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Report To: Planning and Development Committee
Date of Meeting: February 19, 2019
Report Number: PSD -015-19 Resolution: PD -021-19
File Number: PLN 1.1.12 By-law Number:
Report Subject: Proposed Changes to the Growth Plan for the Greater Golden
Horseshoe
Recommendations:
1. That Report PSD -015-19 be endorsed;
2. That the proposed changes to the Growth Plan for the Greater Golden Horseshoe are
generally supported. However, the following recommendations and the comments
contained in report PSD -015-19 be endorsed as Clarington's formal submission to the
Ministry of Municipal Affairs and Housing:
x The proposed Provincially Significant Employment Zones be removed from the
area identified as the Courtice Major Transit Station Area as shown in Attachment
2;
x Provincially Significant Employment Zones be added to the lands between
Courtice Road and Highway 418, south of Bloor Street as shown in Attachment 2;
x The proposed Provincially Significant Employment Zones be removed from the
areas where they overlap with the Southeast Courtice Secondary Plan and the
Southwest Courtice Secondary Plan areas as shown in Attachment 2;
x The lands between Durham Highway 2 and Bloor Street, east of Courtice Road
to the future Highway 418 be added as employment area to the Courtice urban
area; and
x The long-term goal of net -zero communities be maintained as a guiding principle
of the Growth Plan.
3. That a copy of report PSD -015-19, be forwarded to the Ministry of Municipal Affairs and
Housing, Metrolinx, the Durham Regional Planning and Economic Development
Department and any interested parties.
Municipality of Clarington
Report PSD -015-19
Report Overview
Page 2
The Province has proposed changes to the Growth Plan for the Greater Golden Horseshoe.
These changes are intended to increase the autonomy of local governments in certain land
use decisions and address development barriers to housing and job creation.
Staff are generally supportive of the proposed changes and offer recommendations for the
Province's consideration. Staff's comments and recommendations are intended to ensure
that the Employment Areas in Courtice and the area surrounding the future GO Station in
Courtice and Bowmanville are positioned to become catalysts for job creation.
1. Introduction
1.1 The Growth Plan for the Greater Golden Horseshoe (Growth Plan) provides Provincial
direction for growth and development in the area surrounding Toronto and Hamilton
known as the Greater Golden Horseshoe. It integrates land use planning, infrastructure
planning as well as demographic, economic growth and health considerations. The
intent of the plan is to help municipalities plan the growth of their communities in a way
that supports economic prosperity, protects the environment, and helps achieve a high
quality of life. The current version of the Growth Plan came into effect on July 1, 2017.
1.2 In the Fall of 2018, the Ministry of Municipal Affairs and Housing (Ministry) hosted a
number of workshops with municipalities and other stakeholders on proposed changes
to the Growth Plan. Planning Services staff participated in those meetings.
1.3 On January 15, 2019, the Ministry released proposed changes to the Growth Plan to
address potential barriers to new housing, job creation and business attraction as well
as streamline the process for transit growth.
1.4 The proposed changes are grouped into the following themes:
x Settlement Area Boundary Expansions
x Small Rural Settlements
x Natural Heritage and Agricultural Systems
x Intensification and Density Targets
x Employment Planning
x Major Transit Station Areas
1.5 The Ministry has indicated that the driving force of these amendments is to provide local
governments more autonomy in the decision-making process. The contents of the
proposed changes are summarized in this report together with staff recommendations.
The Ministry will be receiving feedback on the proposed changes until February 28,
2019.
Municipality of Clarington Page 3
Resort PSD -015-19
2. Proposed Changes to the Growth Plan
Settlement Area Boundary Expansions
2.1 Local municipalities will be able to make reasonable changes to urban settlement area
boundaries before a municipal comprehensive review. This will allow municipalities to
fast-track residential and commercial development in select areas.
2.2 Municipalities will be able to adjust settlement area boundaries outside the municipal
comprehensive review provided that:
x There is no net increase in land within settlement areas, subject to criteria;
x The affected settlement areas are not rural settlements or located within the
Greenbelt; and
x The settlement area is serviced.
2.3 Municipalities will also be able to undertake settlement area boundary expansions
outside the municipal comprehensive review provided that:
x The expansions are no larger than 40 hectares;
x The affected settlement areas are not rural settlements or located within the
Greenbelt; and
x The settlement area is serviced.
Staff Comments
2.4 In 2010, the Region of Durham implemented the Growth Plan, 2005 into their Official
Plan. At that time, Clarington requested that the lands south of Durham Highway 2,
between Courtice Road and the future Highway 418 (approximately 238 hectares), be
added to the Courtice urban area (PSD -067-10). A portion of those lands
(approximately 109 hectares) were added to the Courtice urban area for residential use.
However, the lands proposed for employment use were rejected.
2.5 Staff support these proposed changes to the Growth Plan as they would help the
Municipality achieve expansions previously sought for the Courtice Urban Area.
Small Rural Settlements
2.6 Small rural settlements are areas that are not expected to face significant growth
pressures. Minor rounding out of rural settlements, that are not located in the Green
Belt, will be permitted outside of a municipal comprehensive review. Municipalities will
have the ability to adjust boundaries, if:
x The available water and wastewater infrastructure is appropriate to service the
change; and
x The rounding out exercise would not impact the rural character of the area.
Municipality of Clarington
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Staff Comments
Page 4
2.7 Based on the criteria set by the Province, the only area in Clarington that could be
considered would be the south end of the hamlet of Maple Grove (south of Durham
Highway 2).
2.8 Staff support these proposed change to the Growth Plan as the Official Plan already
contemplates an expansion of Maple Grove to add approximately 12 ha of Municipal
and Regional land into the hamlet. These lands include the East Detachment of the
Durham Regional Police Service.
Natural Heritage and Agricultural Systems
2.9 Regional Municipalities will have the ability to refine Provincial mapping during the
implementation phase of their official plans. Subsequent to these refinements, changes
to the Natural Heritage System and agricultural land base mapping will occur through a
municipal comprehensive review. This will lead to Regional mapping systems that
reflect the local mapping realities, while providing for the appropriate level of protections
for our natural resources and our agri-food industry.
2.10 The proposed changes also remove the Growth Plan's long-term goal of net -zero
communities. Instead, the Growth Plan policies have been changed to a commitment to
working towards the goal of "environmentally sustainable communities".
Staff Comments
2.11 Staff support the ability to refine Provincial mapping based on our local context. The
natural environment and the agricultural sector are two of Clarington's major resources.
Clarington staff will work with the Region of Durham during their municipal
comprehensive review to ensure that Clarington's mapping is accurately reflected in the
Regional Official Plan.
2.12 Staff do not support the removal of the long-term goal of net -zero communities from the
Growth Plan. The Clarington Official Plan includes policies and direction that
development within new and updated Secondary Plans should move towards net zero
communities. The goal of net zero communities is certainly ambitious but it is the type
of goal that is appropriate in a Provincial policy document. Its removal dilutes the
Province's commitment to true environmental sustainability in the long term.
Municipality of Clarington Page 5
Report PSD -015-19
Intensification and Density Targets
2.13 When it comes to intensification and density the proposed changes attempt to recognize
"one -size does not fit all". The intent of the changes is to make it easier to understand
and measure the impacts of growth.
2.14 The current Growth Plan requires the Region of Durham to increase their minimum
intensification target from 40% to 50% at their next municipal comprehensive review. In
2031, the current Growth Plan requires that target to increase from 50% to 60% (see
Table 1 below). The proposed changes to the Growth Plan will not increase the
minimum intensification target.
Table 1: Changes to the Minimum Intensification Target
CURRENT GROWTH PLAN
Today
After Municipal
Comprehensive Review
In 2031
40%
50%
Today
PROPOSED GROWTH PLAN
Today
After Municipal
Comprehensive Review
In 2031
40%
50%
2.15 The current Growth Plan requires the Region of Durham to increase their designated
greenfield area density target from 50 to 60 residents and jobs combined per hectare at
their next municipal comprehensive review (see Table 2 below). The proposed changes
to the Growth Plan will maintain the density target for the Region of Durham at 50
residents and jobs combined per hectare at the next municipal comprehensive review.
Table 2: Changes to the Designated Greenfield Area Density Target
CURRENT GROWTH PLAN
Today
After Municipal Comprehensive Review
50 residents and jobs combined per
hectare
residents and jobs combined per
hectare
PROPOSED GROWTH PLAN
Today
After Municipal Comprehensive Review
50 residents and jobs combined per
hectare
residents and jobs combined per
hectare
Municipality of Clarington
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Staff Comment
Page 6
2.16 Staff support these proposed changes to the Growth Plan. The minimum intensification
target of 50% and the density target of 50 residents and jobs are ambitious but
potentially achievable goals for Durham Region and Clarington. Staff supports the
revised intensification and designated greenfield area targets as they better reflect the
Durham and Clarington context.
Employment Planning
2.17 Some industrial lands in the Greater Golden Horseshoe's employment areas are facing
pressures from encroachment and conversion to residential uses. The proposed
changes to the Growth Plan will ensure that lands designated for employment are
appropriately protected while other lands may be considered for conversion to
residential development. The proposed changes include:
x Introduction of a new Provincially Significant Employment Zones (PSEZ). The
Ministry will identify lands to be protected which cannot be converted for another
land use outside of a municipal comprehensive review;
x A one-time opportunity to allow municipalities to undertake some conversions of
non-significant employment areas before the next municipal comprehensive
review;
x Removal of the Provincial "prime employment area" designation;
x Requiring municipalities to set multiple density targets for employment areas
rather than a single target;
x Locating and preserving employment areas adjacent to major goods movement
facilities and corridors;
x Upper -tier municipalities, such as Durham, can designate employment areas at
any time before the next municipal comprehensive review, including adding
existing lower -tier municipal designations;
x Require municipalities to retain space for a similar number of jobs when
redeveloping employment areas;
x Within existing office parks, secondary uses (such as convenience retail and
restaurants) should be limited; and
x Require municipalities to maintain land use compatibility between employment
areas and adjacent non -employment areas.
2.18 Provincially Significant Employment Zones (PSEZ) are large sites, designated for
employment use that are located near major transportation. PSEZs, as identified by the
Growth Plan, are crucial to the Province's economy and cannot be converted to another
land use without a more comprehensive assessment of employment land need, and the
implications for economic development. Any conversions of employment areas in
PSEZ's would only be considered as part of the next municipal comprehensive review.
Municipality of Clarington
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Page 7
2.19 The Ministry of Municipal Affairs and Housing is seeking feedback on whether the
proposed PSEZ's have adequately identified employment areas in each community.
2.20 PSEZ's will be employment areas that:
x Are located inside existing settlement area boundaries (i.e. no Greenbelt lands);
x Are already designated employment areas:
x May be vulnerable to pressure to convert to residential use;
x May be facing encroachment by sensitive land uses that could threaten the
existing employment uses; or
x Are needed in the region to attract new investment and retain existing industries.
2.21 Additional criteria considered for identifying PSEZs are:
x Located near highways, railways, transit and/or other major transportation
infrastructure such as major transit station areas;
x High concentration of employment and/or economic output; or
x Large, contiguous and constraint -free lands (i.e. greater than 4 hectares / 10
acres).
2.22 Portions of south Courtice have been identified as part of the "Durham South (Oshawa
East and Clarington) Provincially Significant Employment Zone". This area includes the
Courtice Employment Lands and the Clarington Energy Business Park but it also
includes portions of the Southeast Courtice Secondary Plan and the Southwest Courtice
Secondary Plan which are designated for residential and mixed use development (See
Attachment 1).
2.23 The Ministry of Municipal Affairs and Housing is seeking feedback on:
x The zones identified;
x The need for additional zones; and/or
x Changes to the boundaries for any of the proposed zones.
Staff Comments
2.24 Staff supports the proposed changes to employment planning and the creation of the
PSEZs provided that the designation of PSEZs in Courtice reflect the Official Plan which
is Council's position, presented in Section 2.27 below.
2.25 The ongoing update of the Clarington Energy Business Park Secondary Plan will
include limits on secondary uses. The Clarington Technology Park already includes
limits on secondary uses.
Municipality of Clarington
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Page 8
2.26 In addition to identifying appropriate land uses it is also important to identify appropriate
constraints within employment areas. The employment areas in south Courtice and
Bowmanville contain a number of natural heritage features that are identified in the
Official Plan. These features are being further investigated through the Robinson /
Tooley Creeks and the Soper Creek Subwatershed Studies currently underway.
2.27 Staff support the inclusion of the Courtice Employment Lands and the Clarington
Energy Business Park within the PSEZ. In addition, staff would offer the following
recommendations:
2.27.1 The area around the future GO Station site, as identified in Attachment 2, should
be removed from the PSEZ. Rather, these lands should be identified for mixed-
use development as part of the major transit station area. This will support the
market-driven strategy proposed by Metrolinx for GO Station development. This
recommendation also reflects the 800 metres radius proposed by the Growth
Plan changes for station areas.
2.27.2 In order to ensure no net loss of employment areas from the PSEZ, it is
recommended that the lands between Courtice Road and Highway 418 be
included in the PSEZ (see Attachment 2). The re -designation of these lands
would reflect the previous position of Council (PSD -067-10) requesting these
lands be added to the Courtice Urban Area and be designated for employment
use. These lands meet the criteria for PSEZ as they are:
x Large parcels that can accommodate employment intensive uses;
x Available to be serviced by the extension of the Courtice Sewer trunk;
and
x Strategically located adjacent to Highway 418 and near the Highway 401
corridor.
2.27.3 The boundaries of the PSEZ should be further amended to reflect Clarington's
Official Plan by taking out the areas where they overlap with the Southeast
Courtice Secondary Plan and the Southwest Courtice Secondary Plan areas (see
Attachment 2). These areas are designated Urban Residential and Regional
Corridor in the Clarington Official Plan.
2.28 As part of the Growth Plan conformity exercise in 2010 Clarington requested that a
portion of the lands between Durham Highway 2 and Bloor Street, east of Courtice
Road to the future Highway 418 be added as employment area to the Courtice urban
area. At that time, the lands proposed for employment use were rejected. Clarington
requests the Ministry add these lands to the Courtice Urban Area.
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Page 9
2.29 The recommended changes will more accurately match the existing lands currently
designated for employment use in south Courtice. It will complete the planning for
employment areas that Clarington Council has previously identified. The recommended
mixed use area will support Metrolinx's direction that the lands around GO Station sites
be planned for higher densities and a mix of uses in order to support the business case
for rail service (See Attachment 3).
Major Transit Station Areas
2.30 The proposed PSEZs in Courtice include parts of major transit station areas around the
future Courtice GO Station. These major transit station areas are benefiting from
substantial investments in transit service and represent an opportunity for mixed use
development. At the same time, there is a need to consider preserving existing
industrial uses in these major transit station areas.
2.31 The province is seeking feedback on whether employment areas that overlap with major
transit station areas should be included in the PSEZs (in which case conversions could
only happen at the time of the next municipal comprehensive review) or whether they
should be excluded from the PSEZs (in which case they would be eligible for conversion
in advance of the municipal comprehensive review).
2.32 The proposed amendment to the Growth Plan will streamline the approach for defining
major transit station areas. This will allow the corresponding zoning and development
around these stations to occur sooner.
2.33 Part of the proposed changes gives municipalities the ability to increase the area that
can be included in the major transit station areas from 500 to an 800 -metre radius
around the station site.
2.34 Municipalities will be able to set density targets for these areas now, as part of our
ongoing Secondary Plan work, rather than waiting for a municipal comprehensive
review.
Staff Comments
2.35 In December, 2018, Metrolinx unveiled a "Market Driven Strategy" for the development
of future GO Station sites. Metrolinx is looking for higher density, mixed-use
development around future stations. This is otherwise known as "transit oriented
development".
2.36 To support the business case for the extension of all day train service to Courtice and
Bowmanville, it is necessary to provide higher densities and a mix of uses around these
station sites. Staff recommend that major transit station areas, such as the Courtice GO
Station, be excluded from provincially significant employment zones (see Attachment 2).
Municipality of Clarington
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Page 10
2.37 Staff support expanding the major transit station area by increasing from a radius of 500
to 800 metres. This will provide a greater amount of land for development to contribute
to the increased densities that are necessary to achieve transit oriented development.
2.38 Staff also support setting density targets for these areas now, rather than after the
municipal comprehensive review, to allow the investment and development process to
begin sooner.
3. Concurrence
Not Applicable.
4. Conclusion
4.1 Municipalities are required to plan for a diverse mix and range of housing types, in line
with the objectives of the Growth Plan. The proposed changes to the Growth Plan are
intended to increase the autonomy of local governments in certain land use decisions and
address development barriers to housing and job creation.
4.2 Staff comments, in particular those related to employment zones and the area for the
Courtice GO Station area, will position Clarington for job creation and transit supportive
mixed use.
4.3 The Ministry of Municipal Affairs and Housing is accepting feedback on the proposed
changes to the Growth Plan until February 28, 2019.
4.4 The purpose of this report is to provide background on the proposed changes to the
Growth Plan and request that Council endorse staff comments as Clarington's response
to the Ministry of Municipal Affairs and Housing.
Municipality of Clarington
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7
Submitted by: Reviewed by:
Faye Langmaid, RPP, FCSLA Andrew C. Allison, B. Comm, LL.B
Acting Director of Planning Services CAO
Staff Contact: Paul Wirch, Senior Planner, 905-623-3379 x2418 or pwirch@clarington.net
Carlos Salazar, Manager of Community Planning & Design, csalazar@clarington.net
Attachments
Attachment 1: PROPOSED by the Province — Provincially Significant Employment Zones
Attachment 2: RECOMMENDED CHANGES to the Provincially Significant Employment Zones
Attachment 3: Clarington's Vision for Provincially Significant Employment Zones in Courtice
There are no interested parties to be notified of Council's decision.
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Municipality of Clarington
Attachment 1 — PROPOSED by the Province — Provincially Significant Employment Zones
Municipality of Clarington
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Attachment 2 — RECOMMENDED CHANGES to the Provincially Significant Employment Zones
Municipality of Clarington
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Attachment 3 — Clarington's Vision for Provincially Significant Employment Zones in Courtice
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❑ Proposed PSEZ ® Recommended Major Transit Station Area %■ ■ ` Courtice Urban Boundary 800 Metres From Future GO Station