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HomeMy WebLinkAboutPD 17-08 Citlf (J~ REPORT TO COUNCIL 1 6 6 Report Number: PO 17-08 Date: April 21, 2008 From: Neil Carroll Director, Planning & Development Subject: Growing the Greenbelt - Consultation 2008 February 2008 Recommendation: 1. That Pickering Council receive Report PO 17-08 as its comments on the draft critieria outlined in the Growing the Greenbelt - Consultation 2008, dated February 2008, EBR Registry Number: PF08E1001; 2. That Pickering Council advise the Minister of Municipal Affairs and Housing, that Pickering Council generally supports the draft criteria for assessing municipal requests to expand the Greenbelt provided that the following criteria are added: (a) upper-tier municipalities are required to meaningfully engage affected local municipalities including the public and affected landowners in any proposed Greenbelt expansion; and (b) upper or single-tier municipal requests to expand the Greenbelt are required to complement approved municipal Growth Plan conformity amendments; 3. That the Province take the lead role in implementing the marketing strategies and best management practices advocated by the GTA Agricultural Action Plan, in partnership with the GTA Agricultural Action Committee; 4. That the Province release the provincial-scale 'systems approach' data used to support the existing Greenbelt for municipal use; and 5. Further, that the City Clerk forward a copy of Report PO 17-08 to the Minister of Municipal Affairs and Housing; the Region of Durham; Durham Region Area Municipalities; and the Toronto and Region Conservation Authority. Executive Summary: In February 2005, the Province approved the Greenbelt Plan. In Pickering, the Oak Ridges Moraine, the entire Agricultural Assembly and other lands generally south of Highway 7 to Urban Ajax, and parts of the Rosebank, Rougemount and Rouge Park Neighbourhoods are included in the Greenbelt Plan. In February 2008, the Province released draft criteria that, once finalized, would be used to evaluate municipal requests to expand the Greenbelt. Requests to reduce the size or remove areas from the Greenbelt are not being considered. Report PO 17-08 April 21, 2008 Subject: Growing the Greenbelt - Consultation 2008 1 67 Page 2 The Province's draft criteria have been reviewed and are generally supported as they provide an opportunity for municipalities to secure enhanced protection to environmentally sensitive and agricultural lands currently not in the Greenbelt. To enhance the draft criteria, it is recommended that upper-tier municipalities be required to meaningfully consult with local municipalities when considering expansion opportunities. The consultation should include the public and affected landowners. Municipal requests to expand the Greenbelt should also be required to complement approved municipal growth plan conformity amendments. Further, to assist farmers residing near the urban edge, it is recommended that the Province take the lead role in implementing the marketing strategies and best management practices advocated by the GTA Agricultural Action Plan, in partnership with the GTA Agricultural Action Committee. To assist municipalities in proposing Greenbelt requests, the early release of provincial-scale natural heritage and agricultural systems used to support the existing Greenbelt is encouraged. It is therefore recommended that the Province incorporate the comments provided in Report PO 17-08 and that Report PO 17-08 also be forwarded to the Ministry of Public Infrastructure Renewal for consideration. Financial Implications: None Sustainability Implications: The draft Greenbelt expansion criteria supports the sustainable principles of protecting environmentally sensitive and agricultural lands around the Greater Golden Horseshoe and is complementary to the City's sustainable objectives of a healthy environment, society and economy. Further, municipal requests to expand the Greenbelt that are complementary to approved municipal growth plan initiatives helps to achieve another City objective of responsible development. 1.0 Background: 1.1 The Province approved the Greenbelt Plan on February 25, 2005 A significant portion of Pickering, approximately 43% of the City's land area, is included in the Greenbelt Plan. Besides the Oak Ridges Moraine in north Pickering, the entire Agricultural Assembly and other lands generally south of Highway 7 to Urban Ajax, and parts of the Rosebank, Rougemount and Rouge Park Neighbourhoods are included (see Attachment #1 - Greenbelt Plan Map). 1.2 Recent Provincial Greenbelt Initiative In February 2008, the Ministry of Municipal Affairs and Housing released draft criteria to consider municipal requests to expand the Greenbelt. Municipal requests to reduce the size of the Greenbelt or remove areas from it are not part of the Ministry's proposal. The consultation paper has also been posted on the Environmental Bill of Rights (EBR) Registry with a deadline for comments of April 30, 2008. Report PO 17-08 April 21, 2008 Subject: Growing the Greenbelt - Consultation 2008 Page 3 1 6 n 1.3 The draft proposal consists of the following six criteria: · Municipal Request · Embraces Greenbelt · Addditions to Greenbelt · Connections to Greenbelt systems · Complement Greater Golden Horsehoe Growth Plan · Timing and relationship to other Provincial initiatives A copy of the Provincial Growing the Greenbelt - Consultation 2008 document that outlines the six draft critieria is attached (see Attachment #2). 2.0 Discussion 2.1 Staff comments on the six draft critieria are provided below a) Criteria 1 - Municipal Request · Only requests from Regional, County and single-tier munciaplies will be considered. · The municipal request to expand the Greenbelt must: identify the geographic area to be considered; identify the specific measures taken to engage the public, key stakeholder organizations and aboriginal communities about the proposed expansion; confirm that there is consensus among the Region and affected local municipalities, through Council resolutions; and provide supporting rationale as how the criteria have been met. Only regional, county and single-tier municipal Councils can request expansions to the Greenbelt. However, confirmation from the affected local municipal Councils are required. To ensure that local municipal issues are brought forward for consideration, it is recommended that the Province revise the draft criteria to require upper-tier municipalities to meaningfully engage affected local municipalities including the public and affected landowners in any proposed greenbelt expansion. b) Criteria 2 - Embrace Greenbelt Purpose . The proposed expansion must: protect environmentally sensitive and agricultural lands, while meeting the needs of the growing communities; and be consistent with the vision and goal of the Greenbelt Plan. In its comments on the draft Greenbelt Plan, Council supported a permanent Greenbelt including a request that the Province financially support the ongoing viability of agriculture in the Greenbelt Area. Report PD 17-08 April 21, 2008 Subject: Growing the Greenbelt - Consultation 2008 ~ .- q b~ Page 4 The Province has been providing financial support to assist in the implementation of the Greater Toronto Area (GTA) Agricultural Action Plan. The Action Plan is the result of the collaborative efforts of the Regions of Durham, Halton, Peel and York, the City of Toronto, the Regional Federations of Agriculture, and the Ontario Ministries of Agriculture and Food and Municipal Affairs and Housing. To assist in the implementation of the GTA Agricultural Action Plan, a GTA Agricultural Action Committee was established with representation from the four GTA Regional Municipalities, the City of Toronto, provincial and federal Governments, and the agricultural industry. The GTA Agricultural Action Plan document advocates for the coordination of education and new marketing strategies for local farmers, along with the promotion of better agricultural practices for near-urban areas. This is especially relevant in Pickering where a large Greenbelt area abuts the Seaton urban area. However, staff is unaware of any such strategies that have been implemented to enable farmers to take advantage of the marketing opportunities an urban fringe offers. It is recommended that the Province take the lead role in implementing the marketing strategies and best management practices advocated by the GTA Agricultural Action Plan, in partnership with the GTA Agricultural Action Committee. c) Criteria 3 - Additions to the Greenbelt · Additions should be logical extensions to the existing Greenbelt Plan Area (i.e. next to the existing greenbelt, not creating isolated patches). · The proposed expansion may consist of additions only and cannot include any deletions. The Province has indicated that it is only considering municipal requests to expand the Greenbelt, not to reduce the size or remove areas from the Greenbelt. However, staff is unclear as to why the Province is considering criteria to expand the Greenbelt in advance of the 10-year review of the Greenbelt Plan. No rationale is provided in the document justifying the need to move forward at this time. Staff concurs with the draft criteria that any expansions to the Greenbelt should not create isolated Greenbelt patches. d) Criteria 4 - Connections to Greenbelt Systems · The proposed Greenbelt expansion must: be based on a provincial-scale systems approach that formed the original Greenbelt, as opposed to a local or regional scale approach; and build upon the Greenbelt's natural heritage, agricultural and water resource systems. Report PD 17-08 April 21, 2008 Subject: Growing the Greenbelt - Consultation 2008 Page 5 1 '7 () , I l The release of the Province's analysis would assist City staff in tracing the rationale for the original Greenbelt boundary in Pickering and support for any proposed expansions. e) Criteria 5 - Complement the Growth Plan for the Greater Golden Horseshoe (GGH) · The proposed expansion must complement the Provincial Growth Plan. · The proposed expansion must not interfere with affected municipalities bringing their Official Plan into conformity with the Growth Plan. For those municipalities north of the Greenbelt, expanding the existing Greenbelt boundary to protect sensitive ecological areas or high quality farmland is appropriate. In Durham Region, the Greenbelt Plan boundary and policies were implemented as part of Amendment #114 to the Regional Official Plan. Regional staff is now addressing the population and employment forecasts and associated urban land needs as part of Durham's Growth Plan Implementation Study. In this regard, initial findings of the Phase 1 & 2 report of the Implementation Study indicate a shortfall of employment and residential lands at the year 2029. The results of the Durham's Implementation Study and subsequent detailed analysis at the local municipal level may confirm the need to consider the 'white areas' within the Region in order to meet the Growth Plan's population and employment targets. It is therefore premature for Durham to be considering any greenbelt expansions until the completion and subsequent approval of the Region's Growth Plan Implementation initiative. It is recommended that upper or single-tier municipal requests to expand the Greenbelt must complement approved municipal Growth Plan conformity amendments. f) Criteria 6 - Timing and Relationship to Other Provincial Initiatives · The proposed expansion must complement and support ongoing initiatives related to transportation, transit planning, water resources and growth planning. Staff supports the principle that expansions must complement ongoing provincial initiatives. However, there are a number of ongoing provincial initiatives in the Greater Golden Horseshoe that may affect a municipal request to expand the Greenbelt (e.g. Source Water Protection Plans under the Clean Water Act, 2006). Early consultation by the upper or single-tier municipalities with the Province to identify all potential provincial initiatives is encouraged. 3.0 Next Steps The Province will be holding evening workshops in April to discuss and provide feedback on the draft criteria that will be used, once approved, to consider municipal requests to expand the Greenbelt. Report PD 17-08 April 21, 2008 Subject: Growing the Greenbelt - Consultation 2008 Page 6 ,. 11j Attachments: 1. Greenbelt Plan Map 2. Growing the Greenbelt - Consultation 2008 Prepared By: Approved I Endorsed By: N~P? Director, Planning & Development Grant McGregor, MCI ,RPP Principal Planner-Policy I~~ Catherine Rose, MCIP, PP Manager of Policy GM:jf Copy: Chief Administrative Officer gecommended for the consideration .+. ,) Pickering C::4 Thom;'T~6inn'~DM~:~ Chief Administrative Officer ..r Copy of attachment available at Clerk's Department (Attachment #1 to Report # PD 17-08) Q I ~> 1~ FEBRUARY 2008 Consultatioll IINTRODUCTION Ontarians have come to cherish the Greenbelt since it was created in February 2005. It protects 1.8 million acres of environmentally sensitive and agricultural land around the Greater Golden Horseshoe. Moving forward, growing the Greenbelt can improve Ontarians' quality of life. The Ministry of Municipal Affairs and Housing has developed some draft criteria for public consideration in order to accommodate potential requests to grow the Greenbelt. This booklet provides some background information about the Greenbelt and its creation, and outlines draft criteria that could be used by the Minister of Municipal Affairs and Housing to consider municipal requests to expand the existing Greenbelt. Comments and suggestions on these draft criteria are welcome. IBACKGROUND Providing agricultural and environmental protection, the Greenbelt also contains important natural resources and supports a wide range of recreational, tourism and cultural opportunities. The Greenbelt helps protect the water we drink and the air we breathe. It offers greenspaces to enjoy hiking and skiing. It preserves farmland so that future generations can enjoy food that is grown and raised close to home. Growing the Greenbelt February 2008 1 '7 1 7 4 The Greenbelt includes the Oak Ridges Moraine, the Niagara Escarpment and land that is known as "Protected Countryside" and lies at the heart of the Greater Golden Horseshoe. The Greenbelt is the cornerstone of the Greater Golden Horseshoe Growth Plan, Ontario's over-arching strategy for managing growth for the area. The Greenbelt Plan identifies where major urban growth cannot take place. The Growth Plan directs most growth to existing urban areas, away from environmentally sensitive and prime agricultural areas. ITHE GREENBELT ACT AND PLAN The Greenbelt Plan and Greenbelt boundary were established under the Greenbelt Act, 2005. The act allows only the Minister of Municipal Affairs and Housing to propose amendments to the Plan. Only Ontario Cabinet can approve those proposals Decisions on planning applications must conform to the Greenbelt Plan. Municipalities are also required to bring their planning documents (eg official plans) into conformity with the Plan. The act requires a comprehensive policy review of the Greenbelt Plan every 10 years. The review must be co-ordinated with the reviews of the Oak Ridges Moraine Conservation Plan and the Niagara Escarpment Plan. The first 10-year review is to take place by 2015. The act also required the government to create the Greenbelt Council, an advisory body to the Minister on Greenbelt matters. The Greenbelt Council provides advice to the Minister on both the 10-year review and any proposed amendments to the Plan. .., ",,,- /7"<. g This consultation on the draft criteria is not intended to replace the 10-year review, or limit the ability of the Minister to propose any other amendments to the Plan. Amendments to the Plan would follow the legislative process outlined in the act. IGREENBELT VISION The Greenbelt is a broad band of permanently protected land which: · Protects against the loss and fragmentation of the agricultural land base and supports agriculture as the predominant land use; · Gives permanent protection to the natural heritage and water resource systems that sustain ecological and human health and that form the environmental framework around which major urbanization in south-central Ontario will be organized; and Growing the Greenbelt February 2008 · Provides for a diverse range of economic and social activities associated with rural communities, agriculture, tourism, recreation and resource uses, IG R E E N BEL T GO A L S To enhance our urban and rural areas and overall quality of life by promoting the following matters within the Protected Countryside: 1. Agricultural protection 2. Environmental protection 3. Culture, recreation and tourism 4. Settlement areas 5. Infrastructure and natural resources Please refer to the Greenbelt Plan for more information on the Greenbelt's goals, IGREENBELT FACTS · The Greenbelt includes about 1 million acres of protected land in addition to the land protected by the Niagara Escarpment Plan and the Oak Ridges Moraine Plan, The total area of protected land in the Golden Horseshoe is now 1,8 million acres - an area larger than Prince Edward Island · The Greenbelt extends 325 kilometres from the eastern end of the Oak Ridges Moraine near Rice lake, to the Niagara River in the west, It is about 80 kilometres wide at its widest point from the mouth of the Rouge River to the northern tip of Durham Region, · The Greenbelt's Protected Countryside natural heritage system is about 535,000 acres in land area and provides full protection for about three-quarters of the lakes, wetlands and forests in the Greenbelt. Growing the Greenbelt February 2008 :J. / 7 ~() f 1 l ~) · The Greenbelt brings under the Plan the headwaters of all major watersheds in the western Greater Toronto Area that were not protected by the Niagara Escarpment or Oak Ridges Moraine plans, · The Greenbelt permanently protects about 100,000 acres of Niagara Peninsula tender fruit and grape specialty crop areas and the entire Holland Marsh specialty crop area of over 15,000 acres, located in York Region and Simcoe County 1 '76 Draft Expansion Criteria ...2 /l'(.'~ IINTRODUCTION TO DRAFT CRITERIA The Ministry of Municipal Affairs and Housing, working in partnership with other provincial ministries, has developed draft criteria to consider municipal requests to grow the Greenbelt. The ministry is looking for feedback on the following six criteria. Y iU' .. 4".. _ ' p , Ii. ~nU~~allfllb :n'\I~e$. ,n'P"1, ., , '. \' ," '~"\". "iiR.ch ,. ' ' " . ,. . - Requests for growing the Greenbelt from regional, county and single.tier municipal governments will be considered. A municipality requesting to expand the Greenbelt should address the following questions: · Is the request supported by regional, county or single.tier municipal council? · Does the request identify the geographic area within the municipality to be considered for addition to the Greenbelt? · What specific measures has council taken to engage the public and key stakeholder organizations about growing the Greenbelt in its municipality? · What specific measures has council taken to engage Aboriginal communities about growing the Greenbelt in its municipality? · Is there consensus among a region or county and its lower.tiers affected by the proposal2 Is the request supported by council resolutions? · Has the municipality provided a supporting rationale as to how the criteria have been met? The Greenbelt establishes its main purpose through the vision and goals outlined on pages 2 and 3. Proposed expansions to the Greenbelt must recognize its key role in guiding land use planning in the Greater Golden Horseshoe and seek to maintain this purpose. · Does the proposed expansion protect environmentally sensitive and agricultural lands while meeting the needs of growing communities? · Is it consistent with the vision and goals of the Greenbelt Plan? '4~' ~'dttitifJ/llN''tO tl1e,J*,ltM.fnbett . "i Greenbelt additions should be logical extensions to its existing area. New lands to be added should be easily connected and not create isolated patches. Further, the Greenbelt Act, 2005 provides that the Greenbelt's area cannot be reduced through an amendment. · Is the proposed expansion next to the existing Greenbelt? · Does the proposed expansion consist only of additions to the Greenbelt and not include deletions? Growing the Greenbelt February 2008 ,4. r2annections ta ~1'!/eanbelt Sills:t~ms " c The Protected Countryside was built using a provincial-scale 'systems approach' described in detail on page 6. Requests to grow the Greenbelt should connect to and build upon this framework that established the original Greenbelt. · Is the proposed expansion based on a provincial-scale systems approach that formed the original Greenbelt (as opposed to local or regional scales)? · Does the proposed expansion build upon the Greenbelt's natural heritage system? · Does the proposed expansion build upon the Greenbelt's agricultural system? · Does the proposed expansion build upon the Greenbelt's water resource system? .:2 / 7 -() Y . !i. r2am'M1ement Greater Golden , 3 '1!!a1'!sesnl1e Growth plan The Growth Plan sets a framework for managing growth and revitalizing existing urban communities in the Greater Golden Horseshoe. It also steers growth away from environmentally sensitive and prime agricultural areas. The Greenbelt Plan identifies where major urban growth cannot take place. To implement the Growth Plan's policies, municipalities are required to update their official plans by June 2009. · Does the proposed expansion complement the Greater Golden Horseshoe Growth Plan? · Will affected municipalities be able to bring their official plans into conformity with the Growth Plan if the proposed Greenbelt expansion occurs? There are a number of provincial initiatives affecting the Greater Golden Horseshoe including broader transportation/transit planning, protection of water resources and planning for future growth. Does the request for growing the Greenbelt complement and support these ongoing provincial initiatives? (E.g. Does it allow for the completion of Source Protection Plans under the Clean Water Act, 2006?) Growing the Greenbelt February 2008 1 77 - 178 IBUILDING THE GREENBELT BY LAYERS The process of building the Greenbelt in 2004/05 involved extensive consultation and collaboration It was led by the Greenbelt Task Force, an advisory group that conducted public meetings and reported back to the Minister of Municipal Affairs and Housing in August 2004. The Greenbelt Plan was drafted based on the Task Force's recommendations and advice. For more information on those recommendations, please review the Task Force's report "Toward a Golden Horseshoe Greenbelt" at www.mah.gov.on.ca/ GreenbeltTaskForce. The provincial Growth Plan for the Greater Golden Horseshoe was developed at the same time as the Greenbelt Plan in order to consider the amount of land required to meet the needs of growing communities. The G rccl1hclt ptdll The Oak Ridges Moraine Plan and Niagara Escarpment Plan form the backbone of the Greenbelt. The Greenbelt's natural heritage system includes and builds on the natural heritage systems in the moraine and the escarpment. St / l-c ~- The final Greenbelt boundary was determined by identifying a natural heritage system and defining an agricultural system. The government also considered the amount of land required to accommodate anticipated growth. Together, these components form the Protected Countryside of the Greenbelt. The natural heritage system identified major core areas containing high concentrations of natural features and linking areas that ecologically connect the core areas. Major valley corridors of rivers flowing from the Oak Ridges Moraine and the Niagara Escarpment also provide links from the Greenbelt to Lake Ontario. The agricultural system was identified based on a number of factors including the Greenbelt Land Evaluation Area Review (LEAR) study, the existing pattern of agriculturally protected lands set out in municipal official plans and a consideration of projected future growth patterns. The LEAR method uses a scoring system and considers a number of potential factors such as soils, climate, productivity and land fragmentation. Studies were also done to identify two Specialty Crop Areas: the Niagara Peninsula tender fruit and grape area and the Holland Marsh. Growing the Greenbelt February 2008 i:;l J '7'C f Greater Golden Horseshoe Lake Huron Growing the Greenbelt February 2008 HALIBURTON 1 79 1 8 i~l 1..-' flamments ilna lteeaJjllEll; I ~~~ We want to hear from you on the proposed criteria for considering Greenbelt expansions. Your input will help build a clear approach for considering expansions to the Greenbelt. Send your comments to: Growing the Greenbelt Ministry of Municipal Affairs and Housing 14th floor, 777 Bay Street Toronto, ON M5G 2E5 Phone: 416-585-6014 Fax: 416-585-4245 Email: greenbelt@ontario.ca Comments must be received by April 30, 2008. IOTHER RESOURCES For more information on the Greenbelt, how it was built and other supporting and complementary programs and initiatives, visit: Ministry of Municipal Affairs and Housing www.mah.gov.on.ca ,:;< /7 '() ~ Greenbelt www.greenbelt.ontario.ca Greenbelt Council www.mah.gov.on.ca/greenbeltcouncil Ministry of Natural Resources www.mnr.gov.on.co Ministry of Public Infrastructure Renewal - Places to Grow www.plocestogrow.co Ministry of Agriculture, Food and Rural Affairs www.omafra.gov.on.co Ministry of the Environment www.ene.gov.on.co Ministry of Tourism www.tourism.gov.on.ca Ministry of Culture www.culture.gov.on.cQ Ministry of Transportation www.mfo.gov.on.ca Growing the Greenbelt February 2008