HomeMy WebLinkAboutPSD-036-03
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REPORT
PLANNING SERVICES
Meeting:
GENERAL PURPOSE AND ADMINISTRATION COMMITTEE
Date:
Monday March 24, 2003
r;P/7-/tj{J-03
Report #: PSD-036-03
File#:
By-law #:
Subject:
"SHAPE THE FUTURE" - CENTRAL ONTARIO SMART GROWTH PANEL
DISCUSSION PAPER ON SMART GROWTH
RECOMMENDATIONS:
It is respectfully recommended that the General Purpose and Administration Committee
recommend to Council the following:
1. THAT report PSD-036-03 be endorsed as the Municipality's comments on the
Discussion Paper "Shape the Future"; and
2. THAT a copy of report PSD-036-03 be forwarded to the Smart Growth Secretariat, the
Ministry of Municipal Affairs and Housing, John O'Toole M.P.P., and the Region of
Durham FORTHWITH.
S'bm_by' ~
Davi . crome, MclP, RPP
Director of Planning Services
Reviewed by:d V&~ ~~
Franklin Wu,
Chief Administrative Officer
DJc*sn
March 21, 2003
CORPORATION OF THE MUNICIPALITY OF CLARINGTON
40 TEMPERANCE STREET. BOWMANVILLE. ONTARIO L lC 3A6 T (905)623-3379 F (905)623-0830
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REPORT NO.: PSD-036-03
PAGE 2
1.0 BACKGROUND
1.1 The Province's Smart Growth initiative is aimed at establishing a long term growth
strategy for the Province. This strategy will prioritize how provincial funds are invested
in infrastructure such as roads, transit, water and sewer systems over the next 30 years.
The Smart Growth initiative will determine which lands should be protected and where
investment and development should be directed.
1.2 In undertaking this process, the Province recognized that the needs, issues and
priorities would vary across the Province. Five zones across Ontario were identified
and a panel for each zone was appointed to provide advice on implementing a Smart
Growth strategy for that part of Ontario. In February 2002, the Province appointed the
panel for central Ontario, headed by Mississauga Mayor, Hazel McCallion and
comprising representatives of govemment, business, transportation, environmental
organizations and the development industry. The role of the panel is to build consensus
among stakeholders and the public on a growth strategy for central Ontario. The panel
is to provide advice to the Govemment on a strategy that will support healthy growth
and address the critical problems currently facing this area. At the time of appointment,
the panel was specifically requested to provide advice on transportation gridlock and
waste management.
1.3 The central Ontario region includes the area from Niagara Region in the west to
Northumberland County in the east and extends to Waterloo, Wellington, Dufferin,
Simcoe, Kawartha Lakes, Haliburton and Peterborough. Toronto is at the heart of
central Ontario.
.
1.4 The panel released its discussion paper "Shape the Future" on February 19th, 2003
outlining the basis of the panel's advice to the Province (Attachment 1). The discussion
paper introduces key Smart Growth concepts, identifies the problems facing central
Ontario and outlines a proposed vision, values and guiding principles for a 30 year
growth strategy. It incorporates 44 recommendations that are detailed more explicitly in
a document entitled "Strategic Directions for a Central Ontario Smart Growth Strategy"
(Attachment 2).
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REPORT NO.: PSD-036-03
PAGE 3
Shape the Future was presented to the public at five public open houses conducted
between February 26 and March 6 in Barrie, Toronto, Niagara-on-the-Lake and
Peterborough. The open houses included a presentation and question and answer
session with several panel members. Staff attended the Peterborough meeting, as did
several clarington residents.
2. SHAPE THE FUTURE DISCUSSION PAPER
2.1 Shape the Future identifies the problems facing central Ontario. Currently home for 7.5
million people, the central Ontario region enjoys a high quality of life but population
pressures are straining the infrastructure that provides the foundation for the way of life
enjoyed by the area. Over the next 25 years, it is estimated that an additional 3 million
people will be part of the region.
The Neptis Foundation, an independent research organization prepared an interim
report in 2002 entitled Implications of Business-as-Usual Development. The impacts on
quality of life would be profound. In addition to paving over more productive agricultural
lands, the following impacts would be felt:
. The average commute to work would take 45 % longer
. Air quality would get worse so that even with stronger emission controls, carbon
dioxide produced by cars would go up by 42%
. Economic competitiveness of the region would diminish due to increased traffic
gridlock that would increase costs for businesses and consumers
. Taxes would spiral higher as new revenue sources would be required to build and
maintain roads, transit, water and sewer systems
2.2 In contrast, to the above prediction of the future, the Smart Growth panel outlines its
own vision for 2035. The Smart Growth panel hopes that their vision will be supported
broadly as a basis to create a plan of action. The vision, outlined on page 9 of Shape
the Future, proposes that central Ontario will be a great place to live in 2035 with its
communities based on the pillars of a strong economy, a clean and healthy environment
and social equity. There will be a wide variety of choices for living, getting around in an
integrated transportation system will be easy, a healthy natural environment with clean
air, land, water, significant natural features will be protected in perpetuity and high
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REPORT NO.: PSD-036-03
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quality agriculture lands will support productive, diverse and sustainable farming, and
the region will have matured into an economic powerhouse of international significance.
2.3 Guiding principles for a smart growth strategy are identified as follows:
. Managing growth in a way that balances the goals of economic prosperity,
environmental sustainability and social equity;
. Leaving future generations an abundance of clean air, water and productive land;
. Providing the means for all citizens to develop to the fullest extent of their
capabilities.
The guiding principles are built upon the following values:
. Sustainability
. Diversity
. Conservation
. Providing choices
. Equity
. Collaboration
The Smart Growth panel recommends that a Smart Growth strategy for central Ontario
address five key areas:
i) Reshaping where and how we live
ii) Unlocking gridlock
Hi) Rethinking how we manage waste
iv) Optimizing other infrastructure
v) Protecting our environment
3.0 RESHAPING WHERE AND HOW WE LIVE - SUMMARY AND COMMENTS
The smart growth strategy will provide direction on the shape and form of growth,
potentially leading to significant changes to how the area is currently developing. The
growth pattern is described as a dynamic system with distinct parts. Toronto is the
economic heart for the area. The Greater Toronto Area and Hamilton is the metropolitan
area that has the greatest potential to accommodate the majority of growth over the
next 30 years. There are outlying regional economic areas that are not contiguous and
serve as independent economic and urban centres (Kitchener-Waterloo, Guelph,
Peterborough) which would also be centres of investment and growth.
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REPORT NO.: PSD-036-03
PAGE 5
Shape the Future includes a series of conceptual maps to illustrate some of the
proposed directions being considered not only for urban growth but also transportation,
agriculture, and natural heritage areas. It is a graphic.iIIustration ofthe proposed growth
concept but is not intended to be a plan showing precise areas or alignments.
The panel provides 6 recommendations for reshaping how we live:
· The priority action is to attract and direct balanced growth Gob and people) within
existing urban areas and to support compact development. This will optimize
existing infrastructure, reduce pressure on rural areas and ensure that over time,
communities will become more transit supportive.
· The province should focus its priorities for public investment on a dynamic system of
linked centrelnodes and corridors. Public investment should lead development.
· Planning for growth should consider how it is to be serviced.
· Preserve employment lands, as designated in Official Plans, particularly those near
major transportation corridors.
· The smart growth strategy should address the issue of affordable housing,
especially in regional nodes.
· Revitalize the waterfronts of communities, which are important for a healthy place to
live work and play.
Comment
The Smart Growth Concept for 2035 indicates that the current urban boundaries will
largely be retained. Expansion of urban growth boundaries will be limited and growth
will occur through more compact greenfield development, intensification and
redevelopment is to occur to create compact, transit-friendly urban areas. The panel
notes that some growth can occur outside existing boundaries and seek public input as
to how this might occur. Given the strong economic forces on the west side of the GTA,
there should be some consideration that urban areas on the east side of the GTA need
some additional growth areas to mature to higher level urban centres that provide high
level of amenities and services. The "Go east" policy of the earlier Toronto Centered
Region Plan should have some consideration in determining which communities should
have some ability to expand.
The creation of balanced communities with both job and housing opportunities is vitally
important to C/arington. While C/arington has designated vast employment areas,
residential growth has continuously outpaced employment growth. Incentives and
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REPORT NO.: PSD-036-03
PAGE 6
infrastructure investments are needed to encourage employers to locate on the east
side of the GTA.
The proposal for Downtown Oshawa to be designated as an "Existing mixed use,
regional, urban node for priority investment" is supported. In terms of meeting
employment and intensification objectives, the Province should support new investment
that reinforces the growth and development of Downtown Oshawa as the primary
regional node.
Downtown Bowmanville should be indicated as a "Planned mixed-use, regional, urban
node for priority investment". With a planned population of 65,000 within the designated
urban lands, considerable employment lands (including the anticipated ITER project)
and a total population of approximately 120,000 for Clarington by 2020, Bowmanville
serves as the eastern gateway to the GTA. With the pull towards the west of Toronto,
investment in Bowmanville provides for greater balance to the transportation system
and urban structure of the region.
The needs of small communities must be addressed. Small communities like Orono,
without access to lake-based services or without the population base to support
increasingly large service areas needed for larger stores, schools, and medical facilities
need options to remain viable. These communities will continue to need public and
private investment so that they don't become ghost towns of the future. A smart growth
strategy cannot focus only on the larger urban centres.
We agree with the panel's assessment of the critical importance of waterfront areas to
community livability. Given the growth pressure, land prices are escalating making it
difficult for the Municipality to secure the lands needed for the future. Clarington needs
financial assistance to secure and develop waterfront lands.
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REPORT NO.: PSD-036-03
PAGE 7
4.0 UNLOCKING GRIDLOCK - SUMMARY AND COMMENTS
The panel notes the enormous impact of gridlock on central Ontario. The panel's
approach is for a fully integrated transportation system with a greater emphasis on
transit and better use of transportation demand management. The panel has 9 draft
recommendations, including the following:
. Develop an integrated transportation system that links together all forms of
transportation and co-ordinates land use and transportation planning.
. Transit is the first priority for investment to serve the urban centres, nodes, regional
economic areas and corridors. The panel recommends establishing benchmarks
(timelines) and targets (modal split) and that investments should be weighed by the
ability to meet them.
. Invest in existing inter-regional and local transit.
. Invest in highways that facilitate international trade and economic success but do not
encourage sprawl.
. Walking and cycling must be recognized, encouraged and planned for all places.
. Create a strategy for moving goods.
. Implement a transportation demand management system.
Comment
The Municipality of Clarington is the "new kid" on the transit block, having launched a
local transit service for Bowmanville in September of 2002. Plans are to continue to
extend transit service to meet the needs in other parts of the Municipality over time as
resources allow. The Municipality is also a participant in the Durham Regional Transit
Task Force, which is currently preparing a Transit Improvement Plan that will coordinate
local transit operators and the GO system in Durham.
The emphasis of the panel on prioritizing transportation investments with an emphasis
on transit is supported. Current travel patterns are not sustainable and the central
Ontario region needs to mature over the next 35 years to have a greater transit focus.
The proposal for new economic corridors (400 series highways) that facilitate trade and
the movement of goods but do not encourage sprawl is debatable. Perhaps new
corridors should be accompanied by a provincial land use planning component
something akin to the Oak Ridges Moraine Conservation Plan.
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REPORT NO.: PSD-036-03
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The draft concept plan indicates expansion of Highway 407 as shown in the technically
preferred route from the mid-nineties. The Need and Justification of this route is
currently being reviewed in the EA process and should not be predetermined at this
stage.
Clarington continues its support for the early expansion of the GO rail system to
Bowmanville. This link is critical to the role of Bowmanville as the gateway to the GTA,
important to the viability of the local transit system, essential for the development of
Bowmanville as an employment centre and important for the location of ITER in
Canada.
5.0 RETHINKING HOW WE MANAGE WASTE - SUMMARY AND COMMENTS
Waste management was a priority issue for the central Ontario panel. A diverse range
of options should be explored, including reduction at the source, recycling, composting,
energy from waste, thermal treatment and potential new waste management
technologies.
The panel makes 11 recommendations on waste management, the more significant
include:
. Export of municipal waste to the United States should be eliminated within 10 years.
. Waste diversion programs should be maximized with mandatory targets phased in
over the 30 year period.
. Aggressive enforcement of recycling and diversion of industrial commercial
institutional (lei) waste is required.
. A regulatory regime for the composting of organic waste should be established in the
short term.
. User pay programs should be encouraged.
. Assess industry standards for packaging to reduce waste at its source.
Comment:
The Municipality of C/arington supports the strategic directions identified for waste
management, in particular the approach to increase waste diversion, compost organics
and source reduction. C/arington, in cooperation with the Region of Durham, is the first
municipality in Durham to have a fully integrated waste management program which will
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REPORT NO.: PSD-036-03
PAGE 9
increase waste diversion targets. The participation of the public and private sector is
critical to successfully address this problem.
The creation of mega-landfills is divisive and is not supported by Clarington. Rural
communities should not be targeted to meet the needs of the metropolitan areas.
Therefore the implementation of a diversity of solutions is critical to successfully
address the concerns of communities that would feel "targetedff for landfill sites to solve
the garbage crisis of the entire region.
6.0 OPTIMIZING OTHER INFRASTRUCTURE - SUMMARY AND COMMENTS
In addition to transit, roads and waste management, the central Ontario Smart Growth
panel proposes 9 recommendations for optimizing other infrastructure. Key
recommendations are:
. Invest in social infrastructure - schools, health-care facilities, recreation, arts and
culture - to support desired patterns of growth and livable communities.
. Invest in existing post-secondary institutions to support knowledge-based activities,
R&D, etc.
. Invest to ensure that broadband infrastructure is promoted and facilitated.
. Invest in renewing and upgrading water and wastewater systems, provide for an
integrated approach to managing them and encourage the develop of new
technologies.
. Ensure investment in alternative energy technologies.
Comment
All public expenditure in soft and hard infrastructure should be optimized. Social
infrastructure is the key to enjoying a quality of life that makes the region an attractive
area for business.
Smaller communities can become more attractive places for investment in jobs with a
strong investment in broadband technologies that connect these areas to the world.
7.0 PROTECTING THE ENVIRONMENT - SUMMARY AND COMMENTS
The growth pressures in central Ontario will require the use of a range of strategies for
protecting air, land and water. Well-managed growth protects natural habitats and
agricultural land. The panel provides 9 recommendations, including:
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REPORT NO.: PSD-036-03
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. Protect rural areas primarily for sustainable resource use.
. identify and protect a natural-heritage system of ecological core areas and corridors.
. Limit further settlement and severance of land in rural areas.
. Recognize the importance of "green" infrastructure in both urban and rural areas.
. Provide for optimum long-term availability and productive use of agricultural
resources.
Comment
The general directions for protecting the environment are consistent with the policies of
the C/arington Official Plan. Current restrictive planning policies on severances in
Durham have been relatively successful in protecting agricultural land. The ability to
protect natural heritage features in and near urban areas has been less successful.
Hazardous areas, floodplains and valleylands are well protected. However, in a similar
manner to the Oak Ridges Moraine Conservation Act, new tools will be needed to
successfully protect such features as tableland woodlots and the Lake Iroquois Beach
natural feature. Furthermore, the continual expansion of the metropolis into the rural
areas is inevitable under current economic conditions. While some expansion of urban
boundaries in C/arington is supported over time to allow the Municipality to fulfill its role
as the gateway to the GTA, long term pressures to continuously expand urban
boundaries must be addressed with new implementation tools some of which are
outlined below.
8.0 GENERAL COMMENTS AND IMPLEMENTATION
8.1 The Smart Growth panel held 5 public information centres. There was little public notice
immediately prior to the meetings and these meetings connected with a very small
group of interested individuals. People have had 30 days to comment on the document
from the time of its release. Shape the Future notes the importance of the Smart
Growth strategy and how it will influence priorities for public expenditures for decades.
It also acknowledges the importance of building consensus of key stakeholders and
broad public support. The panel is obviously working around timelines established by
the Province but it is clear that the process to date does not help to build consensus. It
is recommended that future stages of developing a smart growth strategy provide better
opportunities for municipal and citizen input.
REPORT NO.: PSD-036-03
PAGE 11
8.2 Shape the Future outlines broad directions for a strategy but has not proceeded to the
implementation phase. The strategic directions outlined in the document are so
contrary to the market place, this will be key to implementing the strategy. As just one
example, the frontal attack on Official Plans that allowed the creation of big box centres
over the last 10 years is clearly contrary to the principles of smart growth. They are built
at low densities, are not transit-friendly, and draw from very large markets requiring
people to drive further to shop. If the directions of smart growth are going to be
successfully implemented, market forces must be contained, directed or changed to
meet the vision outlined by the smart growth panel.
Some of the implementation measures that should be considered by the Smart Growth
panel include the following:
. Clear statements in the Provincial Policy Statement with respect to:
. transit-supportive development along major transportation corridors
. restricting urban boundary expansions to comprehensive official plan reviews
. restricting new commercial centres to comprehensive official plan reviews
. protection of historic downtowns
. requiring mixed-uses and higher densities for commercial areas
. Improve the OMB process to ensure that smart growth principles have greater
weight than short-term market considerations.
. Amend the property tax structure to encourage investment in higher density rental
housing.
. Investigate a transfer-of-development rights system that compensates owners of
lands with protected natural heritage features andlor agricultural easements by the
owners of lands that are designated for urban development purposes (eliminate the
winners and losers from land use regulations).
. Establish an agency to acquire agricultural easements in areas of the highest priority
and under the greatest threat.
. Designate a portion of the provincial and federal gasoline tax for municipalities to be
earmarked for transit.
. Amend the Development Charges Act (DCA) to include to the full costs of hard and
soft services (e.g. acquiring parkland and open space areas).
. Amend the DCA to have lower density housing forms pay slightly greater than their
calculated share of the charge to effectively subsidize housing in mixed-use or
higher density housing developments.
. Amend the DCA to allow transit infrastructure to be charged based on planned
rather than historic service levels.
. Consider establishing a transit coordinating agency for the development of an
integrated transit system throughout the GTA.
REPORT NO.: PSD-036-03
PAGE 12
9.0 CONCLUSIONS
Shape the Future and the recommendation of the "Strategic Directions" document
outline a future growth concept that consolidates many of broad concepts that have
been part of land use planning discussion for some time. Many of the principles are
currently part of planning policy but have faced difficulty in implementation due to
market forces that are moving in the opposite direction. Transportation and waste
management policy have reached the crisis stage so there is growing recognition that
serious efforts and investment must be made to address the problem. Overall,
achieving a consensus on the broad principles will be relatively easy in comparison to
developing a more detailed plan for growth and finding the right measures and financial
resources to implement a long term growth management strategy.
The comments contained in this report were prepared in consultation with the
Engineering and Operations Departments.
The Smart Growth Secretariat provided a March 21st deadline for the submission of
comments. A copy of this report was forwarded, noting that Committee and Council
would be considering this report at future meetings.
Attachments:
Attachment 1 - "Shape the Future" Discussion Paper (distributed under separate cover)
Attachment 2 - "Strategic Directions for a Central Ontario Smart Growth Strategy"
AliTACHMENT 2
Strategic Directions for a
Central Ontario Smart Growth Strategy
Draft for Public Consultation
February - March, 2003
Central Ontario Smart Growth Panel
iJ
Strategic Directions for a Central Ontario Smart Growth
Strategy
Central Ontario Smart Growth Panel
Outline
Preamble
Part I: Reshaping where and how we live
Part II: Unlocking gridlock
Part III: Rethinking how we manage waste
Part IV: Optimizing other infrastructure
Part V: Protecting the environment
Glossary of terms
Preamble
Over the next 30 years, central Ontario will be home to three million more people. The strategic
directions in this document form the basis of draft advice on a smart growth strategy, to ensure
that growth is well managed.
This document is one of several pieces that will comprise the central Ontario smart growth
panel's advice to the province. These pieces are:
- Vision, principles, and core values
- Interim advice on unlocking gridlock
- Selected early actions for implementing smart growth
- Strategic directions for rethinking waste management
- Strategic directions for long term growth management
- Growth concept
- Implementation addendum
The first three pieces - interim advice on unlocking gridlock, the panel's draft vision, principles
and core values, as well as selected early actions for implementation - were released publicly in
2002.
This document - strategic directions - is meant to articulate the direction the panel feels central
Ontario should move towards, over the next 30 years, It describes the desired approach to growth,
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to transportation, waste management and other infrastructure investments, and to protection and
management of the environment and natural resources. The strategic directions should be read in
the context of the vision, principles and core values, which are premised on the three pillars of a
strong economy, a clean and healthy environment, and social equity. The panel is seeking
feedback on these draft strategic directions,
The growth concept is a graphic illustration of many of the strategic directions described in this
document. The panel is also seeking feedback on its proposed growth concept. Finally, the panel
will advise the province on implementation, This piece of work is underway, and will evolve as
the panel confirms the strategic directions and growth concept.
The panel recognizes that managing growth is a complex undertaking, This draft advice is
comprehensive in its approach, but it raises important questions that require further discussion
and study, The panel is seeking public input before presenting its fmal advice to the Ontario
government.
Part I: Reshaping where and how we live
The anticipated growth in both population and in the economy represents both a challenge and an
opportunity to improve the central zone. It is not entirely clear what form this growth will take in
terms of numbers of immigrants, their skills levels, employment needs, and countries of origin,
The next 30 years will also bring to bear global and national influences in terms of economic
cycles, market and policy changes, and environmental changes. The smart growth strategy will
provide overall direction to guide decision making about growth within this changing context.
The strategy should include mechanisms for 30-year planning horizons, and should address both
current needs and prepare for future needs and opportunities, focusing on both the present and the
future, with respect to transit requirements, road requirements, and growth management.
For all aspects of the strategy, optimizing existing infrastructure, investment and resources should
be a priority. This includes activities such as demand management and conservation.
Pattern of Growth
The smart growth strategy will provide direction on the shape and form of growth. The overall
pattern of growth in the zone should be described as a dynamic system or network. It has a heart
(Toronto), a metropolis, outlying regional economic areas, urban centres, mixed use compact
nodes within urban centres, as well as corridors. Many of the recommended strategic directions
refer to these elements. See the illustration of the growth concept and the glossary for more
information,
The growth pattern should reinforce and support conditions for a variety of economic activities,
Growth within the central zone should be managed and planned in the context of the natural
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heritage system, incorporating the principles of a healthy, sustainable ecosystem (see
recommendations about the natural heritage system in part V).
I, The priority action is to attract and direct balanced growth (a balance of jobs and people)
within existing urban areas and to support compact development. This will optimize existing
infrastructure, reduce pressure on rural areas, and ensure that communities will over time become
more transit supportive,
2. The province should focus its priorities for public investment on a dynamic system oflinked
centres/nodes and corridors (see growth concept). Public investment should lead development.
The panel recognizes that there are limitations to and challenges in accommodating all urban
growth within existing urban areas. Strengthened policies including those aimed at urban
intensification and brownfield redevelopment, with targeted funding for transit, will help address
these limitations and maximize the amount of growth that occurs within existing urban
boundaries. But some well-planned development can' nevertheless occur outside the currently
designated urban area, if such growth is demonstrably justified in the context of the provincial
Smart Growth plan for the central zone.
3. With respect to servicing, including water management, conservation, and source protection,
the panel subscribes to the philosophy of "plan first, provide/engineer second", Planning for
growth should consider how it will be serviced,
4, Preserve employment lands, as designated in Official Plans, particularly those located adjacent
to or nearby major transportation corridors, or replace employment lands if they are re-
designated.
The panel recognizes that achievement of employment lands targets/designations is challenging,
due to the nature of economic cycles and uncertainty). The panel also recognizes that types of
employment vary from area to area, including "work at home" opportunities. A sufficient supply
of employment lands throughout the zone needs to be ensured to reinforce mixed use and live
work relationships,
Affordable housing is a key issue for the central zone, The affordability of housing is a driver of
household movement, with the cost of housing in existing urban areas acting as a driver of
suburbanization and limiting the choices available to many residents, Housing expenditures
represent the largest component of disposable income for most households, and a lack of
affordable housing affects the ability of communities to attract workers. The smart growth
strategy should address the issue of affordable housing especially in regional nodes, facilitating
accessory units in residential areas, and providing incentives for construction of new rental
housing.
* The panel is particularly interested in public input on this complex issue. The panel will be discussing this further
to develop clearer direction.
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5. The smart growth strategy should address the issue of affordable housing especially in regional
nodes, facilitating accessory units in residential areas, and providing incentives for construction
of new rental housing.
The waterfronts of the communities in the central zone are unique opportunities and important for
a healthy place to live, work, and play. The panel recognizes the importance of Toronto's
waterfront as an economic driver for the central Ontario zone.
6. Revitalize the waterfronts of communities in the central zone, which are important for a
healthy place to live work and play.
Part II: Unlocking Gridlock
When the central Ontario panel was established, it was asked to look specifically at unlocking
gridlock, as a priority issue.
The Panel's approach to unlocking gridlock involves transportation demand management,
investment in transit, transit supportive land use planning, an integrated transportation network,
and goods movement.
Transportation demand management (TOM) is a fundamental element of optimizing the existing
transportation system. TOM includes employee programs, incentives/disincentives, carpooling,
high occupancy vehicle (HaY) lanes, and more, and should be widely supported and
implemented by the province and municipalities. The central panel interim advice in August 2002
included several specific recommendations for TOM activities, including transit fare incentives,
workplace incentives, and HaY lanes.
Transit
The Panel has a bold transit vision: have in place a transit system as good as anywhere in the
world (both inter-regional and local), that meets or exceeds the central zone growth forecasts over
the next 30 years.
This transit system will be highly integrated, and will be supported by new and sustainable
sources of funding, and by successful implementation of transit supportive land use planning.
The inter-relationship of successful transit and transit supportive land-use patterns is
fundamental. Sustained fmancial investment in transit (both capital and operating) by federal,
provincial, municipal, private sector and users is of critical importance.
7. Invest in existing inter-regional and local transit to bring them up to a high level and standard
of service and to meet the demands of growth.
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8. Implement brand new transit initiatives that will enhance corridors and link nodes of activity to
each other throughout the zone.
The central panel interim advice (August 2002) recommended a number of short term transit
investments, including immediate implementation of an inter-regional transit grid in the GT A,
higher order transit on specific corridors, key rail grade separations, improvements to Union
Station, commuter parking lots, transit priority, and implementation of the GO Transit 10-year
capital plan. The panel has also endorsed in principle GO Transit's Inter-regional Bus Rapid
Transit (BRT) System, as one of the plans to address gridlock in the GTA, and suggested it be
built and operational within the next 5 years.
Transit supportive land use planning involves ensuring sufficient numbers of people and jobs to
make transit efficient, and conversely providing transit services to encourage higher numbers of
people and jobs to locate in an area. Within the metropolis and regional economic areas (see
growth concept illustration), urbanized corridors should be identified to link the mixed-use nodes
and these corridors should be highly developed. Inter-regional corridors leading to outlying
centres should also be identified. These may not necessarily be developed and should preserve
urban separators.
9. Transit is the first priority for transportation investment to serve identified centres, nodes,
regional economic areas, and corridors.
Other transportation investments should be weighed against investing more into transit. In order
to lead growth, transit must be put in place soon. The Panel recommends establishing
benchmarks (timelines) and targets (e.g. modal split, % population served by transit), and that
investments in modal types should be weighed by the ability to meet these benchmarks and
targets.
An Integrated Transportation Svstem
The central panel has also recommended that the govemment commit to creating an integrated
transportation network (August 2002 interim advice). The basic transit (both road and rail based
transit) and highway elements of this network are illustrated on the growth concept. Air travel,
whether it is for the cargo or passenger plane, is also an integral part ofthe multi-modal network.
This includes the increasingly important role of regional airports in the future.
10. The contribution of walking and cycling to human health, the environment, and urban vitality,
must be recognized and these modes should be encouraged and planned for in all places.
II. The transit, roads/highway, air, rail, and marine transportation network should be coordinated
to ensure an integrated transportation network to serve people and goods movement.
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12. Priority highway corridors should be the ones that facilitate international trade and contribute
to economic success. These economic corridors should form a grid, in order to facilitate both
north-south and east-west movement of goods and people.
13. The province needs to ensure that all trade corridors (road, rail, air, marine) are used for
goods movement and they do not encourage unplanned growth.
14. The Panel recognizes that MTO, with its partners, still needs to develop a goods movement
strategy. The Panel recommends that as part of this work, the province fully explore all potential
and possibility to use rail, air and marine travel, for freight.
15. The Federal government should support and invest in airports, ports and water travel where
they meet smart growth vision, principles and strategic directions. The province should invest in
the supporting infrastructure.
Part III: Rethinking how we manage waste
When the central Ontario panel was established, it was asked to look specifically at waste
management, as a priority issue.
The panel recommends that in order to meet the waste management goals of reducing
dependency on landfill and export, we need to implement a diverse portfolio of options, which
include reduction at source, recycling, compo sting, landfill, energy from waste and thermal
treatment and potential new waste management technologies.
16. The panel recommends that we reduce our dependence on export of municipal waste to the
United States over the next 10 years. This can be achieved through implementing a range of
measures that the province and municipalities can undertake. Managing waste better requires a
collaborative effort across the Zone
17. Waste diversion programs should be maximized. Waste ~iversion Ontario (WOO) has a
critical role to play in increasing waste diversion in the immediate short term.
18. Aggressive enforcement of recycling and diversion regulations governing institutional,
commercial and industrial (I, C & I) waste is also required.
19. A regulatory regime for the diversion (composting) of organic waste should be established in
the short term. A plan for managing organic waste in Central Ontario should be developed in the
next 2 - 5 years. The WOO should be approached to undertake this work.
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Mandatory diversion targets to be met by municipalities should be set by the province in the short
term, following consultation with municipalities. These targets should be phased in over the 30-
year period. Diversion should be clearly defined and non-compliance with the targets should be
penalized
20. To ensure cost-effective management of organic waste, financial incentives could be created
by the province to encourage cross-regional cooperation in the development of appropriate
infrastructure.
21. A regulatory regime governing organics should be established in Ontario - as in other
jurisdictions, such as the European Union and Nova Scotia - that will prohibit the disposal of
organic matter in landfill. This would be phased in over a period of 10 years.
Rationalization of current private sector landfill capacity in Ontario is needed. The panel has
suggested that an objective should be to reduce the current dependency on landfill over the next
30 years. It is also recognized that in the next 5-10 years, as we phase out the export of waste to
the U.S., there will be pressure to expand domestic landfill capacity.
22. In the short-term, pressure on creating new landfill can be alleviated through changing current
restrictions on existing private landfill. In order to do this, an assessment of private sector landfill
capacity is needed. Municipal access to these landfill sites should be considered following
consultation with the private sector.
23. An integral element in the portfolio of waste management options is energy from waste or
thermal treatment. A review of current provincial definitions of "disposal" and "diversion" with
respect to energy from waste systems is necessary.
24. The implementation of user pay programs by municipalities should be encouraged within the
next 2-5 years, as a disincentive to waste production. The province should consider building
incentives into any other waste funding programs to motivate municipalities to establish user pay
programs.
The panel also recognizes that it is important to focus on reducing waste at source, and that all
sectors (residential, private, public) have a role to play in adopting a sustainable approach to
waste reduction as source.
25. The Panel recommends that a range of incentives be developed to encourage municipalities to
collaborate on waste reduction, diversion and disposal efforts for both residential and IC&I
waste. This would allow municipalities to take advantage of economies of scale and avoid excess
capacity in individual facilities.
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26. The Panel recommends that, in consultation with the WDO, the Province initiate discussions
with the Federal government and other jurisdictions to assess industry standards for packaging in
order to reduce waste at the source.
Similarly, new waste management technologies should be explored and where appropriate
invested in. A clearinghouse to disseminate information on new waste management systems to
interested stakeholders, would help in this regard.
While the Panel recognizes that the management ofbio-solids (sewage sludge) is an important
waste issue, it is currently being addressed through other provincial processes.
Part IV: Optimizing other infrastructure
In addition to transportation and waste management, there are other infrastructure needs to
support and encourage desired growth patterns. This includes water and wastewater (also
mentioned in parts I and V), power and energy, broadband (internet), tourism services and
amenities, and social infrastructure services such as education, and health care.
27. The Panel recommends that a priority be placed on optimizing existing infrastructure, both
soft and hard (e.g., water, wastewater, institutions, services and tourism) in order to accommodate
expected growth in the most efficient manner.
Collaboration and cooperation will be required among municipalities and all stakeholders, in
order to optimize infrastructure investment as growth occurs.
28. Water sources need to be adequately protected, through source protection and watershed
planning. In addition to protecting clean water resources, there should also be a strong effort
made to restore degraded lakes and rivers.
29. Water and wastewater infrastructure must be well maintained and respectful of the
environment. This means investment in renewal and upgrade of existing systems. Full cost
pricing (incorporating the concepts oflife cycle/replacement) to ensure funds to maintain this
infrastructure will be necessary. Development and adoption of new technologies in this field
should be encouraged and supported.
The Panel also recognizes that water and wastewater management are interrelated, and
recommends an integrated approach in managing them.
30. Water and wastewater should be planned/managed on a watershed basis, or in a watershed
context. This includes water conservation, source protection, stormwater source control, avoiding
intra-basin transfers, etc.
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31. The Panel acknowledges the need to recognize and invest in the social infrastructure
(community, arts & culture, health, sports, recreation, education) that will support desired
patterns of growth and livable communities.
32. With respect to supporting jobs and economic growth in all communities, the province needs
to invest in existing post-secondary institutions to support knowledge based activities, R&D, etc.
33. The province should ensure that broadband infrastructure is promoted and facilitated
throughout the zone.
The shift to a knowledge/services economy should be embraced and the central zone must be
prepared. There is a recognition that implementation is expensive due to hardware costs, nature
of monopoly ownership, etc.
34. The province should ensure investment in alternative energy technologies drawing on lessons
learned from experience with wind energy and other energy sources. It is essential that key power
locations be identified and protected.
35. Emphasize conservation in parallel with alternative energy. To help achieve this, consider
implementing mandatory energy audits on existing buildings as they change ownership.
Part V: Protecting the environment
This section includes natural heritage and water quality issues, as well as other rural and resource
issues such as agricultural protection and mineral aggregates use.
The Panel recognizes the public need for a healthy and sustainable ecosystem, as well as the need
to manage growth in a way that balances the goals of economic prosperity, environmental
sustainability, and social equity. These are part of the Panel's principles and core values, and the
following statements should be read with those principles and values in mind.
Rural Areas
36. The Panel recommends that rural areas (outside of settlement areas) be recognized as
primarily for sustainable resource use and protection (this includes agriculture, forests, water,
aggregates, and natural heritage features, etc.).
The Panel recognizes that there is frequently a conflict between residential development and
resource use.
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3 7. The impact of non-resource based uses in rural areas (outside of settlement areas) should be
minimized. To achieve this, further severances and settlement in areas identified for sustainable
resource use and protection should be strictly limited.
The province and municipalities need a clear' and reasonable mechanism to permit resource use in
rural areas. In balancing resource use decisions, the Panel recognizes that aggregate extraction is
an interim use, and that lands are currently required to be progressively (in phases) rehabilitated
in accordance with an approved plan, following extraction.
38. The central zone smart growth strategy should include measures to protect resources
(agricultural lands, forests, water sources, mineral aggregates and natural heritage features) and
allow for their use, where appropriate.
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central zone (natural heritage, agriculture, aggregates, water sources, forests, etc). Although this
mapping and detailed policy work will not be completed before the Panel will provide advice to
the Minister, it is essential that it be completed.
39. The Panel recommends that inter-ministerial, inter-governmental and inter-agency co-
operation and support be pursued vigorously to complete constraint mapping of the irreplaceable
resources of the central zone (natural heritage features, agriculture, aggregates, water sources,
forests, etc).
As a first step, the Panel has begun to identify the types of resources and some criteria that should
be used to identify resources to be protected. See specific discussions below.
Natural Heritage and Environment
40. The Panel recognizes that different levels of protection will need to be in place for different
features and in different areas. Lands that are deemed unique and irreplaceable (e.g. the Oak
Ridges Moraine and Niagara Escarpment) should receive the highest level of protection.
The level of protection achieved through development will vary. In existing urban areas
protection might have to be less stringent, and incentive based. In approved areas for
development, the province and municipalities may be able to apply slightly more stringent levels
of protection. New development could be subject to stringent tools and/or provide incentives that
steer growth away from key resources and natural heritage areas and key water sources.
41. A natural heritage system (NHS) of core areas and corridorsllinkages, should be identified,
and growth decisions should be made within the context of protecting and managing the system.
This NHS should be developed at the scale of the central zone.
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The Panel recognizes the important role of "green infrastructure" (the system oflakes, valleys,
and woodlands that contributes to environmental functions) in both rural and urban areas. This
includes the role of greenspace and parks with respect to recreation, improving air quality, water
management, and energy conservation. Further work is required to define green infrastructure, its
contribution to environmental quality, and implementation mechanisms.
42. The smart growth strategy should support "green infrastructure" as meeting multiple smart
growth objectives.
Water sources need to be adequately protected, through source protection and watershed
planning. Recommendations regarding water resources are in part IV.
Agriculture
The panel recognizes that agriculture is a significant part of the GTA economy. There is a finite
supply of agricultural resources in the Central Zone.
Further, some agricultural lands are particularly productive due to climate, proximity to market
and soil type, etc. (see point below). These include the tender fruit lands and the Holland marsh,
and likely other lands. The Panel also recognizes that these unique and irreplaceable lands within
the province are under particular development-related pressure.
43. In addition to the existing Canada Lands Inventory, more work is required to identify and
protect prime agricultural lands and to sustain a viable, economically prosperous agricultural
industry .
The potential for ensuring a competitive agricultural sector in the Central Zone rests in
capitalizing on their location, diversity and productivity.
Growth management must provide for the optimum long-term availability and productive use of
agricultural resources in the Central Zone.
There are many factors that contribute to the higher level of productivity of unique and high
quality agricultural resources, notably,
. land with a high potential for agricultural production of common field crops or specialty
crops (i.e. prime agricultural lands);
. climate conditions affecting crop growth and the ability to grow certain crops (i.e.
orientation, temperature, wind, etc.);
a critical mass of agricultural operations and activities and access to services required
for efficiency of operations (i.e. prime agricultural areas and agricultural clusters);
. presence of infrastructure and valued-added activities related to agricultural operations;
. access to large stable market conditions (i.e. proximity to the GT A market, access to
urban services);
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. access to skilled work force and knowledge base (i.e. linkage to service research
facilities); and
. production and distribution efficiency (i.e. access to adequate facilities and efficient
goods movement - transportation).
44. In optimizing the long-term availability and use of these unique and high quality agricultural
resources there must be a stronger commitment to their long-term productive capability and their
long-term protection.
Aggregates
The Panel acknowledges that mineral aggregate sources are essential to a strong provincial
economy.
Aggregate extraction is an interim land use that is required to be rehabilitated. This can mean
rehabilitated back to agriculture lands, natural heritage features, or other appropriate land uses.
The Panel recognizes the environmental, social, and economic importance of ensuring close-to-
market aggregate resources. Aggregate resources that are close to market should be protected
against "sterilization" and made available for use. This does not imply that aggregate
automatically overrides other resources. Proper balancing of all resources is required.
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Glossary of terms used by the central Ontario panel
Balanced growth
Increases in population and employment that are distributed in such as way that no one
community is predominantly single-use and municipalities achieve a mix of residential and
business uses.
Economic/Inter-regional Corridors
An element of the panel's growth concept, economic corridors are defined as transportation
corridors that link the regional economic areas (REAs) and outlying urban centres to the
metropolis and to markets and destinations outside the central zone. They can be used for people
movement, goods movement, or both. They are designed to avoid development along their
length, and include road, rail, air and marine routes.
Green Infrastructure
The function performed by lakes, valleys, and woodlands contributing to sustainable quantities of
clean water and air, in the same way that hard infrastructure such as pipes and scrubbers
contribute to clean water and air. Green infrastructure can contribute to recreation, improving air
quality, water management, and energy conservation.
High Order Transit (also Higher Order Transit and Rapid Transit)
Transit that operates in its own right-of-way, outside of mixed traffic, and therefore can achieve a
frequency greater than mixed-traffic transit. High order transit can include heavy rail (subway),
light rail (street car), and buses in separate rights-of-way.
Metropolis
An element of the panel's growth concept, the metropolis is defined as the large contiguous and
continuous urban area in and around Toronto that has the greatest potential to accommodate the
majority of people and jobs expected to come to central Ontario over the next 30 years. The
metropolis is roughly defined as the urban part of the Greater Toronto Area (Toronto, York,
Halton, Peel, Durham, and Hamilton).
Natural Heritage System
A system of natural core areas and key natural corridors/linkages with significant ecological
value. They collectively perform important ecological functions, such as providing habitat and
improving air and water quality. The Natural Heritage System the panel is recommending would
be developed at the scale of the central zone
Nodes (Regional)
An element of the panel's growth concept, nodes are discrete areas within urban centres that have
compact, mixed use (residential, commercial, and institutional) development and service the
surrounding areas. They are located within urban centres, are accessible by high order transit and
a good road network, and exhibit high quality urban design. The panel's draft growth concept has
identified a number of regional scale nodes.
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Regional Economic Areas (REA)
An element of the panel's growth concept, REAs are urban zones of influence that serve as
relatively independent economic and urban entities. They include the metropolis (a very large
REA) and the Kitchener-Waterloo-Guelph area and Niagara Region.
Resources
Includes agricultural lands, natural heritage features, forests, water resources and, aggregates.
Resources are recognized for their ecological and economic values.
Rural Areas
Lands that are not designated urban or settlement. In the panel's proposed strategic directions,
rural areas are primarily identified for resource use and protection.
Transit Priority
Measures that permit and encourage transit vehicles to have priority over other traffic on the
roads, and thereby make transit travel times shorter and more consistent, making transit more
attractive to riders. Transit priority measures can include queue jump lanes, green light signal
priority, yield-to-transit, etc.
Transportation Demand Management
Transportation Demand Management (TDM) is a general term for strategies that result in more
efficient use of transportation resources. TDM strategies can include pricing (road tolls or transit
discounts), carpooling, park-and-ride, high occupancy vehicle lanes, incentives for walking and
cycling, and more.
Urban Centres
An element of the panel's growth concept, urban centres are municipalities in the central zone
with urban characteristics (including mixed-use, compact development, transit infrastructure, and
their own character and identity). Urban centres play an important economic, social, and financial
role for smaller neighbouring communities. They can be large or small. There are urban centres
both within the metropolis and outside the metropolis.
Toronto is the largest urban centre in the Central Zone. It is of national and international
economic significance, and unique in size, density, and economy. It is the hub for inter-regional
transit around the zone and the gateway for international travel. It has the highest density and
gross numbers of people and jobs in the zone.
Urban Corridors
An element of the panel's growth concept, transportation corridors within urban centres or within
the metropolis link nodes to each other. They have compact development along their length.
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