HomeMy WebLinkAboutPD 29-03
REPORT TO
COMMITTEE OF THE WHOLE
Report Number: PD 29-03
Date: July 4, 2003
From:
Neil Carroll
Director, Planning & Development
Subject:
Durham Regional Official Plan Review
Recommendations:
1.
That Report Number PD 29-03 concerning Phase 2 - Consultation Process of
the Durham Regional Official Plan Review be RECEIVED for information; and
2.
That a copy of Report Number PD 29-03 be FORWARDED to the Region of
Durham.
Executive Summary: Regional Council has endorsed a two-phased approach to
reviewing the Durham Regional Official Plan. The first phase, which was completed in
2001, identified the following policy areas of the Regional Official Plan as requiring
review: environment/open space; commercial structure; population and employment
growth; urban land requirements; rural/agriculture; and transportation. The second
phase is focused on the analysis of these policy areas through Discussion Papers. The
issues related to transportation are being dealt with through the Region's Transportation
Master Plan.
Proposed policy directions are provided in the Discussion Papers with the objective of
refining and enhancing these policy areas. Staff will be reviewing the proposed
directions and consulting with Regional and other public agency representatives on
specific matters over the summer. A report will be prepared for Council's endorsement
as the City's comments on the Discussion Papers early in the New Year.
Financial Implications:
Not Applicable.
Background:
1.0
Durham ReQional Official Plan Review:
1.1
Regional Council initiated a two-phased approach to reviewing its Official Plan
with the first phase completed in 2001.
Report PO 29-03
Date: July 4, 2003
Durham Regional Official Plan Review
Page 2
On April 5, 2000, Regional Council endorsed a two-phased approach to
reviewing the Durham Regional Official Plan (ROP). Part of the first phase
involved releasing a background report, which included a summary and status of
the ROP changes that have occurred in the Region since 1991, and an outline of
five policy areas suggested for review in the ROP. The background report was
circulated to local municipal and other interested stakeholders for review and
comment. A series of public open houses were held in each of the local
municipalities and a statutory public meeting was held to hear comments on the
need to review the ROP.
On December 18, 2000, City Council endorsed Report Number PD46-00
(Revised) and requested that the Region of Durham address the issues raised in
the City's Report in its review of the ROP. The City supported the review of the
policies suggested by the Region and identified other issues for review including:
. the review and update of housing policies to reflect changes to Provincial
legislation and programs;
. consideration of removing urban separation designations from the major open
space system;
. specific designations for a future extension of Clements Road in Ajax, Finch
Avenue west of Altona Road and Townline Road north of Finch, Dixie Road, and
the freeway to freeway connector between Highways 401 and 407;
. and a number of technical issues.
Subsequently, Regional Council considered the results of the consultation
process undertaken for Phase 1 of the Official Plan review and endorsed the
following policy areas in the ROP for review:
. environment/open space policy
. commercial structure;
. population and employment growth;
. urban land requirements;
. rural/agriculture policy; and
. transportation system
1.2
Regional Planning Committee authorized Regional staff to initiate the
consultation process for Phase 2 of the Official Plan based on the
Directions proposed in the Discussion Papers.
On June 3, 2003, Commissioner's Report No. 2003-P-67 pertaining to Phase 2
of the Durham Region Official Plan Review was tabled by Planning Committee in
order to allow Planning Committee and Council the opportunity to review the
papers and to consider an appropriate consultation process.
Report PO 29-03
Date: July 4, 2003
Durham Regional Official Plan Review
Page 3
On June 24, 2003, Regional Planning Committee authorized staff to initiate the
consultation process for Phase 2 of the Official Plan Review. The second phase
begins with the release of four Discussion Papers, which are focused on the
analysis of the policy areas identified in Phase 1, for public and agency
consideration.
With the exception of the Transportation System review, which is pending
completion of the Region's Transportation Master Plan, the five policy areas are
reviewed in the following Discussion Papers:
. Towards a Sustainable and Healthy Environment;
. Population, Employment and Urban Land;
. Commercial Policy Review; and
. Protecting our Rural Resources.
As well, as part of the Discussion Papers, directions are proposed to refine ROP
policy for consideration. The proposed directions represent Regional staff
positions and are not Reqional Council's position on changes to the Regional
Official Plan.
To assist in the Review, the Durham Environmental Advisory Committee held a
workshop in March of 2002 to advance the discussion of environmental issues.
As well, the consulting firm of Malone Given Parsons Ltd. was retained to
prepare the commercial component in consultation with local staffs.
Representatives of the consulting firm met with City staff to discuss the
commercial structure policies in the Regional Official Plan. Also, amendments to
the Regional Official Plan pertaining to the Oak Ridges Moraine have been
adopted by Regional Council, as required by the Oak Ridges Moraine
Conservation Act, and are awaiting Provincial approval.
A copy of all proposed directions, as set out in the Issues and Directions Report,
is provided for Council's information (see Attachment #1). Copies of the
Discussion Papers are available from the Regional Planning Department or may
be viewed on the Region's website.
2.0
2.1
Discussion:
A Public information Session in Pickering to solicit public input on the
proposed directions in the ROP Review Discussion Papers is supported.
A series of Public Information Sessions is planned for the fall of 2003 (one for
each of the local municipalities). The Sessions will be used to solicit public input
on the proposed directions in the Discussion Papers. The proposal to hold one
of the Public Information Sessions in Pickering is supported.
Report PO 29-03
Date: July 4, 2003
Durham Regional Official Plan Review
Page 4
Staff will notify Council of the timing and location of Pickering's Public
Information Session. Notice of the Session will also be placed on the City's
website.
2.2
The deadline for municipal comments on the proposed directions in the
Discussion Papers has been extended to early 2004.
Both the Commissioner's Report No. 2003-P-67 and the Issues and Directions
Report indicated a deadline of November 28, 2003, for submitting comments to
the Region on the proposed directions. City staff advised the Region that the
deadline was problematic as municipal elections are being held in November and
that a more practical and realistic deadline for municipal comments should be
early 2004. As a result, the Region has extended the deadline for municipal
comments to February 28, 2004. Afterwards, Regional staff will present the
results of the Phase 2 consultation process to Regional Planning Committee and
seek authorization to initiate a series of amendments addressing the
recommended refinements to the ROP.
2.3
On-going consultation with the Region and other public agencies should
assist in the review of the proposed directions in the Discussion Papers.
The Region has committed, as part of the Region's consultation process, to meet
with local staffs and Councils where requested on the proposed directions
highlighted in the Discussion Papers. For the most part, the proposed directions
address the issues previously raised by the City in its report on Phase 1 of the
Official Plan Review. However, Regional staff is proposing major enhancements
to the environmental policies in the ROP. The rationale in support of these
directions requires further clarification and discussion with Regional staff and
other public agencies. In addition, the implications of the proposed directions to
the Pickering Official Plan and to the Growth Management Study are being
reviewed.
Staff will be providing comments on the proposed directions in the ROP Discussion
Papers for Council's consideration early in the New Year.
Attachments:
1.
ROP Review Discussion Papers' Proposed Directions Table
Report PD 29-03
Date: July 4,2003
108
Durham Regional Official Plan Review
Page 5
Prepared By:
Approved I Endorsed By:
I RPP
ning & Development
Grant McGregor, MCI I RPP
Principal Planner - Po icy
Catherine Rose
Manager, Policy
GM:ld
Attachment
Copy: Chief Administrative Officer
¡P'
Discussion Papers
Towards a
Sustainable and
Healthy Environment
ATTACHMENT' / TO
REPORT I PO z.q -03
Region of Durham
Official Plan Review
Phase 2
Areas of
Analysis
Protecting Water
Resources
Proposed Directions
It is proposed that policies in the ROP be enhanced by
identifying the minimum components of a watershed plan,
and requiring the preparation of watershed plans as a
pre-requisite to development.
It is proposed that ROP policies be enhanced to protect
surface and groundwater quantity by:
. requiring an amendment to the ROP for any application
made under the Planning Act that proposes to remove
more than 50,000 LId groundwater or surface water,
and/or is deemed to have potential negative impacts on
water quantity; and
. ensuring that aquifer recharge areas and infiltration
rates are protected in the consideration of development
applications. Policies to minimize the establishment of
impervious surfaces through the development process
should be considered.
It is proposed that Rap policies ensure the protection of
groundwater quality by:
. including a constraints map identifying aquifer vulnerability
areas and policies that restrict the types of uses that are
permitted, to only those which do not pose a risk to
groundwater. Proposed development within or adjacent to
these areas would be subject to an environmental impact
study which verifies that there will be no impact;
. including a constraints map identifying significant
groundwater discharge areas and policies to ensure that
these areas are protected through the development
approval processes;
. protecting capture zones for municipal wells from uses
that have the potential to contaminate or unnecessarily
deplete the water resource. This will implement the
findings of the Regional Wellhead Protection Program;
and
. specifically requiring any land use proposal having the
potential to impact water quality or quantity to submit a
hvdroqeoloqical studv at the time of application.
I
Zq-o~
Region of Durham Official Plan Review
Page 2
Discussion Papers
Areas of
Analysis
Proposed Directions
It is proposed that the ROP policies be enhanced to
protect the natural heritage features in the Region by:
. recognizing, in the place of environmentally sensitive
areas, a Natural Heritage System for all areas of the
Region, that aligns with the system already in place for
the Oak Ridges Moraine. To accomplish this, it is
proposed that Natural Heritage System mapping and
policies be incorporated into the Plan;
. including vegetative setbacks from Natural Heritage
Features in rural areas, based on standards
established for the Oak Ridges Moraine. Setbacks for
Natural Heritage Features in Urban Areas and Hamlets
will be determined through the preparation of an
Environmental Impact Study;
. encouraging the protection of linkages and corridors in
the consideration of development applications, and the
formulation of more detailed policies in the area
municipal official plans;
. establishing a target for woodland coverage of 30% of
the Region's land area; and
. encoL!raging the preparation of area municipal tree
strategies that will advance the implementation of the
woodlands coveraQe tarQet.
It is proposed that the Region, in consultation with area
municipalities, stakeholders, and other agencies involved in
land securement, develop a land securement strategy to
protect key natural resources within the Region.
It is also proposed that the ROP be amended to allow the
consideration of a severance that facilitates the conveyance
of a natural heritage feature to a public body or non-profit
entity for conservation purposes, provided that no more than
one lot is retained by the oriQinal owner.
It is proposed that appropriate amendments to the ROP
addressing air quality be considered as a result of
initiatives, such as the Regional Air Quality Working
Group and Transportation Master Plan currently
underway.
Towards a Enhancing
Sustainable and Natural Heritage
Healthy Environment Features
(continued)
Improving the
Region's Air
Quality
ATTACHMENT' , TO
REPORT I PO Zq -03
Region of Durham Official Plan Review
Page 3
Towards a Improving the
Sustainable and Region's Air
Healthy Environment Quality
(continued) (Continued)
Measuring the
Health and
Sustainabilityof
the Region's
Communities
It is also proposed that the Rap be amended to
acknowledge the potential implications of climate change,
and indicate an intent to respond as knowledge and
understanding of what can be done from a planning
ers ective, to miti ate im acts emer es.
It is proposed that the Region consider initiating a
program to monitor key indicators of the Region's
environmental, social and economic health as part of the
Community Strategic Planning Process.
It is proposed that the Rap be amended to include a
provision outlining the process that must be satisfied prior
to development proceeding in areas where soil
contamination is known or sus ected.
It is proposed that the Rap be amended to encourage
local municipalities to incorporate policies in their official
lans and/or ass b -laws to minimize Ii ht ollution
ATTACHMENT I I TO
REPORT # PO Z q. D3
Region of Durham Official Plan Review
Page 4
Discussion Papers
Population,
Employment and
Urban Land
Areas of
Analysis
Population and
Employment
Forecasts
Urban land
Requirements
Proposed Directions
It is proposed that the ROP policies be amended to
incorporate and/or address the results of the population
and employment growth forecasts as follows:
. by changing the planning horizon year in the ROP from
2021 to 2031;
. by replacing the population targets in the ROP with the
recommended population forecasts contained in Table
1 ;
. by presenting the population forecasts in five-year
increments to the year 2031 reflecting growth
expectations based on the best information currently
available;
. by replacing the employment targets by category in the
ROP with an overall jobs to population ratio target
based on the employment forecasts;
. by continuing to place strong emphasis on more
effective means of achieving the jobs to population
target ratio; and
. by regularly monitoring population forecasts and
recognizing that they are subject to change within the
planninÇ] horizon, particularly in the 10nÇ]er term.
It is proposed that the ROP policies be amended to
incorporate and/or address the results of the urban land
needs analysis as follows:
. by maintaining the current Urban boundaries to provide
the opportunity for a number of ongoing initiatives,
including Highway 407, Seaton, Pickering Airport and
Smart Growth, that will have a significant impact on
Regional growth, to evolve.
. by recognizing that adjustments to the urban area
boundaries may be considered as part of the next
comprehensive 5-year review; and
. by proposing no expansions to designated Employment
Areas.
ATTACHMENT I , TO
REPORT # PO Zq '03
Region of Durham Official Plan Review
Page 5
It is proposed that the Rap policies be amended to:
. provide a more general framework that sets out
procedural requirements, goals and objectives for area
municipalities to plan commercial areas; and
. establish criteria which defines Regional interest as a
commercial proposal of 600,000 sq. ft. or larger, on an
individual or cumulative basis.
Requirements for It is proposed that the Rap policies be amended to:
Market Studies. remove the requirements for a retail impact study for
commercial proposal over 2,500 sq. m. (26,910 sq. ft.);
and
. require a retail impact study for applications which
would result in the creation of a new regional 'centre',
or the expansion of an existing regional 'centre', and
which meet the established criteria for Regional
involvement (600,000 sq. ft. or larger).
It is proposed that the Rap be amended to establish the
intended role, scale and form of Central Areas. The
policies should establish principles to guide local
municipalities in preparing secondary plans or approving
development proposals in these areas.
It is proposed that the policies which establish floor space
allocations in Central Areas as a method of directing
commercial growth within the Region, be modified to
describe the Central Areas in terms of their relative scale.
It is proposed that the Rap policies be amended to
incorporate a more flexible approach to the use of arterial
roads for commercial purposes, within a concept of nodes
and corridors that would establish main arterials, such as
Highway 2, Taunton Road and certain north-south roads
such as Simcoe and Brock Street, as corridors for
commercial use.
It is also proposed that the policies be strengthened to
promote higher density, mixed uses along arterial roads,
and that more flexibility be provided for commercial uses
to locate at the periphery of designated Employment
Areas.
It is proposed that the Region establish design criteria for
Regional arterial roads.
Magnitude of It is proposed that the Rap policies be amended to
Retail Growth establish criteria to guide future site designations for
commercial centres (Central Areas).
Discussion Papers
Areas of
Analysis
Commercial Policy
Review
The Region's
Interest in
Planning for
Future Commercial
Development
Commercial
Hierarchy and
Central Area
Definitions
Floor Space
Allocations for
Central Areas
Nodes and
Corridors
Urban Form
Proposed Directions
ATTACHMENT # I TO
REPORT # PO 2'1 -03
Region of Durham Official Plan Review
Page 6
Areas of
Discussion Papers Analysis Proposed Directions
Protecting Our Rural Consent It is proposed that the policy, which provides for the
Rural Resources Policies consideration of the severance of a surplus dwelling from
a nonabutting farm by amendment, be deleted.
It is proposed that the policy that perm its the
consideration of one farm retirement lot from the total
farm holding be deleted.
It is proposed that the Rap be amended to enhance the
criteria related to the consideration of farm-related
industrial uses to ensure that severances for these uses
do not create non-viable agricultural parcels. It is also
proposed that the Rap be amended to indicate that
further detail on the types of uses that may be
considered, and the criteria, may be provided in area
municipal official plans.
It is proposed that the Rap be amended to permit "stand
alone" farm-related commercial uses in a manner similar
to farm-related industrial uses
It is proposed that the Rap be enhanced to clarify the
intent and nature of accessory farm uses, addressing
such matters as scale and number, and potential impacts
on surrounding uses. It is also proposed that the area
municipalities be encouraged to include detailed policies
in their official plans to address this issue.
Rural Settlement It is proposed that the Region work with the area
Policies municipalities to develop detailed guidelines for the
preparation of settlement capacity studies. It is also
proposed that the Hamlet policies be clarified to more
closely reflect the form, type and limited scale of
development planned for Hamlets.
It is proposed that the policies that provide for the
consideration of new Country Residential Subdivisions be
deleted.
It is proposed that the Rap be amended to remove
policies that permit the identification of new clusters.
Policies to permit lot creation within existing clusters
should be retained.
It is proposed that the Rap policy which permits rural
residential infilling within concentrations of 4 hectare
(10 acre) lots be deleted.
ATTACHMENT' \ TO
REPORTIPD ZQ-O3
Region of Durham Official Plan Review
Page 7
Discussion Papers
Protecting Our Rural
Resources
(continued)
Areas of
Analysis
Rural Settlement
Policies
(continued)
Rural Non.farm
Use Policies
Proposed Directions
It is proposed that the Rap be amended to permit limited
new Rural Employment Areas in the Townships of Brock,
Uxbridge and Scugog, subject to the preparation of a
comprehensive industrial study for the municipality. To
provide guidance, the Rap should also be amended to add
specific study requirements that must be followed to
establish the need and location of new Rural Employment
Areas.
To address these issues, it is proposed that the Rap be
amended to:
. prohibit golf courses in Agricultural Areas;
. specifically require the submission of a Hydrogeological
Study that assesses the impacts on water quality and
quantity;
. require the submission of a Best Management Practices
report that addresses design, construction and
operational considerations, including traffic;
. require area municipal official plans to limit the scale of
clubhouses and other associated uses in rural areas to
ensure such uses will be secondary to the primary use of
the golf course;
. require all proposed new golf courses and golf course
expansions in the Region be considered by amendment
to the Rap;
. require the submission of technical studies in support of golf
course proposals in conjunction with the Rap amendment
application; and
. require a program to monitor before, during and after
construction conditions to ensure environmental and other
technical standards are met.
It is proposed that the policies, as they pertain to
designating Regional Nodes in urban areas, be removed;
and further, that no new Regional Nodes be considered in
the rural area. The grandfathering of existing rural Nodes
should be considered.
It is proposed that the Rap policies be updated and/or
enhanced:
. to reflect new (current) geological, socio-cultural and
environmental constraint information and license status of
aggregate resource extraction areas (Map 'A', Map 'C'
and Schedule 4);
. to require an assessment of operational aspects of pits and
quarries, such as exhaust emissions and lighting impacts,
and that the Plan require that mitigation measures be
provided for all potential impacts of the operation, at the time
aggregate related amendment applications are being
considered;
ATTACHMENT I I TO
REPORT II PO 2<1 - D3
Region of Durham Official Plan Review
Page 8
Discussion Papers
Areas of
Analysis
Protecting Our Rural Rural Non-farm
Resources Use Policies
(continued) (continued)
Agricultural
Designations
Proposed Directions
. to require that rehabilitation be undertaken in a timely
manner, and that the site be restored to its pre-
excavation landform. Also, policy should be added to
require that rehabilitation sites be restored to either the
same soil capability as pre-excavation, or to a
vegetative state usinq native species;
. to clarify the requirement for development of an overall
rehabilitation program to ensure that: rehabilitation
plans are submitted in conjunction with ROP
amendment applications; rehabilitation plans be
reviewed in conjunction with the submitted EIS in
accordance with policy 2.3.17 of the Rap; and, that
such rehabilitation plans be considered in conjunction
with adjacent and/or groups of operations in an area;
and
. to specify that Site Plans and technical reports, as
required by the Provincial Standards established under
the Aggregate Resources Act and Regulations, should
be submitted, where appropriate, to address the
requirements of the ROP.
It is proposed that the ROP be amended to reflect that
peat extraction activities are to be regulated through the
new Municipal Act.
It is proposed that the ROP be amended by deleting the
policy that permits the consideration of gas stations
and/or gas bars in the Agricultural Area and Major Open
Space System.
It is proposed that the ROP policy which permits cultural
facilities, health facilities and community facilities in the
rural area be deleted.
It is proposed that the ROP should be revised to prohibit
the establishment of cemeteries in prime agricultural
areas.
It is proposed that the ROP be amended to distinguish
between recreational uses which are compatible with the
character of the open space lands in the urban and rural
areas.
It is proposed that the ROP's two Agricultural Area
designations be merged into one land use designation for
the purpose of aqriculture and farm-related land uses.