HomeMy WebLinkAboutPSD-055-17Planning Services
Report
If this information is required in an alternate accessible format, please contact the Municipal
Clerk at 905-623-3379 ext. 2102
Report To: Planning and Development Committee
Date of Meeting: June 26, 2017
Report Number: PSD-055-17
File Number: PLN 1.1.21
Resolution Number: PD-145-17
By-law Number:
Report Subject: Provincial Release of the Growth Plan for the Greater Golden
Horseshoe, the Greenbelt Plan and the Oak Ridges Moraine
Conservation Plan - 2017
Recommendations:
1.That Report PSD-055-17 be received for information;
Municipality of Clarington
Report PSD-055-17 Page 2
Report Overview
On May 18, 2017, the Province of Ontario released four updated land use plans: the
Growth Plan for the Greater Golden Horseshoe, the Greenbelt Plan, the Oak Ridges
Moraine Conservation Plan and the Niagara Escarpment Plan. These high level plans
govern land use planning in Southern Ontario. The purpose of this report is to provide
an overview of the new policies, excluding the Niagara Escarpment Plan. The new
Plans will come into effect on July 1, 2017. Over time these plans will have a significant
impact on the community and its residents.
Upper tier municipalities such as the Region of Durham are to review and update their
official plans to conform to the updated Growth Plan by 2022, and the lower tier
municipalities such as Clarington have one additional year to conform. In the
meantime, the policies of the recently approved Clarington Official Plan will remain in
effect.
The Region is expected to initiate a review of the Durham Regional Official Plan
sometime in 2018, after the Province has prepared guidance documents. Clarington will
then initiate a comprehensive review around 2020.
Public education about the changes will be incorporated into the Planning Department’s
work program particularly as we move forward with Secondary Plans.
1. Background
1.1. On May 18, 2017, the Province of Ontario released four updated land use plans:
The Growth Plan for the Greater Golden Horseshoe, the Greenbelt Plan, the Oak
Ridges Moraine Conservation Plan, and the Niagara Escarpment Plan.
1.2. The Province, through Metrolinx, is currently working on an updated Regional
Transportation Master Plan for the Greater Golden Horseshoe. Metrolinx expects
to release a draft in the fall of this year, with an anticipated completion by 2018.
When completed, it will guide provincial infrastructure investment needed to
support the Growth Plan.
1.3. The revised Provincial Plans are the result of a process that began in February
2015. The Provincial Plans under review provide the long term planning framework
and direction to manage growth, protect agricultural lands, conserve the natural
environment and support economic development within the Greater Golden
Horseshoe.
1.4. Staff prepared four reports on the Co-ordinated Provincial Four Plan Review with
the following being the major issues identified:
Municipality of Clarington
Report PSD-055-17 Page 3
• growing the Greenbelt
• the need for the infrastructure and transit services to support intensification and
greenfield density targets;
• the expansion of the Orono Urban Boundary and rounding out of Hamlets;
• designation of prime employment lands;
• local flexibility in determining natural heritage benefits;
• inclusion of Urban Creek Valleys and Coastal Wetlands;
• protecting Prime Agricultural Lands;
1.5 There are four recommendations from the Municipality that were not addressed
in the final updated plans:
• Growing the Greenbelt to cover prime agricultural lands south of the Greenbelt
using a scientific evaluation of the lands.
• Provincial support in defending provincially mandated elements such as
Provincially Significant Wetlands in the event of an appeal to the Ontario
Municipal Board.
• More support from the Province for preparing Plans.
• Removing the lands owned by Nash Road Developments Inc. from the
Greenbelt.
2. General Changes Affecting All Plans
2.1 Consistency in Terminology and Integration between Plans
The Plans have been prepared at various points in time. One of the important
changes from an implementation perspective was to have consistency in
definitions, terminology, approaches to issues. The interrelationships between the
Plans will be far better understood for implementation. Policies have been
updated to reference new Acts such as the Great Lakes Act.
2.2 Agricultural System
Over the years, land use planning has moved to a systems understanding of how
things work. The natural heritage system and the hydrological system were
concepts introduced in previous Plans. The updated Plans refer to an “agricultural
system”. An “agricultural system” expands beyond the consideration of the land
base to include the agricultural support network, which includes first level
processing, distributers, farm markets, agricultural services and transportation
networks.
Municipality of Clarington
Report PSD-055-17 Page 4
2.3 Climate Change
The Provincial plans introduce new policies related to climate change.
Municipalities are required to integrate climate change analysis and policies for the
agricultural system, the natural heritage system, the water resources system,
infrastructure, and development. Municipal policies are to align with the Ontario
Climate Change Strategy and the Climate Change Action Plan.
Municipal policies are to conform to the Provincial Plans and need to include the
assessment of infrastructure risk and vulnerabilities, storm water management
planning incorporating green infrastructure and low impact development,
watershed planning, and establishing municipal interim and long-term greenhouse
gas emission reduction targets.
The Municipality has already established a good policy framework in the recently
adopted Official Plan Amendment 107, which would align and implement the new
Provincial direction.
3. Growth Plan for the Greater Golden Horseshoe (2017)
Population and Job Growth
3.1 Population and job forecasts for the Greater Golden Horseshoe were updated to
reflect the new planning horizon of 2041 as follows:
• The planned growth for 13.5 million people and 6.3 million jobs at 2041 in the
Greater Golden Horseshoe; (This is an additional 4.3 million people for the
GGH and 3.1 million in the GTAH over 2016);
• Durham’s population is anticipated to almost double in size in 25 years,
increasing from 646,000 in 2016 to almost 1.2 million in 2041;
• In the decade between 2031 and 2041, Toronto and each Region in the GTA is
expected to grow by approximately 200,000 people;
• Job growth in the GTA is anticipated to increase by 400,000 jobs in the decade
between 2031 and 2041, with York Region being the fastest growing area of job
growth, almost double that of the City of Toronto;
• Job growth in Durham will exceed job growth in Toronto in the decade after
2031;
• The Durham job growth forecast in the decade between 2031 and 2041 is
80,000 jobs and jobs are anticipated to reach 430,000 jobs in 2041.
Municipality of Clarington
Report PSD-055-17 Page 5
Intensification and Density Targets
3.2 To better control sprawl and provide for efficient transit-supportive growth,
increased Intensification and Designated Greenfield density targets are
established which are to be phased in over time.
3.3 The new intensification targets established on a Regional basis are as follows:
• Increasing intensification from 40% to 50% of new residential units after the
next comprehensive official plan review.
• Increasing to 60% intensification after 2031.
The Region allocates the units needed to meet the Region’s intensification target
across the area municipalities. Under the previous Growth Plan, the Region’s 40%
intensification target resulted in a 32% intensification target for Clarington
recognizing there were more limited opportunities for intensification in Clarington.
When the Region updates their Official Plan, the Region will allocate Clarington’s
portion of this increased target in a similar manner in accordance with the ability of
each municipality to accommodate intensification growth.
3.4 The Clarington Official Plan as amended by Amendment 107 already moves in this
direction with our efforts to preserve agricultural land. The Clarington Official Plan
provides for the intensification target to increase from 32% to 40% intensification
after 2021.
3.5 The minimum density target for Designated Greenfield Areas will have to increase
from 50 residents and jobs combined per gross hectare to eventually 80 residents
and jobs per gross hectare over time as follows:
• The existing 50 residents and jobs per hectare continues to apply;
• Through the next municipal comprehensive review, existing Designated
Greenfield Areas will have to be planned at an increased minimum of 60
residents and jobs combined per gross hectare;
• Any new Designated Greenfield Areas brought in through urban boundary
expansions in the next Regional Official Plan Review will have to be planned at
80 residents and jobs combined per hectare.
3.6 The minimum density targets are planned on a region-wide basis and each
neighbourhood can be treated differently, However, it is expected that the Region
will maintain a uniform rate across the Region and it will be up to Clarington to
address neighbourhood level variation. The Region can request alternative
minimum density targets where it can be demonstrated that it cannot be achieved
subject to a number of criteria.
3.7 There are additional features that can be taken out of the calculation for density
targets in designated greenfield areas, such as cemeteries and employment areas.
Minimum density targets for employment areas are to be determined by upper tier
municipalities through an employment strategy.
Municipality of Clarington
Report PSD-055-17 Page 6
3.8 Minimum density targets are established for major transit stations on a transit
priority corridor. The Lakeshore East GO Rail line is identified as a transit priority
corridor from Burlington to Oshawa. However, the transit priority designation would
be extended in the future to the GO Rail station areas in Clarington. Regardless of
whether there is a Provincial requirement, it is nonetheless good public policy for
Clarington to establish its own minimum density target around the GO Rail
stations. Our Official Plan currently has a net density target of 200 units per gross
hectare in the transportation hub area.
Strategic Growth Areas
3.9 Strategic Growth Areas has been introduced into the lexicon referring to areas that
would be the focus of intensification and higher density mixed uses. These areas
include urban growth centres (Oshawa and Pickering), major transit station areas
and other major opportunities such as brownfield and redevelopment sites.
Transit
3.10 The new Growth Plan establishes transit as a first priority for transportation
planning and investment in the Greater Golden Horseshoe. Changes to the
Growth Plan includes the identification of the GO Train extension to Bowmanville
shown as “Committed Go Transit Rail Extension”.
Employment Areas
3.11 New provisions for Employment Areas include:
• The Province must approve all employment land conversions to non-
employment uses resulting from a municipal comprehensive review.
• Introduces a new industrial land use designation: "prime employment area".
They are to be located near major goods movement facilities such as corridors
and highway interchanges. This land use was created to protect lands for uses
that are land extensive or have low employment densities, including
manufacturing, warehousing and logistics.
• Retail, residential and other sensitive land uses not associated with the
employment use cannot be located in prime employment areas;
• Retail and office uses will be directed to areas accessible by existing or planned
transit. In other words; for Clarington this means retail and office uses will
largely have to be in Urban Centres and Regional Corridors.
• Major office and appropriate major institutional development will be directed to
Strategic Growth Areas which include urban growth centres, major transit
station areas.
Municipality of Clarington
Report PSD-055-17 Page 7
Housing Strategy
3.12 The updated Growth Plan includes policies for affordable housing. This is a
component of the multi-pronged strategy recently announced by the Province.
Housing policies include:
• Durham Region and other upper tier municipalities are required to develop a
housing strategy to meet intensification targets and establishing targets for
affordable ownership and rental housing.
• Municipalities are required to consider the appropriate range of unit sizes in
apartments, condominiums and townhouses to accommodate a diverse range
of household sizes and incomes.
Settlement Boundary Expansion
3.13 Provisions regarding settlement area expansions have been amended. As before,
expansion of settlement area boundaries can only take place at the time of the
Region’s comprehensive Official Plan review. Any potential settlement area
expansions must be based a land needs assessment. Once the need has been
determined, including the amount of land required to meet this need, Clarington
will work concurrently with the Region to determine the most appropriate locations
and potential expansion which would be based on criteria. At the time of the
Regional Official Plan review, the Municipality will also pursue the expansion of the
Orono Urban boundary.
Watershed planning must be complete before planning settlement area
expansions. This requirement for watershed plans also applies to infrastructure or
major developments that could affect those watersheds.
Natural Heritage System
3.14 The new Growth Plan has established Oak Ridges Moraine and Greenbelt-level
protections for natural heritage systems, such as wetlands, woodlands and rivers
and the surrounding land, beyond the Greenbelt. The Province will take the lead
in mapping those areas however, they have committed to consulting with both
upper and lower tier municipalities. Municipalities would be required to plan for and
protect these systems in their municipal official plans. OPA 107 already provides
for a consistent delineation and protection for Clarington’s natural heritage system.
4. The Greenbelt Plan (2017) and Oak Ridges Moraine
Conservation Plan (2017)
4.1 Greenbelt Reduction
The Province received 700 private requests to remove lands from the Greenbelt.
They carefully reviewed the request using evidence-based criteria and only 58
hectares were deleted from the Greenbelt through privately initiated request.
Municipality of Clarington
Report PSD-055-17 Page 8
The Province corrected the error from 2005 where a portion of the Brookhill
Neighbourhood was inadvertently included within the Greenbelt. This was
removed from the Greenbelt.
The request of Nash Road Developments and Clarington to remove lands on the
north east corner of Nash Road and Hancock Road from the Greenbelt was not
approved. Some lands in Pickering, Whitby and Oshawa were removed from the
Greenbelt. Overall only 148 hectares was removed from the Greenbelt.
4.2 Greenbelt Expansion
The Greenbelt Plan (2017) expanded by 10,000 hectares which included
recognizing 21 Urban River Valleys. The urban river valleys recognize the main
corridors of river valleys connecting the rest of the Greenbelt to the Great Lakes.
Associated policies have been included, however they apply only to publicly
owned lands within the Urban River Valley designation. Publically owned lands
within the Farewell, Black, Bowmanville, Soper, Wilmot and Graham Creek valleys
and associated coastal wetlands are afforded permanent Greenbelt protection.
The natural heritage systems in Greenbelt and Oak Ridges Moraine Conservation
Plans are well harmonized however within Settlement Areas the provisions of the
Provincial Policy Statement continue to prevail. Municipalities may continue to
provide more stringent protection of their natural heritage system provided it does
not conflict with other provisions of the Plans.
4.3 Future Greenbelt Expansion
The Province will lead a process to identify potential areas to be added to the
Protected Countryside of the Greenbelt in consultation with municipalities,
conservation authorities and stakeholders. The intent being to build upon the
existing Agricultural, Natural Heritage and Water Resources Systems of the Plan.
The focus will be on identifying areas of ecological or hydrological significance
where urbanization should not occur. Greenbelt expansions will be authorized by
the Ministry of Municipal Affairs. The Mayor and CAO have met with the Minister of
Municipal Affairs to discuss expansions requested by Council and guided by
evidence based decision making.
Municipalities may also request to grow the Greenbelt with a protected countryside
or urban river valley designation. This consideration will follow the procedures
previously set by the Province. The Province may also consider Municipal
requests, on behalf of a request by a private landowner for an Urban River Valley
designation.
4.4 Excess Soil Management
Excess soil management (industrial fill) is addressed. Municipalities should
develop soil reuse strategies as part of planning for growth. Municipalities and
industries are to use best practices on managing excess soil. Fill quality and fill
placement at a site shall not adversely affect the current or proposed use of the
property and the natural environment and is compatible with adjacent land uses.
Municipality of Clarington
Report PSD-055-17 Page 9
5. Provincial Implementation Measures
5.1 The Ministry of Municipal Affairs will undertake work prior to the upper tier
comprehensive reviews to:
• Prepare a standard methodology for land needs assessment to accommodate
forecasted growth to 2041. This was the major obstacle in the last round of
implementation where the Region of Durham and the Province were at odds
heading to the OMB, before the Minister declared a provincial interest.
• Fix the size and location of urban growth centres.
Note that the Plan allows the Minister to update the built boundary but Ministry of
Municipal Affairs staff has indicated that there is no intention to do this at this point
in time.
5.2 The Province will also undertake work to:
• Define the “agricultural system”. The agricultural system is a broader look at
not only the quality of soils but the infrastructure needed to support the
agricultural community. This work would assist in “growing the Greenbelt” to
include the lands Council requested.
• Define a Provincial natural heritage system. In this regard, the Municipality
undertook an exercise through the Official Plan review to develop/update the
natural heritage system in accordance with Provincial policy. The Province
wants to ensure a consistent approach to the implementation of natural heritage
polices through the GGH and thus will be taking more detailed action.
5.3 The Province will also release guidance materials for watershed planning, a
Manual for Low Impact development (LID), and Green House Gas (GHG)
emissions, inventories, targets, and emission reduction strategies.
6. Inter-relationships with Other Provincial Initiatives
6.1 Bill 139 was given first reading shortly before the new Provincial Plans were
released. The Bill included fundamental changes to the Ontario Municipal Board
(OMB). The OMB is to be replaced with the Local Planning Appeal Tribunal
(LPAT) with more limited powers. It will not consider planning matters “de novo”
but will truly function as an appeal body. Procedurally, it will be very different than
the OMB.
6.2 Another part of the Bill proposes to shelter from appeals those municipal
amendments to the Official Plan that are approved by the Province to bring Plans
into conformity with Provincial policy. This is an excellent step forward and
addresses our previous concerns.
6.3 The proposed legislation would also amend the Planning Act by adding a
subsection requiring an official plan to “contain policies that identify goals,
objectives and actions to mitigate greenhouse gas emissions and to provide for
adaptations to a changing climate, including through increasing resiliency”.
Municipality of Clarington
Report PSD-055-17 Page 10
7. Conclusion
7.1 As of July 1, 2017, Council’s decisions on land use planning, transportation, and
infrastructure must conform to the new Provincial Plans. Further clarification is
being sought on transitional issues.
7.2 Official Plans will need to be updated to conform to the new Provincial Plans. The
Region’s municipal comprehensive review of the Official Plan is to be completed
by 2022 and Clarington’s by 2023.
7.3 Planning staff are attending training session this month to get a better
understanding of the changes to the Provincial Plans, particularly with respect to
interpretation and implementation matters.
7.4 Public education about the changes will be incorporated in the Department’s
overall work to build deeper and wider public understanding of the decisions that
have been made provincially, regionally and municipally about how the community
will develop.
Submitted by: Reviewed by:
David J. Crome, MCIP, RPP Curry Clifford, MPA, CMO,
Director of Planning Services Interim CAO
Staff Contact: Staff Contact: Carlos Salazar, Lisa Backus & Nicole Zambri, 905-623-3379
ext. 2409 or csalazar@clarington.net
The Four 2017 Provincial Plans can be found on the Ministry of Municipal Affairs and
Ministry of Housing website at: http://www.mah.gov.on.ca/Page10882.aspx
NZ/COS/DJC/tg/av
I:\^Department\LDO NEW FILING SYSTEM\PLN Planning Files\PLN 1 Planning Legislation\PLN 1.1.21 2015 Provincial 4 Plans Review\Staff Report\PSD-055-17 Four Plan
Review.Docx