HomeMy WebLinkAboutPD 13-09
REPORT TO
' COUNCIL
1 VCKWE R I Report Number: PD 13-09
i ~1 O Date: March 23, 2009
From: Neil Carroll
Director, Planning & Development
Subject: Region of Durham's Growth Plan Implementation Study - Proposed
Amendment to the Regional Official Plan
Recommendations:
1. That Report PD 13-09 of the Director, Planning & Development, regarding the
Region of Durham's Proposed Amendment to the Durham Regional Official Plan
to incorporate recommendations of the Region of Durham's Growth Plan
Implementation Study, and to incorporate Food Security Principles be received;
2. That the comments contained in Report PD 13-09 on the Proposed Amendment
to the Regional Official Plan to implement the Region of Durham Growth Plan
Implementation Study be endorsed, and that Council request the Region to
incorporate the following changes:
(a) the land use structure as shown on Exhibit 4 to the proposed Amendment
and provided as Appendix I to Report PD 13-09 be revised as follows:
(i) replace the Regional Centre designation with a new Urban Growth.
Centre designation for downtown Pickering;
(ii) designate a Future Regional Centre designation, at Salem Road and
the Seventh Concession Road in northeast Pickering;
(iii) delete the Regional Corridor overlay along Taunton Road and delete
the Living Area designation on lands located between Taunton Road
and the C.P. Rail line within the Duffin Heights Neighbourhood; and
(iv) add the Regional Corridor overlay along Brock Road between the
Highway 401 interchange and Bayly Street;
(b) the transit priority network as shown on Exhibit 8 to the proposed
Amendment and provided as Appendix II to Report PD 13-09 be revised
as follows:
(i) replace the future commuter station symbol with a transportation hub
symbol for the GO Train Station in Seaton; and
(c) the detailed comments and revisions to the policies of the proposed
Amendment provided as Appendix III to Report PD 13-09 be incorporated
into the final Amendment to the Regional Official Plan;
Report PD 13-09 March 23, 2009
108
Subject: Region of Durham's Growth Plan Implementation Study:
Proposed Amendment Page 2
3. That Council support the Region's commitment to undertake the Infrastructure
and Fiscal Analysis to address infrastructure, transit and servicing costs relating
to new urban areas identified on Exhibit 4 to the Region's proposed Amendment
and provided as Attachment #3 to Report PD 13-09;
4. That Council request the Ministry of Energy and Infrastructure to extend the
required Growth Plan Conformity submission deadline by one year, from
June 16, 2009 to June 16, 2010 for the City of Pickering; and
5. Further, that a copy of Report PD 13-09 and Pickering Council's resolution on
the matter be forwarded to the Region of Durham, other Durham Area
Municipalities, the Ministry of Energy and Infrastructure, the Ministry of Municipal
Affairs and Housing, and the Ministry of Transportation.
Executive Summary: In February 2009, the Region of Durham released the
Proposed Amendment to the Regional Official Plan, to incorporate changes resulting
from the second part of the Region's Official Plan review. The amendment responds to
"Directions" presented in the Growing Durham, Recommended Growth Scenario and
Policy Directions, Final Report, dated November 18, 2008.
For lands within Pickering, the Amendment proposes to designate at the Regional level,
future urban lands beyond the current urban area (South Pickering and Seaton) to 2031
and identifies potential future growth areas to accommodate future employment and
residential growth beyond 2031. The additional urban lands are shown on Exhibits 4
and 10 and are provided as Attachments #3 and #4 to this Report to Council. In
essence, all lands in northeast Pickering, commonly referred to as the "whitebelt" lands
in the Provincial Growth Plan, are proposed for future urban uses.
Also for Pickering, the Amendment includes the identification of a Transportation Hub at
South Pickering's GO Station and intensification policies for Pickering's Urban Growth
Centre and Regional Corridors. A strong policy framework is proposed to address
phasing of urban area expansions and the protection of strategic Employment Areas
beyond 2031.
Staff supports the proposed Amendment subject to a number of changes for Pickering.
Key changes include replacing the Regional Centre designation with a new Urban
Growth Centre designation for Pickering downtown, adding a future Regional Centre at
Salem Road and the Seventh Concession Road in northeast Pickering, deleting the
Regional Corridor overlay along Taunton Road within the Duffin Heights Neighbourhood
and adding a Transportation Hub at the future GO Station in Seaton.
Financial Implications: No direct implications.
Report PD 13-09 March 23, 2009
Subject: Region of Durham's Growth Plan Implementation Study:
09 Proposed Amendment Page 3
Sustainability Implications: The proposed Regional Amendment supports the City's
economic, environmental and social objectives by providing Pickering with future urban
areas to accommodate population and employment growth and protect strategic
employment areas for investment opportunities.
The proposed phasing policies ensure that higher residential densities are being
achieved prior to approving sequential secondary plans. Also, to support new urban
area expansions, the completion of watershed plans in sensitive areas such as the
Carruther's Creek watershed are required as part of the secondary plan process. This
proposed policy will adequately protect Carruther's Creek and other watersheds in
Durham Region. The proposed policies also require an overall minimum 40%
intensification target for the built-up area across Durham Region and allocate a level of
intensification expected to be achieved in local municipalities (see Attachment #6 -
Intensification Allocations). Lastly, staff applauds the Region in adding wording and
definitions that promote the creation of healthy and complete sustainable communities.
1.0 Background
1.1 The Region is implementing the Province's Growth Plan for the Greater
Golden Horseshoe through a Growth Plan Implementation Study entitled
"Growing Durham".
In August 2007, the Region of Durham initiated a Growth Plan Implementation
Study to bring the Durham Regional Official Plan into conformity with the
Provincial Growth Plan for the Golden Horseshoe. The overall Study was
completed in five phases. The Study objectives were:
• allocate the Growth Plan population and employment forecast to Durham's
local municipalities to the year 2031 with an extended outlook to 2056;
• accommodate a 40% rate of residential intensification within the built-up
areas of the Region by 2015 and each year thereafter;
• achieve a minimum density of 50 people and jobs per hectare in designated
Greenfield areas;
• plan for a combined 200 people and jobs per hectare in designated Urban
Growth Centres;
• assess the supply of employment lands to accommodate the Growth Pan
forecast; and
• assess the need for settlement boundary expansions and new designated
Greenfield Areas.
The consulting firms of Urban Strategies Inc., Watson & Associates and
Totten Sims Hubicki were retained by the Region to prepare the Study.
Report PD 13-09 March 23, 2009
11«
Subject: Region of Durham's Growth Plan Implementation Study:
Proposed Amendment Page 4
1.2 Staff has been participating in Durham's Growth Plan Study process by
attending meetings, open houses and preparing reports for Council's
consideration.
Staff has been participating in Durham's Growth Plan Study and providing
regular updates to Council as input to the Region's Study. In addition to a
memorandum to the Chief Administrative Officer in December 2008, this is the
fourth Report from the Director, Planning and Development prepared for
Council's consideration.
The last report, PD 42-08, provided staff comments on Durham's Draft
Recommended Growth Scenario and Policy Directions Report dated
September 23, 2008. The Directions Report represented the last phase of the
Durham's Growth Plan Implementation Study. On November 17, 2008 Council
endorsed PD 42-08 and requested the Region to make the following changes:
1. expand the extent of land identified for future living area around Kinsale,
extending both to the west and to the east to Lake Ridge Road, so as to
create a threshold of growth for a complete neighbourhood;
2. revise the policy restricting major office development from employment areas,
such that it permits major office development at selected freeway
interchanges, thereby taking advantage of transit and increasing employment
densities;
3. reconsider the timing of the lands in the centre of northeast Pickering
identified for future employment in the post-2031 period, so as to maximize
the logical and orderly extension of services and infrastructure;
4. implement the timing changes recommended by Regional Planning
Committee on October 14, 2008, to bring lands for future living area at the
north limit of northeast Pickering from post-2031 to pre-2031, and to change
the lands in northeast Pickering adjacent to Lake Ridge Road from pre-2031
to post-2031; and
5. include policies to support updating watershed plans.
On November 25, 2008, Regional Planning Committee endorsed the
Recommended Growth Scenario and Policy Directions Final Report,
incorporating Council's recommended changes in items 1, 3 and 4 above. The
Directions Report also contained policies on watershed planning addressing item
5, and item 2 was not addressed. Regional Planning Committee also requested
staff to consider permitting mixed uses (including residential) in proximity to
transit centres.
R,-- D 13-09 March 23, 2009
Subject: Region of Durham's Growth Plan Implementation Study:
1 Proposed Amendment Page 5
On the basis of the Final Report and Committee's resolutions, Planning
Committee authorized Regional staff to prepare a Regional Official Plan
amendment to implement the Directions Report.
1.3 In February 2009, the Region of Durham released the proposed Amendment
to the Regional Official Plan incorporating the results from the Region's
Growth Plan review.
On January 26, 2009, Regional staff held a meeting with local municipal staff in
order to discuss the content of the proposed Amendment and to solicit
comments. Although the proposed Amendment was not provided to staff for
review, a broader discussion on the proposed official plan policies took place.
On February 24, 2009, Durham provided Pickering a copy of the "Early Release
of the Public Meeting Report" and the proposed Amendment to the Durham
Regional Official Plan. A copy of the Region's Report and proposed amendment
including attachments is available at www.region.durham.on.ca.
1.4 The Region is convening a series of Public Open Houses and meetings
pertaining to the Proposed Amendment.
In keeping with the November 25, 2008 direction of Regional Planning
Committee to hold a series of public open houses on the proposed Amendment,
a public open house was held in Pickering on March 3, 2009. Copies of the
displays presented at the meeting have been provided to Council for information.
The statutory public open house has been scheduled for March 23, 2009 at
Durham Regional Headquarters. Regional Planning Committee will hold the
statutory public meeting on March 24, 2009. The consultation period will
conclude on March 31, 2009.
1.5 As part of the Growth Plan Implementation Amendment, the Region is
proposing to add new policies supporting food security.
In February 2009, Report 2009-P-17 was received from the Region proposing to
add new policies supporting food security in the proposed Amendment.
The new policies include:
• a new Direction to support food security for all residents;
• recognizing the need for equal access to locally grown food;
protecting prime agricultural areas as a significant element of the Region's
economy and secure source of food; and
0 adding a new 'food security' definition.
Report PD 13-09 March 23, 2009
' 112
Subject: Region of Durham's Growth Plan Implementation Study:
Proposed Amendment Page 6
2.0 Discussion:
2.1 Most of staff's earlier concerns with the Draft Recommended Growth
Scenario and Policy Directions Final Report were addressed in the
Proposed Amendment, although a number of further refinements are
recommended.
Many of the revisions requested in Report PD 42-08 on the Draft Recommended
Growth Scenario and Policy Directions Final Report have been incorporated in
the proposed Amendment as follows:
• the future Employment Areas extended north to the Seventh Concession
Road and south to Highway 7;
• an area south-east of the Pickering airport site designated as future
Employment Areas within the 2031 planning horizon;
• a transportation hub identified at the GO Station in downtown Pickering;
• large format retailing (or retail warehouses) prohibited in all Employment
Areas except were currently permitted in local Official Plans;
• phasing policies added to ensure that residential densities are being achieved
prior to approving sequential secondary plans; and
• the number of jobs increased to 76,720 at 2031 for Pickering including the
35,000 jobs identified by the Central Pickering Development Plan for Seaton.
2.2 Although population forecasts in the near term are optimistic for Pickering,
accelerated growth in the longer term should achieve the 2031 growth
forecasts.
An excerpt from the Population, Household and Employment Table in the
proposed Amendment is shown below for Pickering (also see Attachment #1 -
Population, Households and Employment).
POPULATION, HOUSEHOLDS AND EMPLOYMENT
Municipality Year
2011 2016 2021 2026 2031
Pickering
Urban
Population: 105,850 136,850 173,605 199,960 221,340
Rural Population: 4,230 4,260 4,280 4,305 4,330
Total
Population: 110,075 141,105 177,890 204,265 225,670
Households: 34,860 45,030 58,245 68,110 77,125
Employment: 41,000 54,770 67,910 73,590 76,720
The population forecast indicates that Pickering's population will grow from
110,075 in 2011 to 141,105 in 2016, increasing again to 177,890 in 2021. The
current population for Pickering is 92,800. The Region is forecasting substantial
population growth from 2009 to 2021.
~jp5' Dq 13-09 March 23, 2009
Subject: Region of Durham's Growth Plan Implementation Study:
Proposed Amendment Page 7
The number of building permits for new residential units issued in Pickering in
recent years has been modest with 166 units in 2006, 280 units in 2007, and 245
units in 2008, or 691 units over the past three years. However, it should be
recognized that residential growth has been limited due to the scarcity of
developable lands in south Pickering and the unavailability of provincially-owned
lands until recently with the approval of the Central Pickering Development Plan
in 2006.
The Region's population and employment forecasts for Pickering in the near
term (2016) are considered overly optimistic. However, increased residential
development activity in Seaton after 2016, Pickering's strategically located
employment lands and specific economic drivers including the proposed
Highway 407 extension, the growing Energy Cluster in Durham and the
University of Ontario Institute Technology/Durham College should accelerate
residential and employment growth in the longer term to achieve the 2031
forecasts. The Region has also identified the future proposed Pickering Airport
as a key economic driver. Also, in recognition of these key drivers, the Region is
forecasting an additional 9,090 jobs in Pickering out of 25,000 additional jobs
across Durham on employment lands by 2031 (see Attachment #2- Additional
Forecasted Employment Growth).
2.3 The proposed Amendment designates Future Urban Areas to address the
urban land needs required to accommodate Pickering's forecasted growth
to 2031.
Previously, staff commented that Pickering's 20-year growth targets cannot be
accommodated within its current urban area boundary and identified an urban
land shortfall in less than 20 years. In recognition of Pickering's shortfall, the
Region is proposing designating lands within the "whitebelt" in northeast
Pickering for urban development (see Attachment #3 - Exhibit 4 to the proposed
Amendment) for a combined urban area expansion of 1,234 hectares as shown
in the table below.
Future Urban Lands required by 2031 (gross ha) Potential Future Growth Areas*
2031-2056 (gross ha)
Living Proposed Employment Combined Living Employment Combined
Area Nodes & Areas Area Areas
Corridors
Pickering 630 167 437 1,234 147 304 451
* Title changed to reflect proposed Amendment wording
Source: Growing Durham - Recommended Growth Scenario and Policy Directions Final
Report, dated November 18, 2008, p.48.
Report PD 13-09 March 23, 2009
Subject: Region of Durham's Growth Plan Implementation Study: 114
Proposed Amendment Page 8
With this proposed Amendment, Pickering will have sufficient lands designated
for urban uses up to the Region's planning horizon of 2031. It should be noted
that these new development areas would not be brought on-stream until the
substantial build-out of employment and residential lands in Seaton, and the City
has satisfied the Region's criteria for urban area expansions.
Staff agrees with the proposed regional policy requiring local official plan
amendments for urban area boundary expansions to be part of a comprehensive
municipal official plan review. However, the Region also proposes a related
policy that requires detailed neighbourhood plans for expansion areas to be
prepared as part of that same comprehensive municipal official plan review.
This early timing requirement for detailed neighbourhood plans will unnecessarily
complicate and burden the municipal official plan review process. Rather, staff
recommends that the Region permit local municipalities to designate new urban
areas as 'Urban Study Areas' as part of their comprehensive official plan review.
Detailed neighbourhood planning would be undertaken subsequently, with all
necessary background studies including securing approval of a watershed plan
and addressing all regional and local policy requirements for the expansion area.
A municipally initiated official plan amendment would then be required to
approve the detailed neighbourhood plan. This approach still includes all checks
and balances to ensure proper growth, but does not unnecessarily tie detailed
neighbourhood planning with the higher level comprehensive official plan review
process. This approach is similar to the planning exercise currently being
followed for the Seaton Community.
At this time, the fiscal impact of providing Regional infrastructure to the new
urban areas is not known. However, the Regional Council has committed
funding for the preparation of an Infrastructure and Fiscal Analysis Study to
address infrastructure, transit and servicing costs once final decisions relating to
the proposed Amendment have been made.
2.4 The proposed Amendment identifies Potential Future Growth Areas to
address the urban land needs beyond 2031 to accommodate Pickering's
future population and employment growth.
The proposed Amendment identifies Potential Future Growth Areas of both Living
Area and long term strategic Employment Areas forecasted to 2056 (see
Attachment #4 - Exhibit 10 of the proposed Amendment). As shown in the table
on the previous page, this area comprises 451 hectares.
The Potential Future Growth Areas abut the 2031 urban boundary and support
longer term growth in particular economic investment relating to the strategically
located Employment Areas. These lands beyond the 2031 urban boundary are
not intended for development prior to 2031 and should remain in agricultural use.
Reood RD 13-09 March 23, 2009
1 1 5
Subject: Region of Durham's Growth Plan Implementation Study:
Proposed Amendment Page 9
The longer horizon for the development of lands in northeast Pickering provides
sufficient time to address longer term regional infrastructure needs such as
roads, transit, water and sewers (wastewater) on lands required for future
population and economic investment. A decision has not yet been reached on
how piped services will be provided to northeast Pickering. However, the
Regional Master Water and Sanitary Services Plan is underway to address this
matter. There are two different options for sanitary that would result in different
phasing of development. Thus, phasing policies should coordinate the timing of
development with the Region's servicing strategy and the completion of related
fiscal impact and financing studies.
2.5 A new Urban Growth Centre designation should replace the Regional
Centre designation located in downtown Pickering to support the
objectives of the Growth Plan and the Final Regional Transportation Plan
(Metrolinx).
The proposed Amendment downplays the importance of Pickering's Urban
Growth Centre as a significant centre in the Greater Golden Horseshoe for
transit, infrastructure and employment investments as identified by the Province.
It should be noted that Downtown Pickering and Downtown Oshawa are the only
UGC's identified in Durham Region and are further recognized as Anchor
Mobility Hubs in the Regional Transportation Plan (Metrolinx). These centres are
hubs for accommodating significant intensification, including the highest gross
densities in the Region at 200 residents and jobs per hectare (80 residents and
jobs per acre).
Staff recommends that Council request the Region to replace the Regional
Centre designation with a new Urban Growth Centre designation as shown on
Appendix 1 and that new Urban Growth Centre policies be added as provided in
Appendix III to reflect the higher profile and role served by downtown Pickering.
2.6 A longer term horizon to realize higher densities for Regional Corridors and
in Greenfield Living Areas is required.
A floor space index (FSI) target of 2.5 for non-residential uses and a minimum
average density of 170 residential units per net hectare is proposed for Regional
Corridors in the Lake Ontario Shoreline Urban Areas. Brock Road, Bayly Street,
Whites Road and Kingston Road are identified as Regional Corridors (see
Attachment 3 - Regional Structure). While the objective of achieving this density
for residential and non-residential uses over time is supported, its
implementation will be challenging as this density is significantly higher than
most developments in downtown Pickering, except the Tridel apartments (Picore
office complex is about 0.7 FSI). It is unclear as to whether these density
requirements are to be phased over the longer term (2031) or implemented soon
after Provincial approval.
Report PD 13-09 March 23, 2009
It 116
Subject: Region of Durham's Growth Plan Implementation Study:
Proposed Amendment Page 10
To achieve the density required for Regional Corridors, developments would
generally require underground or decked parking at the outset. Other challenges
include the need for significant investment in community infrastructure and
transit to support increased densities in our downtown and major corridors,
requiring major financial assistance from the Province and Region. Also, within
Regional Corridors, it may necessary to reduce densities at certain locations that
abut lower density neighbourhoods, thereby driving density requirements in other
locations in the Corridor significantly higher.
Proposed policies for Greenfield Living Areas require a minimum average
density of 50 residential units per net hectare. This requirement exceeds the
Growth Plan minimum density target of not less than 50 residents and jobs
combined per hectare.
Also, the proposed density target represents the median of the City's medium
density range (over 30 and up to and including 80 units per net hectare). In
applying this requirement to the greenfield lands outside of the Mixed Corridor
lands, the Region's target would appear to exclude most grade related housing
forms such as single detached dwellings, semis, and townhouses and impose
higher intensity, multi unit housing forms. A true mix of housing forms and
densities for new neighbourhoods including low density appears to be difficult
under the Region's proposed policies.
Staff have contacted Regional staff to meet and discuss the density and housing
form targets for Regional Corridors and Greenfield Living Areas, implementation
of the targets and their relationship to Pickering's urban design objectives for
corridors.
2.7 A new Regional Centre designation should be identified at Salem Road
and the Seventh Concession Road in northeast Pickering to accommodate
future growth at higher densities.
The Region's Recommended Growth Scenario and Policy Directions Final
Report identified a Regional Centre at Salem Road and the Seventh Concession
Road. However, the proposed Amendment does not include a Regional Centre
designation at this location.
A centrally located Regional Centre at this location would provide an opportunity
to accommodate higher residential densities and mixed uses in this sector of the
City and in close proximity to Pickering's strategic Highway 407 employment
lands. Regional Centres are planned as the main concentration of urban
activities providing a fully integrated array of retail, residential, and major office
uses and are a focal point to the surrounding area within which they are located.
Staff recommends that Council request the Region to add the Regional Centre
designation as shown on Appendix I, to reflect its central location in northeast
Pickering to accommodate future growth and development at higher intensities.
Relpol r D 13-09 March 23, 2009
Subject: Region of Durham's Growth Plan Implementation Study:
Proposed Amendment Page 11
2.8 The Regional Corridor overlay and Living Area designation located
between Taunton Road and the C.P. Rail line in Duffin Heights should be
deleted to support the Final Recommendations of the Duffin Heights
Environmental Servicing Plan and Pickering's proposed Amendment for
Duffin Heights.
The proposed Amendment shows a Regional Corridor overlay on Taunton Road
between the municipal boundary of Ajax/Pickering and the C.P. Rail line. The
area of land along this portion of Taunton Road is designated as Living Area.
The Pickering Official Plan designates this area of land located between Taunton
Road and the C.P. Rail line in Duffin Heights as Prestige Employment. Council
endorsed the Final Recommendations of the Duffin Heights Environmental
Servicing Plan that confirmed the area as part of the larger Duffins Creek Natural
Heritage System supporting wildlife connectivity between Seaton and Duffin
Heights/A9 Ajax Community Plan.
The City's proposed Amendment for the Duffin Heights Neighbourhood
designates the area as a Natural Areas consistent with the environmental
analysis conducted for the Environmental Servicing Plan.
Staff recommends that Council request the Region to delete the Regional
Corridor overlay on that portion of Taunton Road in Duffin Heights in conjunction
with replacing the Living Area to Major Open Space Areas as shown on
Appendix I, to reflect Council's endorsement of the Environmental Servicing
Plan.
2.9 A transportation hub symbol should replace the commuter station symbol
located at the future GO Station in the Seaton community to support the
community objectives of the Central Pickering Development Plan (for Seaton)
and the Regional Transportation Plan (Metrolinx).
The proposed Transit Priority Network Schedule shows a commuter station
symbol at the future GO Transit Station in the Seaton community (see
Attachment #5). Both the Central Pickering Development Plan and Regional
Transportation Plan (Metrolinx) identify a mobility hub of major activities including
mixed-use and higher density development at the future GO Transit Station in
Seaton.
Staff recommends that Council request the Region to replace the Commuter Station
symbol located at the future GO Station with a Transportation Hub symbol as
shown on Appendix II to reflect the community objectives of both the Central
Pickering Development Plan (for Seaton) and the Regional Transportation Plan.
Report PD 13-09 March 23, 2009
118
Subject: Region of Durham's Growth Plan Implementation Study:
Proposed Amendment Page 12
2.10 A number of refinements are recommended to provide clarity to policies
and to add or revise policies to support the City's comments provided in
this Report.
Many of the issues previously raised by staff on the draft Directions Report have
been addressed in the proposed Amendment. Staffs comments on the policies
of the proposed Amendment are provided for Council's review and endorsement
(see Appendix III). A technical revision of adding the Regional Corridor overlay
along Brock Road between the Highway 401 interchange and Bayly Street is
also recommended.
2.11 The proposed food security policies promoting access to quality food for
residents and protecting agricultural land as a secure source of food is
supported.
The addition of the food security policies to the final Growth Plan Amendment to
specifically recognize food security for all residents and to provide convenient
access to healthy and locally grown food is supported.
Staff continues to support the role of the GTA Agricultural Action Committee and
other agricultural organizations to help build a healthy local food-based
economy and to assist the farming community in making available fresh locally
grown produce and other healthy foods at farmer's markets, community gardens
and grocery stores. It should be noted that Pickering has a significant
agricultural land base with approximately 47% of the City's land area within the
Greenbelt Plan.
3.0 Next Steps
3.1 Following the Statutory Public Meeting, it is expected that Regional
Planning staff will prepare a revised version of the proposed Amendment
for Planning Committee consideration on May 19, 2009 with Regional
Council adoption anticipated on June 3, 2009.
Following receipt of comments from area municipalities, other stakeholders and
the public including the comments made at the March 24, 2009 public meeting,
Regional Planning staff will refine the proposed Amendment for Planning
Committee consideration on May 19, 2009 with Regional Council adoption on
June 3, 2009. The amendment will be forwarded to the Province for approval.
3.2 Due to the timing of the Region's approval of the proposed Amendment, an
extension to the Provincial Growth Plan's June 16, 2009 deadline for
official plan conformity is required.
The City is also required to bring its Official Plan into conformity with the
Provincial Growth Plan by June 16, 2009.
Rjp?r~PD 13-09 March 23, 2009
Subject: Region of Durham's Growth Plan Implementation Study:
Proposed Amendment Page 13
As part of the City's Official Plan review process, staff intends to implement the
approved Regional Official Plan Amendment. Pickering will not be in a position
to bring its Official Plan into conformity by the deadline date. Therefore, Council
must request the Minister of Energy and Infrastructure to extend the conformity
submission deadline to June 16, 2010.
APPENDICES:
I Revised Exhibit 4 to proposed Regional Amendment, Schedule 'A' - Map 'A4',
Regional Structure
II Revised Exhibit 8 to proposed Regional Amendment, Schedule 'C' - Map 'C3',
Transit Priority Network
III Excerpt of Proposed Regional Official Plan Amendment Policies with Pickering
Staff Comments
ATTACHMENTS:
1. Population, Households and Employment from proposed Regional Amendment
2. Additional Forecasted Employment Growth included in Regional Amendment
3. Exhibit 4 to proposed Regional Amendment, Schedule 'A' - Map 'A4', Regional
Structure
4. Exhibit 10 to proposed Regional Amendment, Schedule 'F' - Specific Policy
Areas D, Potential Future Growth Areas
5. Exhibit 8 to proposed Regional Amendment, Schedule 'C' - Map 'C3', Transit
Priority Network
6. Exhibit 11 to proposed Regional Amendment, Schedule 'E'- Table 'E9',
Intensification Targets
Report PD 13-09 March 23, 2009
Subject: Region of Durham's Growth Plan Implementation Study: 17 01
Proposed Amendment Page 14
Prepared By: Approved/Endorsed By:
~~t'A
Grant McGregor, MCIP, PP Neil Carroll, P
Principal Planner - Policy Director, Planning & Development
Catherine Rose, MCIP, RPP
Manager, Policy
GM:jf
Copy: (Acting) Chief Administrative Officer
Chief Administrative Officer
Director, Corporate Services & Treasures
Director, Operations & Emergency Services
Division Head, Municipal Property & Engineering
Recommended for the consideration
of Pickering City Council
(14eA ko~ 0
Thomas J. Qui n, RDMR, CMM III
Chief Administrative Officer
t 1 21 APPENDIX I TO
REPORT PD 13-09
REVISED EXHIBIT 4 TO PROPOSED REGIONAL AMENDMENT
SCHEDULE `A' - MAP `A4', REGIONAL STRUCTURE
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REPORT PD 13-09
REVISED EXHIBIT 8 TO PROPOSED REGIONAL AMENDMENT
SCHEDULE `C' - MAP `C3', TRANSIT PRIORITY NETWORK
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APPENDIX III TO
REPORT PD 13-09
125
EXCERPTS OF PROPOSED REGIONAL OFFICIAL PLAN
AMENDMENT POLICIES
126
Appendix III to Report 13-09
EXCERPTS OF MAJOR POLICIES FROM PROPOSED
GROWING DURHAM REGIONAL OFFICIAL PLAN AMENDMENT
New
Item Section Details of Policy Amendment Pickering Staff Comments
No.
1. 1.1.1 a) Delete the word "target" and replace with "and Agree.
employment forecasts".
Delete the phrase "2021 is 970,000" and replace
with "2031 are 960,000 and 350,000 respectively,
consistent with the Growth Plan for the Greater
Golden Horseshoe".
2. 1.2.1 e) Add the phrase "healthy and complete sustainable Agree with adding the words
communities within" after "to create". "sustainable communities".
3. 1. 3.1 e) Add the phrase "healthy and" before "complete". Agree.
Add the word "sustainable" after "complete".
4. 1. 3.1 g) Add the phrase "and support active transportation" Agree.
at end of the sub-section.
9. 3.2.2 Add the phrase "healthy and " before "complete". Agree.
Add the word "sustainable" before "communities".
10. 3.3.5 Delete policy in its entirety and replace with the Agree.
following:
"The Region shall monitor progress in achieving
the employment forecasts included in Policies 7.3.3
and 7.3.4, and the target ratio of jobs to population
of 50% (1 job for every 2 persons)."
15. 3.3.10 Add a new policy to read as follows: Agree. These key economic drivers
"This Plan recognizes the importance of key have the potential to facilitate and
economic drivers that will influence the future attract desired investment for
growth and development of the Region, including Durham and Pickering.
UOIT/Durham College, Highways 401 and 407,
Clarington Energy Park, the Darlington nuclear
facility and future airport in Pickering."
18. 5.2.1 Add the following sentence at the end of the policy: Agree. These types of facilities are
more appropriately located along
"Cultural and health facilities shall generally be Regional Corridors or in Regional
discouraged from locating in the Employment Centres.
Areas designation, subject to Policy 8C.2.2."
19. 5.2.2 Add the following sentence to the end of the policy: Agree.
"Community facilities that are deemed to be
sensitive uses shall generally be discouraged from
locating in the Employment Areas designation,
subject to Policy 8C.2.2."
127
New
Item Section Details of Policy Amendment Pickering Staff Comments
No.
24. 5.3.12 b) Add the words "Urban Growth Centres," after Agree.
"provision of services to".
36. 7.3.4 Add a new policy to read as follows: Agree with allocating 9,090 jobs of
the additional forecasted
"The population and employment forecasts outlined employment of 25,000 jobs to
in Policy 7.3.3 are consistent with Schedule 3 of Pickering in recognition of the City's
the Provincial Growth Plan for the Greater Golden strategically located employment
Horseshoe. However, this Plan recognizes the lands.
potential for the Region to accommodate up to an
additional 25,000 jobs by 2031 in accordance with
the following:"
Add the "ADDITIONAL FORECASTED
EMPLOYMENT" Table included at the end of Table
A.
37. 7.3.5 Add a new policy to read as follows: Agree with the target ration of 1 job
"Notwithstanding the employment forecasts in for every 2 persons.
Policies 7.3.3 and 7.3.4, the Region continues to
support a target ratio of jobs to population of 50%
(1 job for every 2 persons) in accordance with
Policy 3.2.2.".
39. 7.3.6 Delete the Policy in its entirety and replace with a Agree.
new policy to read as follows:
"The land base required to accommodate the
population and employment forecasts outlined in
Policies 7.3.3 and 7.3.4, for the Lake Ontario
shoreline municipalities, capitalizes on the
economic potential of the Highway 407
transportation corridor.".
40. 7.3.7 In the first sentence: Agree.
• delete the word "The" at the beginning and
replace with "This Plan recognizes that growth
in the"; and
• delete the word "in" after "Urban Areas" and
replace with "of'.
Delete the second sentence in its entirety.
In the third sentence:
• delete the phrase "additional population and/or
employment land equivalents may be allocated
and", and replace with "the boundaries of";
• delete the word "Area" after "the Urban" and
replace with "Areas may be";
• delete the phrase "of this Plan or an area
municipal official plan";
• add references to Policies "73.3, 7.3.4, 7.3.12"
after "5.3.20"; and
12
New
Item Section Details of Policy Amendment Pickering Staff Comments
No.
• delete reference to Policy "7.3.11" and replace
with 7.3.13".
Add the following sentence at the end of the policy:
"Any remaining population and employment
forecast allocation will be held in reserve for the
respective municipality, and shall not be
reallocated."
45. 7.3.10 Add a new policy to read as follows: Agree. However, the Region should
be supporting intensification in local
"Urban Areas shall be planned to achieve the municipalities by investing
following growth management objectives: significantly in infrastructure, transit
and active transportation.
a) by 2015, and each year thereafter,
accommodate a minimum 40% of all residential
development through intensification within
built-up areas, in accordance with Schedule E
- Table 'E9';
b) develop greenfield areas in the Lake Ontario
Shoreline municipalities at a minimum gross
density of 50 persons and jobs combined per
hectare; and
c) accommodate a minimum 50% of all forecast
employment in designated Employment
Areas."
47. After "Future", add the word "Regional" in the Agree.
heading "Future Urban Area Boundary
Expansions".
48. 7.3.12 Add the phrase "on Schedule 'A' - Regional Agree.
Structure" after "Urban Area boundaries".
Delete the punctuation and phrase Upon
consideration of an amendment to permit additional
growth beyond the limits of the Urban Areas,
Regional Council shall have", and replace with
"having".
51. 7.3.12 g) Add a new sub-section to read as follows: Agree with policy to restrict the
conversion of Employment Area
"the ability to provide for a minimum 10-year lands to accommodate unmet
housing and employment land needs, with logical population.
and sequential development patterns. Where an
area municipality has a fixed Urban Area
Boundary, this policy shall not be construed to
provide justification for Employment Area
designation conversions to accommodate unmet
residential unit demand on an area municipal
basis;"
1?9
New
Item Section Details of Policy Amendment Pickering Staff Comments
No.
62. 7.3.13 e) Add a new sub-section to read as follows: Agree in principle with the
secondary or neighbourhood
"a secondary plan is prepared, based on the planning process. However, the
following: policy should be flexible to consider
the neighbourhood planning process
i) an approved watershed plan; outside a comprehensive municipal
official plan review process.
ii) the area is sufficiently large to create a
new community, or to round out an It is recommended that the policy be
existing community; revised as follows:
"e) A secondary plan may be
iii) the area is contiguous to an existing prepared either as part of a
Urban Area; comprehensive review of the
area municipal official plan or as
iv) sequential development; part of a municipal official plan
amendment process provided
v) the area is serviceable by full the urban expansion area has
municipal water and sanitary been designated as a Urban
sewerage systems; Study Area as part of the
comprehensive review, based
vi) environmental impact studies, in on the following:"
accordance with Policy 2.3.42;
vii) the growth management objectives of
Policy 7.3.10; and
viii) prescribed unit mixes and minimum
and/or combined densities;"
7.3.13 f) Add a new sub-section to read as follows: Agree with the policy to require
minimum medium and high density
"secondary plan areas shall be developed to 75% units to be built prior to approving
of their planned dwelling unit capacity, with a development in adjacent greenfield
minimum of 25% of the medium and high density neighbourhoods.
units, prior to the approval of development in
adjacent secondary plan areas;"
66. 7.3.13 Add the following paragraph to the end of the Agree. However, the policy is not
policy: clear and should be rewritten.
"This policy will not serve to restrict the expansion
of an area municipal urban area boundary, where
the area municipal comprehensive review
demonstrates that the municipality is moving
significantly toward achieving the growth
management objectives of Policy 7.3.10."
130
New
Item Section Details of Policy Amendment Pickering Staff Comments
No.
74. 8A.2.2 a) Delete the phrase "community, office, service and Disagree. The proposed policy
shopping, recreational and residential uses" and does not implement the Growth Plan
replace with "commercial, major retail, residential, policies for Urban Growth Centres.
recreational, cultural, government and major office
uses". It is recommended that Policy 8A.2.2
a) become b) and a new a) be
provided as follows:
"Centres shall be classified in
hierarchy of functions as follows:
a) Urban Growth Centres shall be
planned to:
i) serve as the dominant
concentration for local,
regional and provincial
investment in institutional
and region-wide public
services as well as
commercial, recreational,
cultural, residential and
entertainment uses;
ii) accommodate and support
major transit infrastructure;
iii) serve as the highest density
of major employment uses
in the Region; and
iv) accommodate a significant
share of regional population
and employment growth;
b) Regional Centres shall be
planned and developed in
accordance with Policy 8A.1.2 as
the main concentrations of urban
activities within area
municipalities, providing a fully
integrated array of commercial,
major retail, residential,
recreational, cultural,
government and major office
uses. Generally, Regional
Centres shall function as places
of symbolic and physical interest
for the residents, and shall
provide identity to the area
municipalities within which they
are located."
131
New
Item Section Details of Policy Amendment Pickering Staff Comments
No.
91. 8A.2.3 Add a new policy to read as follows: Agree. However, it is not clear to
what a)ii) is referring to - 80% of all
"Centres shall be planned to accommodate the planned units to be of high density
following: form; or 80% of all residential areas
to be designated high density; or
a) Urban Growth Centres (downtown Oshawa 80% of all urban growth centre lands
and downtown Pickering): must be high density residential.
i) density of 200 persons and jobs A similar clarification is required in
combined per gross hectare; other subsections in section 8A.2.3
ii) minimum 80% high density residential; where similar policy phrasing is
and used.
iii) Minimum floor space index of 3.0 for
non-residential uses;
b) Regional Centres (Lake Ontario Shoreline
Urban Areas):
i) minimum average density of 170
residential units per net hectare;
ii) minimum 80% high density residential;
and
iii) minimum floor space index of 2.5 for
non-residential uses;
c) Regional Centres (Beaverton, Cannington,
Sunderland, Uxbridge, Port Perry and Orono);
i) minimum average density of 30
residential units per net hectare; and
ii) maximum 50% low density residential;
d) Local Urban Centres (Lake Ontario Shoreline
Urban Areas):
i) minimum average density of 65
residential units per net hectare;
ii) minimum 10% high density residential;
iii) minimum floor space index of 2.0 for
non-residential uses; and
e) Local Community and Neighbourhood Centres:
as determined in area municipal official plans."
132
New
Item Section Details of Policy Amendment Pickering Staff Comments
No.
101. 8A.2.12 Add a new policy to read as follows: Agree in principle. However,
Regional Corridor density and
"Corridors that are associated with Living Areas, in housing form targets are unlikely to
accordance with Section 86, be planned to be achieved in the near term and
accommodate the following: should be phased over the longer
term (2031). Further clarification
a) Regional Corridors: required.
i) minimum average density of 140
residential units per net hectare;
ii) minimum 60% high density residential;
iii) minimum floor space index of 2.5 for
non-residential uses; and
iv) ultimate build-out, to demonstrate that
higher density targets would
not be precluded;
b) Local Corridors:
i) minimum average density of 65
residential units per net hectare;
ii) minimum 10% high density residential;
and
iii) minimum floor space index of 2.0 for
non-residential uses.
102. 8A.2.13 Add a new policy to read as follows: Agree.
"Regional Corridors that are associated with
Employment Areas, in accordance with Section 8C,
shall be planned to accommodate a minimum
average density of 40 employees per net hectare.
Employment Area uses with the greatest potential
for high employee densities are encouraged to
locate along Regional Corridors."
111. 86.2.3 Add a new policy to read as follows: Agree in principle. However,
Greenfield Living Areas target would
"Greenfield Living Areas, not subject to the higher exclude most grade related housing
density provisions of Section 8A for Centres and forms such as single detached
Corridors shall be planned to accommodate the dwellings, semis, and townhouses
following: and impose higher intensity, multi
a) Lake Ontario Shoreline Urban Areas: unit housing forms. Further
clarification required.
i) minimum average density of 50
residential units per net hectare; and
ii) maximum 70% low density residential;
b) Other Urban Areas:
i) minimum average density of 20
residential units per net hectare; and
ii) maximum 75% low density residential."
133
New
Item Section Details of Policy Amendment Pickering Staff Comments
No.
122. 8C.2.2 Add a new policy to read as follows: Agree.
"Residential uses shall not be permitted in
Employment Areas. Other sensitive uses may be
permitted as an exception, subject to applicable
policies in area municipal official plans."
137. 8C.2.14 Add a new policy to read as follows: Agree
"Limited personal service and retail uses, serving
the immediate Employment Area may be permitted
as a minor component, provided that such uses do
not exceed 10% of the aggregate gross floor area.
In any case, a single use shall not exceed 500 mz,
subject to the inclusion of appropriate provisions in
the area municipal official plan and/or zoning by-
law."
140. 8C.2.16 Delete the policy in its entirety and replace with.. Agree with prohibiting major retail
"Major retail uses shall not be permitted in uses within Employment Areas as
Employment Areas, except where currently these use are more appropriately
designated as a permitted use in an area municipal located within Regional Centres. It is
official plan. " unclear as why supermarkets and
department stores are excluded in
the definition of major retail use.
These uses should not permitted in
the Employment Areas.
143. 8C.2.17 Delete the policy in its entirety and replace with: Agree with Employment Area land
"The conversion of Employment Areas lands shall conversions being part of a
only be considered through a municipal municipal comprehensive review.
comprehensive review pursuant to the provisions of
the Growth Plan for the Greater Golden
Horseshoe. In the case of a downtown area or a
regeneration area, re-designations shall be
considered through a comprehensive review
pursuant to the provisions of the Provincial Policy
Statement."
144. 8C.2.18 Add a new policy to read as follows: Agree.
"Decisions of Regional Council to refuse
applications, or non- decisions of Regional Council
on applications, for the conversion of Employment
Areas, shall not be subject to appeal to the Ontario
Municipal Board, pursuant to the Plannin Act."
173. 11.3.18 Add the following sentence to the end of the policy: Agree in principle. However, there
"For the purposes of this Policy, development is minimal policy support for
adjacent to a Transportation Hub or Commuter transportation hubs. Recommend
Station shall be within a 500 metre radius of the that the transportation policies be
station." enhanced once the Regional
Transportation Plan is approved.
134
New
Item Section Details of Policy Amendment Pickering Staff Comments
No.
190. 14.10.2 Add a new policy to read as follows: Agree with the Regional monitoring.
"The Region, in consultation with the area
municipalities will monitor the following key growth
management objectives on a regular basis:
a) employment forecasts coincident with the
release of relevant Census of Canada
information, and updates to the Growth
Plan for the Greater Golden Horseshoe;
b) the achievement of the minimum
intensification rates for each area
municipality, as detailed in Schedule E -
Table'E9' and the overall Regional target
of 40% intensification overall within the
built-up area, including the following key
growth areas:
i) Regional and Local Centres;
ii) Regional and Local Corridors; and
iii) Waterfront Places;
C) the achievement of the overall 50 people
and jobs combined per gross hectare in
greenfield areas; and
d) the achievement of the increasing densities
in the Urban Growth Centres of Oshawa
and Pickering, in relation to the combined
density of 200 people and jobs per gross
hectare.
ATTACHMENT#~-TO
REPORT# PD i 3 ® 9 135
POPULATION, HOUSEHOLDS AND EMPLOYMENT FOR THE LAKE ONTARIO
SHORELINE MUNICIPALITIES
Municipality Year
2011 2016 2021 2026 2031
Aiax
Urban Population: 110,525 125,475 131,465 135,000 136,795
Rural Population: 825 835 850 860 875
Total Population: 111,350 126,310 132,310 135,860 137,670
Households: 34,500 40,100 42,895 44,620 45,845
Employment: 34,800 40,660 46,280 48,560 49,290
Clarington
Urban Population: 72,700 81,660 92,630 111,910 124,685
Rural Population: 15,275 15,380 15,465 15,565 15,655
Total Population: 87,980 97,040 108,095 127,475 140,340
Households: 30,230 34,030 39,175 46,590 52,125
Employment: 22,580 26,890 32,130 36,080 38,410
Oshawa
Urban Population: 152,560 164,345 173,640 183,395 195,935
Rural Population: 1,020 1,035 1,045 1,055 1,065
Total Population: 153,580 165,380 174,685 184,450 197,000
Households: 59,105 64,540 70,420 75,660 82,595
Employment: 68,270 75,290 84,660 86,940 90,800
Pickering
Urban Population: 105,850 136,850 173,605 199,960 221,340
Rural Population: 4,230 4,260 4,280 4,305 4,330
Total Population: 110,075 141,105 177,890 204,265 225,670
Households: 34,860 45,030 58,245 68,110 77,125
Employment: 41,000 54,770 67,910 73,590 76,720
Whitby
Urban Population: 122,930 138,545 154,815 177,045 190,760
Rural Population: 2,055 2,070 2,080 2,090 2,100
Total Population: 124,985 140,615 156,895 179,140 192,860
Households: 41,700 47,745 55,235 64,565 71,645
Employment: 40,840 47,800 56,740 65,260 71,300
DURHAM
Urban Population: 592,715 676,855 757,065 840,770 905,375
Rural Population: 51,265 52,170 52,920 53,800 54,605
Total Population: 643,980 729,025 809,985 894,570 960,000
Households: 220,635 253,300 289,515 324,955 356,645
Employment: 225,530 265,100 308,980 332,900 350,000
Notes:
1. Totals may not add precisely due to rounding.
2. The population and employment forecasts for Pickering include an
allocation of 70,000 people and 35,000 jobs for Seaton, in accordance with
the Central Pickering Development Plan.
3. Durham Urban, Rural and Total Population includes Brock, Scu o and Uxbrd e
ATTACHMENT#-L_-TO
136 REPORT# PD Q 5
ADDITIONAL FORECASTED EMPLOYMENT
Municipality Year
2011 2016 2021 2026 2031
Ajax - - - -
Brock - - - 300 550
Clarington - - - 1,490 2,680
Oshawa - - - 4,280 6,100
Pickering - - 990 4,380 9,090
Scugog - - - 300 540
Uxbridge - - - 280 500
Whitby - - - 3,100 5,800
DURHAM - - 990 141130 25,000
Note: Totals may not add precisely due to rounding.
ATTACHMENT#TO
REPORT# PO 02 137.
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9EPORT# PD v i EXHIBIT 8 TO REGIONAL 139
OFFICIAL PLAN AMENDMENT
NO.
OFFICIAL PLAN OF THE
REGIONAL MUNICIPALITY
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SCHEDULE 'C' - MAP 'CY
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ATTACHMENT -L-TO
REPORT# PD "
140
EXHIBIT 11 to REGIONAL OFFICIAL PLAN AMENDMENT NO.
Schedule E - Table 'E9'
Intensification Allocations, 2015 - 2031
TOTAL UNIT UNITS % OF MUNICIPAL % OF REGIONAL
MUNICIPALITY GROWTH ALLOCATED TO TOTAL TOTAL
INTENSIFICATION
Ajax 7,987 4,343 54% 9%
Brock 1,321 306 23% 1 %
Clarington 19,616 6,181 32% 13%
Oshawa 20,229 7,934 39% 17%
Pickering 36,163 14,354 40% 31%
Scugog 1,908 576 30% 1 %
Uxbridge 2,870 1,042 36% 2%
Whitby 26,316 11,963 45% 26%
DURHAM 116,411 46,699 40% 100%