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HomeMy WebLinkAboutPD 11-10 City 00 Report to Planning & Development PICKERING Committee Report Number: PD 11-10 22 Date: May 3, 2010 From: Neil Carroll Director, Planning & Development Subject: Growth Strategy Program (Part of the Pickering Official Pan Review) and the Province's Draft Decision on Region of Durham's OPA 128 File: D-2000-012 Recommendation: 1. That Report PD 11-10 of the Director, Planning & Development respecting the Pickering Growth Strategy Program and the Province's Draft Decision on the Region of Durham's OPA 128, be received for information; and 2. Further, that Report PD 11-10 be forwarded to Ministries of Municipal Affairs, Housing and Energy and Infrastructure and the Region of Durham . Executive Summary: The Pickering Growth Strategy Program is intended to inform the City's Conformity Amendment that will establish a policy framework directing residential intensification and employment growth to appropriate places at higher densities. Public consultation intended to engage the public, development industry and commenting agencies, was initiated with a first round of information open houses held in February 2010. A second round of Growth Strategy Program open houses are tentatively scheduled for June 2010. The Region of Durham's Growth Plan Conformity Amendment 128 was adopted by Regional Council on June 3, 2009 and submitted to the Province for approval. On March 12, 2010 the Ministry of Municipal Affairs and Housing released a draft decision on Regional Amendment 128 (see Letter, Attachment #1). The draft decision contains draft modifications to address the Province's concerns and ensure conformity with the Growth Plan and other applicable provincial plans and policies such as the Central Pickering Development Plan. A copy of the draft modifications was forwarded to Council via email on March 23, 2010. The delay in approval of the Region's amendment has implications for Pickering's Growth Strategy Program and conformity amendment. Staff recommends that this Report be forwarded to the Ministries of Municipal Affairs and Housing and Energy and Infrastructure informing the Ministry of the City's intention to continue with its Growth Strategy Program and to prepare an amendment once the Region's amendment is approved. Report PD 11-10 May 3, 2010 Subject: Pickering Growth Strategy Page 2. 23 Financial Implications: No direct implications from reporting on the status of the Growth Strategy Program and the Region of Durham Official Plan Amendment 128. Sustainability Implications: The Pickering Growth Strategy Program supports the City's economic, environmental and social lenses by utilizing land more efficiently within the built-up areas of the City in order to accommodate significant population and employment growth. 1.0 Background 1.1 The City is implementing the Province's Growth Plan for the Greater Golden Horseshoe through the study entitled "Growth Strategy Program" The Pickering Growth Strategy Program is intended to inform the City's Conformity Amendment that will establish a policy framework directing employment growth and residential intensification at higher densities to appropriate places. On October 19, 2009, Pickering Council authorized the use of Young+Wright/IBI Group Architects to assist City staff leading the Growth Strategy Program in demonstrating through illustrations, pictures and images, the recommended densities in ROPA 128 for regional centres and corridors. In accordance with the Provincial Growth Plan, ROPA 128 requires on a Region- wide basis, by 2015 and each year thereafter, that a minimum 40 percent of Durham's total residential growth occur within the defined built boundary. ROPA 128 requires the City to accommodate a total of 36,163 new units between 2015 and 2031, of which 14,354 units (or 40 percent) is to be intensification within the City's built boundary. Watson & Associates Economists Ltd. have been retained to investigate and evaluate the characteristics of Pickering's future housing demand, in an effort to ensure a suitable supply and range of housing types within the built-up area to meet Pickering's intensification target of 40 percent. 1.2 First round of Pickering's Growth Strategy Program open houses were held on February 17th and 18th, 2010, and the study is proceeding with Phase 2 Public consultation engaging the public, development industry and commenting agencies, was initiated with a first round of information open houses held February 17th and 18th at the Civic Centre and the Agape Temple, respectively. There were over forty visitors who attended the two open houses. In addition, an open house was held for students from Dunbarton High School in the grade 11 Urban Watershed Science Course on March 8th at the Library Auditorium. Exhibit boards displaying maps, architectural renderings and conceptual site plans outlined the objectives of the Growth Strategy Program, described issues and opportunities of intensification, and identified areas within Pickering that are considered at this early stage to be most appropriate for intensification. Copies of these exhibit boards are available on the City's webs i to Report PD 11-10 May 3, 2010 Subject: Pickering Growth Strategy Page 3 24 Visitors to the open houses were asked to complete comment sheets. Overall, the comments were supportive of the intensification in the Downtown and Kingston Road areas (see Attachment #2). Other comments included the need for improved public transit and recreation facilities, infrastructure improvements supporting intensification, and ensuring a transition between existing low density residential and future intensification areas. A second round of information open houses. is planned for June where comments and/or issues raised at the first public open house will be addressed. Also to be available at the open house will be the preliminary findings of the housing and demographic review underway by Watson & Associates Economists Ltd. and preliminary policy directions prepared by Young+Wright/IBI Group Architects. 1.3 Ministry of Municipal Affairs and Housing has issued a draft decision on the Region of Durham Official Plan Amendment 128 identifying concerns with the Amendment Region of Durham Official Plan Amendment 128 (ROPA 128) was adopted by Regional Council on June 3, 2009 and submitted to the Province for approval. On March 12, 2010 the Ministry of Municipal Affairs and Housing (MMAH) released a draft decision on ROPA 128 (see Letter, Attachment #1). The Province's draft decision states that while ROPA 128 contains many policies which help the Region achieve the Growth Plan's vision, there are several fundamental issues which are of concern. A key concern is that the land budget overestimates the amount of land needed to accommodate the growth forecast for the Region and is based on assumptions inconsistent with the Growth Plan. Other concerns include: • ROPA 128 and its analyses are based on employment numbers in excess of what is forecast in the Growth Plan; • adding employment lands without justification; • employment numbers for Seaton are lower than what is forecast in the Central Pickering Development Plan (CPDP) (i.e. 35,000 jobs); • certain existing designated and approved residential lands have been excluded from the land supply analysis; • certain infrastructure have been netted out of the greenfield density calculations; • the proposed proportion of single and semi-detached housing in the designated greenfield areas appears high to achieve compact, transit-supportive built form; and • a comprehensive infrastructure and fiscal analysis of the recommended growth scenario was not undertaken (the Region's infrastructure and fiscal analysis is in preliminary stages). Report PD 11-10 May 3, 2010 Subject:. Pickering Growth Strategy Page 4 25 Given the above concerns, MMAH does not support the proposed urban expansion areas. Modifications are proposed to remove urban area expansions in Pickering, Oshawa and Clarington; a reduction of 25,000 jobs; and the allocation of 35,000 jobs in Seaton by 2031. The draft decision contains draft modifications to ROPA 128 to address the Province's concerns and ensure conformity with the Growth Plan and other applicable provincial plans and policies such as the CPDP. Upon receipt of the Region's input regarding the proposed draft modifications, the Ministry will. be in a position to finalize its approval of ROPA 128. The Ministry's decision is appealable to the Ontario Municipal Board. 2.0 Discussion 2.1 MMAH's proposed modifications have implications for Pickering The following proposed modifications have implications for Pickering (MMAH's comment for the modification is provided in the parenthesis): • delete northeast Pickering expansion area (the Region overestimated the need for additional living area lands); • allocate 35,000 jobs instead of 16,500 jobs to Seaton in accordance with the CPDP (Region's land budget must be revised to match the forecasts in the CPDP); • delete the additional 25,000 jobs forecasted from the land budget methodology (the Region's land budget must be revised to match the forecasts in Schedule 3 of the Growth Plan); • add phasing and intensification policies (results in sequential and orderly development of existing greenfield areas prior to approving of draft plans of subdivision in new greenfield areas); • requiring a minimum density target across the entire Region (achieves the objective of creating compact and transit supportive communities); and • add Seaton Natural Heritage System policies and roads/transportation system (implements, in part, the CPDP). 2.2 The Region is reviewing MMAH's draft decision and will be reporting to Regional Planning Committee A brief overview by Regional planning staff of the Ministry's letter was provided at the March 16th Regional Planning Committee meeting. Regional planning staff will complete their review of the draft decision and engage in further dialogue with the Province to provide clarity on key aspects of ROPA 128. Report PD 11-10 May 3, 2010 Subject: Pickering Growth Strategy Page 5 26 Regional staff propose to meet with Provincial staff at the end of April after which the Region will convene meetings with the area municipalities. Regional planning staff intends to report to Regional Planning Committee in June with a response to the Minister's proposed draft modifications to ROPA 128. City staff will continue monitoring, this matter and report to Council as more information becomes available. 2.3 Implications of the draft decision for the City's Growth Strategy Program The Province required both the Region"and City to bring their Official Plans into conformity with the Growth Plan by June 16, 2009. Pickering's conformity amendment is required to be in conformity with both ROPA 128 and the Growth Plan. Due to the timing of Regional Council's adoption of ROPA 128 in June 2009, the Minister of Energy and Infrastructure (MEI) extended the submission deadline for Pickering's conformity amendment to June 16, 2010. While there is a. recent draft decision on ROPA 128, the delay in approval of ROPA 128 makes the completion of Pickering's conformity amendment problematic. Approval of ROPA 128 is expected sometime after Pickering's deadline of June 16, 2010. An amendment containing only the principles of the Growth Plan (such as: minimum population, employment and intensification targets; identification of the built boundary, the urban growth centre, and intensification corridors; and general policies to facilitate and promote intensification) could be prepared for City Council adoption. However, such an amendment would not provide Pickering with direction regarding specific density targets, identification of intensification areas, the appropriate type and scale of development, and appropriate minimum density targets tailored for intensification areas and the urban growth centre. This level of detail is essential to the ability of the public and other stakeholders to understand and comment effectively on the amendment. Greenfield areas in Pickering such as Duffin Heights and Seaton are already planned or are being planned to comply with the Growth Plan's minimum density target of 50 persons and jobs combined per hectare. 2.4 Staff will monitor the approval of ROPA 128 and recommend that this Report be forwarded to the Ministries of Municipal Affairs and Housing, Energy and Infrastructure and the Region of Durham City staff is working toward the second round of Growth Strategy Program open houses tentatively scheduled for June 2010. More detailed - information regarding appropriate densities, heights and built form, housing demand and demographics will be presented. Report PD 11-10 May 3, 2010 Subject: Pickering Growth Strategy Page 6 27 Following the approval of ROPA 128, staff will prepare a draft conformity amendment for a statutory open house and public meeting. Staff is targeting early 2011 for this meeting. The Municipality of Clarington and the City of Oshawa have both requested an extension to their conformity amendment submission deadline. Staff recommends that a copy of this Report be forwarded to MMAH, MEI and the Region of Durham, informing them of the status of the City. Attachments: 1. Ministry of Municipal Affairs and Housing draft decision, Region of Durham Amendment No. 128, March 13, 2010 2. Public Open House and Information Session #1, Comment Chart Prepared By: Approved/Endorsed By: Deborah Wy e, P, RPP Ne Carr P, RPP Senior Planner - P licy Director, P anning & Development Catherine Rose, MCIP, P Manager, Policy DW:Id Copy: Chief Administrative Officer Recommended for the consideration of Pickering City Coun ' T s J. Quinn, R MR, MM III Chief Administrative Officer i ATTACHMENT # TO _ 28 Ministry of Ministers des tvlun;eipal Affairs Af sires nluniciPales and Housing el du L€ Bement mun4iPaRts. Ontario TI . t a 77, B ON r'ii l } Top t 2F-0!,,r:,. , 4`C-ciIqI_f2116 belep[mne: 4ib S~!6 22 4x Toll F ee: F$ dl Sans irais'< C? uz 9010 March 12, Mr. Alex GeorgEeff, MCIP, RPP Cornrrn!ssicner of Plannin The Regional Mut,fcipality of Durham ?1,a -tints Departrt - rat 605 Ro sland Foai i L- 'Floor P.O. Box 624 WNttbyON UN 6A3 Clear Mr, Georgieff; Subject: Growing lW wrham Study and Amendment No. 120 to the Du; barn Regional Official Flan (adopted June 3, 2009) F'il'e Flo,- 18-OP-10012-08C,02 The, Vlinistty of Municipal Affai~s and Housing is in receipt of the proposed Durham Regional Official Plan r'' mendmew No. 128 ("ROPA 128"), %,,rhich v. as adopted by Regional: Cauncii cn June. 3, 2109. Ministrv staff have re iek .erd and assessed ROPA I 2R aaa;nst the requirements of the GrovAh Part jcr the Greater Golden Horseshoe's ("Grotvih Plan") policies and objectives, and tither applicable provincial plans and policies such as the Central Pickering Development Plan and recent Lake imcoe F; ~`Pction Plan. Please find encased a cf 'aft de-is=on page fo your r _ attached to this fetter as Attachment "I", Upon re-cepi of the Pegion's inpw. gardmg the pr )pose.,d draft to ificuticns. tree Ministry ;,,till be in a positi is r" cv ' forviarti to finalize its epprt~val of ROPA A 28. The adapted amendment contains many policies which will help the Region achieve the Grv'~Ah Plan's vision. This includes polici s ',VhiCh provide guidance on appropriate densO'es and built form in ; orr'dors and ce-itres to support existing and planned tr. r7sit infrastructure, prorr atu lntensif cation, and provide greater clarity planning for ernpiovrner t. He vever. there, remain several fundamental issues which are of concern to us. These issues were detailed in previous correspondence to the Region throughout the. Growing. Durham study; in particular the letter dated May 25, 2009. A detailed 'sage I of ATTACHMENT # TO _ REPOR? # PD- 29 description of our outstanding concerns and additional policy requirements are listed in the Appendix to this letter. A key concern i that the land budget overestimates the amount of land needed to accommodate the growth forecast for the Region and is used on assumptions inconsistent with the Growth Plan-s policies, For example: The amendment and analyses provided in the Growing Durham reports are based on employment numbers in excess of what is forecast in the Growth Flan; Additional employment lands have been included without justification; The amendment and analyses for Seaton is based on employment numbers lower than what is forecast in the Central Pickering Development Plan; Certain existing designated and approved residential lands have been excluded from the land supply analysis; Certain infrastructure have been netted out of the greenfield density calculations; • The proposed proportion of single- and semi-detached housing in the designated greenfield area (approximately 70%) appears high to achieve a compact, transit-supportive built form; The amendment was adopted without having completed a comprehensive infrastructure and fiscal analysis of the recommended growth scenario. The Minis" is concerned that the sole of the proposed urban expansion areas, resulting urban form and densities based on the above-noted assumptions will undermine the Growth p'lan's policy-objective of creating compact, complete communities for future generations. Moreover, it will also undermine the Region's own efforts to make efficient use of existing land and infrastructure and build and sustain good transit services. The Province is committed to the development and realization of its vision for Seaton as a sustainable, compact„ walkable, and complete community. This innovative new community will contain, as planned, a range and nlix of housing types, access to transportation choices, high-quality employment opportunities, complemented by a network of parks and natural spaces. We recognize that both Durham Region and the City of Pickering share this interest and are key partners in realizing the vision for Seaton. In light of the foregoing, the Ministry is proposing draft modifications in order to address the above-mentioned matters and ensure conformity with the Growth Plan and other applicable provincial plans and policies. The modifications will also ensure that orderly and sequential development occurs. page, 2 of 6 ATTACHMENT # TO RERURI # PD /D 30 Pe se contact e directly a {416} 585-7284 if you would kke to discuss these rnatter~ further prior to proceeding to Regional Gouncii. We I- k for).vard in proceeding ~v,fl, this final stage and impoilant compcsr:ent of the Regional Official Ran Revie"Al th"ough to approval, Yours truly, el- far fay f R Tonal Director Municipal Services Office - Central c. PAI, Macy'!' Regional Clerk Tija D.rk , D rector; Gromn, Poi=c i, Plam„ing and Ana;ysi's, J 'age 3 of ATTACHMENT # REPORT # PD I/'Id 31 APPENDIX irovvt Plan's Employment Forecasts and Employment Land. Deeds The Region°s employrnent growth forecast plans for 25,000 more jobs than the 50,00 jobs forecast in Schedule 3 of the Growth Plan. As advised repeatedly, the Region of Durham, as with all municipalities within the Greater Golden horseshoe, must use the population and employment forecasts in Schedule 3 of the Growth Flan as the basis for planning and managing growth. The Region has also allocated 16,500 jobs to Seaton whereas the Central Pickering Development Plan allocates an emplcymant forecast of 5,000 jobs. Th s has implications in prematurely overestimating the proposed new growth area in. northeast Pickering as it relates to employment land jobs. Further, the Region proposes an urban expansion for an additional employment area in Clarington which is riot justified by the Growing Durham study land budget analysis, Therefore, modifications to remove `he additional 25,000 fobs forecasted, remove the additional employrient area in Clarington and to allocate 5,000 jobs to Seaton are proposed. This is to ensure the Region's land budget is revised to match the forecasts in Schedule of the Growth Plan and the Central Pickering Development Plan. Living Area Land Needs and Proposed Regional Structure The derision by the Req on to exclude some existing designated and approved resldontial lands, particularly in 0sha,"Va any Clarington, from not being considered as available supply to 2031 results in the excess designation of lands for living area. All lands and opportunities for development currently designated and available for development need to be included within the supply estimates prior to considering further ufban ex:pansioms in accordance vAth section 2.2.8 of the Growth Plan. This sh uld also include existing designated low density residential lands wilt liri the built- up area.. if near greenfield lands are required, the location of the new lands should align with the Region°s growth management objectivas and reinforce the current regional structure. The regional land use structure as shown in the proposed amendment is substantially different than the historic and current structure shown in the Region's Official Plan. The nevi greenfield lands being :proposed in northeast Pickering without the employment area lands (which cannot be justified) result its a new living area that is not contiguous to any existing urban areas or a sr;guential extension of growth In addition. there has been no detailed analysis done of the costs associated with servicing these lens's. Therefore, a modification is proposed to remove the northeast . Pickering expansion. arc,a as it i premature at this tirne. Designated Greenfield Area density target The policies in the Growth Plan relating to designated greenfield areas, including the identification of a minimum density target, are meant to achieve the objective of creating complete, compact, and transit-supportive communities, The Growth Flan Page, 4 (if 0 Z ATTACHMENT # TO J 2 REPORT # PD /Z-/0 intends cities and towns to develop as walkable Communities with a diverse mix of land uses, a range and mix of emplc,irrtent and housing types, high quality public open spaces and easy access to transit, local stores and services. The Region's designated greenfnetd area land-budgeting methodology nets out a number of land use and infrastructure features beyond those identified in the Growth Plan's policies. The resaufting density will undermine the policy objective of creating compact, complete communities and the legion°s own efforts to make getter use of existing land and infrastructure and build and sustain good transit services. Policy 2.2.7.3 of the Grove-tit Plan explicitly lists those features that can be excluded in measuring the designated green}field area density target. The Crowing Durham study has specificalty excluded infrastructure proposed in existing and new greenfield areas from the application of the designated' greenfleld area density target. Therefore, modifications are proposed to remove the proposed northeast Pickering expansion area as rioted above fo be consistent with the policies of the Growth Plan as the legion has overestimated the need for additional living aria lends. Phasing Strategy While the amendment mclue es policies for the phasing of development, modifications are proposed to enhance the phasing and intensification strategy for the urban area. This wi~l ensure that the growth management objectives of the Plan are achieved and that the Region's land supply and infrastructure are used efficiently to provide for sequentiaE and orderly development of existing Greenfield areas prior to approval of development in new growth areas. Complete, Compact Communities While the overall housing mix across the Region to the year 2031, including the built- up areas will consist of 0% single and semi-detached low-density units, the existing and proposed nev, designated greenfield area appear to be ptarnned with a housing mix of about 70% sinale and semi-detached low-density. The additional netting out discussed in the previous sectiOrn facilitates the development of a reiatively high percentage of love density housing in the greenfield areas. Further, the designated greenfield area density target should be applied across the entire Region and not just to the take Ontario shore ine municipalities. The designated greenfield area density target is intended to shift the housing mix to a greater mix and balance of ioyv-, medium- and high-density units. As stated previously, the proposed large proportion of low-density development will undermine both the Growth Plain's and the Region's stated policy objectives of creating compact, complete communities: Moreover, it v ifl also undermine the Region's own efforts to make getter use Qf existing land and infrastructure and to build transit- supportive develorrns.rt. Infrastructure and Fiscal Analysis As rioted previously.. the Gro+,ving Durham study and the determination of the recommended grev,;th scenaariej was undertaken without a review of the infrastructure and financial irnplic:ations. While the Ministry understands that the Region has now initiated such are analysis to understand the actual impacts of the fina€ growth option, concerns remain, in articufar, relating to the proposal for significant urban Page 5 of 6 . ATTACHMENT # TO REPORT # PQ 11-10 .33 expansion areas which have been determined without analyses of capital infrastructure and related costs for water, sewage, roads, etc, required to service and pay for the final growth option and operating costs relating to the new infrastructure. The lack of this detailed fiscal analysis as well as the land budget estimates to accommodate the growth forecasts remain as outstanding concerns related to the timing and scale of certain of the proposed urban expansions, including northeast Pickering. Designating land for development beyond 2031 The Region's forecasting and land bUdgetFrg exercise goes beyond the 2031 horizon established by the Oro'.-vth Plan, to identify future nand needs to the 2056 time horizon. The identification of future living areas and future employment areas to 205 as set out in Schedule F of the draft amendment is not in keeping with Provincial policies. Therefore, new policy no. 13.2.4 and the future growth arras shown on Schedule 'F' are proposed to be removed from the amendment. Lake Sirs coe Protection Plan The Lake Simcoe Protection Plan ("LSPP") was released June 2, 2009 and. established under the authority of the Lake Simcoe Prote>ltion Act, 2000 The LSPP generally applies to the lake Simcoe watershed of which a portion of Durham Region lies within, The effective date of the LSPP is June 2, 2009 and according to the transition runes, the LSPP applies to Rt PA 123 as it was adopted On June 3,. 2009, As a result, the Ministryt'needs to ensure that the Region implements the LSPP as part of its current five-year ROP Revf evv, including incorporating the applicable policies and shoeing the watershed boundary on Schedule A. Central Pickering Development Plan. The Central Pickering Dc veU oprnent Plan ("CPDP") is another Provincial plant prepared under the pravisions of the Ontario Planning and Development Act, 1994 which was released on May 3. 2006.. The GPDP establishes a comprehensive new vision for Central Pickering: that of a sustainable urban community in Seaton integrated with a thriving agricultural cornmunity in the Muffins Rouge Agricultural Preserve and an extensive Natural' Heritage System. The CFDP is a m#ernerrtary ele-ment of the Grc'A+ h Plan focussed on Pickering and therefore forms a key Consideration for ROPA 128 and Durhamr s growth management to 2031. .Certain modifications are proposed to ensure that the amendment Emp!ements the OPDP, in particular that the employment forecasts allocate 35,000 jobs to Seaton in accordance with the GPDP'. Other Policy Modifications While overall supportive of the majority of the policies in the amendment to implement Provincial policy, certain technical modifications are proposed its the draft decision to provide additions.! clarity and direction for growth management and, further Greenbelt Plan implementation, e6of6 Rap ATTACHMENT # 2- TO 4 REPORI # PD //'/6 3 O o = co 5 3 L C U .V C C A-_ 3: -0 :3 r 0 CU '°p 0 =3 -0 Q- 0 -0 O O cn 0 . L - 0 C C t0 = 0 0 0 C 0 E.- cu c -0 CU cu 0 0 ca ~ ~ cn L- E c 0 0 ca v C-13 0 °~n•-cUa0 0 3 =a°i n~~~ CL -0 > a) O U-5 O O cv F- > C O C O N U C U p a)cn -c (n C) N N O O. cn 0 XO. 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