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REPORT
PLANNING SERVICES DEPARTMENT
Meeting: GENERAL PURPOSE AND ADMINISTRATION COMMITTEE
Date: MONDAY, DECEMBER 3, 2001;:c:J5 Resolution #:G(JI7-5~b -D I
Report #: PSD-053-01 File #: PLN 17.8.10 By-law #:
Subject: "OAK RIDGES MORAINE"
BILL 122 - OAK RIDGES MORAINE CONSERVATION ACT AND
DRAFT OAK RIDGES MORAINE CONSERVATION PLAN
Recommendations:
It is respectfUlly recommended that the General Purpose and Administration Committee
recommend to Council the following:
1. THAT Report PSD-053-01 be received;
2. THAT the Provincial initiative on the Oak Ridges Moraine be supported in
principle and, that Report PSD-053-01 be endorsed as the comments of the
Municipality of Clarington with respect to Bill 122 - the Oak Ridges Moraine
Conservation Act and preliminary comments on the draft Oak Ridges Moraine
Conservation Plan;
3. THAT the Honourable Chris Hodgson, Minister of Municipal Affairs and Housing,
be requested to approve Modification #173 to the Clarington Official Plan as it
applies to the Oak Ridges Moraine in accordance with Section 18(1 )1. of the
proposed legislation Bill 122 - Oak Ridges Moraine Conservation Act;
4. THAT the Province be strongly urged to provide financial and technical
assistance to the Regions, all local municipalities, conservation authorities, and
other stakeholders within the Oak Ridges Moraine, as defined by legislation, to
implement the directions of the Oak Ridges Moraine Conservation Plan; and
699
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5. THAT the Ministry of Municipal Affairs and Housing, Mr. John O'Toole, the
Durham Region Planning Department, Central Lake Ontario Conservation
Authority, Ganaraska Region Conservation Authority, interested parties and all
delegations be forwarded a copy of this report and be advised of Council's
decision on this matter FORTHWITH.
Submitted by:
Dav J C me, M.C.I.P.,R.P.P.
Director,
Reviewed bQ ~ -:!JIc.
Franklin Wu
Chief Administrative Officer
HS*SN*DJC.sn
November 28, 2001
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REPORT NO.: PSD-053-01
PAGE 3
1.0 PURPOSE OF REPORT
On November 1, 2001 the Minister of Municipal Affairs and Housing introduced
Bill 122, the Oak Ridges Moraine Conservation Act, for first reading in the Ontario
Legislature, and released a proposed Oak Ridges Moraine Conservation Plan.
Release of these documents follows an intensive 6-month review of the Oak
Ridges Moraine. A brief review of these documents and their implications for
Clarington have been provided in this report.
Committee and Council have previously considered three reports on the
Province's proposed Oak Ridges Moraine strategy (PSD-006-01, Addendum to
PSD-006-01, and PSD-019-01). Reports PSD-006-01 and its Addendum were
referred back to Staff in September 2001 and report PSD-019-01 provided
Clarington's consolidated comments on the proposed strategy as prepared by the
Province's Advisory Panel on the Oak Ridges Moraine.
2.0 BACKGROUND
The Oak Ridges Moraine Protection Act, 2001 established a six month
moratorium on new development on the Moraine and suspended processing of all
planning applications affecting the Moraine. This moratorium expired on
November 16th, 2001. In anticipation of the expiration of this Act, Bill 122, the Oak
Ridges Moraine Conservation Act (ORMC Act) was introduced in the legislature
and has had its second reading to-date.
The purpose of this Act is to protect the natural features and water resources of the
Moraine. Sections 3, 4 and 5 of the ORMC Act provide for the establishment,
objectives and content of the Conservation Plan. In accordance with these
Sections, the Ministry of Municipal Affairs and Housing have prepared a draft plan
entitled the Oak Ridges Moraine Conservation Plan, reflecting the consensus
reached by the Advisory Panel and comments identified during the consultation
process. A brief description of the Oak Ridges Moraine Conservation Plan is
provided in Section 4.0 of this report.
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3.0 THE OAK RIDGES MORAINE CONSERVATION ACT
The ORMC Act takes effect on November 16th, 2001 and any regulations, including
the Oak Ridges Moraine Conservation Plan (ORMC Plan), shall be retroactive to
November 16th, 2001.
The ORMC Act establishes the boundary of the Oak Ridges Moraine and sets out
the objectives and content of the ORMC Plan. To implement the ORMC Plan,
regions and local municipalities are required to amend their Official Plans and
Zoning By-laws to bring them into conformity with the ORMC Plan. The Minister
may establish, revoke, or amend the ORMC Plan and require the review of the
ORMC Plan every 10 years. A transition process is described in the ORMC Act
that addresses how existing development applications will be dealt with. Penalties
for contravention or failure to comply with a restriction or an order under the ORMC
Plan is described in the ORMC Act.
Section 15 of the ORMC Act describes the transition process specifying that:
. All applications commenced on or after November 17th, 2001 must comply
with the provisions of the ORMC Act.
. For applications that have commenced before November 1ih, 2001 but
where no decision has been made, they must comply to the provisions of
the ORMC Act.
. If a decision has been made before November 1 ih, 2001, the Conservation
Plan is not applicable.
For those applications that were appealed to the Ontario Municipal Board (OMB)
before November 16th, 2001, the Minister can amend the Official Plan by order
and/or notify the Ontario Municipal Board that its consideration of the matter
should be deferred until such time as the Minister orders that the appeal may
continue.
The Minister may amend the ORMC Plan, and any prescribed person or public
body may apply to amend this plan. Notice of the proposed amendment shall be
given and people are invited to make written submissions. The Minister can
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PAGE 5
approve, modify or refuse to approve a proposed amendment. If written
submissions are made regarding a proposed amendment the Minister can appoint
a hearing officer to conduct a hearing. The hearing officer will report in writing to
the Minister. The Minister makes the final decision and his/her decision can not be
appealed.
The ORMC Act prevails in the case of conflict between any other Act, the ORMC
Plan and any Official Plan, Zoning By-law, or policy statement issued under
Section 3 of the Planning Act.
4.0 OAK RIDGES MORAINE CONSERVATION PLAN
The ORMC Act gives authority to the Minister of Municipal Affairs and Housing to
establish the Oak Ridges Moraine Conservation Plan by regulation. A draft of the
ORMC Plan has been released, which comprises the following sections:
. The Vision, Purpose and Objectives provide an overall direction.
. land Use Designations describe the four land use designations and
includes the identification criteria, permitted uses and lot creation policies.
. Protecting Ecological and Hydrological Integrity identifies the Oak
Ridges Moraine's significant natural, hydrological and landform features.
This section provides specific planning, design and development
restrictions and requirements that will protect the integrity of the Moraine's
ecological and hydrological features.
. Specific land Use Policies provides the specific planning, design and
development restrictions and requirements for specific uses and activities.
. Implementation and Interpretation describes how the ORMC Plan will be
implemented including future review and amendments to the ORMC Plan.
The following provides further details on the land Use Designations, Protecting
Ecological and Hydrological Integrity and Specific land Use Policies sections of
the ORMC Plan.
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4.1 Land Use Designations
The Conservation Plan divides the Moraine into four land use designations:
Natural Core Areas; Natural Linkage Areas; Countryside Areas; and Settlement
Areas. The purpose and permitted land uses for each designation is summarized
below:
DesIgnation Purpose Permitted Land Uses
Natural Core Areas To maintain, improve or restore . Fish, wildlife and forest management
(Covers 38% of the Moraine) the ecological and hydrological . Conservation and flood and erosion
(Covers 33.4% of the integrity and quality of critical control projects
Moraine in Clarington) areas of the Moraine, Includes . Agricultural uses
the greatest concentrations of . Necessary transportation, infrastructure
significant features and functions and utilities as described in Section 4,11.
critical to maintaining the integrity . Existing uses including one single
of the Moraine. dwelling per lot
. Home businesses within a structure
otherwise permitted
. Home industries within a structure
otherwise permitted
. Bed and breakfast establishments and
farm vacation homes within a dwelling
otherwise perm itted
. Low-intensity recreation
. Accessorv uses
Natural Linkage Areas Identifies areas possessing critical . All uses permitted in Natural Core
(Covers 24% of the Moraine) ecological, hydrological and Areas
(Covers 26,3% of the regional scale open space . Mineral aggregate operations
Moraine in Clarington) linkages between Natural Core . Wayside pits
Areas in order to maintain a
natural continuous east-west
connection across the MOraine,
Cou ntryside Areas Includes areas used for . All uses permitted in Natural Core Areas
(Covers 39% of the Moraine) agriculture, recreation, rural and Natural Linkage Areas
(Covers 40.2% of the residential development, mineral . Agriculture-related uses
Moraine in Clarington) aggregate extraction, parks and . Outside prime agricultural areas and any
open space and rural settlements other lands in agricultural designations of
(hamlets). The hamlets of Official Plans, small-scale commercial,
Burketon, Enfield, Haydon and industrial and institutional uses
Enniskillen are located within this . Outside prime agricultural areas and any
Designation, other lands in agricultural designations of
Official Plans, maior recreation
Settlement Areas Identifies urban areas. . Uses permitted in urban development
(Covers 8% of the Moraine) designations of Official Plans
(Covers 0% of the Moraine
in Clarington)
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4.2 Protecting Ecological and Hydrological Integrity
Section 3 of the ORMC Plan contains policies aimed at ensuring any development
will maintain, improve or restore the ecological and hydrological integrity of the
Oak Ridges Moraine. These policies restrict development within significant
natural heritage features and hydrologically sensitive features. Significant natural
heritage features include: wetlands; significant portions of the habitat of
endangered and threatened species; fish habitat; Life Science ANSls; and
significant valleylands, woodlands and wildlife habitat. Hydrologically sensitive
features include: permanent and intermittent streams; wetlands; kettle lakes;
seepage areas and springs. These policies apply to any development proposed
within any of the four land use designations.
Minimum Areas of Influence are identified for each type of significant natural
heritage feature. Development proposed within the Minimum Area of Influence,
shall demonstrate that there will be no negative impact on the specified feature or
function. In addition, development shall be designed and constructed in a manner
that will maintain and improve or restore the health, diversity and size of the
feature as well as provide a self-sustaining vegetative buffer zone.
4.3 Specific Land Use Policies
Section 4 of the ORMC Plan provides specific land use policies for existing uses,
approved uses, lot creation, agricultural uses, mineral aggregate operations, low-
intensity recreation, major recreation, Oak Ridges Trail, small-scale commercial,
industrial and institutional uses, transportation, infrastructure and utilities, sewage
and water services, stormwater management, and specific land use policies in
settlement areas. This Section applies to all development within the Oak Ridges
Moraine. Additional directions regarding specific land uses are provided as are
planning, design and development restrictions and requirements.
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5.0 COMMENTS ON THE ORMC PLAN
This section of the report summarizes the major concerns of the Municipality
regarding the ORMC Plan. A more extensive analysis is contained within
Attachment 2 to this report.
5.1 Overview
The Provincial initiative is supported in principle. It has been recognized for some
time that a coordinated approach is required to address growth management in
the Greater Toronto Area. Stronger provincial policies that provide a clear
mandate for conservation of the Oak Ridges Moraine will help to protect the
Moraine as an important landform and minimize costly disputes in front of the
Ontario Municipal Board. The protection provided will have the greatest impact on
the areas most threatened by urban development, mostly in York Region. Official
Plan policies in Clarington that currently provide this protection will be reinforced
by the Provincial initiative from private sector amendments. However, on the
basis of our current understanding of the Draft ORMC Plan, the Provincial
initiative serves to weaken the environmental protections from the greatest threat
to the Moraine in Clarington, the aggregate industry. In this regard, it is
disappointing that the Provincial initiative did not "raise the bar" for aggregate
operations within the Oak Ridges Moraine.
5.2 Public Consultation
The Provincial Initiative, in particular, the ORMC Plan will have a tremendous
impact on many people, interest groups, businesses, landowners, and
government agencies and as such full public consultation is required. The
Province held consultation sessions during the summer months, and believes that
the ORMC Plan reflects comments received during this process. As the ORMC
Plan is a land use plan, dictating the designation of land and permitted uses within
the Oak Ridges Moraine, it is requested that opportunities for further public
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REPORT NO.: PSD-053-01
PAGE 9
consultation be provided prior to adopting by regulation the Oak Ridges
Moraine Conservation Plan.
5.3 Limiting Local Official Plan Policies
The ORMC Plan states that municipal official plan policies shall not be more
restrictive with respect to mineral aggregate and agricultural use. This restriction
has a tremendous impact on Clarington particularly with respect to mineral
aggregate policies. The problems are as follows:
i) If the policy is set for the Oak Ridges Moraine by the Province, this will also
lead to establishing the policy for the rest of the Municipality, unless the
Municipality has two sets of agricultural and mineral aggregate policies.
ii) The Municipality of Clarington has come to a negotiated settlement with the
APAO and other stakeholders regarding Clarington's aggregate extraction
policies. This negotiated settlement balances environmental protection and
the use and management of aggregate resources. The ORMC Plan
jeopardizes this settlement.
Some Clarington Official Plan policies that may be in conflict are:
. New pits must be established by amendment to the Official Plan.
. Aggregate-related industrial uses such as concrete-batching plants
and asphalt plants are only permitted by amendment to the Official
Plan.
. Aggregate uses are not permitted in areas identified as having
environmental and social constraints.
Clarington's more restrictive policies provide a greater level of protection of the
Oak Ridges Moraine. Limiting the ability for Clarington's policies to be more
restrictive will erode the negotiated settlement and will reduce the level of
protection Clarington policies provide for the Oak Ridges Moraine.
Clarington objects to the sections of the ORMC Act and the ORMC Plan that
limit the ability of local municipal policies to be more restrictive.
5.4 Criteria for Small-Scale Commercial and Industrial Uses in the Countryside
Area
The ORMC Plan exempts small-scale commercial or industrial uses from
demonstrating that the use is complementary to other uses permitted within the
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REPORT NO.: PSD..()53..()1
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Countryside Area. This exemption should not apply for aggregate-related
uses as these uses could have tremendous impact on adjacent lands.
5.5 Mapping
The ORMC Plan land use designations are a relatively good reflection of
Clarington's policies with two significant exceptions. The land use designations
should be revised in the following manner:
o Delete the Countryside Area and Natural Linkage Area designations in the
Long Sault Forest and Ganaraska Forest as identified in the Clarington
Official Plan.
o Delete some of the Countryside Area designation in the Oak Ridges
Moraine Natural Corridor Area as identified in the Clarington Official Plan.
It is requested that the Province make the changes as detailed in
Attachment 1 to this report.
5.6 Environmental/Landform Criteria
The Ministry has not yet released mapping detailing the location of Significant
Natural Heritage Features, Hydrological Features and Landform Conservation
Areas. Additional review of this mapping in conjunction with the applicable
policies will be required when it is released. Clarington is concerned that if
release of this mapping does not occur immediately, it will be difficult to
determine the implications of the related policies.
5.7 1 0 Year Review of the Oak Ridges Moraine Conservation Plan
The ORMC Plan shall be reviewed every 10 years. This review may include an
examination of the ORMC Plan's policies on mineral aggregate extraction in
Natural Core Areas. This provision contradicts the ORMC Plan's statement that
the 10-year review can not consider reducing the total areas of Natural Core
Areas and Natural Linkage Areas. Clarington is opposed to the consideration
of permitting aggregate extraction in a Natural Core Area.
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6.0 MUNICIPAL IMPLICATIONS
6.1 Woodlot Preservation By-law and Site Alteration By-law
The Minister will have the ability to pass a regulation requiring municipalities to
pass site alteration and tree by-laws in accordance with the Municipal Act. Given
the thrust of the Plan, it is anticipated that this regulation will be passed.
Clarington already has a Woodlot Preservation By-law (By-law 97-35), however,
this by-law is only in effect for lands located south of Taunton Road and generally
west of Lot 24 in Clarke Township. Given the extent of the Oak Ridges Moraine, it
would be staff's recommendation to make the Woodlot Preservation By-law
applicable to cover the entire municipality. Staff have been working on
preparation of a site alteration by-law. Work on this project will be refocused to
ensure it complies with the ORMC Act and the ORMC Plan.
6.2 Financial Implications
The Provincial initiative will have financial implications for local municipalities and
will significantly impact staff resources. Municipalities will be required to prepare,
advertise and adopt Official Plan amendments and Zoning By-law amendments to
bring local planning documents into conformity with the ORMC Plan. This can be
both costly and time consuming for municipalities. If the Province retains approval
authority, these amendments can not be referred to the Ontario Municipal Board.
However, if an upper-tier municipality is granted approval authority from the
Province, then appeals on local amendments will be directed to the Ontario
Municipal Board, which will be costly for a municipality.
The ORMC Plan also requires the preparation of watershed studies and water
budgets. These may be very detailed plans incorporating highly technical data.
This data and information is coordinated with other land use information and
policies for implementation purposes. The Municipality possesses a number of
Watersheds originating from the Moraine (Ganaraska, Wilmot, Bowmanville,
Soper, Farewell and Oshawa). The Wilmot, Bowmanville and Soper watersheds
are completely contained within the municipal limits of Clarington and as such, the
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REPORT NO.: PSD-053-01
PAGE 12
cost of preparing these studies can not be shared with other municipalities.
Preparation of these studies will be a costly endeavour for municipalities and
conservation authorities to undertake.
The Province has committed $15 million in cash and a substantial donation of
land for the establishment of an Oak Ridges Moraine Foundation. This
Foundation will be a non-profit corporation and will fund activities such as land
securement, research, monitoring, public education and a continuous Oak Ridges
Trail. This initial commitment of funds is commendable, however more funding is
needed and will continue to be needed in the future.
It is requested that the Province financially support municipalities in the
implementation of the ORMC Plan and take action to ensure that funding will
remain available in the future to facilitate maintenance of the Oak Ridges Moraine
Trail, land stewardship initiatives, and land securement.
6.3 Development Applications Subject to the ORMC Act and the ORMC Plan
In Clarington, there has been minimal development activity on the Oak Ridges
Moraine, and as such, few development applications will be impacted upon. The
few applications that will be impacted upon will be reviewed and implications will
be assessed once the ORMC Act and the ORMC Plan are passed in the
legislature.
6.4 Applicability
Staff is concerned that this legislation will impact the settlement between the
Municipality and the APAO with respect to referrals and appeals of the Clarington
Official Plan. This settlement resulted in Modification #173 which is before the
Ontario Municipal Board and Amendment #19 to the Clarington Official Plan and
has received Regional approval. Modification #173 and Amendment #19 are
inexplicitly intertwined. Section 18 of the ORMC Act establishes that the Minister
can approve or request the Ontario Municipal Board to defer an appeal that is
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REPORT NO.: PSD-053-01
PAGE 13
before the Ontario Municipal Board. Section 18 should be amended to include
"referral" in addition to "appeals". The Ontario Municipal Board will have to
approve the provisions of Modification #173 as they apply to non-Moraine
lands and the Minister will have to approve the Modification as it applies to
the Oak Ridges Moraine.
7.0 CONCLUSION
The ORMC Act and the ORMC Plan provide clear policies that will effectively
protect the sensitive features and functions of the Moraine. The Province should
be applauded for taking this initiative, but in light of the financial implications of
implementing the ORMC Plan the Province needs to commit funding and
technical support in order to ensure the effective implementation.
It is recommended that Council endorse this report as the Municipality of
Clarington comments on the ORMC Act and the ORMC Plan and that this report
be forwarded to the Province for consideration.
Attachments:
Attachment 1 - Proposed Changes to Provinces Mapping of Oak Ridges Moraine Land
Use Designations
Attachment 2 - Review of Oak Ridges Moraine Conservation Plan
Interested parties to be advised of Council's decision:
Honourable Chris Hodgson
Minister of Municipal Affairs & Housing
1 ih Floor, 777 Bay Street
TORONTO, Ontario
M5G 2E5
Jessica Markland
2377 Highway #1
Apt. 444
BOWMANVILLE, Ontario
L 1 C 5E2
Ministry of Municipal Affairs & Housing
Advisory Panel
Oak Ridges Moraine Consultation
17th Floor, 777 Bay Street
TORONTO, Ontario
MSG 2E5
Kerry Meydam
3828 Trulls Road
COURTICE, Ontario
L 1 E 2L3
69912
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REPORT NO.: PSD-053-01
PAGE 14
John O'Toole
Govemment of Ontario
75 King Street East
BOWMANVILLE, Ontario
L 1 C 1 N4
Libby Racansky
3200 Hancock Road
COURTICE, Ontario
L1E 2M1
Alex Georgieff
Commissioner of Planning
Region of Durham Planning Department
1615 Dundas Street East
Lang Tower, West Bldg., 4th Floor, Whitby Mall
WHITBY, Ontario
L1N 6A3
Sandy Cook and
Ted Kilpatrick
8733 Leskard Road
ORONO, Ontario
LOB 1 MO
SAGA (Save the Ganaraska Again)
c/o Ms. Katherine Guselle
45 Connaught Street
OSHAWA, Ontario
L 1 G 2H1
Irv Harrell
1414 Harmony Road North
OSHAWA, Ontario
L 1 H 7K5
Linda Gasser
7421 Best Road
P.O. Box 399
ORONO, Ontario
LOB 1 MO
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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