HomeMy WebLinkAboutPLN 23-25Report to
Planning & Development Committee
Report Number: PLN 23-25
Date: December 1, 2025
From: Kyle Bentley
Director, City Development Department & CBO
Subject: Pickering Official Plan Amendment 52
Informational Revision 29
Planning Act Conformity Amendments
City Initiated
File: OPA 25-002P
Recommendation:
1.That Official Plan Amendment Application OPA 25-002P, initiated by the City of
Pickering, as set out in Exhibit “A” to Attachment 1 to Report PLN 23-25 be approved to:
a.amend existing policies to recognize the delegated authority of consent applications
from the Region of Durham to the City of Pickering;
b.no longer require pre-consultations but instead encourage pre-consultations
between the Applicant and the City prior to submitting a development application;
c.add revised Parkland Dedication policies;
d.remove Density Bonusing policies entirely from the Pickering Official Plan;
2.That the Draft By-law to adopt Amendment 52 to the Pickering Official Plan, as set out in
Attachment 1 to Report PLN 23-25, be finalized and forwarded to Council for approval;
and
3.That Informational Revision 29 to the Pickering Official Plan as set out in Attachment 2 to
Report PLN 23-25 be approved.
Executive Summary: The purpose of this report is to recommend approval of City-Initiated
Official Plan Amendment 52 (Application OPA 25-002P), as shown in Exhibit “A” to Attachment 1.
Amendment 52 includes several changes:
•It gives the City of Pickering the official power to consider consent applications, which used
to be handled by the Region of Durham.
•It states that pre-consultation meetings between applicants and the City are no longer
required, but are still encouraged before a development application is submitted.
•It updates the rules about how parkland is dedicated.
PLN 23-25 December 1, 2025
Page 2
•It removes the policy about Density Bonusing from the Pickering Official Plan, to match
changes made in the Planning Act.
Further, the report recommends the approval of a corresponding Informational Revision 29 to
the Pickering Official Plan to keep explanatory text related to Amendment 52 up to date.
Relationship to the Pickering Strategic Plan: The recommendations in this report respond
to the Pickering Strategic Plan Priority of Advance Innovation & Responsible Planning to
Support a Connected, Well-Serviced Community.
Financial Implications: This report has no direct financial implications to the City.
Discussion: The purpose of this report is to obtain Council approval of Official Plan
Amendment 52 (OPA 52), and to give an overview of the policy changes that are being
implemented through OPA 52.
Background
The recommended Official Plan Amendment responds to four different pieces of Provincial
legislation that changed the land use planning system and /or amended the Planning Act:
•Bill 23, More Homes Built Faster Act, 2022
•Bill 185, Cutting Red Tape to Build More Homes Act, 2024
•Bill 109, More homes for Everyone Act, 2022, and
•Bill 197, COVID 19 Economic Recovery Act, 2020
Bill 23: In 2022, Bill 23 introduced several changes to the land use planning system in Ontario
and made legislative amendments to the Planning Act and other pieces of legislation, including
the reclassification of the Region of Durham, and six other regional governments in Ontario, as
“Upper-Tier Municipalities without Planning Responsibilities”.
On October 25, 2023, Durham Regional Council passed By-law 61-2023, a By-law to delegate
Regional Council’s land division responsibilities and authority to grant consents, under the
Planning Act, to each of the Region’s area municipalities, including the City of Pickering,
effective January 1, 2024.
On December 15, 2023, Council passed Resolution #362/23 and directed staff to initiate an
amendment to the Pickering Official Plan, to amend policies to:
•expand the role of the Committee of Adjustment to include consent for land severance
applications; and
•to recognize the delegation of authority to the Director, City Development & CBO, or a
designate, to grant approval of technical consent applications .
PLN 23-25 December 1, 2025
Page 3
Bill 185: In 2024, Bill 185 introduced changes to the Planning Act, the Development Charges
Act, and other related legislation in an effort to streamline the planning process and increase
housing supply. One of the changes to the Planning Act was to no longer require pre-consultations
between the City and applicant, but to make it voluntary and at the discretion of the applicant.
Accordingly, the relevant policy language in the Pickering Official Plan related to mandatory
pre-consultation meetings need updating.
Bill 109: In 2022, Bill 109 amended various other statutes related to housing, development
and other matters, including changes to Sections 42 and 51.1 of the Planning Act which reduced
the parkland dedication rate for high density and mixed-use areas as well as the cash-in-lieu of
parkland rate for all development. Although the City updated its Parkland By-law to conform to
the revised legislation, the parkland policies in the Official Plan need updating.
Bill 197: In 2020, Bill 197 amended and repealed various provincial statutes, which included
the removal of Section 37, Density Bonusing entirely from the Planning Act. Since the
Pickering Official Plan still contains policies on density bonusing and transfers, the text dealing
with bonusing needs to be deleted to conform to the Planning Act.
1.Recommended Amendment (OPA 52) to the Pickering Official Plan
The purpose of the recommended Official Plan Amendment is to:
•Recognize the delegated authority from the Region to the City to consider consent
applications. This will permit the City’s Committee of Adjustment to consider consent
applications for all lands across the City.
•Replace the requirement for mandatory pre-consultation meetings between the Applicant
and City staff prior to the formal submission of a development application with policy
language that encourages pre-consultation meetings, making it voluntary. Although the
revised policy is less restrictive, encouraging pre-consultations will provide staff the
opportunity to provide preliminary comments to the Applicant, resulting in a more
streamlined development review process and complete applications.
•Add revised Parkland Dedication policies to conform to revised provisions regarding
parkland dedication in the Planning Act, ensuring that the City of Pickering Official Plan has
the most up-to-date parkland policies.
•Remove policies pertaining to Density Bonusing entirely from the Official Plan, to conform
to revisions made to the Planning Act; ensuring that the City’s Official Plan complies with
provincial legislation.
See Exhibit “A” to Attachment 1 to review the recommended Amendment.
2.Informational Revision 29 to the Pickering Official Plan
Informational text in the Official Plan provides context for related policies. When policies
change, corresponding updates to informational text may be required. The recommended
revision updates references to ‘mandatory’ pre-consultation meetings with the City, clarifying
these meetings are now optional. See Attachment 2 for Informational Revision 29.
PLN 23-25 December 1, 2025
Page 4
3.Public Engagement (Open House & Statutory Public Meeting)
The Open House and Statutory Public Meeting were advertised on the corporate website,
including the City’s Development Applications website, and was promoted through the City’s
social media channels starting on August 1, 2025. The Open House was held on September 3,
2025, and the Statutory Public Meeting was held on September 8, 2025.
As of this writing, comments were received from one member of the public expressing
concerns about traffic, which does not fall within the scope of OPA 52. However, these
comments will be considered through the Official Plan Review process, which is currently
underway. Additionally, technical comments were received from Metrolinx that do not fall within
the scope of OPA 52.
4.Conclusion
Official Plan Amendment 52 incorporates appropriate revisions in relation to consent
applications, in accordance with Resolution #362/23. It also updates the Plan’s policies
regarding mandatory pre-consultation, parkland dedication, and density bonusing. Overall, the
Amendment brings the City’s Official Plan into conformity with the Planning Act.
Attachments:
1.Draft By-law to adopt Amendment 52 to the Pickering Official Plan
2.Informational Revision 29
PLN 23-25 December 1, 2025
Page 5
Prepared By:
Original Signed By
Waqas Ahmad, H.B.A.
Planner II
Original Signed By
Déan Jacobs, MCIP, RPP
Manager, Policy & Geomatics
Approved/Endorsed By:
Original Signed By
Catherine Rose, MCIP, RPP
Chief Planner
Original Signed By
Kyle Bentley, P. Eng
Director, City Development & CBO
WA:ld
Recommended for the consideration
of Pickering City Council
Original Signed By
Marisa Carpino, M.A.
Chief Administrative Officer
Attachment 1 to Report PLN 23-25
The Corporation of the City of Pickering
By-law No. XXXX/25
Being a by-law to adopt Amendment 52 to the Official Plan for
the City of Pickering (OPA 25-002P)
Whereas pursuant to the Planning Act, R.S.O. 1990, c.p. 13, subsections 17(22) and 21(1), the
Council of The Corporation of the City of Pickering may by by -law adopt amendments to the
Official Plan for the City of Pickering;
Whereas the Council of The Corporation of the City of Pickering deems it advisable to amend
the Official Plan of the City of Pickering;
1.Now therefore the Council of The Corporation of the City of Pickering hereby enacts as
follows: That Amendment 52 to the Official Plan for the City of Pickering, attached
hereto as Exhibit “A”, is hereby adopted;
2.This By-law shall come into force and take effect on the day of the final passing hereof.
By-law passed this XX day of XXXX, 2025.
________________________________
Kevin Ashe, Mayor
________________________________
Susan Cassel, City Clerk
Exhibit “A” to By-law XXXX/25
Amendment 52
to the City of Pickering Official Plan
Recommended Amendment 52 to the Pickering Official Plan
Purpose: The purpose of this Amendment is fourfold. The first revises policies in the Official
Plan to recognize the delegation of land division responsibilities, and the approval
authority to grant consents, from the Region of Durham to the City of Pickering.
This is provisioned under section 53 of the Planning Act.
The second replaces the policies in the Official Plan mandating pre-consultation
meetings, between an applicant and City staff, prior to submission of a
development application, with policies encouraging such pre-consultation
meetings, making them voluntary and at the discretion of the applicant.
The third revises Parkland Dedication policies. This is provisioned under Section 42
and Section 51.1 of the Planning Act, which reduced the parkland dedication rate
for high density and mixed-use areas and the cash-in-lieu of parkland rate for all
development.
The fourth removes the Density Bonusing policies.
Location: The Amendment applies to all lands within the City of Pickering.
Basis: The basis for the City-initiated Official Plan Amendment is as follows:
The revised policies, recognizing the delegation of land division responsibilities and
the approval authority to grant consents from the Region to the City of Pickering,
stems from revisions to the Planning Act through Bill 23, More Homes Built Faster
Act, 2022. Among other matters, this Act reclassified the Region of Durham,
including six other regional municipalities in Ontario, as “Upper Tier Municipalities
without Planning Responsibilities”.
The replacement of the policies ‘requiring’ pre-consultation meetings between the
City and the applicant, with policies ‘encouraging’ pre-consultation meetings, is
based on revisions to the Planning Act through Bill 185, Cutting Red Tape to Build
More Homes Act, 2024.
The revised policies regarding Parkland Dedication result from revisions to the
Planning Act through Bill 109, More homes for Everyone Act, 2022.
The removal of policies pertaining to Density Bonusing is based on revisions to the
Planning Act through Bill 197, COVID 19 Economic Recovery Act, 2020.
Actual
Amendment: The City of Pickering Official Plan is hereby amended by:
New text is shown as underlined text, deleted text is shown as strikeout text, and retained is
shown as unchanged text
Recommended Amendment 52 to the Pickering Official Plan Page 4
1.Revising City Policy 5.8, in Chapter 5 – Economic Development, so that it reads as
follows:
City Policy
Financial Incentives
5.8 City Council shall consider an incentive program to encourage green
building design in any new development in the City Centre, which may
include density bonuses, loans, development charge reduction,
Community Improvement Plan grants or an expedited development
application review process.
2.Revising City Policy 11.49, in Chapter 11 – Seaton Urban Area by deleting subsection
(b)so that it reads as follows, and renumbering the subsequent subsections:
City Policy
Affordable Strategies for Lower Income
Tenants and Owners
11.49 City Council recognizes that most new affordable rental housing and some
new affordable ownership housing directed at larger owner households in
the bottom 30th percentile of owner households, will require some type of
subsidy or incentive to reach required ownership or rent levels affordable
to low income households. Such assistance could include:
(a)…;
(b)using density bonusing at selected sites where a builder provides a
certain proportion of rental or subsidized ownership units as
affordable;
(cb) providing…;
(dc)using…; etc.
3.Revising City Policy 12.15(c)(ii), in Chapter 12 – Urban Neighbourhoods so that it reads
as follows:
City Policy
Brock Ridge Neighbourhood Policies
12.15 City Council shall:
(c)…:
(i)…; and
(ii)acknowledge the landowners’ interest in developing higher
density development and to this end, shall consider the use of
density bonuses to achieve community design and other
municipal objectives (in accordance with Section 16.17 of this
Plan), in addition to density transfers as set out in Section
(12.15)(a) above.
Recommended Amendment 52 to the Pickering Official Plan Page 5
4.Revising City Policy 12.16(a)(iv), in Chapter 12 – Urban Neighbourhoods so that it
reads as follows:
City Policy
Rouge Park Neighbourhood Polices
12.16 City Council shall:
(a)…:
(i)…;
(ii)…;
(iii)…;
(iv)in accordance with Sections 16.17 and 16.18, permit the use of
density transfers and bonuses, as further detailed in the
Rouge Park Neighbourhood Development Guidelines;
(v)…; etc.
5.Revising City Policy 16.2, in Chapter 16 – Development Review, so that it reads as
follows:
City Policy
Pre-submission Consultation
16.2 City Council shall require encourages applicants to consult with the
municipality prior to submitting an application for an official plan
amendment, zoning by-law amendment, draft plan of subdivision, draft plan
of condominium, consent or site plan approval. The pre-submission
consultation meeting will be held with the applicant, City staff and any
other government agency or public authority that the City determines
appropriate. At the pre-submission consultation meeting:
6.Revising City Policy 16.3, in Chapter 16 – Development Review, by adding the word
“consent” in the policy pretext as well as in subsection (f), deleting subsection (c), and
renumbering the subsequent subsections, so that it reads as follows:
City Policy
Complete Application
16.3 City Council shall not accept an application for an official plan amendment,
zoning by-law amendment, draft plan of subdivision, draft plan of
condominium, consent, or site plan approval until the following has been
submitted to the City:
(a)a complete application form, including an acknowledgement by the
applicant of the obligation to pay required peer review costs, as
referred to in Section 16.4;
Recommended Amendment 52 to the Pickering Official Plan Page 6
(b)any information or materials prescribed by statute and regulation;
(c)a record of pre-submission consultation;
(dc)the prescribed application fee(s);
(ed) payment, or proof of payment of application review fees charged by
commenting agencies;
(fe) all required studies set out in Section 16.5A for an official plan
amendment, zoning by-law amendment, consent, draft plan of
subdivision and draft plan of condominium application; and
(gf) all required studies set out in Section 16.5B for a site plan
application.
7.Revising the subtext to City Policy 16.4, in Chapter 16 – Development Review, so that it
reads as follows:
City Policy
Required Studies for an Official Plan Amendment,
Zoning By-law Amendment, Consent, Draft Plan of Subdivision,
and Draft Plan of Condominium Approval
8.Revising City Policy 16.5A, in Chapter 16 – Development Review, so that it reads as
follows:
16.5A City Council shall require the following materials and studies prepared by
qualified experts, which may be as scoped or expanded as a result of the
non-mandatory pre-submission consultation required by as provided for in
Section 16.2, to be submitted at the time of application for an official plan
amendment, zoning by-law amendment, draft plan of subdivision, consent
and draft plan of condominium approval:
9.Revising City Policy 16.5B, in Chapter 16 – Development Review, so that it reads as
follows:
16.5B City Council shall require the following materials and studies prepared by
qualified experts, which may be as scoped or expanded as a result of the
non-mandatory pre-submission consultation as provided for by in Section
16.2, to be submitted at the time of application for site plan approval: …
10.Revising City Policy 16.8 in Chapter 16 – Development Review so that it reads as
follows:
16.8 City Council:
(a)as determined may determine through a non-mandatory pre-
submission consultation as provided for as determined through a
presubmission consultation in Section 16.2, to require the
submission and approval of an Environmental Report as part of the
consideration of a development application or a public infrastructure
Recommended Amendment 52 to the Pickering Official Plan Page 7
project for major development within 120 metres of the Natural
Heritage System or within the minimum area of influence prescribed
in Table 18 of this Plan; and
(b)despite Section 16.8(a), may, through the non-mandatory pre-
submission consultation as provided for in Section 16.2, require the
submission and approval of an Environmental Report as part of its
consideration of any other development application or public
infrastructure project.
11.Revising City Policy 16.13, in Chapter 16 – Development Review, so that it reads as
follows:
City Policy
Retail Impact Study
16.13 Outside the City Centre, City Council, in the review of development
proposals for new or expanded gross leasable floor space for the retailing
of goods and services:
(a)shall for the development of 2,500 square metres or greater of floor
space; and
(b)may for the development of less than 2,500 square metres of floor
space;
as determined through a non-mandatory pre-submission consultation as
provided for in Section 16.2, require a retail impact study:
(i)to justify the proposed floor space for the retailing of goods and
services; and,
(ii)to demonstrate that such additional floor space will not unduly
affect the viability of any lands designated or developed for the
retailing of goods and services.
12.Deleting City Policy 16.17 (Bonus Zoning) in Chapter 16 – Development Review in its
entirety and replacing it with the following:
City Policy
Bonus Zoning
16.17 Section Revoked by Amendment 52As provided for in the Planning Act,
City Council may pass by-laws that grant an increase in density of
development not exceeding 25 percent of the density that would otherwise
be permitted by this Plan, or an increase in the height of a building
providing:
(a)the density or height bonus is given only in return for the provision
of specific services, facilities or matters as specified in the by -law,
such as but not limited to, additional open space or community
Recommended Amendment 52 to the Pickering Official Plan Page 8
facilities, assisted or special needs housing, the preservation of
heritage buildings or structures, or the preservation of natural
heritage features and functions;
(b)when considering an increase in density or height, and allowing the
provision of benefits off-site, the positive impacts of the exchange
should benefit the social/cultural, environmental and economic
health of surrounding areas experiencing the increased height
and/or density;
(c)the effects of the density or height bonus have been reviewed and
determined by Council to be in conformity with the general intent of
this Plan, by considering matters such as:
(i)the suitability of the site for the proposed increase in density
and/or height in terms of parking, landscaping, and other site-
specific requirements;
(ii)and the compatibility of any increase in density and/or height
with the character of the surrounding neighbourhood; and
(d)as a condition of granting a density or height bonus, the City
requires the benefiting landowner(s) to enter into one or more
agreements, registered against the title of the lands, dealing with the
provision and timing of specific facilities, services or matters to be
provided in return for the bonus.
13.Revising City Policy 16.25, in Chapter 16 – Development Review, so that it reads as
follows:
City Policy
Committee of Adjustment
16.25 City Council shall encourage its Committee of Adjustment to apply the
goals, objectives and policies of this Plan, and maintain the purpose and
intent of the City’s zoning by-laws in making decisions regarding the
granting of minor variances and consent applications pursuant to the
Planning Act.
14.Revising City Policy 16.26, in Chapter 16 – Development Review, so that it reads as
follows:
City Policy
Land Severance
16.26 City Council, in commenting to the Regional Land Division Committee
regarding the consideration of land severances pursuant to the Planning
Act or the Committee of Adjustment to whom the authority is delegated, to
grant consents pursuant to the Planning Act: …
Recommended Amendment 52 to the Pickering Official Plan Page 9
15.Revising City Policy 16.29, in Chapter 16 – Development Review, so that it reads as
follows:
City Policy
Parkland: Conveyance of Land for Park or
Other Public Recreational Purposes
16.29 City Council:
(a)shall as a condition of residential development, and may as a
condition of other development, except for the uses described in
Subsection (b):
(i)require the conveyance of land to the municipality for park or
other public recreational purposes in an amount not exceeding
5 percent of the proposed land to be developed;
(ii)may or, as an alternative to requiring conveyance of land as
provided for in (i) above, in the High Density Residential Areas
and Mixed Use Areas, require land to be conveyed for park or
other public recreational purposes at a rate of up to one hectare
for each 300 600 dwelling units proposed, whichever is greater;
(iii)may or, in lieu of a portion or all of the land conveyance
stipulated by (i) or (ii) above, require the payment of money to
the value of the land that would otherwise be required to be
conveyed for park purposes at a rate of up to one hectare for
each 1,000 net dwelling units proposed;
(iv)provided that, for the alternative rate, the City shall not require a
conveyance or payment in lieu that is greater than:
(1)in the case of land proposed for development or
redevelopment that is five hectares or less in area, 10
percent of the land or the value of the land, as the case may
be; and
(2)in the case of land proposed for development or
redevelopment that is greater than five hectares in area, 15
percent of the land or the value of the land, as the case may
be; and
(b)may, as a condition of commercial or industrial development:
(i)require the conveyance of land to the municipality for park or
other public recreational purposes in an amount not exceeding
2 percent of the proposed land to be developed; and
(ii)may, in lieu of a portion or all of the land conveyance stipulated
by (i) above, require the payment of money to the value of the
Recommended Amendment 52 to the Pickering Official Plan Page 10
land that would otherwise be required to be conveyed for park
purposes; and
(c)shall not accept as parkland conveyance lands required for drainage;
valley and stream corridor or shoreline protection purposes; lands
susceptible to flooding; steep valley slopes; hazard lands; lands
required to be conveyed to a public agency other than the City of
Pickering; and other lands unsuitable for park development.
Implementation: The provisions set forth in the City of Pickering Official Plan, as amended,
regarding the implementation of the Plan shall apply in regard to this
Amendment.
Interpretation: The provisions set forth in the City of Pickering Official Plan, as amended,
regarding the interpretation of the Plan shall apply in regard to this
Amendment.
Cross Reference:
OPA 25-002P
Attachment 2 to Report PLN 23-25
Recommended Informational Revision 29 to the Pickering Official Plan
Purpose: The purpose of this Revision is to change the informational text contained
within the Pickering Official Plan to update informational text on
pre-consultations from mandatory, to advisory, to match policy changes made
through Amendment 52.
Location:Not applicable.
Basis: The informational Text should support, not conflict, with the policy language of
the Pickering Official Plan.
Proposed The City of Pickering Official Plan is hereby revised by:
Revision:
(New text shown as underlined text, deleted text shown as strikeout text, retained text shown as
unchanged text)
1.Revising the third informational paragraph in Chapter 16 – Development Review, to
read as follows:
This Chapter also outlines the various reports that are required to be submitted in
conjunction with a development application to constitute a complete application. An
application would be deemed to be complete when all required information as set
out in this Chapter has been submitted to the City. A standard list of required studies
is provided for all development applications. However, during the pre-submission
consultation with the applicant, City staff strongly recommend that applicants
continue to request pre-submission consultation meetings with City and agency
staff, despite their non-mandatory nature. At those meetings, staff and agency
representatives will identify the studies from the standard list that will not be
required, or may be scoped in extent, or may request additional information
depending on the complexity of the application.
Cross Reference:
OPA 25-002P