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HomeMy WebLinkAboutPSD-003-20Clarington Staff Report If this information is required in an alternate accessible format, please contact the Accessibility Coordinator at 905-623-3379 ext. 2131. Report To: Planning and Development Committee Date of Meeting: February 3, 2020 Report Number: PSD-003-20 Submitted By: Faye Langmaid, Acting Director of Planning Services Reviewed By: File Number: Andrew C. Allison, CAO By-law Number: Resolution#: 3 ' Report Subject: Development Applications — 2019 Annual Report Recommendation: 1. That Report PSD-003-20 be received for information. Municipality of Clarington Report PSD-003-20 Report Overview Page 2 In 2019, development application activity undertaken by the Planning Services Department, with assistance by other Departments, included the following: 2 new or updated secondary plans; 11 currently underway 2 subwatershed studies underway 4 new draft plans of subdivision applications received proposing 470 housing units 2 plans of subdivision were issued Draft Approval comprising 514 housing units 2 extensions to Draft Plan Approval comprising 342 housing units 4 Draft Approved Plans of Subdivision registered for 259 new housing units J3 Draft Plan of Condominium application received for 226 units J3 condominium applications Draft Approved for 242 units, 2 Draft Approved Plan of Condominium were registered for 157 units )9 part lot control approvals creating 295 new dwelling units 2 official plan amendment applications received, with 1 approved .41 zoning by-law amendment applications received, with 11 approved J37 site plan applications received for 694 units, 29 approved for 371 new units 43 pre -consultation meetings held 43 minor variance applications received; 41 approved; 1 withdrawn; 1 denied 49 reports to the Durham Land Division Committee 433 permanent sign permits issued; 114 temporary sign permits issued 40 applications received for in-house apartments; 27 registered Summary :657 new housing units approved 2,060 housing units in applications and/or draft approved 73,683 square metres of industrial and commercial space approved ;92,894 square metres of industrial and commercial space in applications Municipality of Clarington Report PSD-003-20 1. Purpose Page 3 1.1. This report summarizes planning activity within the Municipality of Clarington for 2019. This report also compares 2019 activity with previous years' activity to assist with identifying emerging issues and possible trends. 2. Policy Planning and Implementation 2.1. The Planning Services Department initiates and completes a wide variety of policy documents that include secondary plans, design guidelines, and other studies. In 2019, there were eleven secondary plans underway. Secondary Plans detail policies, in conformity with the Official Plan, to guide growth and development in defined areas of the municipality where major changes are expected. Of those eleven, seven either started a new or an update to existing Secondary Plans process in 2019. Three of these seven are in Courtice, three in Bowmanville, and one in Newcastle. Also in 2019, two subwatershed studies were underway. Subwatershed studies provide detailed technical information regarding important watercourses from their headwaters to their terminus and drainage system to inform secondary plans and appropriate land use development occurs within those areas. 2.2. Work was underway in 2019 on two important design guidelines. The Residential Intensification Urban Design Guidelines are being drafted for use in reviewing proposed residential development within designated Intensification Areas in conformity with the vision in Provincial and Municipal policy. Existing Landscape Design Guidelines are 30 years old and are being updated to ensure the continued enhancement of the urban landscape. 2.3. The Municipality is participating in the Durham Region Official Plan Review. Staff continue to review and provide comments on various discussion papers and help to define the limits of the two major transit station areas. Staff also provide comments to the Province on initiatives like Provincially Significant Employment Zones. In 2019, Planning Services Staff have worked on addressing a number of appeals to Clarington's Official Plan approved by the Region in 2017. Negotiations over the year have led to resolution of numerous appeals to Clarington's Official Plan. There now remain only 2 appeals of the original 22 received. 2.4. In response to changes to the Planning Act introduced by Bill 108, Clarington's Planning Services Department has been collaborating with the Finance Department to establish a new Development Charges By-law and the creation of a new Community Benefits Charge. Among other things, the community benefits charge will replace the cash -in - lieu provisions for Parkland Dedication. Municipality of Clarington Page 4 Report PSD-003-20 2.5. In November of 2018, Planning Services Staff released the first draft of the regulations and mapping for the rural areas for the comprehensive Zoning By-law Review known as ZONE Clarington. This initial draft Zoning By-law was released for public input including four information centres in January and February of 2019 as well as presentations to a number of interest groups. By the end of 2019, there were over 800 people on the Interested Parties list and there were hundreds who called, emailed, or came to the front counter with enquires about the project but did not wish to be added to the IP list. 2.6. In December of 2019, Planning Services Staff released draft Official Plan policies and zoning resulting from the Neighbourhood Character Study for central parts of Bowmanville. Together with the consultant, Planning Services Staff hosted three walking tours and two open houses. The draft Zoning By-law and Official Plan amendments are proposed to be forwarded to Council for approval in early 2020. 2.7. The Planning Services Department oversees the four Community Improvement Grants that encourage rehabilitation and revitalization of public areas. Grants totalling approximately $78,800 were conditionally approved in 2019, of which approximately $22,500 were issued. Another program, the Heritage Incentive Grant, assists heritage - designated property owners with the costs of repairs and restorations. Interest in the program remained strong in 2019 with $28,650 of grant funding issued since the implementation of the program in 2013. In 2019 an additional three properties were designated as heritage and another ten heritage properties listed as non -designated. 2.8. The implementation of the Process Enhancement Project (PEP) continued in 2019. The review and approval of decks and accessory structures has been moved to the Building Division, who issue building permits, with the intent of streamlining the process and providing better customer service. Planning Services Staff carefully screen minor variance applications and have streamlined Recommendation Reports. Staff have also improved direction for a Committee of Adjustment notice. The process for minor Site Plan Applications on the Oak Ridges Moraine has been significantly streamlined to save residents time and money. Planning Services Staff have created a covering letter with a check list for Final Subdivision Approval. Applicants receive a draft term of reference for any required studies at the pre -consultation stage and information sheets are available. 2.9. Other significant projects in 2019 include obtaining a Ministerial Zoning Order to establish a new 224-bed long-term care facility in Bowmanville, continuing the implementation of the Orono Economic Development Strategy, renaming of King Streets in Bowmanville and Haydon, and continuing the partnership with Conservation Authorities for the Trees for Rural Roads Program. 2.10. For the past 4-5 years Clarington has had 3 of the top 10 infrastructure projects in Ontario underway: Phase 2 of the 407 (complete); the refurbishment of Ontario Power Generation (on target for 2022); and the ongoing construction of the Port Granby Waste Management Facility (target for topping off in 2020). Municipality of Clarington Report PSD-003-20 Page 5 2.11. Ontario Power Generation has also announced its Headquarters will be moving to Clarington. This will continue to create demand for new housing and provide other economic benefits. Planning Services Staff have draft approved subdivisions ready to accommodate growth. Numerous Secondary Plans are nearing completion they will facilitate the development of a diversity of housing forms and community amenities. 3. Plans of Subdivision 3.1. The Director of Planning Services is the delegated authority to approve plans of subdivision. However, staff prepare reports to Committee and Council on applications for proposed draft plans of subdivision both at the public meeting stage and when approval is recommended. 3.2. Most subdivision applications take a number of months if not years to reach draft approval. There are usually revisions to both the proposed plan and supporting documents before a proposed plan is recommended for draft approval. The charts in this report do not include the applications that have been previously submitted in prior years and are awaiting revisions or working toward approvals. 3.3. In 2019, four new subdivision applications were received proposing 470 units. New Subdivision Applications Received By Unit Type Single -detached Semi-detached Townhouse Apartment Urban Area 2019 2018 2017 2019 2018 2017 2019 2018 2017 2019 2018 2017 Courtice 20 172 29 0 0 0 115 142 111 0 0 0 Bowmanville 0 21 5 0 12 0 335 125 32 0 88 0 Newcastle 0 0 309 0 0 0 0 0 276 0 0 196 Orono, Hamlets / Rural Area 0 0 0 0 0 0 0 0 0 0 0 0 Total 20 193 343 0 12 0 450 267 419 0 88 196 3.4. Courtice and Bowmanville continue to be the primary residential growth areas within the Municipality of Clarington. This coincides with the provisions of the Official Plan. It is expected that as the eleven Secondary Plans currently underway are completed, Bowmanville and Courtice will continue to see new applications for plans of subdivision in future years. Data concerning draft approved and extensions to draft approved subdivisions indicate Newcastle will also experience significant growth in the coming years. However, current servicing restrictions continue to limit growth north of the railway. 3.5. Just as in 2018, townhouse units continue to be the dominant form of housing being applied for in subdivision applications in 2019. This is consistent with Provincial Policy which encourages intensification as part of creating complete communities. It is expected townhouse units will continue to represent a larger percentage of units applied Municipality of Clarington Page 6 Report PSD-003-20 for in the coming years, although many of these will be on existing blocks and not necessarily within plans of subdivision. This trend is influenced by a number of factors including Provincial Policy, the cost of housing, a shift in demographics leading to an increase in demand for smaller, and a more affordable form of housing. Draft Approved and Extensions to Draft Approved By Unit T pe Single -detached Semi-detached Townhouse Apartment Urban Area 2019 2018 2017 2019 2018 2017 2019 2018 2017 2019 2018 2017 Courtice 0 0 17 0 0 0 0 0 0 0 0 0 Bowmanville 47 314 174 32 0 0 62 335 284 182 0 123 Newcastle 326 0 0 0 0 0 83 12 0 105 223 0 Orono, Hamlets /Rural Areas 19 0 0 0 0 0 0 0 0 0 0 0 Total 392 365 191 32 0 0 145 347 284 287 223 123 3.6. The Planning Act allows a Municipality to impose a date by which Final Approval of a Plan of Subdivision must be achieved. In accordance with the Planning Act, Clarington typically provides for a three year period to meet all conditions. Some have longer timeframes depending on the overall number of units and/or servicing constraints. When Final Approval is not achieved within the time frame provided, the owner can make an application for extension to the Draft Approval. This provides the Municipality and agencies the opportunity to review the proposal and conditions to ensure the proposal still meets current policy. 3.7. Four plans of subdivision were granted draft approval and two Draft Approved plans of subdivision were granted extensions to Draft Approval (meaning the applicant was granted more time to fulfil conditions of approval). In 2019, the number of Draft Approved plans remained consistent with 2018. Draft approval and extension to draft approval increased for single -detached dwellings and townhouses, largely due to activity in Newcastle. In 2019, an additional 514 units were draft approved and 342 units were granted extensions to draft approval. Once registered, this will provide an additional 837 new dwelling units. The draft approved plans provide diverse types of development, including single -detached lots of varying frontages, townhouses, and apartment units. 3.8. In 2019 there were four plans of subdivision registered in the Municipality, totaling 259 new residential units. The registered subdivisions were all for single -detached dwellings. It is expected that the number of units registered will remain strong in the coming years as the number of new and draft approved subdivision units remains high and appears able to address market demand in Clarington. Municipality of Clarington Report PSD-003-20 Page 7 Final Subdivision Approval By Unit Type Single -detached Semi-detached Townhouse Apartment Urban Area 2019 2018 2017 2019 2018 2017 2019 2018 2017 2019 2018 2017 Courtice 0 0 9 0 0 0 0 0 68 0 0 0 Bowmanville 240 370 531 0 102 4 0 42 324 0 42 123 Newcastle 0 0 0 0 0 0 0 0 0 0 Orono, Hamlets / Rural Area 19 28 24 0 0 0 0 0 0 0 0 0 Total 259 398 564 0 102 4 0 42 392 0 42 123 4. Part Lot Control 4.1. Exemption from Part Lot Control applications allow lots and/or blocks within a registered Plan of Subdivision where a previous planning application clearly indicated, through a public process, that the lots or blocks would be further divided. Typically, exemption from Part Lot Control is used where semi-detached or townhouses are to be split-up and individually sold. It is also used to create lots, known as parcels of tied land (POTL's) in common element condominiums. The individual lot is created after construction has commenced to ensure that the lot line is based on the location of footings and/or common walls. Applications are processed by Staff, with approval delegated to the Director of Planning Services. Nonetheless, an implementing By-law must be adopted by Council. 4.2. In 2019, a total of seven Part Lot Control applications were received, six of which were approved. An additional three applications from 2018 were also approved in 2019. These nine approvals created 255 townhouse lots and 40 semi-detached lots to provide 295 new dwelling units. Of these units, 261 were created in Bowmanville, with the remaining 34 in Courtice. 5. Plans of Condominium 5.1. A condominium is the form of housing tenure. Condominiums are most commonly used for townhouses and apartment buildings. Three applications for plans of condominium were received in 2019. If approved, these will result in 20 commercial units, 105 townhouses, and 101 apartment units. Two applications are for projects in Newcastle, and one in Bowmanville. 5.2. In 2019, four condominium applications received Draft Approval and three received Final Approval. One of the three receiving Final Approval was one of the four Draft Approved in 2019. This provides for 157 townhouses and 252 apartments. Of the total of 399 dwelling units, 223 are in Bowmanville, with the remaining 176 in Newcastle. Municipality of Clarington Report PSD-003-20 Page 8 Condominium Application Activity Urban Area Applications Received Draft Approval Issued Final Plan Approval 2019 2018 2017 2019 2018 2017 2019 2018 2017 Courtice 0 1 0 0 0 0 0 0 0 Bowmanville 1 7 1 1 2 0 2 1 0 Newcastle 2 2 0 3 0 0 1 0 0 Orono, Hamlets / Rural Areas 0 0 0 0 0 0 0 0 0 Total 3 10 1 4 2 0 3 1 0 5.3. While condominium applications decreased in 2019, draft and final approvals increased. It is expected that the Municipality will continue to receive applications as developers continue to propose higher density residential development which often take the form of condominium tenure. 6. Official Plan Amendments 6.1. Planning Services Staff review and process applications to amend the Clarington Official Plan. Clarington Official Plan Amendment Activit 2019 2018 2017 Applications Received 2 4 12 Applications Approved 1 4 5 6.2. In 2019, two applications were received, one of which has been approved. The approved application was to facilitate the severance of a surplus farm dwelling. The other is a Municipal -led application as part of implementing the findings of the Neighbourhood Character Study to add policies that address the transition between established neighbourhoods and the Liberty Street Corridor, and to address entrances to secondary residential units. 7. Zoning By-law Amendments 7.1. The majority of applications for rezoning accompanied proposed plans of subdivision or consent applications. Zoning By-law Amendment applications also include By-laws for the removal of a Holding provision, which is often used as a technique to ensure that municipal requirements are implemented through development agreements. Municipality of Clarington Page 9 Report PSD-003-20 Zoning By -Law Amendment Activity Type of Zoning By -Law Amendment Applications Received Applications Approved Year Year 2019 2018 2017 2019 2018 2017 Removal of Holding 2 7 4 5 14 18 Rezoning 8 15 34 5 30 23 Total 10 22 38 10 43 41 7.2. There were fewer Zoning By-law Amendment applications in 2019 than in the previous two years. Similarly, there were fewer approvals than in previous years. While nearly all of the rezonings and removal of holdings concerned residential applications, one rezoning was approved to allow for the future headquarters of East Penn, a large battery distribution facility in the Clarington Energy Park. 8. Site Plans 8.1. The Clarington Site Plan Control By-law requires site plan approval for the majority of commercial, industrial, institutional, and multi -residential developments, as well as most development applications on the Oak Ridges Moraine. Site plan approval authority is delegated jointly to the Director of Planning Services and the Director of Engineering Services. 8.2. There were 19 non-residential site plans approved in 2019, which totalled 60,134 square metres of commercial and industrial floor space. In 2019, the Planning Services Department received 23 non-residential site plans applications, which represents 73,683 square metres of floor space. 8.3. Two of the six industrial applications received, and two of the five industrial applications approved were for cannabis production facilities, representing 66,000 square metres. This means that 36% of industrial site plan activity in 2019 concerned cannabis production. 8.4. As for residential site plan applications, the 14 received represented 694 units, while the five approved represented 153 new dwelling units. Municipality of Clarington Report PSD-003-20 Page 10 Site Plan Application By Type Land Use Type Applications Received Applications Approved Year Year 2019 2018 2017 2019 2018 2017 Major Residential+ 9 6 9 3 7 3 Minor Residential++ 5 10 7 7 9 11 Commercial 11 8 12 6 6 7 Mixed Use 1 1 0 2 0 0 Industrial 6 12 9 5 6 4 Government/Institutional 1 3 3 1 2 0 Telecommunication Towers 1 2 7 2 1 3 Agricultural 3 1 2 3 0 1 Total 37 43 49 29 31 29 + Major Residential uses are Residential units consisting of more than three units ++ Minor Residential uses are Residential units consisting of three or less units 8.5. In addition to this non-residential floor space and residential units, two mixed -use site plan applications were approved in 2019. Both are in Courtice and will provide for an additional 216 residential units and 32,760 square metres of commercial floor space. 8.6. There was an increase in the number of site plan applications received for Major Residential and Commercial. The total number of approved site plan applications has remained constant over the last three years. 9. Pre -Consultation Meetings 9.1. The Municipality adopted By-law 2007-192, which requires a pre -application consultation meeting prior to the submission of most development applications. These "pre -consultation" meetings assist in ensuring the applicant is aware of all required steps, supporting documents, and application fees to help ensure applications are complete when submitted. This is intended to speed up the application process and ensure the applicant is fully aware of the process and its requirements. The details of pre -consultation meetings are confidential, the number of pre -consultation applications provides a general indication of future proposals. 9.2. In 2019, the number of pre -consultation meetings was similar to those held in 2018, but the meetings for major residential projects has declined over the last two years. The majority of the pre -consultations were for proposals in Courtice and Bowmanville, with an increase in proposals in Newcastle. For pre -consultations for minor residential applications, staff generally provide a detailed list of requirements for a complete application and the process requirements to further streamline the overall process. Municipality of Clarington Report PSD-003-20 Page 11 Pre -Consultation Meetings B Type Land Use Year 2019 2018 2017 Major Residential+ 7 12 23 Minor Residential++ 9 0 4 Commercial 7 10 9 Mixed Use (Commercial and Residential) 1 2 3 Industrial 8 15 11 Government/Institutional 4 4 5 Agricultural 0 0 3 Recreational 0 1 0 Telecommunication Towers 7 0 2 Undisclosed 0 2 2 Total 43 46 62 + Major Residential uses are Residential units consisting of more than three units ++ Minor Residential uses are Residential units consisting of three or less units 9.3. Pre -consultations for mixed -use development have decreased slightly, but it is expected that mixed -use proposals will increase in the coming years. The number of major residential pre -consultation meetings will very likely increase when Secondary Plans for greenfield areas in Bowmanville, Courtice, and Newcastle are complete. 10. Minor Variances 10.1. The Committee of Adjustment is appointed by Council to make decisions on minor variances to the Municipality's two Zoning By-laws. 10.2. The number of applications to the Committee of Adjustment was less than in previous years. Unlike previous years, there were no variance applications from builders to address issues with models that did not comply with zoning setback requirements or height provisions. Only one variance application came from a builder, which was to reduce the minimum unit size of four condo apartments. Seven applications were related to a land division application. Municipality of Clarington Report PSD-003-20 Page 12 Minor Variance Applications Application Decision 2019 2018 2017 Total number of Applications Approved 41 70 81 Total number of Applications Denied 1 1 0 Total number of Applications Withdrawn 1 2 1 Total number of Applications Tabled/On Hold 4 2 0 Total number of Applications Received 43 75 82 Total number of Applications Appealed 0 0 0 10.3. The vast majority of minor variance applications were from individual residents looking for relief from a zoning regulation to construct structures like decks, sheds, or garages. There were also two applications from residents seeking relief from the Interim Control By-law that was put in place in parts of Bowmanville while the Neighbourhood Character Study was underway. 10.4. Staff carefully review minor variance proposals before accepting applications and payment. All four of the applications that were tabled (deferred) were from residents and approved at a later meeting. As for the single application that was denied, the applicant was a deck builder who chose to proceed even though he was advised before applying that staff would recommend denying the application. The decision to deny was not appealed. 11. Land Divisions 11.1. The Planning Services Staff provide coordinated comments for all Clarington departments to the Durham Region Land Division Committee on consent applications. Comments to Land Division Committee By Type Land Use Type Proposed New Lots Boundary Adjustments Easements Year Year Year 2019 2018 2017 2019 2018 2017 2019 2018 2017 Urban Residential 6 12 42 2 0 3 1 0 2 Rural Residential 3 5 0 0 3 0 0 2 0 Commercial 0 1 1 0 0 0 0 0 4 Mixed Use 1 0 0 1 0 0 0 0 0 Agricultural 0 0 0 3 1 0 0 0 0 Institutional 0 0 0 0 0 0 0 0 0 Industrial 2 1 0 0 0 1 0 0 0 Total 12 19 43 6 4 4 1 2 6 11.2. In 2019, there was a continued decrease in land division applications. Of the total nineteen applications, eighteen were approved and one was tabled (deferred) and will Municipality of Clarington Report PSD-003-20 Page 13 be heard in 2020. Of these applications, six were to create new urban residential lots, three to create rural residential lots, and one mixed use lot. 12. Apartment -in -House 12.1. The Planning Services Department coordinates apartment -in-house applications to help ensure they are located in the appropriate residential zones and there is sufficient parking. Registering in-house apartments also ensures the second dwelling unit is in the Emergency and Fire Services database and conforms to the Ontario Building Code. Apartment -In -House Activity By Geographic Area Urban Area Apartment -In -House Applications Received Apartment In -House Registered 2019 2018 2017 2019 2018 2017 Courtice 4 7 11 4 5 7 Bowmanville 34 28 33 21 17 17 Newcastle 1 1 2 1 0 1 Orono, Hamlets and Rural Areas 1 0 0 0 0 0 Total 40 36 46 27 22 25 12.2. Compared to 2018, there was a slight increase in the number of apartment -in-house applications received and registered in 2019. With the increasing cost of home ownership along with the rise in temporary employment and income inequality, the need for affordable rental units will increase in the future years. The apartment -in-house data does not account for individually owned apartments ("condos"), townhouses, semi- detached, or single -detached dwellings that are rented in their entirety. 13. Sign Permits 13.1. Sign permits, which are required for most signs within the Municipality, are divided into two categories: permanent and temporary. The table below shows sign permit activity for 2019 based on geographic area. A total of 247 sign permits were issued. 13.2. The numbers below show permanent sign activity increased significantly in 2019, however, a single application in Courtice for 24 permanent signs and another single application for 12 permanent signs in Bowmanville skews the overall totals. Temporary sign permit activity remained relatively stable. Municipality of Clarington Report PSD-003-20 Page 14 Sign Permit Activity By Geographic Area Urban Area Number of Permit Applications Received and Issued Permanent Temporary 2019 2018 2017 2019 2018 2017 Courtice 34 4 8 39 40 41 Bowmanville 76 44 66 64 63 65 Newcastle 15 14 18 10 9 18 Orono, Hamlets and Rural Areas 8 9 9 1 3 7 Total 133 71 101 114 115 131 14. Concurrence Not Applicable. 15. Conclusion 15.1. Planning application activity in 2019 has declined when compared with the previous two years. This decline was predicted and expected given approval of the Official Plan, the number of Secondary Plan underway plus current market conditions. Previous years (2015-17) saw a surge of residential applications and approvals, many of which are still under construction. As those projects wrap up and secondary plans are completed, applications for new subdivisions, site plans for townhouses and apartments, and other intensification projects will continue to provide for Clarington's growing population. 15.2. Data from recent years show that subdivision applications are no longer the sole indicator of residential growth. Developers are increasingly turning to townhouse blocks and apartment condominiums to provide higher -density residential neighbourhoods. While these forms of development may be part of a larger plan of subdivision, site plan applications and relief from Part Lot Control are increasingly important indicators of residential growth. 15.3. It should also be emphasized that subdivision applications as well as major residential site plan applications normally take at least a year for the applicant to fulfil all conditions of approval. Looking at townhouses in plans of subdivision in 2018 and 2019, applications include 717 units, while over the same time frame 492 were either draft approved or given extensions to draft approval, though only 145 reached final approval in 2019. This suggests there will be a significant number of townhouses approved in 2020 and into 2021. Municipality of Clarington Page 15 Report PSD-003-20 15.4. Cannabis production facilities accounted for 36% of industrial site plan activity. This growing industry will remain an important employer in Clarington. During 2019, the Planning Services Department fielded an increase in enquiries about cannabis production on agricultural lands. The growing and harvesting of cannabis is interpreted as an agricultural crop and is permitted provided a federal license has been approved. Processing beyond drying, trimming and bulk packaging have been interpreted as not accessory or ancillary to a typical farm operation. 15.5. Detailed charts for each application type, identifying applications received and approved can be obtained by contacting the Planning Services Department. Staff Contact: Mark Jull, Planner I, 905-623-3379 extension 2426 or mjull clarington.net. The following interested parties will be notified of Council's decision: Region of Durham Planning and Economic Development