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Report
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Report To: Planning and Development Committee
Date of Meeting: October 24, 2016
Report Number: PSD-059-16
File Number: PLN 1.1.21
Resolution Number:
By-law Number:
Report Subject: Municipal Comments on the Co-ordinated Review of the Growth Plan
for the Greater Golden Horseshoe, the Greenbelt Plan, and the Oak
Ridges Moraine Conservation Plan
Recommendations:
1.That Report PSD-059-16 be received as the Municipal comments on the Provincial Co-
ordinated Land Use Planning Review;
2.That a copy of Report PSD-059-16 be forwarded to the Ministry of Municipal Affairs and
Housing, Ministry of Natural Resources and Forestry, Ministry of Agriculture and Rural
Affairs, and the Region of Durham; and
3.That the interested parties listed in Report PSD-059-16 and any delegations be advised
of Council’s decision.
Municipality of Clarington
Report PSD-059-16 Page 2
Report Overview
On May 10, 2016 the Province of Ontario released proposed amendments to the Growth Plan,
the Greenbelt Plan, the Oak Ridges Moraine Conservation Plan, and the Niagara Escarpment
Plan as part of a co-ordinated review of the Province’s four land use plans. These four plans
govern land use planning in Ontario. The purpose of this report is to provide comments to the
Province on the proposed amendments, excluding the Niagara Escarpment Plan, which does
not apply to the Municipality of Clarington. The deadline to respond is October 31, 2016.
1. Summary of Key Concerns and Comments
Staff commend the Province for the enactment of the four land use plans that have led to
the shift in the way communities are designed in the Greater Golden Horseshoe when
compared to how they were planned a decade ago. The focus of growth is shifting from
undeveloped areas along the fringe of our communities to intensifying the existing built-
up areas, while protecting the connected natural heritage system across our rural areas
and into our urban areas.
Staff encourages the Province to continue to plan for more complete and compact
communities but also recognize that this is a difficult task given the large geographic area
and the diverse needs of each individual community. There are many adjustments to the
policies that will need to be managed by the Province and the hope is that the
Municipality’s key concerns and comments outlined below will assist with achieving great
communities in the Greater Golden Horseshoe overall.
Below is a summary of Staff’s key concerns and comments with the proposed
amendments to the Provincial Growth Plan, Oak Ridges Moraine Conservation Plan, and
the Greenbelt Plan:
Better transit infrastructure funding and transit planning is needed prior to increasing
the intensification and density targets in the Growth Plan. The increased targets
would change the character of the community to higher densities greater than what
the community has ever seen and Clarington would not have the frequent public
transportation service that is needed to support these densities.
Request that the Province expand the Greenbelt to cover the most significant
agricultural lands south of the current Greenbelt Boundary.
Request that the Urban Settlement Area of Orono be expanded to the limits
recommended in the Municipally Initiated Official Plan Amendment 107 (OPA 107)
in order to grow the population base that is needed to support the services that
contribute to a complete community, which is a key goal to be achieved in the
Growth Plan.
Municipality of Clarington
Report PSD-059-16 Page 3
Allow municipalities to continue to have the ability to round out the hamlet
boundaries under the Greenbelt Plan policies as part of a municipally led official
plan comprehensive review.
Request the removal of Ministerial designation of “Prime Employment Areas” and
instead allow municipalities to determine the most appropriate areas for these types
of uses through the next comprehensive review. It is also suggested, to add
policies to allow for these types of business to be located in areas that have access
to the major transportation routes, but may not necessarily need the exposure along
the corridor.
Request that municipalities have the ability to further refine the natural heritage
system and that in the event that an Official Plan policy, with respect to provincially
defined and/or delineated features (i.e. Provincially Significant Wetland or an Areas
of Natural or Scientific Interest) is appealed to the Ontario Municipal Board, the
appropriate Provincial Ministry should be required to defend the information.
Request that the creeks sourced in the Lake Iroquas beach and their associated
coastal wetlands be covered under the urban river valleys provision of the
greenbelt.
Incorporate transitional provisions to provide continuity with respect to the planning
direction that has already been undertaken.
Request that the province further considers the request of Nash Road
Developments Inc. in the context of broad expansions to the Greenbelt in other
areas of Clarington.
2. Background
2.1. 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.
2.2. The co-ordinated review began in February 2015. An advisory panel was appointed
by the Province to develop recommendations on how to amend and improve the
Plans. The review also included open house meetings and written submissions from
various stakeholders including farmers, developers, environmental organizations, and
the public. Municipal governments have also been involved by providing comments to
the Province throughout the process.
2.3. Staff prepared three reports on the Co-ordinated Provincial Four Plan Review:
a) Staff Report PSD-026-15 (May 4, 2015) provided comments requesting the
Province to use a science based agricultural capability analysis as the basis for
expanding the Greenbelt and protecting high yielding agricultural lands.
Municipality of Clarington
Report PSD-059-16 Page 4
b) Staff Report PSD-031-015 (May 25, 2015) provided recommendations to the
Province in other areas of concern that should be considered within the context of
the review. This report provides a summary of the comments that have not been
addressed in the proposed amendments released by the Province on May 10th,
2016.
c) Staff Report PSD-040-16 (May 16, 2016) provided a summary of the changes
proposed in the Growth Plan, the Greenbelt Plan and the Oak Ridges Moraine
Plan and advised that a subsequent Staff report would be prepared to respond to
the Ministry of Municipal Affairs’ request for comments on the proposed
amendments.
2.4 There are four recommendations from the Municipality that have not been addressed
in the proposed amendments:
a) That the Province grow the Greenbelt to cover prime agricultural lands south of
the Greenbelt using a scientific evaluation of the lands.
b) That municipal designation of Provincially Significant Wetlands should not be
subject to an Ontario Municipal Board appeal.
c) That if municipalities are responsible for implementing the Province’s land use
Plans, further support is needed from the Province, such as a criteria to evaluate
prime agricultural lands and the provision of infrastructure (i.e. public transit) to
support intensification and density policies.
d) Removal from the Greenbelt of the lands owned by Nash Road Developments
Inc.
3. Comments on the proposed Amendments
3.1 The following are detailed concerns and comments of interest to the Municipality in
response to the changes proposed in the Province’s amendments.
3.2 Intensification
The minimum residential intensification target is proposed to increase from 40% to 60%.
If adopted, the Municipality would be required to implement the increased intensification
target through the next comprehensive review of the Official Plan. It should be noted that
this is a Regional target and that it may be lower for Clarington. However, we have to
assume it will be somewhere around 50%. Consistently achieving a 50% intensification
rate will be difficult if not unrealistic, as Clarington does not have the infrastructure and
services, such as high frequency transit, that is needed to support this level of
intensification. If transit funding is not in place, the proposed intensification target of 60%
is likely too high for these areas to truly function as a “complete community” since higher
density areas cannot thrive without sufficient transit services to keep people and goods
moving.
Municipality of Clarington
Report PSD-059-16 Page 5
Resulting impacts include traffic congestion and the financial, environmental and health
impacts associated with increased traffic on our Municipal road infrastructure.
Furthermore, Clarington’s market for intensification is limited due to the geographical
location at the edge of the Greater Toronto Area.
There would be a greater demand for local municipal services such as parks and
community facilities that would need to be upgraded. As part of Clarington’s Official Plan
Review, one of the key priorities heard from our residents is to maintain and enhance the
small town/rural character of the community. Managing growth to maintain our “small
town feel” is also a key action of Council’s Strategic Plan.
“One size” does not fit all. Many of the areas within Clarington are stable neighbourhoods
where the impacts of intensification could be detrimental to the community. Also, some
areas within the Built Boundary are low density subdivisions that have no area left for
intensification, nor are they suitable or realistic to redevelop for intensification. There are
also some areas within the Built Boundary that have yet to be developed and are actually
“greenfield areas” and are not true intensification. Focusing intensification on these lands
in order to achieve higher intensification targets will potentially shift growth away from key
urban growth areas.
Recommendation:
That in recognizing that “one size does not fit all”, any increase in the Intensification
Targets be based on existing and committed transit infrastructure/service and the relative
geographic position in the Greater Golden Horseshoe so that municipalities closest to
Toronto have the higher target matching frequency of transit service. Further, the built
boundary should be updated to incorporate additional lands developed over the past 10
years. Much of the Bowmanville West Town Centre, near to the future GO Station is still
considered Greenfield and higher densities in this area do not contribute to the
Intensification Targets.
3.3 Greenfield Targets
The proposed Growth Plan policy increases the density target for “Designated Greenfield
Areas” from 50 to 80 residents and jobs per hectare. This seems relatively high for areas
envisioned to provide ground-related housing. For some municipalities, including
Clarington, Greenfield lands have already been planned, and approvals granted at a
density of 50 residents and jobs per hectare. By increasing the overall density to 80, any
new development within the remaining Greenfield will have to make up for the under-
density (50) at an even higher density than provided for in the proposed policy.
An unintended consequence of this may be more intensive density along the urban
fringes than the existing downtown areas. This would put a greater density of
development in the wrong place.
Municipality of Clarington
Report PSD-059-16 Page 6
The combination of the increase in the intensification target and the increase housing
density for greenfield lands, will make it even harder to achieve the residential
intensification target. There is a limited market for high density housing. More higher
density housing units in the Greenfield Areas means it can potentially bring down the
intensification percentage.
Recommendation:
That the province be advised that the increase of the Greenfield Density to an overall of
80 persons and jobs per hectare for Clarington is not supported; that in recognition that
“one size does not fit all” any increase in the Greenfield Density be based on relative
geographic position in the Greater Golden Horseshoe so that municipalities closest to
Toronto have the higher target; and further that the new Greenfield Density target not be
based on an overall average that includes Greenfield lands that are developed or
approved for development.
3.4 Orono Urban Boundary Expansion
Orono is a designated urban area comprised of approximately 540 dwelling units. The
major portion of Orono is serviced with municipal water but many residents have private
wells. There are no municipal sanitary sewer services.
Under the Greenbelt Plan, 2005 the boundaries of Urban Areas (including Orono) are
frozen as they existed on the day the Plan came into effect. Under the Growth Plan, 2005
“settlement areas”, which include both urban areas and hamlets, are permitted to expand
in accordance with an upper-tier land budget process during a municipal comprehensive
review.
The commercial downtown Orono is in
decline. Additional residential lands would
provide a basis to maintain a more complete
community. The area proposed to be
expanded is a small portion to the west of
Orono. This will allow the area to develop in
an affordable, green, self-sustaining way.
In order for a small business to thrive or even
remain viable in a small town there has to be
a certain local population base to support the
business activity. Growth in the population will
encourage activity that allows for this
population base to be maintained. Orono has
specialty shops, antique stores, locally owned
cafes, small town street festivals, agricultural
fairs and specialized community events that
are a destination for people and families looking for diverse experiences. Furthermore,
the supply of committed residential units in the rural areas is limited, with only a three
year supply based on the past 10 year historical rate of growth.
Municipality of Clarington
Report PSD-059-16 Page 7
The Municipality, through the Official Plan Review process and as recommended in
Clarington’s Official Plan Amendment No 107 to the Clarington Official Plan has allocated
approximately 800 units to Orono, and other rural areas in Clarington as part of the land
budget process.
Recommendation:
Clarington is supportive of the revisions to the Growth Plan and Greenbelt Plan that
would now allow for expansion of urban areas in the Greenbelt but requests that the
expansion of Orono be permitted under the current Municipal Comprehensive Official
Plan Review being implemented through Amendment 107.
3.5 Hamlet Rounding Out
The existing Greenbelt Plan allows for a one-time minor rounding out of Hamlets within
the Greenbelt during a municipal conformity exercise. Recognizing this, the Municipality,
through the Official Plan Review process has proposed the minor rounding out of several
Hamlets.
Should the Municipality not be successful at completing the conformity exercise before
the new proposed amendment to the Provincial Plans are in effect, the minor rounding-
outs proposed in the Clarington Official Plan amendment, will no longer be permitted.
In order to preserve the ability to round out the Hamlets, Staff recommend that a
transition policy be added to the proposed Greenbelt Plan, 2016 that would permit
municipalities to implement the rounding out provision in conformity with the Greenbelt
Plan, 2015.
Recommendation:
That transition policies be added to the Greenbelt Plan such that the one time minor
rounding out of Hamlets, as permitted in the Greenbelt Plan, 2005, continue to be
permitted when adopted by a municipal council as part of a comprehensive review.
3.6 Prime Employment Lands
Proposed Growth Plan policy has added a definition of Prime Employment Area as well
as corresponding Prime Employment Area policies. A Prime Employment Area is an
employment area that is protected for uses that are land extensive or have low
employment densities and require these locations, including manufacturing, warehousing
and logistics, and appropriate associated uses and ancillary facilities. Lands that are
near major goods movement facilities and corridors, including major highway
interchanges, should be identified as prime employment areas. The Minister may also
identify other prime employment areas.
The proposed amendments maintain the philosophy of separating employment land uses
from other land uses, which continues to be a reasonable planning approach for freight-
intensive employment uses (i.e. warehousing, manufacturing, logistics, and other
industrial-type uses) that often need to be close to a major highway or railway corridor.
Municipality of Clarington
Report PSD-059-16 Page 8
However, given that the nature of the GTA economy is shifting, it may be appropriate to
re-visit the proposed “Prime Employment Areas” in light of the types of land that will need
to be protected over the long-term from sensitive land uses (i.e. being far enough away
from residential land uses to enable the business to thrive over the long-term).
The term "Prime Employment Areas", specifically the word "Prime", is misleading as it is
typically used to refer to prestige industrial or office-type uses. However, office uses are
not permitted in the proposed “Prime” Employment Areas even though mixing prestige
industrial and office uses with other employment land uses is an accepted and
appropriate planning practice that supports the notion of complete communities.
Furthermore, given the close proximity and exposure along the transportation corridors,
there is usually a premium cost for these lands to purchase and to start up a business.
Warehouses and logistic companies usually require large parcels of land, which would be
costly to obtain given the high premiums along the corridor.
Recommendation:
The proposed policy which allows the Minister to designate “Prime” Employment Lands is
not supported. The location of “Prime” Employment Lands should be determined through
a public process by the lower-tier municipality with direction being provided by the upper-
tier through the next comprehensive review.
3.7 The Natural Heritage System
Policies have been included in the Growth Plan which would require municipalities to
incorporate in their Official Plans a natural heritage system that has been identified and
mapped by the Province using a Provincial Methodology. This Methodology is not
projected to be available until 2018 at the earliest and would only apply to a small amount
of land. The Municipality supports the efforts by the province to protect the natural
heritage system through the development of a consistent methodological approach
however, requests that the methodology be used as a minimum protection for the
features. Municipalities and Conservation Authorities should have the ability to further
refine and define the areas that need protection. Further, with the Province taking a
greater role in defining natural heritage features and, in particular, wetlands and ANSI’s,
the Municipality should be shielded from the time and expense of defending appeals on
these designations.
Recommendation:
That the Province’s policy for the preparation of a natural heritage system protection
methodology and mapping be supported as a minimum, however request that there is still
flexibility for municipalities and Conversation Authorities to further refine and protect the
natural heritage features. It is also requested that appeals to the Ontario Municipal Board
not be permitted for areas that are delineated by the Province.
Municipality of Clarington
Report PSD-059-16 Page 9
3.8 Growing the Greenbelt – Creek Valleys and Coastal Wetlands
Municipal Official Plan policy has always recognized the importance of the natural
heritage system including water resources within the larger geographic context. The Oak
Ridges Moraine, the former Lake Iroquois Beach Shoreline and the Lake Ontario
waterfront are identified as significant components of the Municipality’s natural heritage
system. The Urban Valleylands (such as the Bowmanville Creek and the Soper Creek)
and Provincially Significant Coastal wetlands that have been identified on the Greenbelt
Schedules all originate on the Oak Ridges Moraine and outlet into Lake Ontario.
However, there are other Urban Valleylands, that originate from the Lake Iroquois Beach
formation, that may or may not outlet through Provincially Significant Coastal Wetlands
into Lake Ontario. The Province should be encouraged to also protect these features by
identifying them on the appropriate Schedules.
Recommendation:
That the Province include the following watercourses that originate from the Lake Iroquois
Beach on Schedule 1:
Robinson Creek;
Tooley Creek;
Westside Creek;
Newtonville Creek.
And that the Province include the following Provincially Significant Coastal Wetlands on
Schedule 1:
McLaunghlin Bay (as depicted on Sheet 4 of 50) adjacent to the outlet of Robinson
Creek;
Westside Marsh (as identified on Sheet 3 of 50) adjacent to the Bowmanvile Marsh.
It is also recommended that the Province include all river valleys within the Urban Areas
as part of the Greenbelt, regardless of ownership. The proposed amendments only
recognize those lands which are in public ownership.
3.9 Growing the Greenbelt – Prime Agricultural Lands
On May 11, 2015, Clarington Council endorsed a report requesting that through the
Provincial Four Plan Review, the Province consider expansions to the Greenbelt by
undertaking a scientific evaluation of production capability of the land between the
Greenbelt Plan Area and the urban boundary areas in Clarington.
This evaluation was not undertaken as part of the Co-ordinated Review. However, the
proposed Greenbelt Plan (2016) indicates that the Province will lead a process to identify
potential areas to be added to the Protected Countryside by working with municipalities.
It will be based on a systems approach, which now not only includes a natural heritage
system but an agricultural system.
Municipality of Clarington
Report PSD-059-16 Page 10
The Minister can now add additional lands to the Greenbelt through those studies or in
response to municipal request outside of the review cycle.
Recommendation:
In recognition of further studies contemplated to grow the Greenbelt, and the desire of
Council and the Agriculture Advisory Committee, Clarington further reiterates its request
for a significant expansion of the Greenbelt to cover the most significant agricultural lands
south of the current Greenbelt Boundary and looks forward to the further provincial review
on growing the Greenbelt using a scientific evaluation of the agricultural system.
3.10 Nash Road Developments Inc.
On February 8, 2016 Council passed a resolution requesting that the province consider
removing the lands owned by Nash Road Developments Inc.at the north-east corner of
Nash Road and Hancock Road from the Greenbelt in the context of broad expansions to
the Greenbelt in other areas in Clarington.
The Draft Greenbelt Plan (2016) did not incorporate any changes to remove lands from
the Greenbelt other than correcting the error for lands within the Brookhill
Neighbourhood.
Recommendation:
That the province further consider the request of Nash Road Developments Inc. in the
context of broad expansions to the Greenbelt in other areas of Clarington.
3.11 Transitional Policies
While the proposed amendments have better aligned the Plans to make them more
consistent, there remains a lack of clarity on how transition is being dealt with and a need
for additional non-appealable matters.
The Province should consider adding a transition regulation for proposed developments
that are still in process at the time the Plans are enacted, along with a regulation for
municipally-initiated plans that are still in process. This will help to provide continuity and
certainty with respect to the planning direction that has been undertaken.
4. Conclusion
The Municipality supports many of the proposed amendments and commends the
Province for undertaking a Co-ordinated Review of four Provincial Plans, which govern
land use planning in Ontario. The concurrent review will ensure that there is greater
consistency and integration between the plans. Staff encourages the Province to continue
to consult with upper and lower-tier municipalities in order to provide further clarity and
understanding of the concerns raised by many municipalities across the Greater Golden
Horseshoe.
Municipality of Clarington
Report PSD-059-16 Page 11
Staff will continue to monitor and report back to the Committee on the progress of the Co-
ordinated Review. It is anticipated that the final amendments to the Plans will be released
early in 2017. Should the proposed amendments come into effect, amendments to the
Clarington Official Plan will be necessary.
There are many adjustments that will need to be considered by the Province. The hope is
that the Municipality’s key concerns will assist the Province in their Review to achieve a
common goal of creating great communities in the Greater Golden Horseshoe.
Submitted by: Reviewed by:
David J. Crome, MCIP, RPP Curry Clifford MPA, CMO
Director of Planning Services Interim CAO
Staff Contact: Carlos Salazar, Lisa Backus & Nicole Zambri, 905-623-3379 ext. 2409
or csalazar@clarington.net
Attachment
The Four Proposed 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
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-059-16_Four Plan Review.Docx