wastewater facilities to ensure delivery of clean and safe water and efficient wastewater services • planning and implementing comprehensive local water conservation strategies, including metering, pricing and efficient technologies • developing methods of treating stormwater and combined sewer overflows • regulating water takings in accordance with proposals being developed by the Ministry of the Environment on permits to take water • assessing the assimilative capacities of the receiving water bodies. The Ministry of Public Infrastructure Renewal is leading the development of a long-term water and wastewater infrastructure investment and financing strategy that will consider the best way to provide water and wastewater services in Ontario. Infrastructure to Support Growth QQ Ontario 37 Protecting What is Valuable The Greater Golden Horseshoe is blessed with unique natural and cultural heritage sites,valuable natural resources and high quality agricultural lands that are critical to Ontario's long-term prosperity and quality of life. The region's greenlands,water resources, agricultural land base, mineral resources and cultural and archaeological heritage provide environmental, economic and social benefits. We must protect and enhance our valuable resources as part of managing growth. By encouraging growth in those areas that can best accommodate it, the growth plan will help to steer growth pressures away from the places and systems we need to protect. Building on government initiatives such as the Greenbelt Task Force, the planning reform initiative,watershed-based source protection planning, and the rural strategy,the growth plan will provide a platform and a range of tools for integrating these activities that will collectively address resource protection in Ontario. Protecting Water Resources Ontario's water resources supply communities with a source of plentiful and safe drinking water; keep crops, livestock and fish and wildlife habitat healthy; and provide recreational opportunities. Protecting and improving the quality and quantity of this resource is essential for our long-term health, safety and quality of life. Water comes from a linked system of surface and groundwater features, such as aquifers, headwaters, rivers, stream channels,lakes, recharge and discharge areas, springs and wetlands. Ontario's water resources are generally protected under the Environmental Protection Act, the Ontario Water Resources Act, the Safe Drinking Water Act, the Nutrient Management Act, the Sustainable Water and Sewage Systems Act and the Lakes and Rivers Improvement Act. The Oak Ridges Moraine Conservation Plan provides further protection for ground and surface water resources. Safe, clean and abundant drinking water is fundamental to the health and well-being of Ontarians. Having an adequate supply of drinking water is also essential for strong, lasting and prosperous communities. The overall challenge in managing Ontario's water resources is to implement a system that will protect and improve the quality and quantity of water in the future —while at the same time supporting the needs of a growing population and economy. The province is developing a comprehensive protection framework for drinking water, and is taking steps to protect water resources through several related initiatives, including watershed- 38 ®Ontario PLACES TO GROW-A Discussion Paper,Summer 2004-Better Choices,Brighter Future based source water protection, greenbelt protection, nutrient management, and long-term infrastructure planning. Watershed-based source protection will require the preparation, approval and implementation of source protection plans in all watersheds across Ontario. This initiative will provide an opportunity to establish a system where the protection of drinking water will be considered up-front in land-use planning and other decisions that affect drinking water. The Nutrient Management Act provides authority to set standards for nutrient management. Source water protection is addressed in part by the nutrient management regulation through such requirements as placing restrictions on application of manure and fertilizer and by requiring mandatory planted buffer strips. As indicated earlier, the Sustainable Water and Sewage Systems Act will require municipalities to assess and report on the full cost of providing their water and wastewater service and to prepare long- term cost-recovery plans. Costs associated with source protection measures would be included. The growth plan will provide a context for linking decisions regarding growth with the protection of water and requirements for infrastructure at a watershed level. Strategies The province will promote integrated and co-ordinated approaches to growth,source water protection and infrastructure planning within specific surface watersheds or ground watersheds by— . requiring municipalities to take into consideration long-term impacts of growth and infrastructure needs when developing watershed-based source water protection plans • directing development away from sensitive areas as identified in source protection plans • regularly assessing impacts of land-use change on water quality, water quantity and related hydrological functions. Protecting Natural Heritage and Greenspace Systems The natural heritage features and areas of the Greater Golden Horseshoe provide One of the Greater Vancouver Regional District's benefits that contribute to healthy mandates is to protect a Green Zone. The purpose communities and an enhanced quality of of the Green Zone is to limit urban expansion and life. Collectively, they are the building protect watersheds, ecologically important lands and blocks of a natural heritage system that wilderness areas while providing outdoor recreation. protects and enhances the health, diversity, The Green Zone currently consists of 205,000 abundance and connectivity of our natural protected hectares in addition to over 50,000 environment. hectares of provincially-designated agricultural reserve land. Protecting What is Valuable QOntario 39 Map 7:Natural Heritage Features f l .•� ti The Greater Golden Horseshoe contains many significant natural heritage features, including wetlands; woodlands; kettle lakes;rare, threatened and endangered species and their habitat; and rivers and valleys. It also features the Lake Ontario waterfront, the Niagara Escarpment and the Oak Ridges Moraine. (See Map 7) i - i 9p nd r 11 y Marsh ' % 4; -r"LI° Dufline-Rouge `­- I ^i tgricu.rural Preserve e �,...j y J t • r J 6rapz Lands 'e I t• Fruit. Lands Legend Natural Hentage Features Ar sl liolland Marst, Wetland; Rare Natural Communmc; Fran%r f nv?r _ Dutfms Rouge Agncultuml Tender Fruit Lend% Preserve _Grape Land, -- Gmv,dun SMdd W Oak Rid—Moraine Greater Golden-lorseshoe M W m-9---po- A+ea t Desgnated Settlement Area Greenbelt Study 4rea Sno,�K M Nqr.N'11rnlrnl Raan.urr.,Min:k'ey nr P_N'r:nt-.�aruly+Rmmra W M.ir:Siry d Munop;!d(hrc a^C Haarq Rit. lu�r]t11: :V iV U 1 I :a 90 Kri I I A natural heritage system is generally made up of natural heritage features and areas, linked by natural corridors necessary to maintain biological and geological diversity, natural functions, viable populations of indigenous species and ecosystems. In the Greater Golden Horseshoe, this means our significant natural areas and the 40 QQ Ontario PLACES TO GROW-A Discussion Paper,Summer 2004-Better Choices,Brighter Future green spaces that link them. We need to preserve Ontario's unique biodiversity and habitats. On a broader scale, greenspace systems are an integral part of the regional fabric and contribute to - maintaining the health and diversity of the natural elements of growing communities • contributing directly to human health and well-being by providing clean air and water and healthy soils • contributing to the social and economic success of communities through appropriate management and use of natural resources • contributing to the overall attractiveness of the area as a desirable place to live,work, play and invest in. Within the Golden Horseshoe Greenbelt study area, several tools are already in place to protect important natural features and systems. The Greenbelt Task Force is making recommendations to connect the Niagara Escarpment and the Oak Ridges Moraine with additional natural heritage systems, agricultural lands and non- renewable resources to create a permanent Golden Horseshoe Greenbelt. Establishing the Golden Horseshoe Greenbelt Ontario is also committed to establishing a Golden Horseshoe Greenbelt that will be a In February 2004 the province of Ontario permanent and sustainable legacy for current established a 13-member multi-stakeholder and future generations. The provincial Greenbelt Task Force to develop recommendations government has created a task force that is on how the province could most effectively establish recommending the scope, content and a permanent greenbelt. The Golden Horseshoe implementation of a permanent Golden Greenbelt would be a continuous and connected Horseshoe Greenbelt. system of open spaces that will contain sprawl and The Greenbelt Task Force is studying an protect environmentally sensitive lands,valuable area for a greenbelt smaller than the Greater resources such as farmland,forests and mineral Golden Horseshoe,which includes the resources, and the unique character of rural areas. It GTA, Hamilton, designated tender fruit and would be a permanent and sustainable legacy for grape lands in the Niagara Region, lands current and future generations. under the jurisdiction of the Niagara Escarpment Plan and the Oak Ridges Moraine Conservation Plan, and other important natural areas such as the Duffins-Rouge Agricultural Preserve. The work of the Task Force is concurrent with this discussion paper. As the recommendations of the Task Force are finalized they will be brought together at the same time that the growth plan is finalized. The Task Force is currently seeking public input on the following vision and goals for the Golden Horseshoe Greenbelt: Protecting What Is Valuable Q Ontario 41 Vision The Golden Horseshoe Greenbelt will be a permanent and sustainable legacy for current and future generations. The greenbelt will enhance our urban and rural areas with a continuous and connected system of open spaces that - . protects and enhances environmentally sensitive lands and natural heritage systems . recognizes the region's social, natural and economic needs . sustains and nurtures the region's agricultural sector . conserves for sustainable use the region's significant natural resources . continues to provide high-quality and compatible recreational and tourism opportunities. Goals The greenbelt will enhance quality of life by serving an array of functions across the Golden Horseshoe region, including- .providing greenspace links to and between open space within the region's growing urban areas •protecting, sustaining and restoring the ecological features and functions of the natural environment •preserving viable agricultural land as a continuing commercial source of food and employment by recognizing the critical importance of the agriculture sector's prosperity to the regional economy • sustaining the region's countryside and rural communities • conserving and making available natural resources critical for a thriving economy • ensuring that infrastructure investment achieves the environmental, social and economic aims of the greenbelt. Strategies The growth plan will provide a context for linking decisions regarding growth with the protection of natural heritage features and systems. Building on the greenbelt initiative, significant natural heritage features and functions will be protected from urban encroachments and land-use conflicts by - . defining a natural heritage system for the Greater Golden Horseshoe region that will include- -core natural areas such as the Oak Ridges Moraine;Niagara Escarpment; Trent-Severn System, and linkages that connect them to one another and to Lake Ontario, Lake Simcoe and Georgian Bay 42 PLACES TO GROW-A Discussion Paper,Summer 2004-Better Choices,Brighter Future -individually significant natural heritage features and functions such as wetlands, areas of natural and scientific interest, and significant woodlands - a water resources system that comprises surface and groundwater features and hydrological features such as wetlands, streams, sensitive wellhead areas, recharge and discharge areas, sensitive headwaters, aquifers and aquatic habitat -natural and open rural landscapes and unique and sensitive landforms such as geological features,vistas and panoramas - a network of open space that can provide opportunities for environmental protection, outdoor recreation, tourism,public access and cultural and natural heritage appreciation • promoting compact form within settlement areas in or near the greenbelt to reduce development pressures in natural heritage areas • supporting municipalities in the identification and integration of natural systems and areas into the greenspace or open space fabric of their growth management plans • providing municipalities with additional tools,through planning reform and other initiatives, that enhance their ability to protect the region's natural heritage system • improving voluntary incentives to encourage conservation by- -expanding land stewardship and public education programs - reviewing current property tax incentives to protect greenspace -promoting conservation easements • achieving co-ordinated approaches to assessing impacts of land use change on significant natural heritage features and systems. Agricultural Resources Thanks to the agricultural sector, Ontario enjoys many economic and environmental benefits and support for healthy rural communities. The agricultural lands of the Greater Golden Horseshoe are considered to be some of the best in the world. The farms in this region generate approximately $3.5 billion in total gross farm receipts. Agricultural lands are a finite resource, and prime agricultural lands such as these are relatively rare. Less than 12 per cent of the province is suitable for agricultural production and only five per cent of Canada's total land base is considered prime agricultural land. Protecting these agricultural lands is an important part of sustaining Ontario's agriculture and agri-food industry and ensuring Protecting What Is Va I noble ®Ontario 43 Map 8:Canada Land Inventory Soil Capability Classification System for Agriculture a healthy, viable agriculture sector for the region. The specialty crop areas of the Greater Golden Horseshoe such as the tender fruit and grape lands in Niagara and the Holland Marsh are particularly precious assets recognized by the Greenbelt Task Force as requiring stringent protection from urban expansion and fragmentation so they can remain economically and agriculturally viable. The province is also committed to protecting the Duffins-Rouge agricultural preserve in Pickering. (See Map 8) (I e r" �4 �r m � DuFfin . k Agneultural Preserve jsl � Grape Lands Tender Fruit Lands 0 rte' � � « �-•I n�;. • �,t s LLL l'"IU Canada LandInvattory sal Capab oty❑assie©tion Systarn tar Agrkuuure SpLCialty Agricultural lands CU Agriadtwal Soil Classltl[aticn Tender Fruit Lands rass t -Grape Lands Class 2 �Ha11ar d Marsh o Class 3 Otter Class 4,S,6&7 -WAfins-Revge Q Organic Lands Agrlcutural Preserve C3Oak Ridges Mrralne O C eater rdden rb—hnr M W Magara Escarpmerl Area Oesignatel settlement Aria C3 Ccenbclt Study Area Swr—M.N4ry d xatural ReyautCeS,Ml,mS or;s Nk Infrasnrlue Ito—: m—,of MmAdpal NfaUS a,M Mou5lry.MlnNiry d Agnorvn.c and rood a AgaNIONC—AOrrood Canada L�erc .W.a•PrKlfi 20 10 0 1 I 2[ -00 cum I 1 N 44 &Ontario PLACES TO GROW-A Discussion Paper,Summer 2004-Better Choices,Brighter Future Building on the greenbelt and planning reform initiatives, the growth plan will work with municipalities to protect prime agricultural areas and specialty crop areas beyond the greenbelt for long-term agriculture use and from competing and incompatible land uses. The plan will ensure that urban boundary expansions onto farmland are considered only when justified and feasible, and do not compromise specialty crop areas and avoid or minimize the use of prime agricultural land. In support of that objective,the Provincial Policy Statement requires prime agricultural areas to be protected for long-term agricultural use. The expansion of settlement areas into prime agricultural areas is permitted only where the need for the expansion has been justified, and only where less valuable agricultural lands are not available. Additionally, settlement area expansions onto specialty croplands are proposed to be prohibited by the Provincial Policy Statement. Protecting agricultural lands is one aspect of creating the conditions necessary for agricultural communities to thrive. The protection of agricultural areas from competing and incompatible land uses will maintain options for meeting present and future needs, to allow those engaged in agriculture to carry on their operations with a minimum of disturbance and to create opportunities for agricultural production. In the Greater Golden Horseshoe, agricultural uses and activities and normal farm practices will be promoted and protected in order to foster and support a vibrant and healthy agricultural economy. The Greenbelt Task Force and the Provincial Agricultural Advisory Team are also considering issues related to the protection of agricultural land and the sustainability of the agricultural sector. Ongoing co-ordination with the growth plan will be required so that important agricultural areas will be appropriately identified and protected. Strategies The province is proposing to protect prime agricultural areas, including specialty croplands such as the tender fruit lands, from urban encroachments and land use conflicts by— * establishing a Golden Horseshoe Greenbelt for selected lands within the Greater Golden Horseshoe . reviewing the land-use planning system through the planning reform initiative towards finding the balance that protects the land base in the long term and allows farmers to have the flexibility to change their operations over time .promoting approaches to future growth areas that support Protecting What is Valuable Q Ontario 45 compact form within settlement areas and focussing growth around centres and along corridors in order to reduce development pressures on agricultural lands; and setting targets for intensification, density, housing mix and phasing of development • promoting initiatives such as nutrient management, stewardship, and normal farm practices to protect and enhance agricultural uses, value-added agricultural activities, and where appropriate, supporting infrastructure for agriculture • promoting research and development in the agricultural sector leading to value-added opportunities • supporting the work of the Provincial Agricultural Advisory Team as it relates to the Greater Golden Horseshoe. Mineral Aggregate Resources Mineral aggregate resources such as limestone, sand, gravel, clay, shale and sandstone are required for the development and maintenance,of Ontario's infrastructure. The Greater Golden Horseshoe region produces and consumes more than 90 million tons of aggregates annually. (See Map 9) One of the challenges for the Greater Golden Horseshoe is to balance the ongoing need for mineral aggregate resources with the need to keep the local impact of extraction activities to a minimum. Strategies Conservation of aggregate resources will be promoted through an increased focus on reuse and recycling of materials and by reducing demand through more compact urban form and more efficient use of infrastructure. Strategies include — • protecting high potential aggregate areas that have been identified as high priority due to their quality, accessibility, and availability of the resource • undertaking extraction and rehabilitation in a timely manner and in keeping with post-extraction uses that support the objectives of the growth plan • working with municipalities and the industry to explore more effective and innovative ways to make aggregates available to the marketplace while at the same time minimizing impacts on the local community. All the above strategies need to achieve a balance between mineral resource extraction and the protection of natural heritage features and functions. 46 QOntario PLACES TO GROW-A Discussion Paper,Summer 2004-Better Choices,Brighter Future Protecting What is Valuable ©Ontario 47 Implementation: Moving Forward Plans and policies are only as successful as their implementation. Action is required on several fronts to ensure that the growth plan is implemented in the most effective manner. This requires a significant effort from all levels of government, the private sector, non-governmental organizations and residents of the Greater Golden Horseshoe. Effective implementation will also require a change in the way we behave, make decisions, plan and work together. Full implementation requires a number of steps: 1. Provincial Leadership and Partnership: the province will work to ensure its programs and investments in the Greater Golden Horseshoe are based on the growth plan. The province will assist and collaborate with stakeholders, including municipal governments, to implement the plan. 2. Effective Implementation Tools: the province will evaluate, implement and recommend regulatory and fiscal tools and programs to assist municipalities and other stakeholders with implementing the growth plan. 3. Legislative Framework: the growth plan may require legislation to ensure the implementation of clear roles and responsibilities, and consistency with various other acts. 4. Monitoring and Review: the province will monitor the implementation of the plan and assess its impact on quality of life and the performance of communities. Provincial Leadership and Partnership Working Together Acting on the plan will require the co-operation of all stakeholders and the development of partnerships across sectors and regions - including the people who live and work in the Greater Golden Horseshoe. A broad partnership strategy will involve working with municipal partners and stakeholders to provide a consistent set of demographic projections and develop pilot and demonstration projects. This strategy will include education and training components such as guidelines, workshops, manuals, websites and e-learning. A public engagement strategy will focus on involving and educating citizens on their role in the implementation of the plan. The provincial government recently announced that the Premier will appoint a provincial facilitator to assist the industry and stakeholders on issues that arise as we implement the growth plan. 48 Ontario PLACES TO GROW-A Discussion Paper,Summer 2004-Better Choices,Brighter Future The provincial facilitator will work with affected parties to resolve conflicts that may arise during the implementation of the plan. In addition, a blue ribbon panel consisting of respected leaders in municipal governance, growth management, business and environment will be established by the province to monitor and advise on the implementation of the plan. Getting the House in Order Many aspects of the growth plan affect the operations of provincial ministries. To ensure that the plan is fully implemented and that the government provides the necessary leadership, the Ministry of Public Infrastructure Renewal, as the central agency for growth planning, will need to review and ensure that other ministry activities mutually reinforce the directions of the growth plan. Interministerial committees to address Possible Regulatory and Planning Tools to Support growth initiatives are already established Implementation of the Growth Plan and can continue to be the forum for the review of government activities to ensure Upper-Tier and Single-Tier Growth Plans are consistent support for growth. documents that set out long-term goals and priorities The Ministry of Public Infrastructure at an upper-tier level. They inform the development Renewal will co-ordinate policies across of local official plans by providing direction on ministries, promote alignment of federal, matters such as population growth, regional provincial and municipal policies and transportation priorities and infrastructure plans. investment, and report results regularly to Community Improvement Plans are municipally Cabinet. The ministry will also — developed plans, under the Planning Act, initially • ensure provincial conformity with the intended to promote revitalization of underused Greater Golden Horseshoe growth plan, areas. The provisions allow lower-tier or single-tier including the 10-year provincial municipalities to establish grant and loan programs, which would normally be prohibited. infrastructure investment plan • assist and advise ministries and stakeholders The Development Permit System combines in implementing the growth plan features of the zoning, site plan and minor variance processes into one system, so a development permit • promote the development and use of can replace separate approvals under those three implementation tools and other processes. Its goal is to promote economic incentives, including establishing a new development through faster approvals, increased infrastructure financing and procurement flexibility and a better understanding in the policy framework development sector of what is permitted up front. • regularly monitor and review the plan, including developing and reporting a community livability index to measure the effectiveness of the plan in improving quality of life. Effective Implementation Tools The right mix of tools is needed to assist in the implementation of the plan. Implementation:Moving Forward Q Ontario 49 Possible Fiscal Tools to Support Implementation of the A number of tools are already in place (Planning Act, municipal official plans, Growth Plan development charges), but need to be Full-Cost Pricing for Infrastructure considers all changed or strengthened to be more of the operating and capital costs of an asset over its effective for implementation. For example, useful life. the planning reform initiative is consulting on a broad range of land-use planning Life-Cycle Pricing considers the full spectrum of system reforms, including new costs, benefits and impacts on the community over and revised tools to support more effective the long term, including maintenance, environmental planning and strong communities. and social impacts and financing methods. Tax Increment Financing, commonly referred to as A number of other tools are being used in TIF, allows a municipality to capture and pool other jurisdictions with great success.These tools need to be assessed as to their value anticipated increases in property taxes - derived from and would need to be tailored to create the area improvements-and pledge this revenue right mix of incentives in the Greater towards the financing of infrastructure Golden Horseshoe. improvements to attract new development. Development Charges allow a municipality to recoup A combination of improved existing tools the incremental costs of new development subject to and new innovative tools are needed to the provisions of the Development Charges Act. create the right incentives (such as achieving intensification and attracting investment to Land Transfer Tax will be examined as a tool to priority urban centres). Also, barriers to promote more compact development. implementing the plan need to be identified Property Tax Reform is used by other jurisdictions and removed. to provide tax incentives to properties in priority This mix of tools will include both urban centres and support higher densities in regulatory and planning as well as fiscal tools. commercial and industrial development, as well as in Regulatory Tools residential development. Location-Efficient Mortgages are used in many Regulatory and planning tools are those that fall under the Planning Act, including U.S. cities and allow a mortgage lender to recognize the cost savings of living in communities well served official plans and zoning. The current planning reform initiatives will result in a by transit. number of changes that will make the land- use planning and development process more effective in promoting strong communities as well as support the implementation of the growth plan. The revised Provincial Policy Statement will provide stronger, clearer directions to support such growth management objectives as compact form, intensification, identifying priority urban centres, protecting the environment, and supporting strategic infrastructure investments. The discussion paper also provides directions for developing upper-tier and single-tier growth plans at the regional or county level. At the local level, community improvement plans can provide the framework to offer the same fiscal tools or incentives to facilitate intensification and redevelopment. 50 ®Ontario PLACES TO GROW-A Discussion Paper,Summer 2004-Better Choices,Brighter Future A fast-track approvals process for projects supportive of growth plans or community improvement plans can provide further incentive for developing in established urban areas. Fiscal Tools There are a wide variety of fiscal tools that provide innovative options to implement the plan's key directions. Existing tools, such as development charges, have been in use for many years. A review of development charges can provide an opportunity to consider ways in which they can be modified to ensure new development pays for its fair share of the costs of growth, and to further support growth in developed urban areas with existing infrastructure. The government will also look at fiscal tools such as the Land Transfer Tax rebate program to determine whether these tools could be used to encourage people to buy homes in existing urban areas. In earlier consultations, many municipalities also asked the government to investigate new fiscal tools. We will be consulting with municipalities and other stakeholders as we move forward with the plan. The text box on page 50 contains a brief description of some key tools that are used in other jurisdictions to promote positive change. Some tools may be more applicable for priority urban centres while others may be applicable for all communities. The province will undertake a more detailed review of implementation tools to identify the appropriate set of tools to assist in the implementation of the growth plan. Legislative Framework The growth plan may require provincial legislation to ensure compliance and ongoing municipal implementation of growth strategies, and to amend existing legislation that may be inconsistent with it. If the legislation is established it will need to be clear and consistent with other legislation that relates to municipalities and other stakeholders, such as the Municipal Act, Planning Act, and Environmental Assessment Act and existing provincial plans, including the Oak Ridges Moraine Conservation Plan and the Niagara Escarpment Plan. Possible legislation could — . require the province to adopt a growth plan for the Greater Golden Horseshoe and other regions of the province Implementation:Moving Forward ®ontario 51 • establish roles and responsibilities of the province and municipalities regarding implementation of the growth plan and to ensure compliance with its directions • establish a time frame for review of the plan and reporting on performance benchmarks (e.g. performance report) • link to other existing provincial land-use planning and infrastructure legislation and regulations • require upper-tier and single-tier growth plans to conform with the plan and be implemented through municipal official plans and capital budgets. Monitoring and Review No plan is complete if its implementation and effectiveness cannot be monitored. A key outcome of this process will be a comprehensive assessment of the plan's implementation. Another outcome will be a review of its impact on quality of life in the communities affected. Strategies Full implementation of the strategies of the growth plan will be achieved by - . ensuring that there are appropriate governance mechanisms to support the plan, such as provincial facilitator and blue ribbon panel • developing an appropriate mix of regulatory and fiscal tools to assist ministries, municipalities and other stakeholders to implement the plan • reviewing all activities and policies of the Ontario government to identify any inconsistencies with the goals of the plan • developing partnerships with municipalities as required to achieve consensus on growth assumptions and the implementation of the plan through municipal official plans • reviewing the plan on a regular basis, every five years . monitoring the performance of the plan The province has established a pilot project to test and the livability and sustainability of the development permit system PPS) in the City of communities in the Greater Golden Toronto, the City of Hamilton, the Town of Horseshoe. Oakville, the Regional Municipality of Waterloo The need for legislation that provides and the Township of Lake of Bays. The five DPS status for the growth plan will be pilot project areas were selected to test how the considered. system could work to promote compatible development in historic and downtown areas, The development and reporting of a community livability index for the Greater revitalize brownfields,protect sensitive shorelands, Golden Horseshoe could be used to measure and protect sensitive wellhead areas. 52 Ontario PLACES TO GROW-A Discussion Paper,Summer 2004-Better Choices,Brighter Future communities against key indicators in the areas of urban form, environmental quality and economic vitality. The index will provide a snapshot of the performance of communities and the effectiveness of the implementation of the strategies of the plan. Specific indicators can include increased transit ridership, housing types and affordability, length of and number of commuter trips, reduced domestic smog-causing air emissions, number and size of brownfield projects, and rate of export growth. Implementation:Moving Forward QQ Ontario 53 Next Steps Achieving positive and healthy growth, which contributes to the future prosperity of our communities while maximizing our investment and minimizing costs, requires a strategic and co- ordinated plan. Our communities and the land and resources required for accommodating future growth are valuable but finite assets that we need to sustain and continue to use efficiently and effectively. The growth plan for the Greater Golden Horseshoe will provide the broad framework, vision and tools for making critical decisions about our future that will result in a high quality of life with a prosperous economy, livable communities and a sustainable environment. The plan will build on the past work of many partners and integrate related aspects of key provincial government initiatives to help us plan and decide where and how to grow, what strategic infrastructure investments we need to make to support this growth, how to protect what is valuable, and how to make it all happen. To achieve the kind of future we want for ourselves and future generations requires real change — in the way we behave, provide leadership, co-ordinate decisions and actions, as well as the way we plan and work together. The growth plan will provide that guidance, but successful implementation requires the contributions of all stakeholders, governments, businesses, institutions, community groups and residents. The growth plan for the Greater Golden Horseshoe will be an important document in shaping our future in terms of our economy, built and natural environments and quality of life.We invite you to attend one of our information sessions throughout the Greater Golden Horseshoe in the early summer of 2004. Tell us what you think, share your ideas and be part of creating better choices and a brighter future for Ontario. 54 Q Ontario PLACES TO GROW-A Discussion Paper,Summer 2004-Better Choices,Brighter Future Submit comments by September 24, 2004 To submit your comments electronically,you can complete an online survey at www.placestogrow.pir.gov.on.ca Written comments can also be submitted to- Growth Plan for the Greater Golden Horseshoe Ministry of Public Infrastructure Renewal Smart Growth Secretariat 777 Bay Street, 16th floor Toronto, ON M5G 2E5 Fax: 416-585-7639 E-mail: placestogrow @pir.gov.on.ca For more information or to order additional copies of the discussion paper, please call our toll free line at 1-866-479-9781. Toronto-area residents can call 416-585-6746. ®Ontario 55 Appendix Glossary of Terms 10-Year Infrastructure Investment Plan The government is developing a 10-year infrastructure investment plan for Ontario that will set out a comprehensive plan of action. It will guide the building and modernization of water and wastewater treatment,health care and education facilities.It will improve public transit services and co-ordination to reduce gridlock.It will create new affordable housing units.It will also address other strategic infrastructure priorities. Aggregate Aggregate(mineral aggregate)is a non-renewable mineral resource that is vital for infrastructure construction and maintenance. Aggregates consist predominantly of sand, gravel,clay and bedrock (including stone used to produce concrete,cement, time or clay bricks). Balanced Growth Increases in population and employment that are distributed in such a way that no single community is predominantly single-use,and municipalities achieve a mix of residential and business uses. Brownfields Lands that may include vacant,underused or abandoned industrial buildings,gas stations,or old mining and forestry sites in rural settings.These lands are ideal for intensification for industrial,commercial or residential uses. Compact Development Compact development is a land-use pattern of medium-and high-density urban development that encourages efficient use of land,walkable neighbourhoods, mixed land uses(residential, retail,workplace and institutional all within one neighbourhood),proximity to transit and reduced need for infrastructure. "Compact" is a relative term and will mean different effective densities in small towns as compared to big cities. Compact development does not necessarily mean high-rise development. Emerging Urban Centres Emerging urban centres have some of the characteristics of priority urban centres,but not all. Over time,as the region grows and additional investments are made,they too will become the hubs and emerge as regional centres of the Greater Golden Horseshoe.Many of these emerging urban centres have already been identified as key targets for future growth in municipal official plans. Greater Golden Horseshoe The Greater Golden Horseshoe is defined as the cities of Toronto,Hamilton and Kawartha Lakes;the regional municipalities of Halton,Peel,York,Durham, Waterloo,and Niagara;and the counties of Haldimand,Brant,Wellington, Dufferin,Simcoe,Northumberland and Peterborough. Greater Toronto Transportation Authority A proposed organization that seeks to co-ordinate transportation planning and investment at a regional level and ensure seamless transit in the Greater Toronto Area. 56 QQ Ontario PLACES TO GROW-A Discussion Paper,Summer 2004-Better Choices,Brighter Future Greenbelt Task Force A diverse group of stakeholders appointed in February 2004 by the Minister of Municipal Affairs and Housing to develop recommendations on how the province could most effectively establish a permanent Golden Horseshoe Greenbelt. In May 2004,the task force released a discussion paper that outlines a number of proposed approaches for a Golden Horseshoe Greenbelt. Greenfields Undeveloped land,usually located in suburban or countryside areas that may or may not currently be used for farming or recreational purposes. Greyfields Former and underused retail developments.Greyfields are good candidates for intensification as they are often located along key transportation routes. Growing Strong Rural Communities Plan A plan that seeks to ensure that the province's rural communities enjoy prosperous economies, rich cultural and natural heritage,and the capacity and leadership to sustain and enhance a high quality of life. Higher Order Transit/Rapid Transit Transit that operates in its own right-of-way, outside of mixed traffic,and therefore can achieve a frequency of service greater than mixed-traffic transit. Higher order transit can include heavy rail(such as subways),light rail(such as streetcars),and buses in separate rights-of-way. Infill The term generally refers to small-scale development or redevelopment on vacant or underused land within built-up areas of existing communities,where infrastructure is already in place. Infrastructure The basic systems and services that a region or organization requires in order to operate effectively.Infrastructure is typically described in two categories—hard and soft. Hard infrastructure is traditionally defined as physical structures,such as roads and highways,transit,airports,ports,water and sewage treatment facilities, schools,hospitals and telecommunications hardware.Soft infrastructure is traditionally defined as the programs and services provided in a community, such as skills training,health care and education. Intensification The term generally refers to larger scale development or redevelopment within existing urbanized areas that has the effect of increasing the density within an area. Natural Heritage System A system of natural core areas and key natural corridors or linkages, such as rivers and valleys,with significant ecological value. They collectively perform important ecological functions,such as providing habitat and improving air and water quality. Planning Reform The planning reform initiative is a review of Ontario's land-use planning system. The components of planning reform include Bill 26, (the proposed Strong Communities[Planning Amendment]Act),the five-year review of the Provincial Policy Statement,Ontario Municipal Board reform and implementation tools that may be needed to achieve the government's strong communities objectives. Appendix ®Ontario 57 Priority Urban Centres Priority urban centres have existing infrastructure—for water,wastewater, transportation,educational,health and social services, institutions and industrial activity—that can be built upon,and the capacity to absorb further residential and employment growth in an efficient manner. Provincial Policy Statement This statement is issued under the Planning Act to provide policy direction on matters of provincial interest related to land-use planning and development. A discussion paper proposed revisions to the Provincial Policy Statement was released in June 2004. Resources Includes agricultural lands,natural-heritage features,forests,water resources,and mineral aggregates.Resources are recognized for their ecological and economic values. Settlement Areas Lands designated through.the municipal planning process for building or development—urban,suburban or rural.This includes all development,ranging from dense urban to hamlets and other small residential development. Smart Growth Smart Growth is an integrated and innovative approach to sustainable urban development and growth that is being implemented in more than 200 jurisdictions worldwide. Wastersh ed-Based Source Protection Source water protection is the first barrier in a multi-barrier approach to protecting the water in Ontario's lakes,rivers and underground aquifers.Source water protection complements water treatment by reducing the risk that water gets contaminated in the first place.Watershed-based planning takes the natural boundaries of surface and groundwater into consideration,rather than man-made lines drawn on a map. i Bourne,Larry S.Social Change in the Central Ontario Region:An Issues Paper.September 2002 2 Conference Board of Canada 2000 statistics,based on GDP of Ontario:$354.8 billion;GDP of GTA,Hamilton, Waterloo and Niagara:$210.6 billion or approximately 60%of Ontario total. 3 Neptis Foundation.Toronto-Related Region Futures Study.August,2002 p132 4 ibid 5 Gridlock in Central Ontario.MAH.August 14,2002. http://www.mah.gov.on.ca/userfiles/HTML/nts-1_5861_1.html("Congestion in the GTA and Hamilton is estimated to cost the economy$2 billion per year because it delays the movement of goods.")Also,Central Ontario Smart Growth Panel Report.p,8($1.8 billion per year);Toronto Board of Trade.A Strategy for Rail- Based Transit in the GTA.p.3.("The cost of congestion to business could reach$3.0 billion annually,or 1.3%of regional GDP by 2021.");UDI 2001.($1.9 billion per year in the GTA) 6 Neptis Foundation.Toronto-Related Region Futures Study.August,2002,p137(also Central Onatrio Smart Growth Panel Report p8) 7 Gridlock in Central Ontario. MAH.August 14,2002 http://www.mah.gov.on.ca/userfiles/HTML/nts l 5861_1.htm1("The number of smog advisories in the Toronto area has increased from a total of one in 1993 to 20 in 2001.") 8 CMHC Core Housing Need Indicator,based on 2001 Census data 9 GTA Task Force,Greater Toronto:Report of the GTA Task Force January 1996 p12(additional references in Slack,2002 Municipal Finance and the Pattern of Urban Growth.C.D.Howe Institute. No.160,and TD Economics Greater Toronto Area:Canada's Primary Economic Locomotive in Need of Repairs,May 2002 p15) le Neptis Foundation.Toronto-Related Region Futures Study.August,2002.p50;The Greater Toronto Home Builders'Association.Growth and Urban Land Need in Ontario.February,2003 u www.smartgrowth.org 12 GTA Task Force 1996.Report of the GTA Task Force.Toronto:Queen's Printer. 13 Go Transit 14 Statistics Canada,Census 2001 15 Ministry of Natural Resources,2003 58 Ontario PLACES TO GROW-A Discussion Paper,Summer 2004-Better Choices,Brighter Future Q Ontario ISBN 0-7794-6503-2 Paid for by the Government of Ontario ©Queen's Printer for Ontario, 2004 Existe en frangais