HomeMy WebLinkAboutPLN 06-20Cfy �t
DICKERING
Report to
Planning & Development Committee
Report Number: PLN 06-20
Date: June 15, 2020
From: Kyle Bentley
Director, City Development & CBO
Subject: The Municipal Comprehensive Review of the Durham Regional Official Plan:
Housing Policy Planning Discussion Paper, December 2019
File: A-2100-020
Recommendation:
1. That the Region maintain its definition of affordable rental housing to be consistent with the
Provincial Policy Statement and other municipalities in the Greater Toronto and Hamilton
Area, and for the purpose of monitoring and comparability.
2. That the Region maintain its definition of affordable ownership housing to be consistent
with the Provincial Policy Statement and other municipalities in the Greater Toronto and
Hamilton Area, and for the purpose of monitoring and comparability.
3. That the Region take a more active role to increase affordable ownership housing and
rental housing options, increase the amount of purpose-built rental housing, and increase
the diversity of housing types within the region.
4. That the Region include policies in the Regional Official Plan that generally support higher
targets for affordable housing within Strategic Growth Areas and other appropriate areas as
defined by the local municipality.
5. That the Region:
(a) provide greater support and encouragement for the development of local housing
strategies which can address the local municipal context and aid in achieving the
Region's goals and objectives for increasing the supply of affordable housing; and
(b) encourage area municipalities to explore the use of a full suite of incentives and
policy tools, such as financial incentives, Development Charge/Community Benefits
Charge by-laws, reduced parking requirements, expedited development
applications, and donation of surplus lands, through local housing strategies in order
to achieve affordable housing targets.
6. That the Region encourage area municipalities to consider reducing parking requirements
for second units located in areas well served by transit.
7. That Regional Official Plan policies be updated to reflect the More Homes, More Choice Act
changes to permit secondary units in detached, semi-detached or row houses, as well as in
a building or structure ancillary to a detached house, semi-detached or row house and
allow detached secondary units in rural areas.
PLN 06-20 June 15, 2020
Subject: The Municipal Comprehensive Review of the Durham Regional Official Plan Page 2
8. That, if the Region includes policies on inclusionary zoning in the Regional Official Plan,
these policies be encouraging in nature, enabling the local area municipalities to determine
the appropriateness of where and when to use the tool.
9. That the Region report on vacancy rates for each municipality individually, if possible, to
allow each municipality to better address the specific needs of their own community.
10. That the Region consider strengthening the rental to ownership housing conversion policies
in the Regional Official Plan to help protect existing affordable rental housing.
11. That the Region include policies in the Regional Official Plan that encourage municipalities
to use tools, such as a demolition control by-law, to preserve existing affordable rental
housing especially in certain locations such as Strategic Growth Areas or areas in proximity
to transit where existing rental housing may be older and therefore more susceptible to
demolition and redevelopment.
12. That the Region:
(a) develop a monitoring framework for short-term rentals to assess the impact of short-
term rental housing in Durham; and
(b) consult with local municipalities and economic development and business groups
prior to the inclusion of policies addressing short-term rentals in the Regional Official
Plan.
13. That the Region consider including a clear definition of "tiny home" that contemplates size,
mobility, servicing needs, and the similarities and differences compared to modular homes,
prefabricated small homes, and mobile homes.
14. That the Region enable local municipalities to determine the appropriate locations for
mid -rise development through local intensification studies, secondary plans, and through
the evaluation of site-specific development proposals to ensure that the local context is
suitably addressed.
15. That the Region:
(a) support people with mobility and mental health challenges to secure safe and
affordable housing and maintain tenancies by:
• continuing to ensure collaboration among housing, health, and social services
departments and agencies;
• continuing to promote the development of supportive housing, semi-
independent living, subsidized housing, transitional housing, etc.; and
• ensuring affordable and special needs housing is located in close proximity to
community supports;
(b) elaborate on the meaning of "special needs groups" as referred to in Section 4.3.6 of
the Regional Official Plan; and
PLN 06-20 June 15, 2020
Subject: The Municipal Comprehensive Review of the Durham Regional Official Plan Page 3
(c) continue exploring the issue of supporting people with mobility and mental health
challenges through the development of the Region's Community Safety and Well-
being Plan and Comprehensive Master Housing Strategy.
16. That the Region:
(a) continue to support and partner with other levels of government to promote and
provide affordable rental housing;
(b) include policies in the Regional Official Plan that address the provision of adequate
and locationally appropriate long term care facilities that will meet the current and
future needs within the Region;
(c) support the needs of an aging population by including policies in the Regional
Official Plan that reflect the direction, goals and objectives contained in the
Age -Friendly Durham Strategy and Action Plan, including:
• providing opportunities for affordable, assisted housing options and
encouraging development that complements the concept of "aging in place";
• addressing accessibility needs and age -friendly design within the built
environment; and
• ensuring that active and passive recreational facilities, and community and
health services are available for the aging population.
17. That the Region include a definition of "co -ownership housing" in the Regional Official Plan
and include policies that enable municipalities to address this type of housing in a local and
context -specific manner.
18. That, in support of the development of diverse and affordable housing options, the Region:
(a) communicate and work with developers on funding and other incentives that are
available to address the Region's housing needs;
(b) include housing policies that support affordability through reduced energy costs from
a climate change and resiliency lens; and
(c) strengthen policies to incentivize the delivery of seniors, affordable, and/or
accessible housing (which could include Community Improvement Plans; deferral or
waiving of development charges).
Executive Summary: On December 3, 2019, the Regional Municipality of Durham released
the Housing Policy Planning Discussion Paper, the last in a series of six discussion papers
released as part of Envision Durham, The Municipal Comprehensive Review of the Durham
Regional Official Plan (ROP). City staff recommend that the comments in this report on the
Housing Policy Planning Discussion Paper be endorsed as the City comments.
In addition, this report responds to Council's direction to review the Envision Durham Housing
Policy Planning Discussion Paper within the context of a previous direction to staff to prepare a
comprehensive housing strategy study (see Attachment #1, Resolution #219/20).
PLN 06-20 June 15, 2020
Subject: The Municipal Comprehensive Review of the Durham Regional Official Plan Page 4
Financial Implications: The recommendations of this report do not present any financial
implications to the City of Pickering.
Discussion:
1. Purpose
The purpose of this report is to obtain Council's approval of staff's comments on the Region
of Durham's Housing Policy Planning Discussion Paper (the Discussion Paper). Appendix I
contains the comments and recommendations on the Discussion Paper.
On January 27, 2020, Council directed staff to review the Envision Durham Housing Policy
Planning Discussion Paper within the context of a previous direction to prepare a
comprehensive housing strategy, and that Councillor Brenner and Councillor Butt be
appointed to work with City staff on this review (see Pickering Council Resolution #219/20,
Attachment #1).
2. "Envision Durham" — The Municipal Comprehensive Review of the Durham Regional
Official Plan
An Official Plan provides a vision for the future orderly development of a municipality
through a set of policies and maps. The Planning Act, which is provincial legislation
governing land use planning in Ontario, requires that a municipality regularly review and
update its Official Plan. With this in mind, the Region is reviewing the Durham Regional
Official Plan. Once the Region has completed its Official Plan review, the City will be in a
position to review the Pickering Official Plan.
The first stage of the Region's Official Plan Review focuses on public engagement, and
includes the preparation of a series of discussion papers. These discussion papers address
the following major areas: agriculture and rural systems; climate change and sustainability;
growth management; the environment; transportation; and housing (see Attachment #2,
Overview of the Region of Durham's Municipal Comprehensive Review of its Official Plan).
3. The Housing Policy Planning Discussion Paper
The Region has released the sixth and last of its discussion papers, Housing Policy
Planning Discussion Paper. This discussion paper provides an overview of Durham's
current ROP policy framework, identifies provincial policy requirements and trends since
the last ROP review and identifies preliminary approaches and questions for discussion
and feedback as it relates to housing choice and affordability in Durham.
The housing policy themes that have been reviewed in this discussion paper include:
• Secondary units
• Inclusionary zoning
• Rental housing conversion
PLN 06-20 June 15, 2020
Subject: The Municipal Comprehensive Review of the Durham Regional Official Plan Page 5
• Demolition control
• Short-term rental housing
• Special needs housing
• Housing for seniors, and
• Shared living
Land use policy can enable and support the delivery of various forms of housing including
affordable and seniors' housing. However, financial and other decisions regarding funding
allocations, subsidies, rent supplements, income supports, and other tools fall outside of
the purview of land use planning and are dealt with through federal and provincial
government and Regional corporate budgetary decisions.
The Housing Policy Planning Discussion Paper can be found online at:
https://www.durham.ca/en/regional-
government/resources/Documents/Council/Reports/2019-Committee-Reports/Planning-
Economic-Development/2019-P-47.pdf
City Development staff has undertaken a detailed review of the Housing Policy Planning
Discussion Paper (see Appendix 1), and the recommendations of Report PLN 06-20 reflect
staff's review, and responses to questions posed in the Discussion Paper.
Appendix
Appendix I Staff Review of the Housing Policy Planning Discussion Paper
Attachments:
1. Resolution #219/20 — Envision Durham Housing Policy Planning Discussion Paper
2. Overview of the Region of Durham's Municipal Comprehensive Review of its Official Plan
PLN 06-20
June 15, 2020
Subject: The Municipal Comprehensive Review of the Durham Regional Official Plan Page 6
Prepared By:
Approved/Endorsed By:
Margaret Kish, IP, RPP Catherine Rose, MCIP, RPP
Principal Planner, Policy Chief Planner
Dean Jacobs, MCIP, RPP
Manager, Policy & Geomatics
MK:Id
/r//'
Kyle Bentley, P. Eng.
Director, City Development & CBO
Recommended for the consideration
of Pickerina City Council
Tony Prevedel, P.Eng.
Chief Administrative Officer
Appendix I to
Report PLN 06-20
Staff Review of the
Housing Policy Planning Discussion Paper
Staff Review of the Housing Policy Planning Discussion Paper
1.0 Background
On December 3, 2019, the Region, as part of the second stage ("Discuss") of their public
engagement program, released the Housing Policy Planning Discussion Paper (the
Discussion Paper), the sixth and last in a series of discussion papers released as part of
"Envision Durham" the Municipal Comprehensive Review (MCR).
The Discussion Paper provides an overview of Durham's current Regional Official Plan
(ROP) and how land use planning can influence housing choice and affordability in
Durham. It reviews housing trends and provides an overview of the housing spectrum in
Durham. For context, there is also a discussion regarding federal, provincial, regional and
local interest in housing. In addition, the Discussion Paper identifies preliminary
approaches and questions for discussion and feedback as it relates to housing choice and
affordability in Durham.
1.1 Questions for Consideration
The following questions are posed throughout the Discussion Paper to generate discussion
and feedback:
1. Should the Region maintain its definition for affordable rental housing to be consistent
with other municipalities in the Greater Toronto and Hamilton Area (GTHA) and the
Provincial Policy Statement (PPS)?
2. Should the Region maintain its definition for affordable ownership housing to be
consistent with other GTHA municipalities?
3. Should the Region take a more active role to increase affordable home ownership
options?
4. Should the Region consider increasing or decreasing its affordable housing targets?
5. Should Durham consider higher affordable housing targets within specific locations,
such as within Strategic Growth Areas that are near key transit corridors?
6. Should the ROP encourage municipalities to reduce parking requirements for second
units in areas that are well served by transit?
7. What other barriers should be removed to make it easier to build second units, such
as basement apartments?
8. Should the ROP include policies on inclusionary zoning?
9. Should Durham continue to combine certain area municipalities as a part of its
required three percent vacancy rate for rental conversion?
10. Should Durham consider reviewing its rental conversion policies to consider
exceptions under certain circumstances?
Page 1 of 25
11. Should the ROP encourage municipalities to enact demolition control by-laws to
preserve existing rental housing?
12. Should the ROP include policies regarding the regulation of short-term rental housing?
13. Should the Region encourage the development of tiny homes to enable more
affordable housing options? If so, where?
14. Where are the most appropriate locations to build mid -rise apartments in Durham?
15. What should the Region do to help people with mental health concerns secure safe
and affordable housing?
16. What policies should the Region consider within the ROP to increase housing options
for seniors?
17. Should the Region have a role in helping to facilitate shared living housing?
18. What ROP policies should be strengthened to support the development of diverse
housing options including affordable housing?
The Discussion Paper does not present positions on potential changes that may be part of
the ROP, and only provides information and poses questions for consideration. Regional
staff will report to Regional Planning and Economic Development Committee on the results
of the Discussion Papers in the next stages of the Envision Durham process.
The following Sections 2.0 to 5.0 (inclusive) contain staff's review and recommended
responses to the Region's questions. Subsections 5.1 to 7.1 (inclusive) contain staff's
summary of the Discussion Paper's overview of the housing system in Canada, Ontario and
the Region, and associated key policy documents and initiatives.
This Report also responds to Pickering Council Resolution #219/20.
2.0 Housing Policy Planning Discussion Paper
The following sections provide a high level overview of the Discussion Paper, and answers
to the questions posed with staff recommendations (highlighted in bold) on matters that
should be addressed through Envision Durham.
2.1 Housing Trends
Nearly 700,000 people now live in Durham, occupying almost 240,000 households. The
Region is forecast to grow to almost 1.2 million people by 2041. Most of this growth will be
focused in urban settlement areas, with the greatest concentration of population in the
municipalities of Pickering, Ajax, Whitby, Oshawa and Clarington.
Low-density housing is the most common form of housing in Durham, with single -detached
dwellings accounting for approximately 70 percent of all dwelling types. In recent years
there has been greater diversity in the forms of housing being constructed, with more
medium- and high-density forms of housing, such as townhouses and apartments. Second
units (such as basement apartments) are also becoming more prevalent.
Page 2 of 25
According to 2016 census data, more than 80 percent of households in the Region owned
their homes while nearly 20 percent rented their homes. By comparison, Durham had a
lower percentage of renters than Ontario (approximately 30 percent) and the Greater
Toronto and Hamilton Area (GTHA) (approximately 33 percent).
In 2016, the City of Pickering had a higher percentage of households that owned their
homes (87 percent) compared to the Region (80 percent).' The percentage of renters in the
City of Pickering is significantly lower (13 percent) by comparison to the Region (20 percent)
and the Province (30 percent).
In 2018, the population of Pickering was estimated at 97,435, representing just under
32,000 households.2 The City of Pickering is forecasted to grow to about 172,000 people
by 20383. The majority of this growth is anticipated to occur within the community of Seaton
(approximately 57,000 people in the next 20 years).
In the City of Pickering, single -detached dwellings account for the greatest proportion of
dwellings (approximately 61 percent), followed by apartments (approximately 18 percent),
townhouses (14 percent) and semi-detached dwellings (8 percent).4
2.2 Demographic Trends
One of the most significant demographic trends occurring in Durham is that of an aging
population. Since 2001, the percentage of seniors (aged 65 years and older) has risen from
nearly 10 percent to more than 14 percent of the Region's total population. The Ministry of
Finance projects that by 2041, nearly a quarter of Durham's population will be 65 years of
age or older (23.8 percent).
Migration is also a significant contributor to growth in Durham Region. Over two-thirds of
population growth in the last five years has been through migration into Durham. In the five
years from July 2013 to July 2018, over 33,000 people migrated to Durham.
Over time, there has been an overall trend toward fewer people on average residing in
each household in Durham. This means that many residents may be "over -housed" with
more bedrooms in their homes than they may require.
It is expected that the future housing demand will be driven by the needs of an aging
population, affordability factors, smaller household sizes, and the needs of a growing
population.
1 Canada Statistics, 2016 Census Data, https://wwwl2.statcan.gc.ca/census-recensement/2016/dp-
pd/prof/details/page.cfm?B1=All&Code1=3518001 &Code2=35&Data=Count&Geo1=CSD&Geo2=PR&Lang=E&Searc
hPR=01 &SearchText=Pickering&SearchType=Begins&TABID=1
2 Durham Region, Monitoring of Growth Trends, December 6, 2019. https://www.durham.ca/en/livinq-
here/resources/Documents/2019-I N FO-90-Monitoring-of-Growth-Trends.pdf
3 The City of Pickering 20 Year Population Forecasts,
https://www.pickering.ca/en/business/resources/20YearPopulationForecast. pdf
a Canada Statistics, 2016 Census Data, https://wwwl2.statcan.gc.ca/census-recensement/2016/dp-
pd/prof/details/page.cfm?Lanq=E&Geo1=CSD&Code1=3518001 &Geo2=CD&Code2=3518&SearchText=pickering&S
earchType=Begins&Search PR=01 &B 1=AI I&TAB I D=1 &type=0
Page 3 of 25
Based on the most recent Census, the population of adults 55 years of age or older in
Pickering was 27,185 as of 2016, representing approximately 30 percent of the total
population of Pickering. Significant population growth is projected for older adults going
forward. By 2022, older adults will represent approximately 38 percent, and by 2032, they
are forecasted to represent approximately 43 percent of the total population in Pickering5.
3.0 The Housing Spectrum
A healthy housing system offers a diverse mix of housing forms that can accommodate a
variety of individual and family needs. A balanced housing market should include both
rental and ownership options, and give people at all income levels access to safe and
stable housing.
3.1 Homelessness
Durham has a lower incidence of unsheltered and emergency sheltered households when
compared to more urbanized areas in Canada.
There were 6,555 households on the Durham Access to Social Housing (DASH) wait list at
the end of 2018. Of these, about 21 percent live in temporary accommodation or live
without security of tenure (such as staying with family and friends, temporary
accommodation in motels, staying in public institutions, like hospitals). A further 12 percent
live in insecure rooming situations, which are often unregulated and may not be safe,
suitable or protected under the Residential Tenancies Act. In 2018, 6 percent of the total
number of DASH wait list applicants lived in Pickering.
3.2 Community Housing
In the last decade, the DASH wait list has increased 67 percent (from 3,926 in 2009). The
increase reflects the limited supply of community housing and low turnover rates. It is also
indicative of the shortage of affordable housing in the private market.
About two-thirds of applicants on the DASH wait list are renters and almost half of these
are likely to be at risk of homelessness as they pay more than 50 percent of their income
on rent. Single non -seniors continue to face the greatest challenges with homelessness.
3.3 Rental Housing Market
Approximately half of renters in Durham spent more than 30 percent of their income on
housing and about 10 percent of renters spent over 70 percent of their income on housing
in 2016. In addition, the percentage of people paying unaffordable rents increased between
2011 and 2016.
In 2018, the average market rent (AMR) in Durham was $1,223 per month. New listings
surveyed in 2018 for one bedroom apartments averaged over $1,500 per month. The
difference between the AMR and the average market rent for an available unit in 2018,
demonstrates that a renter can expect to pay more than $250 over the AMR.
5 Pickering Age Friendly Plan, September 2019.
Page 4 of 25
Rental affordability is particularly acute for single non -seniors, who are often provisionally
accommodated (in temporary accommodation) and are increasingly using emergency
shelters.
A healthy housing mix should include a balance between home ownership and rental
tenure. There is a need to create more affordable purpose-built rental housing in Durham
Region, as demand is far outpacing supply and costs have increased well above inflation
and income growth over the past decade.
It is estimated that about 47 percent of renters in Durham are housed in the secondary
market (such as basement apartments, private condominiums for rent, etc.), but there is
limited information about the suitability and affordability of these units.
In Pickering, approximately 46 percent of renters spent more than 30 percent of income on
shelter costs in 2016, compared to 37 percent in 2011.6
3.3.1 Affordable Rental Housing
Most renters in Durham have low to moderate income, and there is a gap between the rent
they can afford to pay, and the rents required to support the cost of new rental housing
development/investment.
Affordable rental housing is defined in the ROP as the lower of: spending 30 percent or less
of gross income on shelter (the income threshold); or AMR (the market threshold).
Affordable housing must be affordable for low and moderate income households, which is
defined as renters with income at or below the 60th percentile of income of all rental
households in Durham.
The ROP definition for affordable rental housing is comparable to most single and
upper -tier municipalities in the GTHA and is consistent with the Provincial Policy
Statement (PPS).
Through Envision Durham, the Region is considering other definitions of "affordable" such
as using a higher ratio (possibly 35 percent) of income spent on rent, or measuring income
at the 50th percentile to reflect the median, or measuring income at the 40th percentile to
reflect a lower range of low and moderate incomes.
The current definition of affordable housing for low and moderate income households in the
ROP does not reflect the ability of some workers to pay their rent. The Region's Affordable
and Seniors' Housing Task Force recommended that the Region request that the Province
expand the definition of "Affordable Housing" in the PPS to address households with the
greatest need, to better reflect the depth of affordability issues experienced by vulnerable
low-income households.
6 Statistics Canada Data, 2016 Census, https://wwwl2.statcan.gc.ca/census-recensement/2016/0
pd/prof/details/page.cfm?Lang=E&Geo1=CSD&Code1=3518001 &Geo2=PR&Code2=35&SearchText=Pickering&Sea
rchType=Begins&SearchPR=01 &B1=Housing&TABID=1 &type=0
Page 5 of 25
The City of Pickering Official Plan defines "affordable" as annual housing costs (rent or
mortgage payments) that do not exceed 30 percent of gross household income.
In response to Question 1, staff recommends that the Region maintain its definition of
affordable rental housing to be consistent with the Provincial Policy Statement and
other municipalities in the Greater Toronto and Hamilton Area, and for the purpose
of monitoring and comparability.
3.4 Home Ownership Market
Mortgage amortizations were extended in 2007, making monthly payments less expensive
for homebuyers. This, combined with pent-up demand following the housing boom of the
late 1980s and the recession of the early 1990s, fueled the demand for residential
construction in the early 2000s.
Since 2008, resale home prices in Durham increased by 115 percent (7.2 percent per
year). In Pickering, the average resale home price was $318,909 in 2008 and increased to
$699,087 in 20197, representing a growth of 119 percent. In 2016, approximately
22 percent of home owners spent 30 percent or more of their income on shelter costs.8
3.4.1 Affordable Ownership Housing
In Durham, affordable ownership housing is defined in the ROP as the lower of 30 percent
of income or 10 percent below the average price of a resale home. Affordable housing is
meant to be housing that is affordable to low and moderate income households, which are
defined by the 60th percentile of income.
For 2018 in Durham Region, a home would be considered affordable if it sold at or below
$407,667. For the City of Pickering, the 2018 ownership affordability threshold was
$450,902.9
The City of Pickering Official Plan (POP) defines "affordable" as annual housing costs (rent
or mortgage payments) that do not exceed 30 percent of gross household income. Unlike
the ROP, the POP does not qualify the definition of affordability for ownership housing to be
the lower of 30 percent of income or 10 percent below the average price of a resale home.
In response to Question 2, staff recommends that the Region maintain its definition of
affordable ownership housing to be consistent with the Provincial Policy Statement
and other municipalities in the Greater Toronto and Hamilton Area and for the
purpose of monitoring and comparability.
Durham Region Profile, 2015; Toronto Real Estate Board, Market Watch, December 2019.
http://www.trebhome.com/files/market-stats/market-watch/mw1912. pdf
8 Statistics Canada, 2016 Census, https://wwwl2.statcan.gc.ca/census-recensement/2016/dp-
pd/prof/details/page.cfm?Lang=E&Geo1=CSD&Code1=3518001 &Geo2=PR&Code2=35&SearchText=Pickering&Sea
rchType=Begins&SearchPR=01 &B1=Housing&TABID=1 &type=0
9 Durham Region, Planning and Economic Development Department
Page 6 of 25
3.4.2 Affordability and Diverse Housing Types
There are two important trends indicated by the sales of affordable housing in Durham.
First, home ownership is becoming less affordable in Durham. Sales of new affordable
housing throughout the region was less than 25 percent over the last two years.
The second trend relates to the fact that the resale market is dominated by single -detached
homes, which are generally the most expensive housing type. Recently, the new homes
market has shifted toward smaller units in higher -density developments. The result is that
new homes have become relatively more affordable than resale homes in the last few
years.
In Durham, construction of townhomes and apartments has increased significantly in the
last five years. In 2018, the average price of a new single -detached home was over
$700,00010 while new townhomes and apartments were less than $500,00011 on average.
In Pickering, the average price of a new single -detached home was $961,753 in 2019
compared to $995,817 in 2018.12 In Pickering, the average price of a resale home (all
types) was $699,087 in 2019, compared to $690,719 in 2018.13
The Discussion Paper has identified two options to help increase the amount of affordable
housing in the Region: financial incentives; and requiring a greater proportion of smaller
residential units within developments.
The City of Pickering Official Plan contains housing policies that promote opportunities for a
wide variety of housing forms, tenure and types to meet the evolving needs of Pickering's
residents. The housing policies in the POP specifically address the supply of housing, the
diverse mix of type and tenure, as well as the provision of an adequate supply of
affordable, rental, assisted and special needs housing.
Based on the evidence provided earlier, there is a demonstrated need for increased
diversity in the type of housing, greater affordability of both rental and ownership housing,
and an increase in purpose-built rental housing within the city. In addition, Council has
directed staff to undertake a comprehensive housing strategy (through the Age Friendly
Community Plan, Action Item 1.1 and Resolution #140/19) and this work will help establish
the City's role and priorities with regard to facilitating opportunities for developing housing,
affordable housing and age -friendly housing in Pickering (see Report PLN 05-20).
10 In 2018 the price of a new single -detached home was $739,821 as reported by CMHC (Housing Now—Greater
Toronto Area).
11 The average price of a new townhouse and apartment were $458,773 and $443,118. Calculated from MPAC and
Altus sales data.
12 Canada Mortgage and Housing Corporation Data, https://www03.cmhc-schl.gc.ca/hmip-
pim h/en#Profile/3518001 /4/Pickering%20(Ontario)
13 Toronto Real Estate Board, Market Watch December 2019. http://www.trebhome.com/files/market-stats/market-
watch/mw1912.pdf
Page 7 of 25
It is important for all levels of government, including the Region, to take a more active role
in working towards increasing affordable ownership housing and rental housing options,
increasing the amount of purpose-built rental housing, and increasing the diversity of
housing types within the region.
In response to Question 3, staff recommends that the Region take a more active role to
increase affordable ownership housing and rental housing options, increase the
amount of purpose-built rental housing, and increase the diversity of housing types
within the region.
4.0 Housing Policy Planning
4.1 Durham Regional Official Plan
4.1.1 Affordable Housing Targets
The Durham Regional Official Plan (ROP) designates residential lands, provides policies
which permit residential uses in certain land use designations, and requires at least
25 percent of all new residential units to be affordable to low and moderate income
households. The ROP policies are required to be consistent with provincial policies and
plans, such as A Place to Grow: Growth Plan for the Greater Golden Horseshoe, which
establishes that municipalities are to plan for a mix of housing options and affordable
housing. Recent changes to the provincial Growth Plan require municipalities to establish
targets for affordable ownership and rental housing.
Some GTHA municipalities have established affordable housing targets greater than the
minimum requirement of 25 percent of all new residential dwellings. Some municipalities
have also defined areas where affordable housing should constitute a higher proportion of
new residential units, such as Regional Centres and key development areas. For example,
Halton Region's Official Plan (OP) requires that a minimum of 30 percent of new housing
units in that region consist of affordable or assisted housing, and York Region's OP
requires that new housing in its Regional Centres and key development areas contain at
least 35 percent of affordable units, with some accessible unit options.
The POP contains an affordable housing target of 25 percent. Different targets are not
currently applied to the City Centre, a designated Urban Growth Centre in the Growth Plan
and a designated Regional Centre in the ROP. Although considered through the Kingston
Road Corridor and Specialty Retailing Node Intensification Study, alternate affordable
housing targets were not established.
It should be noted that affordable housing targets, and the associated supply of affordable
housing, are influenced by how "affordable" is defined. In addition, clarity is required with
respect to targets applied to affordable housing according to tenure (ownership or rental
housing).
Page 8 of 25
In principle, staff support increasing affordable housing supply. Servicing and infrastructure
capacity, and suitability to accommodate increased affordable housing targets, should be
determined at the local level and are more appropriately assessed and considered through
the development of local housing strategies. As noted earlier, Council has directed staff to
undertake a comprehensive housing strategy (see Report PLN 05-20) and this study will
help clarify the direction that the City should take with respect to the matter of increasing
affordable housing supply through affordable housing targets, and/or other methods,
generally and within specific locations in Pickering.
In response to Questions 4 and 5, staff recommends that the Region include policies in
the Regional Official Plan that generally support higher targets for affordable
housing within Strategic Growth Areas and other appropriate areas as defined by the
local municipality.
Further, staff recommends that the Region provide greater support and
encouragement for the development of local housing strategies which can address
the local municipal context and aid in achieving the Region's goals and objectives
for increasing the supply of affordable housing.
In addition, staff recommends that the Region encourage area municipalities to
explore the use of a full suite of incentives and policy tools, such as financial
incentives, Development Charge/Community Benefits Charge By-laws, reduced
parking requirements, expedited development applications, and donation of surplus
lands, through local housing strategies in order to achieve affordable housing targets.
4.1.2 Land Supply
Currently the ROP requires that a minimum ten-year supply of land is designated and
available for residential development. The Province has recently changed the PPS to
increase the housing land supply to a minimum of 15 years (PPS 2020). The Region's
official plan will have to be updated to reflect this change.
The ROP also requires a three-year supply of residential units that are draft approved.
The Province has also changed the PPS to allow municipalities to increase the supply to
5 years. The Region currently has more than 30,000 dwelling units in draft approved and
registered plans of subdivision and condominium that have not been built. Envision Durham
will review the land supply required to accommodate growth to 2041.
The POP establishes a minimum ten year supply of residentially designated lands to meet
long-term housing demand, and a minimum three year supply of residential land that is
draft approved or as part of a registered plan. The POP also needs to be updated to reflect
the recent changes to the PPS. Pickering currently has 1,419 dwelling units in draft
approved and registered plans of subdivision and condominium that have not been built.
4.2 Area Municipal Official Plans
Area Municipal Official Plans (OPs) must conform to the ROP. They refine and provide
further detailed guidance on Regional policies and plans. Area Municipal OPs provide
detailed policies for housing matters including: required densities; floor space indices;
affordable housing; and general location and characteristics of built forms; which are
implemented through zoning by-laws.
Page 9 of 25
Area Municipal OPs ensure a diverse mix of housing needs are accommodated through
housing that is accessible, adaptable, barrier free, and enables aging in place.
Municipalities also have the ability to offer incentives to encourage affordable housing
through financial incentives, relaxation of zoning requirements, expedited application
processes, or donation of surplus lands.
Chapter 6 of the POP contains policies which promote opportunities for a wide variety of
housing forms and tenure to meet the evolving needs of Pickering's residents. The POP
housing policies will be reviewed as part of the City's comprehensive housing strategy
study (see Report PLN 05-20).
4.3 Municipal Zoning By -Laws
Official plan policies are implemented by municipalities through zoning by-laws. Zoning
provides site specific land use provisions and performance standards for how a property
can be used and developed. Zoning by-laws translate policies from Area Municipal OPs,
Regional OPs and provincial policy to construction on the ground.
Zoning by-laws are not intended to "people zone" by regulating who and how many people
live in a dwelling, including their socio-economic status. However, zoning by-laws are
designed to permit (or restrict) various housing types and help define the neighbourhood
character, such as density, building height and placement. Performance standards such as
minimum lot area and floor space can also be incorporated into zoning by-laws. Zoning
by-laws may also be more permissive in encouraging affordable housing options. For
example, parking requirements may be reduced for housing in areas that are in proximity to
transit in order to incentivize affordable housing.
The City will be reviewing options for incentivizing affordable housing through the
comprehensive housing strategy study. In addition, other zoning by-law provisions that may
incent affordable housing may become apparent through the City's current Comprehensive
Zoning By-law Review study.
4.4 Second Units
Second units (or Accessory Dwelling Units) are self-contained residential units with a
private kitchen, bathroom facilities and sleeping areas within dwellings or within detached
structures ancillary to a dwelling. Second units may be in the form of basement apartments,
coach houses, garden suites, granny flats, in-law apartments, or nanny suites. Second
units can provide an affordable rental option to increase the housing supply, as well as
allow homeowners to earn additional income; provide more housing options for extended
families, elderly parents, or live-in caregivers; help create mixed -income communities;
gently intensify within existing communities; and make more efficient use of existing service
and public transit.
Currently, the Planning Act requires Area Municipal OPs and Zoning By-laws to permit
second units in detached, semi-detached and row houses, or within a building or structure
ancillary to these housing types. In 2019, the Province introduced More Homes, More
Choice: Ontario's Housing Supply Action Plan through Bill 108 which included changes to
the Planning Act to further support second units. Some of the changes introduced include:
Page 10 of 25
• requiring municipalities to permit second units in detached, semi-detached, and row
houses in primary dwellings and within ancillary buildings or structures
• prohibiting municipalities from applying a development charge for second units above
garages or in laneways, or built in new homes (subject to restrictions)
• requiring municipalities to permit two units in either the primary dwelling unit or in any
ancillary building, effectively allowing up to three residential units on a single lot
Zoning By-law provisions may also stipulate additional requirements for a second unit such
as maximum floor area, parking, amenity/landscaped areas, permitted zones, home-based
business restrictions, or separate entrance requirement.
Bill 108 recently prohibited municipalities from requiring more than one additional parking
space for second units. However, municipalities may also choose to reduce parking
requirements further. In Pickering, the Zoning By-law currently stipulates that dwellings with
a second unit require three parking spaces (two spaces for the principal dwelling and one
space for the second unit). Some municipalities, including Toronto, do not require any
parking spaces for second units. Parking requirements will be further reviewed through
Pickering's Comprehensive Zoning By-law Review, which is currently underway.
In general, reducing parking requirements supports public transit initiatives; sustainable and
multi -modal travel choices; pedestrian oriented spaces; and compact urban form
appropriate to optimize land, infrastructure, and transit services. These matters can be
considered further through Pickering's Comprehensive Zoning By-law Review.
Following the adoption of the Two -Dwelling Unit By-law (By-law 7579/17) in September 2017,
the City of Pickering has tracked the registration of two -dwelling unit properties in the city.
Two -dwelling unit property means a parcel of land containing a maximum of two dwelling
units within a detached dwelling, a semi-detached dwelling, a street townhouse dwelling, or
an accessory building, subject to the provisions of the applicable City Zoning By-law. In
Pickering, 136 new accessory dwelling units were registered between 2017 and 2019, an
average of 45 units per year.14 It is generally assumed that a number of unregistered
second units also exist within Pickering.
In response to Question 6, staff recommends that the Region encourage area
municipalities to consider reducing parking requirements for second units located in
areas well served by transit. Further, staff recommends that Regional Official Plan
policies should be updated to reflect the More Homes, More Choice Act changes to
permit secondary units in a detached, semi-detached or row house, as well as in a
building or structure ancillary to a detached house, semi-detached or row house and
allow detached secondary units in rural areas. Permission for detached secondary units
in rural areas will depend on the capacity of well and septic systems.
14 Pickering Geomatics, AMANDA data.
Page 11 of 25
Question 7 asked if there were other barriers to facilitate the building of more secondary
suites. While staff have no specific suggestion, it is noted that much of the recent
construction has been in the form of townhomes with no basements, and stacked
townhomes. These unit types and associated small lot sizes are less conducive to adding
secondary suites than detached or semi detached dwellings with basements.
4.5 Inclusionary Zoning
Inclusionary Zoning (IZ) is a planning tool that allows municipalities to require that a portion
of residential units in a development be affordable housing. Recently, the Province made
changes to the Planning Act and adopted regulations to enable single -tier and lower -tier
(area) municipalities to implement inclusionary zoning policies through area specific zoning
by-laws. Inclusionary zoning provisions can be tailored to include matters such as:
• thresholds for the application of inclusionary zoning, such as proposed developments
containing 10 or more units; municipalities can set higher thresholds
• affordability periods stipulating the length of time that IZ units must be maintained as
affordable
• number of units within each development set aside to be affordable
• building requirements and standards for IZ units
• administration and monitoring of IZ units to ensure long-term affordability, such as
eligibility and pricing of units, and enforcement of requirements
In 2019, Ontario's Housing Supply and Action Plan amended the Planning Act to allow
inclusionary zoning policies to apply only within high growth areas in proximity to higher
order transit and major transit stations. The regulation also allows inclusionary zoning to be
applied to require up to 10 percent of housing units sold within a development to be
affordable. In order to be implemented, municipalities must undertake an assessment
report which addresses various requirements. This assessment report will inform the
development of appropriate official plan policies and zoning by-law provisions. Where
inclusionary zoning is in place, monitoring and reporting is required every two years.
The POP does not currently address inclusionary zoning as it is a relatively new tool.
However, the City's proposed comprehensive housing strategy study (see Report PLN 05-20)
will explore the merits and appropriateness of IZ for implementation within the City of
Pickering.
In response to Question 8, staff recommends that if the Region includes policies on
inclusionary zoning in the Regional Official Plan, these policies be encouraging in
nature, enabling the local area municipalities to determine the appropriateness of
where and when to use the tool.
4.6 Rental Housing Conversion
Many single- and upper -tier municipalities have policies that discourage or prohibit the
conversion of rental housing to ownership units. Within the GTHA, municipalities generally
discourage conversions where six or more rental housing units will be removed.
Consideration of rental housing conversion is often subject to the following general criteria
(each municipality may vary):
Page 12 of 25
• a tenant relocation and assistance plan
• the vacancy rate is at least 3 percent for at least one calendar year
• a rental housing replacement strategy
• majority tenant support of the proposed conversion
Among the regional municipalities in the GTHA, Durham Region is the only one that has
combined area municipalities to determine the required 3 percent rental vacancy rate
(i.e., Pickering and Ajax; Whitby and Oshawa; and Scugog, Uxbridge and Brock).
The rationale for the current approach of combining municipalities for the purpose of
determining the rental vacancy rate is unclear. Subject to the Region clarifying its rationale
for combining Pickering and Ajax for the purpose of determining a rental vacancy rate, staff
are supportive of the Region taking a similar approach to the criteria for rental to ownership
housing conversions as other regional municipalities in the GTHA.
In response to Question 9, staff recommends that the Region report on vacancy rates
for each municipality individually (rather than combining Ajax and Pickering), if
possible, to allow each municipality to better address the specific needs of their own
community.
The POP does not currently contain policies on conversion of rental housing to ownership
units. This could be considered as part of the City's housing strategy study.
Some municipalities, like Toronto and Hamilton, have taken a more restrictive approach to
conversion policies establishing criteria such as a proponent demonstrating that imminent
repairs to an existing rental building are required, and that the income received for its
upkeep is inadequate to support the required repairs (Hamilton), or a proponent
demonstrating that the supply and availability of rental housing supports a minimum rental
vacancy rate of 3 percent for four consecutive years (Toronto).
In response to Question 10, staff recommends that the Region consider strengthening
the rental to ownership housing conversion policies in the Regional Official Plan to
help protect existing affordable rental housing.
4.7 Demolition Control
A demolition control by-law is used to preserve existing purpose-built rental housing.
Demolition control by-laws allow municipalities to manage the demolition of purpose-built
rental units, maintain the integrity of established neighbourhoods, and prevent parcels of
land from becoming vacant for long periods of time before new uses have been considered
and constructed. Demolition control may also require a permit to demolish purpose-built
rental units, if certain criteria are met, such as:
• the minimum Canada Mortgage and Housing Corporation (CMHC) rental vacancy rate
for the area municipality is 3 percent over a specific length of time
• a tenant relocation plan
• sufficient tenant notification
• right -of -first -refusal for existing tenants to rent replacement units
• free rent for a specific period for long standing residents
• financial compensation for tenants
Page 13 of 25
Currently, none of the area municipalities within Durham have enacted demolition control
by-laws for purpose-built rental housing. Generally, residential demolition has increased
over the last five years with an average of 230 demolitions per year in Durham. However,
nearly all demolitions have been single detached dwellings. Demolitions have been
approved to accommodate new road infrastructure, infill, or replacement housing
developments. Demolition control by-laws are not intended to address the demolition of
single detached dwellings that are being rented out by the owner.
The Region's Affordable and Seniors' Housing Task Force (Recommendation 1-8)
recommended supporting the adoption of demolition control by-laws to prevent the loss of
affordable rental and/or seniors' housing due to demolition without replacement.
Although the Region of Durham has not witnessed the demolition of rental apartments in
recent years, there will likely be increasing pressure in the future for redevelopment as
rental housing buildings reach their end of life, or need major repairs, and as certain areas
become more desirable for redevelopment. The appropriateness of enacting a demolition
control by-law for Pickering could be considered through the City's comprehensive housing
strategy study.
In response to Question 11, staff supports the inclusion of policies in the Regional
Official Plan that encourage municipalities to use tools, such as a demolition control
by-law, to preserve existing affordable rental housing especially in certain locations
such as Strategic Growth Areas or areas in proximity to transit where existing rental
housing may be older and therefore more susceptible to demolition and
redevelopment.
4.8 Short-term Rental Housing
Short-term rental housing, such as AirBnB and VRBO, are often used by travelers as a
substitute for hotel accommodations. They can have an impact on housing supply,
displacing available rental housing that would otherwise provide permanent housing. When
rental demand is not balanced by supply, monthly rents will likely increase over time.
A study conducted by Durham Region in 2019 indicated that Durham has approximately
356 short-term rental units, 44 units of which are located within Pickering.
As short-term rentals have only recently been getting more attention, they have not yet
been addressed in the ROP or through Provincial land use planning policy. At this time,
Oshawa is the only municipality in Durham that has adopted a local by-law regulating
short-term rental accommodations.
In areas where short-term rentals are prevalent, concerns have been raised regarding
conflicts with existing residential uses, noise, safety, parking, taxation and enforcement,
among other factors. However, short-term rentals can also provide significant benefits for
the local economy and tourism, and provide places to stay where hotels or other
purpose-built short-term lodging accommodations are not available or are in short supply.
This may be especially true in Durham's northern townships where there is a greater need
to enable tourism activities and there are fewer hotel accommodation options.
Page 14 of 25
While area municipalities in Durham could benefit from using a consistent approach to
regulating short-term rentals, urban and rural areas and different communities are likely to
experience different pressures or challenges related to short-term rental accommodations.
The POP does not contain any policies pertaining to short-term rentals nor do the Pickering
zoning by-laws currently address short-term rentals. This matter could be considered as
part of the City's housing strategy study.
In response to Question 12, staff recommends that the Region develop a monitoring
framework for short-term rentals to assess the impact of short-term rental housing in
Durham. Further, staff recommends that the Region consult with local municipalities
and economic development and business groups prior to the inclusion of policies
addressing short-term rentals in the Regional Official Plan.
4.9 Rural Housing
The predominant form of housing in rural areas of Durham, including hamlets, is single
detached houses (over 97 percent). The limitations of private well and septic systems
prevent higher density forms of housing in the rural area. The Region estimates that there
is the potential for approximately 2,245 additional residential dwelling units in the rural area
with the majority being located outside of rural settlement areas. This would represent an
additional population of approximately 6,800 in Durham's rural area. The Region will
consider development trends and potential in the rural area further through the Land Needs
Assessment and as part of the Envision Durham Growth Management Study.
Rural residential development potential in Pickering is approximately 260 units, based on
an analysis completed as part of the Detailed 20 -Year Population Forecast for the City of
Pickering, dated March 2020.
4.10 Tiny Houses
Tiny houses are small homes that could provide a more affordable home ownership option
that is generally less expensive to build and maintain. Tiny houses may be considered
second units (or accessory dwelling units) in the form of ancillary structures, garden suites,
granny flats, or laneway houses that could potentially contribute to the supply of rental
housing.
Tiny homes can also be built on a chassis or frame so that they are portable, and can be
considered a mobile home. Mobile homes are regulated by the Ministry of Transportation
and therefore do not require a building permit and are not subject to the Ontario Building
Code. Zoning by-laws do not generally permit mobile homes in most areas outside of
mobile home parks. Currently, Pickering does not have any provisions in the zoning
by-laws that permit the use of tiny houses. This matter may be addressed through the
Comprehensive Zoning By-law Review and the comprehensive housing strategy study.
In response to Question 13, staff recommends that the Region consider including a
clear definition of "tiny home" that contemplates size, mobility, servicing needs, and
the similarities and differences compared to modular homes, prefabricated small
homes, and mobile homes.
Page 15 of 25
4.11 Six -Storey Wood -Frame Construction
In 2015, the Province amended the Ontario Building Code (OBC) to enable six -storey
wood -frame construction. This alternative to typical concrete and streel construction added
greater housing options and opportunities for a mid -rise building form of intensification, and
potentially a more efficient, cost-effective development where higher -density residential
development is not appropriate or would not otherwise be economically viable.
Although the POP does not define "mid -rise building", it is generally understood to mean a
building between six and eight storeys in height. Mid -rise development is considered a
compatible transition to lower density housing such as single detached, semi-detached,
street and/or stacked townhouses, and can be appropriately placed along arterial roads
and in areas supported by transit service and other amenities on the periphery of
established low density neighbourhoods. Limited mid -rise development may be appropriate
within Major Transit Station Areas (MTSAs) and Strategic Growth Areas (SGAs) where
compatibility and/or transition with existing development is required. However, opportunities
for higher densities should be protected and maintained within MTSAs and SGAs.
The POP supports and reinforces established low density neighbourhoods. In addition, the
City has just concluded the Kingston Road Corridor and Specialty Retailing Node
Intensification Study which culminated in Council's endorsement in principle of an
Intensification Plan. The Intensification Plan identifies various sites along the Corridor and
within the Node for potential medium density or mid -rise housing forms. The ability to
introduce mid -rise wood -frame development along the Corridor and within the Node could
potentially expedite the development of more diverse and affordable housing options and
support available bus rapid transit services.
In response to Question 14, staff recommends that the Region enable local
municipalities to determine the appropriate locations for mid -rise development
through local intensification studies, secondary plans, and through the evaluation of
site-specific development proposals to ensure that the local context is suitably
addressed.
4.12 Special Needs Housing — Mobility and Mental Health
There are approximately 70,000 Durham residents that are living with a disability.
Accessible housing enables independent living for persons with disabilities. Improvements
to accessibility can be achieved through architectural design and integration of features,
appliances, fixtures, and furniture.
Adequate, suitable and affordable housing contributes to physical and mental well-being.
The inability to secure safe and affordable housing negatively impacts a person's mental
health. Furthermore, a shortage of affordable rental housing is a key contributor to
homelessness. Fifty-eight percent of Durham's homeless individuals identified as having a
mental illness and 31 percent identified as struggling with an addiction or substance abuse.
There is a need for a range of housing options, including supportive housing, rent
supplement programs, and improved access to services to assist those with special needs.
Page 16 of 25
The POP encourages the provision of an adequate supply of housing throughout the City
including the provision of an adequate supply of affordable, rental, assisted and special
needs housing. Further, the POP enables zoning to permit the operation of group homes
within all residential areas and encourages the support of providers of assisted and special
needs housing in the city.
In response to Question 15, staff recommends that the Region support people with
mobility and mental health challenges to secure safe and affordable housing and
maintain tenancies by:
• continuing to ensure collaboration among housing, health, and social services
departments and agencies;
• continuing to promote the development of supportive housing, semi-independent
living, subsidized housing, transitional housing, etc.; and
• ensuring affordable and special needs housing is located in close proximity to
community supports.
Further, staff recommends that the Region elaborate on the meaning of "special
needs groups" as referred to in Section 4.3.6 of the Regional Official Plan.
Also, staff recommends that the Region continue exploring the issue of supporting
people with mobility and mental health challenges through the development of the
Region's Community Safety and Well-being Plan and Comprehensive Master
Housing Strategy.
4.13 Housing for Seniors
By 2041, nearly a quarter of Durham's population will be 65 years of age or older
(23.8 percent). Durham seniors aged 90 or older are projected to increase by 274 percent,
from 4,600 in 2018 to over 17,000 in 2041. Suitable housing options that are accessible,
low maintenance, and/or support changing physical and cognitive needs, will assist seniors
who wish to continue to live independently and "age in place".
The Region's Age -Friendly Durham Strategy and Action Plan (2017) and At Home in
Durham: Durham Region Housing Plan 2014-2024, build on the Region's commitments to
develop a broad range of affordable housing and housing opportunities.
Currently, the Region owns and operates four long-term care facilities in Durham: two in
Oshawa, one in Whitby, and one in Beaverton (Brock Township). These facilities mainly
serve seniors. However, they also provide supportive housing for persons with special
needs.
There are 68 actions identified in Pickering's Age Friendly Community Plan, nine of which
are associated with the World Health Organization (WHO) theme of Housing. Housing is
identified as the highest priority WHO theme. Some of the actions include:
• develop a comprehensive housing strategy that focuses on the need for delivering
more lifecycle housing options, including affordable and accessible units to support
changing demographic conditions
Page 17 of 25
• advocate for additional funding for supportive housing and long-term care facilities for
older adults
• building on the recommendation of At Home in Durham: Durham Region Housing Plan
2014-2024, explore the feasibility of providing financial incentives for residential
developers who deliver a specified percentage of affordable rental housing units for
older adults with low and moderate incomes
The completion of the City's comprehensive housing strategy will help establish the City's
role and priorities with regard to facilitating opportunities for developing affordable housing
and age -friendly housing in Pickering.
In response to Question 16, staff recommends that the Region:
• continue to support and partner with other levels of government to promote and
provide affordable rental housing; and
• include policies in the Regional Official Plan that address the provision of
adequate and locationally appropriate long-term care facilities that will meet the
current and future needs within the Region.
Further, staff recommends that the Region support the needs of an aging population
by including policies in the Regional Official Plan that reflect the direction, goals and
objectives contained in the Age -Friendly Durham Strategy and Action Plan,
including:
• providing opportunities for affordable, assisted housing options and
encouraging development that complements the concept of "aging in place";
• addressing accessibility needs and age -friendly design within the built
environment; and
• ensuring that active and passive recreational facilities, and community and
health services are available for the aging population.
The recommendation related to the Age -Friendly Durham Strategy and Action Plan is
consistent with Council's comments on the Growth Management Urban System Discussion
Paper contained in Report PLN 32-19, dated December 16, 2019 and endorsed by
Resolution #205/19.
4.14 Shared Ownership Housing
Housing has increasingly become more expensive and at the same time the number of
single person households is increasing. Shared living is an option to address high housing
costs and loneliness, which can be a by-product of living alone. Shared living can take
different forms, such as shared ownership, multi -tenant, or multi -generational.
New models of shared ownership have emerged in response to housing affordability
involving third party lenders. In Canada, there are two forms of shared equity programs. A
third party can invest in a share of a property, or they can provide the homeowner with a
second mortgage.
Page 18 of 25
For shared equity mortgage programs, the second mortgage often requires no payments
until the home is sold, refinanced or at the end of a fixed term. If the home price
appreciates over time, both parties share in the profit
The federal First -Time Home Buyer Incentive is an example of shared equity housing that
will allow the CMHC to lend a homeowner money for a shared stake in the equity of a
home. Options for Homes and Trillium Housing are two organizations that have helped
create affordable housing in the GTA with shared equity financing models.
The Province defines "co -ownership housing" as a shared living arrangement where two or
more people own and live in a home together. Co-owners may share living spaces like
kitchens and living rooms, or the home may be divided into separate units.
Recently, the Province created the "Co -owning A Home" guide which contains practical
information about co -owning a home as well as outlining the various forms of co -ownership.
The guide was developed partly in response to the Province's More Homes, More Choice:
Ontario's Housing Supply Action Plan, in recognition that fresh approaches will give people
more options and access to housing that is affordable.
As discussed earlier, the City has recently adopted an Age -Friendly Community Plan
(AFCP) that intends to develop and nurture an age -friendly City. The preparation of a
comprehensive housing strategy was one of the action items identified as part of the AFCP,
and its completion will help establish the City's role and priorities with regard to facilitating
opportunities for developing affordable housing and age -friendly housing in Pickering.
In response to Question 17, staff recommends that the Region include a definition of
"co -ownership housing" in the Regional Official Plan and include policies that
enable municipalities to address this type of housing in a local and context -specific
manner.
5.0 Regional Housing Interest
In Ontario, municipal governments are the primary funders of community housing (formerly
referred to as social housing). In 2017, municipal governments contributed $1.77 billion for
community housing. By comparison, the provincial and federal governments jointly
contributed $0.616 billion.
Durham is one of Ontario's 47 Consolidated Municipal Service System Managers that fund,
plan, manage, and administer community housing, as well as develop affordable housing
stock and deliver homelessness prevention programs. The Region also provides housing
allowances and rent supplements.
Municipalities have a number of planning and financial tools that can help facilitate
affordable housing, including a Tax Increment Equivalent Grant, waiving or deferring
development charges, reducing parking requirements, inclusionary zoning, and community
improvement plans. Municipalities also implement the Ontario Building Code to ensure safe
and well-designed housing.
Page 19 of 25
The Regional Revitalization Plan (RRP) provides funding to projects that meet established
criteria, are supported by local municipalities, and are located within local community
improvement plan areas. The RRP has funded eight projects across the Region, none of
which have been located in Pickering since Pickering does not currently have any
community improvement plans in place.
Regional Council has approved funding for consulting services in support of the
development of a Regional Community Improvement Plan to promote the development of
affordable rental housing in the Region.
In response to Question 18, staff recommends that, in support of the development of
diverse and affordable housing options, the Region:
• communicate and work with developers on funding and other incentives that
are available to address the Region's housing needs
• include housing policies that support affordability through reduced energy
costs from a climate change and resiliency lens; and
• strengthen policies to incentivize the delivery of seniors, affordable, and/or
accessible housing (which could include Community Improvement Plans;
deferral or waiving of development charges).
The last point of the above recommendation, regarding incentivizing the delivery of seniors,
affordable, and/or accessible housing, is consistent with Council's comments on the Growth
Management Urban System Discussion Paper contained in Report PLN 32-19, dated
December 16, 2019 and endorsed by Resolution #205/19.
5.1 At Home in Durham
At Home in Durham: Durham Region Housing Plan 2014-2024 sets out Durham's long-term
vision for housing. The plan was developed to meet provincial requirements for a Housing
Strategy including addressing homelessness. The goals and primary actions of At Home in
Durham aim to improve affordability and access to housing, protect existing affordable
housing stock, encourage housing diversity, and build capacity in the housing system.
The goals are:
• end homelessness in Durham
• affordable rent for everyone
• greater housing choice
• strong and vibrant neighbourhoods
Under the Housing Services Act, the Region is required to review At Home in Durham at
least every five years and amend as necessary. The Region has completed its five-year
review of the plan and no substantive changes have been proposed.
Page 20 of 25
5.2 Affordable Rental and Seniors' Housing Task Force
In 2015, the Region established the Affordable Rental and Seniors' Housing Task Force
(the Task Force) to explore strategies to promote the creation and maintenance of
affordable and seniors' housing in Durham. The Task Force released its report in 2017
outlining a six -point plan of action and 34 recommendations to address the need for more
affordable rental housing for low and moderate income households, and the need for more
housing options for seniors in Durham. The recommendations proposed by the Task Force
complement and reinforce the goals and actions of At Home in Durham.
5.3 Community Housing
The Region provides rental housing for low and moderate income households. In its role as
Service System Manager (Service Manager) under the Housing Services Act, the Region of
Durham is responsible for:
• developing and implementing a ten-year plan to address housing and homelessness
(At Home in Durham)
• funding and administration of 44 community housing providers across the region,
including Durham Regional Local Housing Corporation
• providing rent -geared -to -income (RGI) housing assistance to 4,446 low and moderate
income households under its legislated service level standard, and administration of
the RGI waitlist, and
• allocating and administrating provincial and regional funds for homelessness services
and programs, including: emergency shelter solutions; transitional and supportive
housing; services and supports (i.e. outreach and referral); and homelessness
prevention
5.4 Incentive Programs
Regional and municipal governments have the ability to directly encourage the delivery of
affordable housing projects. Some of these incentives include:
• Community Improvement Plans (CIP) — Municipalities may provide monetary
incentives; development charge deferrals or reductions; fast-track development
approvals; require alternate development design standards; and provide enabling
policies that encourage the sale/lease of surplus public lands for affordable housing
development (Regional or area municipal incentive). Regional municipalities may also
adopt CIPs provided they deal with affordable housing, regional infrastructure, or
development along existing/planned transit corridors;
• Redevelopment Credits under development charge by-laws (Regional incentive);
• Exemptions under the Development Charge Act (Regional or area municipal
incentive), University of Ontario Institute of Technology Act, and Regional DC by-laws;
• Intensification Servicing Policy — Developer funding provided to support upgrades to
sanitary sewer infrastructure (Regional incentive); and
Page 21 of 25
• Regional Revitalization Program — A partnership between Durham Region and
participating area municipalities to strategically target Regional investment to CIP
areas that advance the economic and community goals of the ROP (Regional and
area municipal incentive).
5.5 Regional Development Charge Background Study (2018)
The Region introduced a new residential development charge (DC) service category for
"Housing Services" to support the creation of affordable rental and seniors' housing. The
DC revenue may fund capital costs for new community housing provided by the Durham
Regional Local Housing Corporation, or by a non-profit housing provider receiving
subsidies from the Region of Durham. DC revenue may also fund new affordable rental
units provided by private or non-profit housing providers that receive funding through a
federal or provincial government affordable housing program. New construction including
additions and extensions resulting in additional rental units are also eligible.
6.0 Provincial Housing Interest
6.1 Provincial Interests and Responsibilities
The Province of Ontario's PPS and Provincial plans provide a framework to determine
where and how growth should occur. Area municipalities plan for an appropriate range and
mix of housing types and densities to create complete and healthy communities, including
affordable housing.
The Province is responsible for supporting housing through:
• The Housing Services Act
• the Community Housing Renewal Strategy and Housing Supply Action Plan
• Provincial funding programs
• land use planning and housing policies
• development application approval processes (e.g., Local Planning Appeal Tribunal)
• Residential Tenancies Act and the Landlord and Tenant Board
In addition, the Province (and federal government) invests in affordable housing through
the Ontario Priorities Housing Initiative to fund new affordable rental construction,
community housing repair and affordable home ownership. To date, the Region has been
allocated $11.8 million in funding to address housing need over the next three years.
6.2 Housing Services Act
The Housing Services Act provides the framework for community housing in Ontario and
requires municipal Service Managers, such as the Region, to prepare ten-year housing and
homelessness plans.
Municipal Service Managers are required to administer and fund community housing in
their service areas, including the maintenance of a number of rent -geared -to -income
assisted households under legislated service level standards.
Page 22 of 25
Local housing and homelessness plans are based on local needs and guide actions to
address housing and homelessness consistent with local and Provincial priorities. This
includes a role for the private market. When combined with programs, like housing
allowances and rent supplements, private market housing can support greater housing
stability for low and moderate income households and reduce the risk of homelessness.
6.3 Provincial Land use Planning Policy Context
6.3.1 Land Use Planning for Housing Policy Statement (1989)
Many policies within the Durham Regional Official Plan were a response to the Ontario
Land Use Planning for Housing Policy Statement issued by the Province in 1989. The
policy statement included policies relating to the provision of a range of housing types, the
provision of at least 25 percent of all new residential development to be affordable for low
and moderate income households, encouraging residential intensification, ensuring a
sufficient supply of land for future residential use, and streamlining the planning process.
The policy statement also established income thresholds for affordable housing, and
definitions for low and moderate income households.
6.3.2 Provincial Policy Statement
The PPS sets the policy foundation for land use planning across Ontario. The PPS consists
of three policy areas: 1) Building Strong Healthy Communities, 2) Wise Management of
Resources, and 3) Protecting Public Health and Safety.
The PPS provides policy direction on development and land use patterns on urban and
rural settlement areas while minimizing land consumption. The PPS establishes how
municipalities should plan for housing through: defining affordable housing, and low and
moderate income households; policies to accommodate a range and mix of housing types,
densities, and ownerships; policies to meet social, health, economic and well-being
requirements of current and future residents; and direct development of new housing to
specific locations supported by infrastructure and public service facilities.
The PPS has recently been updated by the Province. The Regional Official Plan will
incorporate these changes including extending the planning horizon for designating lands
for residential development to 25 years and allowing municipalities to require a minimum
five-year supply of residential units appropriately zoned or in draft approved plans and
registered plans.
6.3.3 A Place to Grow: Growth Plan for the Greater Golden Horseshoe
A Place to Grow: Growth Plan for the Greater Golden Horseshoe (the Growth Plan) directs
upper- and single -tiered municipalities to provide a diverse range and mix of housing
options to accommodate residents at all stages of life, income level, and household size.
Municipalities are also directed to establish affordable ownership and rental housing
targets. Municipalities are to implement housing policies in line with land use planning to
achieve complete communities and identify financial tools to support housing policy. The
Growth Plan also sets regional population and employment targets until 2041.
Page 23 of 25
6.3.4 Land Needs Assessment
The Land Needs Assessment Methodology (LNA) was developed by the Province to
provide a consistent approach to growth management for municipalities. The LNA requires
single and upper -tier municipalities to prepare a housing strategy that considers existing
housing stock and plans to diversify the overall range and mix of housing options that are
available to achieve complete communities. The housing strategy would consider
anticipated composition of households, such as size, age of occupants, income,
family/non-family households, unit size, and number of bedrooms. The Region will have to
demonstrate to the Province how density requirements in the provincial Growth Plan are
met through its LNA exercise. The City of Pickering is required to update its official plan to
conform with the Region's new official plan and the Growth Plan once the Region's
exercise in complete.
7.0 Federal Housing Interest
The Canadian government functions as a system enabler for housing policy and funding. It
can leverage its fiscal capacity through the Ministry of Finance and Canada Mortgage and
Housing Corporate (CMHC) to make community housing financially viable, promote the
expansion of more affordable housing options, and help prevent homelessness.
Additionally, the Bank of Canada can affect demand for housing through monetary policy.
Once a leader in providing affordable community housing post World War I in the 1940s up
until the 1980s, the federal government's role has gradually diminished and funding for new
community housing ended in 1993, as did funding from the Province of Ontario in 1995.
Throughout the late 1990s, the federal government downloaded administrative
responsibilities for its community housing stock via the 1999 Social Housing Agreement
with Ontario. The Province then transferred its responsibility to municipal Service Managers
in 2000.
Since 2000, there have been various Canada -Ontario agreements to support the
development of new affordable housing and assist municipal Service Managers with an
aging, often energy -inefficient community housing stock.
Since 2005, the Region of Durham has leveraged federal and provincial funding for
community and affordable housing programs. While Durham has been the recipient of
funding through various programs, Regional Council has recommended that long-term,
predictable, and sustainable funding to upper -tier municipalities be implemented to
encourage priority -based investments and improve long-term financial planning for
resource prioritization.
Although CMHC currently plays a role in providing mortgage liquidity, and provides housing
research and advice to the Canadian government and housing industry, the federal
government has not had a significant role in funding or developing new community housing
or housing policy over several decades. This changed with the introduction of the National
Housing Strategy in 2017.
Page 24 of 25
7.1 National Housing Strategy
In 2017, the Government of Canada released its first ever National Housing Strategy
(NHS). The 10 -year strategy commits $40 billion in joint federal -provincial spending
towards:
• reducing chronic homelessness by 50 percent
• removing 530,000 households out of housing need
• constructing 100,000 new affordable housing units
• repairing or renewing 300,000 existing affordable housing units
Investments under the NHS are intended to fund various portfolios, such as housing
partnerships, assisting Canada's northern communities, research and data, assisting
indigenous communities, and reducing homelessness.
Other federal funding includes seed funding programs, various loan insurance programs
and other investments in affordable housing. In 2019, the federal budget included the First -
Time Home Buyer Incentive aimed at improving home affordability by reducing mortgage
borrowing costs.
8.0 Conclusion
The above review provides a synopsis of the Region's Housing Policy Planning Discussion
Paper, answers questions, and highlights staff recommendations for consideration through
the MCR process.
Page 25 of 25
January 30, 2020
To:
From:
Subject:
Legislative Services Division Attachment #1 to Report #PLN 06-20
Clerk's Office
Directive Memorandum
Kyle Bentley
Director, City Development & CBO
Susan Cassel
City Clerk
Direction as per Minutes of the Meeting of City Council held on
January 27, 2020
Corr. 03-20
Ralph Walton, Regional Clerk/Director of Legislative Services
The Regional Municipality of Durham
Re: Envision Durham — Housing Policy Planning Discussion Paper
(2019-P-47)
Council Decision Resolution #219/20
1. That Corr. 03-20, dated December 20, 2019, from the Regional Municipality of
Durham, regarding the Envision Durham — Housing Policy Planning Discussion
Paper be received;
2. That City Staff be directed, through the CAO, to review the Envision Durham —
Housing Policy Planning Discussion Paper within the context of the previously
directed creation of a City of Pickering Draft Affordable Housing Strategy and
report back to the April 27, 2020 Council meeting; and,
3. That Councillor Brenner and Councillor Butt be appointed to work with City Staff
on this review.
Please take any action deemed necessary.
Susan Cassel
Copy: Chief Administrative Officer
Attachment #2 to Report #PLN 06-20
Overview of the Region of Durham's Municipal Comprehensive
Review of its Official Plan
1. Background
The Planning Act requires that municipal official plans be reviewed every five years to ensure
that the plans have regard to matters of Provincial interest, are consistent with the Provincial
Policy Statement (PPS), and conform to Provincial Land Use Plans.
The current Durham Regional Official Plan (ROP) was approved in 1993 and has over
150 amendments to keep it up-to-date with changing provincial plans and policies. On
May 2, 2018, Regional Council authorized staff to proceed with the Municipal Comprehensive
Review (MCR) of the ROP titled "Envision Durham, 2041 Our Region, Our Plan, Our Future"
(or "Envision Durham"). "Envision Durham" offers a strategic opportunity to create a completely
new plan with an advanced planning vision for the Region to 2041.
1.1 What are the key components of the Region's MCR?
The MCR is structured around the following strategic planning themes:
• The Agriculture and Rural System (Discussion Paper released March 5, 2019; Pickering
Council commented through Council Resolution #94/19, dated May 27, 2019);
• Climate Change and Sustainability (Discussion Paper released May 7, 2019; Pickering
Council commented through Council Resolution #150/19, dated October 21, 2019);
• Growth Management (Urban System Discussion Paper released June 4, 2019; Pickering
Council commented through Council Resolution #631/19, dated December 16, 2019);
• Environment and Greenlands System; (Discussion Paper released September 3, 2019;
Pickering Council commented through Council Resolution #257/20, dated March 18, 2020);
• Transportation System (released October 1, 2019; under review); and
• Housing (subject of this Report; to be considered at the June 15, 2020 Planning &
Development Committee and the June 29, 2020 Council meeting).
1.2 The MCR and Public Engagement
The public engagement program and its timeline associated with the MCR consists of four
stages: Discover (2019), Discuss (2019), Direct (2020), and Draft (2021-2022).
On February 5, 2019, the Region initiated the first stage ("Discover") of the "Envision Durham"
public engagement program by launching the project website: durham.ca/Envision Durham, as
well as a public opinion survey, which closed on April 6, 2019. The Region also created an
introductory video on the project, which can be viewed on the project website. In addition, the
Region set up "pop-up" information kiosks in various locations, as part of their public
engagement launch.
In accordance with the public engagement program, each stage of the project will be promoted
through news releases, the project website, social media platforms, and public service
announcements.