HomeMy WebLinkAboutPLN 29-21Report to
Planning & Development Committee
Report Number: PLN 29-21 Date: June 7, 2021
From: Kyle Bentley Director, City Development & CBO
Subject: The Municipal Comprehensive Review of the Durham Regional Official Plan:
Proposed Policy Directions - File: A-2100-020
Recommendation:
1.That Council endorse the following recommendations regarding Envision Durham’sProposed Policy Directions in support of a Prosperous Economy (Proposed Directions1-4):
a.That the City Centre, Kingston Road Corridor and Brock Mixed Node Intensification
Areas, Employment Lands in Seaton and along Highway 407, and the plannedemployment hub surrounding the Federal Airport lands be prioritized for adequateservicing to support economic growth and diversification and to accommodate the2051 growth forecasts; and
b.That the planned future Pickering Airport be recognized as a major catalyst for
economic development and diversification;
2.That Council endorse the following recommendations regarding Envision Durham’sProposed Policy Directions in support of Healthy Communities (Proposed Directions 5-28):
a.That the Goals for Healthy Communities be expanded to:
i.align with the Canadian Institute of Planners’ Healthy Communities Policy
Statement to ensure individuals have access to healthy built, social, economic,
and natural environments that give them the opportunity to live to their fullestpotential, regardless of their race, ethnicity, gender, income, age, abilities, orother circumstances; and
ii.align with objectives or outcomes from the Region’s Community Safety and Well-
being Plan, and Age-Friendly Durham Strategy;
b.That the City supports the inclusion of policies regarding the implementation of aregion-wide building retrofit program, and recommends that the Regional Official Plan(ROP) include broader policy direction around additional initiatives and incentives toencourage and enable energy efficient construction and green building design,
including net-zero and net-zero ready development;
c.That the City supports the inclusion of tree canopy targets for urban areas and ruralareas in the ROP, following the identification of the current baseline, as well as theinclusion of policy direction in support of Regional tree planting initiatives along
regional roads and on regionally-owned properties where appropriate;
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d. That in addition to recognizing and supporting historic downtowns, the Region include
robust policies in the ROP related to cultural heritage that conform with, and implement, provincial policy direction and other regional interests related to heritage;
e. That with regard to the proposed policy directions related to Housing:
i. the City supports the Region undertaking a Regional Housing Assessment Report (Assessment Report) and developing policies that would enable area
municipalities to implement Inclusionary Zoning within their respective jurisdictions;
ii. the City recommends the establishment of affordable housing targets for Strategic Growth Areas in the ROP be based on the outcome of the
Assessment Report, rather than assigning a 35 percent target prior to evaluation;
iii. the City supports the policy direction to strengthen the rental to ownership housing conversion policies in the ROP and further recommends that when considering permission for conversion from a rental to ownership property, the Region:
• consider increasing to greater than one year, the number of years required to maintain the minimum rental vacancy rate of 3 percent in both the region as a whole and the respective area municipality; and
• require a Regional Official Plan Amendment Application if the rental
vacancy rate is below 3 percent;
iv. the City supports the proposed policy direction to encourage area municipalities to protect existing rental housing from demolition by using tools, such as a demolition control by-law, and recommend this be expanded upon, particularly in
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; and
v. the City recommends policies be included in in the ROP to support “co-ownership housing” and that enable municipalities to address this type of housing in a local and context-specific manner.
3. That Council endorse the following recommendations regarding Envision Durham’s Proposed Policy Directions regarding Supportive Infrastructure (Proposed Directions 29-33):
a. That the City encourages the development of a Regional “Dig Once” policy as it would
align with, and support, the City’s policy and interest in broadband deployment; and
b. That the City recommends policies be included in the ROP that encourage the Region to work with the provincial government to upgrade the existing infrastructure to support renewable and alternative energy projects;
4. That Council endorse the following recommendations regarding Envision Durham’s Proposed Policy Directions in support of a Vibrant Urban System (Proposed Directions 34-53):
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a. That the City supports the direction that Waterfront Places (e.g., Frenchman’s Bay)
not be identified as Strategic Growth Areas and recommends that any policies referring to minimum density targets for these areas be removed if this designation is retained in the ROP;
b. That the City supports removal of the existing specific policy prohibition on Places of Worship within Employment Areas, and the proposed direction that area municipalities
would regulate the location of these uses;
c. That the City requests that the Employment Area Conversion submission for the Durham Live lands between Squires Beach Road and Church Street, which has been supported by City Council, be considered through the Land Needs Assessment;
d. That the City requests that the Region have regard to Pickering Council Resolutions
#140/19 and #173/19 (Attachments #2 and #3 to Report PLN 29-21) requesting, among other things, the inclusion of northeast Pickering in an urban area boundary expansion; and
e. That the City recommends the Land Needs Assessment consider a scenario reflecting a future airport and the potential implications it may have in terms of population and
employment allocation and growth;
5. That Council endorse the following recommendations regarding Envision Durham’s Proposed Policy Directions in support of a Thriving Rural System (Proposed Directions 54-65):
a. That the City recommends the goals and directions with regard to the Thriving Rural
System in Durham be expanded to also support the provision of reliable internet
services to the rural area; and
b. That the City requests that the designation of High Potential Aggregate Resource Areas on lands within the limits of Settlement Areas (e.g., Barclay Estates) be removed;
6. That Council endorse the following recommendations regarding Envision Durham’s
Proposed Policy Directions in support of a Protected Greenlands System (Proposed Directions 66-85):
a. That the Region consider requesting the Province to make resources available to Indigenous Peoples to facilitate the sharing of Traditional Ecological Knowledge; and
b. That the City recommends the Region, through coordinated relationship-building and
consultation with Indigenous communities, endeavour to provide guidance to local area municipalities in terms of establishing appropriate engagement processes to facilitate input on land use planning matters;
7. That the appropriate officials of the City of Pickering be authorized to take the necessary
actions as indicated in this report; and
8. That a copy of Report PLN 29-21 and Council’s Resolution thereon be forwarded to the Regional Municipality of Durham and Durham Area Municipalities.
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Executive Summary: On March 2, 2021, the Regional Municipality of Durham released the
report on “Proposed Policy Directions”, as part of Envision Durham, the Municipal Comprehensive Review of the Durham Regional Official Plan (see Report of the Regional Commissioner of Planning and Economic Development 2020-P-7 and Proposed Policy Directions Report, Attachment #4).
City staff have reviewed the proposed policy directions and prepared a series of recommendations
for the Committee and Council’s consideration and endorsement as the City’s comments. Staff from Economic Development & Strategic Projects, Sustainability, and Engineering Services were consulted in the preparation of these comments.
Feedback on the Proposed Policy Directions will guide the development of the draft policies for the new Durham Regional Official Plan. The new plan is expected to be approved by Regional
Council in 2022.
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 provide an overview of the Proposed Policy Directions for Envision Durham, the Region of Durham’s Municipal Comprehensive Review, and to obtain Council’s endorsement of staff’s comments on the Proposed Policy Directions.
2. Background
2.1 “Envision Durham” – The Municipal Comprehensive Review of the Durham Regional
Official Plan
The Region of Durham is in the midst of reviewing its 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. 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 was titled “Discover”, and commenced with the launch of a public consultation program through an online project hub and public opinion survey. The second stage, titled “Discuss”, focused on the preparation of a series
of discussion papers, addressing the following major areas: agriculture and rural systems; climate change and sustainability; growth management; the environment; transportation; and housing. The City provided comments on each of these discussion papers through 2019 and 2020.
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The Region is currently in stage three of the Municipal Comprehensive Review process,
titled “Direct”, which includes the release of proposed policy directions for review and comments. In fall 2020, the Region ushered in this phase through the release of Proposed Policy Directions for Major Transit Station Areas (MTSAs). The City provided comments on the MTSA Policy Directions through Report PLN 10-21.
The release of the Proposed Policy Direction Report, which centres around key strategic
directions, is a subsequent step and a continuation of phase three. The proposed policy directions are based on the review of best practices, stakeholder and public feedback from earlier phases. They are also intended to respond to submissions received through Stage 2, a summary of which can be found at: www.durham.ca/EnvisionDurhamSubmissions. The proposed Policy Directions are intended to provide guidance for draft policies to be
incorporated into the new Regional Official Plan (ROP).
A key component of Envision Durham is the undertaking of a Growth Management Study (GMS) which is being completed in two phases. The first phase, a Land Needs Assessment (LNA), is a comprehensive review and calculation of the Region’s land base, including existing urban areas, to determine how the Growth Plan population and employment
forecasts can be accommodated and how much, if any, additional urban land is required.
The second phase of the GMS, if required, will focus on determining the most appropriate location(s) for Urban Boundary Expansions.
A Growth Opportunities and Challenges Report, prepared by Urban Strategies Inc. and Watson & Associates Ltd., was also brought forward as an attachment to the Proposed
Policy Directions Report, and serves as a starting point for the LNA and related technical studies. This report provides essential context; discusses impacts from broader demographic and economic trends, local growth and development trends; and describes other factors that affect growth in the region. The report includes several recommendations that will carry forward into the LNA and help shape the overall outcome of the GMS.
The Region also opened up a 90 day window for the submission of urban area boundary expansion requests, which will be considered through phase two of the GMS if the LNA finds that further land is required to be added to the Urban Area in Durham to accommodate growth to the year 2051. Submissions for new and/or amended requests for Settlement Area boundary expansion are requested to have regard for the criteria outlined in the
Settlement Area Boundary Expansion section of the Proposed Policy Directions Report, and to include mapping of the subject property and a description of the proposed land use and built form. Submissions are requested by May 31, 2021.
Comments on the Proposed Policy Directions are being requested by June 30, 2021. An
online survey has also been developed to help facilitate public input, which can be
accessed at www.durham.ca/EnvisionDurhamDirections.
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3. The Proposed Policy Directions
Based on the new ROP framework endorsed by Durham Regional Council in November 2020 (refer to PLN 10-21), the 105 broader Proposed Policy Directions and over 400 associated detailed policy directions are mainly centered around the following 7 strategic directions:
• Prosperous Economy;
• Healthy Communities;
• Supportive Infrastructure;
• Vibrant Urban System;
• Thriving Rural System;
• Protected Greenlands System; and
• Connected Transportation System.
Each strategic direction covers a series of policy topics, summarizes comments received, and introduces proposed policy directions for discussion. The Proposed Policy Directions present potential changes to land use planning policies upon which comments are being
requested. These proposed directions are not intended to be exhaustive, but rather introduce certain broad directions where further input is being sought before draft detailed policies are introduced through a proposed Regional Official Plan Amendment.
Policy reviews and directions generally fall within one of three categories:
1. Matters of provincial conformity which must be updated to satisfy legislative
requirements;
2. Housekeeping components related to existing policies in the ROP which may change based on review; and 3. New policies or approaches based on research and feedback which may warrant inclusion in the ROP
The Proposed Policy Directions Report can be found as Attachment #4 to this Report, or online at: https://www.durham.ca/en/regional-government/resources/Documents/Council/Reports/2021-Committee-Reports/Planning-and-Economic-Development/2021-P-7.pdf
City staff has undertaken a detailed review of the Proposed Directions Report, considering the
City’s comments that were provided as part of Phase Two “Discuss” on each of the theme
areas. The recommendations of this Report (PLN 29-21) seek Council’s endorsement of staff’s key comments on the proposed policy directions. Staff-to-staff comments will also be provided, addressing minor technical matters and clarification requests regarding certain terms and statements. The following is an overview of the Proposed Policy Directions by
theme and key comments from staff in response:
3.1 Prosperous Economy
Economic development objectives evolve over time with changes in broader economic trends, regional growth, and in response to changing local priorities and issues. In addition to provincial policies, the Region’s proposed policy directions to support a prosperous
economy were informed by the Durham Region Strategic Plan, the Region’s Economic
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Development Strategy and Action Plan, and the Region’s Broadband Strategy. Proposed
Policy Directions that are intended to support a Prosperous Economy include:
• Determining and implementing an appropriate supply of Employment Areas with access to municipal water and sewage services;
• Supporting balanced population and employment growth and the diversification of the region’s employment base;
• Supporting collaboration with educational institutions and the business community in programs that create and maintain a highly skilled regional labour force;
• Supporting the agricultural and agri-food sector, including new opportunities for agri-tourism, on farm diversified uses and the diversification of agricultural operations;
• Recognizing the importance of, and encouraging the expansion of leading edge
technologies, including high-speed broadband infrastructure; and
• Inclusion of policy support for the development of an airport on the Federal Airport Lands in Pickering, establishment of an aviation-based multimodal employment hub surrounding the airport, and the provision of necessary municipal services and
transportation infrastructure.
The Proposed Policy Directions related to a Prosperous Economy are generally supported by staff. These directions appear to align with Pickering Council direction on the Federal Airport Lands, and support the City’s recently adopted policies (Amendment 31) related to broadband. Further, staff recommend that:
• in order to support economic prosperity, the provision of adequate servicing be prioritized for:
• Strategic Growth Areas, particularly in Urban Growth Centres such as Pickering’s City Centre, which will facilitate a large number of new jobs in the Region;
• Employment Lands, particularly those in Seaton and along Highway 407, to enable investment attraction; and
• the Federal Airport lands to realize the vision for this area as a future employment hub; and
• the planned future Pickering Airport be recognized as a major catalyst for
economic development and diversification.
3.2 Healthy Communities
Provincial policy direction supports healthy, livable, and safe communities. The built environment has a direct effect on our health. Proposed policy directions intended to foster healthy communities include:
• Introducing a greenhouse gas (GHG) emission reduction target in the new ROP so as to achieve net-zero as an aspirational objective, and encouraging area municipalities to develop and implement corporate and community-wide GHG emission reduction targets and plans;
• Encouraging and supporting climate resilient development, redevelopment and retrofits;
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• Including specific policies related to downtowns, recognizing their importance, character, and functions; and
• Collaborating with area municipalities on developing age-friendly design guidelines.
Staff generally support the proposed policy directions pertaining to Healthy Communities,
which align with and also support the City’s Age-Friendly Community Plan and Housing
Strategy Study which is currently underway. The following key comments are provided as it relates to Healthy Communities:
• the goals in support of Healthy Communities should be broadened and expanded to align with the Canadian Institute of Planners’ Healthy Communities Policy Statement. More specifically, communities should be planned to ensure individuals have access to healthy built, social, economic, and natural environments that give them the opportunity to live to their fullest potential, regardless of their race, ethnicity, gender, income, age, abilities, or other circumstances. Staff also recommend that the goals and objectives for Healthy Communities align with objectives or outcomes from the Region’s Community Safety and Well-being Plan, and Age-Friendly Durham Strategy;
• Inclusion of policy support for the implementation of a region-wide building retrofit
program is strongly supported, and it is recommended that the ROP also include broader policy direction around additional initiatives and incentives to encourage and enable energy efficient construction and green building design;
• Staff, consistent with recommendations provided in PLN 04-20, (which provided
comments on the Environment and Greenlands Discussion Paper), continue to support the inclusion of tree canopy targets for urban areas and rural areas in the ROP, following the identification of the current baseline, as well as the inclusion of policy direction in support of Regional tree planting initiatives along regional roads and on regionally-owned properties where appropriate; and
• Cultural heritage did not appear to be addressed in a comprehensive way in the Proposed Policy Directions, and has only been referenced in relation to downtowns. Cultural heritage is a fundamental ingredient to fostering complete communities and place-making. Accordingly, staff recommend the Region include robust policies in the ROP related to cultural heritage that conform with and implement provincial policy direction and other regional interests related to heritage.
3.2.1 Housing
The ROP supports complete communities through policies that promote housing options to meet the needs of current and future residents. The Housing section of the Healthy
Communities chapter outlines proposed policy directions that:
• Support a range of housing options including secondary suites, rental housing, microhomes, shared living and special needs housing;
• Encourage the production of new affordable housing;
• Preserve and prevent the loss of existing rental housing; and
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• Consider inclusion of ROP policies that encourage municipalities to enact zoning by-laws, regulate, and licence short-term rentals if and where they feel it is appropriate.
The City of Pickering Housing Strategy Study was initiated to establish the City’s role and priorities in facilitating opportunities for developing a diverse range of housing, including
affordable, age-friendly, and accessible housing in Pickering over the next 10 years. The Phase 1 Research and Gap Analysis Report identified the overall need for housing options for: low and moderate income earners; rental and ownership units; a range of unit sizes; and accessible units. In particular, as it relates to the primary rental market (units purposely built for the rental market), a need was identified for: additional units of all sizes; protection
of units; and additional accessible units. As it relates to the home ownership market, a need was identified for: home ownership housing options for moderate income earners; a range of unit sizes; and accessible units.
Staff generally support of the proposed policy directions related to Housing, and provide the following key comments:
• Staff support the Region undertaking a Regional Housing Assessment Report (Assessment Report) and developing policies that would enable area municipalities to undertake Inclusionary Zoning within their respective jurisdictions. Implementing Inclusionary Zoning could assist the City in closing the
gap identified in the primary rental market;
• The Proposed Policy Directions Report indicates that the Region may adopt a 35 percent affordable housing target on the basis of targets other municipalities such as York Region and Clarington have implemented. Staff recommends that the
establishment of an affordable housing target for Strategic Growth Areas be based on the outcome of the Assessment Report, rather than setting an affordable housing target of 35 percent for Strategic Growth Areas without the benefit of a detailed evaluation; and
• Staff supports the policy direction to strengthen the rental to ownership housing conversion policies in the ROP to help protect existing affordable rental housing;
• In support of the protection of existing affordable rental housing:
• Staff recommends that when considering permission for conversion from a rental to ownership property, the Region:
• Consider increasing to greater than one year, the number of years
required to maintain the minimum rental vacancy rate of 3 percent in both the region as a whole and the respective area municipality; and
• Require an Official Plan Amendment Application if the rental vacancy rate is below 3 percent;
• Staff supports the Region’s policy direction to encourage area municipalities to protect existing rental housing from demolition by using tools, such as a demolition control by-law, and recommend that
policy direction be expanded upon, particularly in locations such as
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Strategic Growth Areas or areas in proximity to transit where existing rental housing may be older and therefore more susceptible to demolition and redevelopment; and
• To support of the provision of affordable ownership housing, staff recommends that the Region include a definition of “co-ownership housing” in the ROP, and include policies that enable municipalities to address this type of housing in a local and context-specific manner.
3.3 Supportive Infrastructure
To support a growing region, it is essential to ensure that municipal infrastructure is in place
to serve current and future needs and is maintained on a regular basis. Many of the
existing policies in the ROP related to infrastructure are anticipated to be carried over into the new ROP. Proposed Policy Directions related to Supportive Infrastructure include:
• Planning for infrastructure that is supported by infrastructure master plans and asset management plans to ensure infrastructure is financially viable over its full lifecycle;
• Encouraging the co-location of linear infrastructure;
• Encouraging stormwater management practices supporting low impact development and sustainable urban design within the public realm;
• Supporting new opportunities for energy from waste, source reduction, reuse, and diversion where appropriate, consistent with the Long Term Waste Management Plan guiding principles; investigating the feasibility of a Dig Once policy, which would allow and/or require broadband infrastructure to be installed during road construction and
reconstruction and other major development activities;
• Recognizing energy conservation and efficiency measures, and renewable and alternative energy systems as critical to reducing greenhouse gas emissions;
• Adapting and building resiliency to the impacts of climate change; and
• Permitting and promoting alternative energy systems and renewable energy systems in accordance with provincial and federal requirements, while prohibiting large-scale commercial renewable energy facilities in Prime Agricultural Areas and critical
environmental areas.
Staff are generally in support of the proposed policy directions related to infrastructure, and provide the following key comments:
• Through Amendment 31, the City has been a leader in establishing a local “Dig Once”
standard and adopting Official Plan policies related to broadband infrastructure. Establishment of a Regional Dig Once Policy is strongly supported and would align with the City’s policy and interests around the provision of a robust information technology network; and,
• To enable uptake of renewable and alternative energy projects by development
proponents, staff encourages the Region to work in partnership with the Province to ensure existing infrastructure is upgraded to support and enable these renewable and alternative energy projects.
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3.4 Vibrant Urban System
The Urban System comprises lands within the Region’s Urban Area Boundary. These areas are designated to accommodate the vast majority of the Region’s forecasted population and employment growth. Currently, the Regional Official Plan (ROP) designates land within the Urban System in one of the following categories: Living Areas; Employment
Areas; Urban Growth Centres (including Pickering’s City Centre); Regional Centres;
Regional Corridors; and Waterfront Places. In the City of Pickering, existing Urban Areas consist of lands in South Pickering and Seaton.
Planning for growth in the urban system differentiates between development within existing built-up areas and newer designated greenfield areas. The ROP currently contains policies
directing the majority of growth and intensive development to urban growth centres,
regional centres, and regional corridors, in accordance with the previous Provincial Growth Plan policy directions. Through A Place to Grow – Growth Plan for the Greater Golden Horseshoe (2020), new intensification targets and new terminology was introduced. Through the Municipal Comprehensive Review and the Growth Management Study, the
Region is proposing to update its policy framework by updating minimum intensification
targets, and reviewing, designating and delineating Strategic Growth Areas (Urban Growth Centres, Regional Centres and Corridors, and Major Transit Station Areas).
Some of the policy directions that are being proposed to foster a vibrant Urban System include:
• Reviewing and refining existing Regional Centres against the density targets and planned function as described in ROP policy, in consultation with area municipal staff;
• Designating Highway 2 from the Toronto/Durham border easterly to Highway 418 in Clarington as a “Rapid Transit Spine Intensification Corridor”;
• Designating Strategic Growth Areas with densities, built form, and a mix of uses that will support Light Rail Transit in the long term;
• Adding clarifying policy that Waterfront Places are not to be recognized as Strategic
Growth Areas;
• Identifying a Regional Structure for the Central Pickering Development Plan area, as well as associated policies with appropriate references to the Central Pickering Development Plan and the Pickering Official Plan where additional detailed policies
can be found;
• For Employment Areas:
• Including policies related to Provincially Significant Employment Zones;
• Identifying a Regional interest in the decommissioning and long-term plan for future use of the Pickering Nuclear Generating Station;
• Permitting a broader range of intensive commercial uses along Regional Corridors
in Employment Areas above what is allowed in the current ROP related to personal service and retail uses within employment areas;
• Continuing to advance the Region’s pre-servicing of employment lands project through the inclusion of enabling policies in the ROP;
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• Removing the specific policy prohibition on Places of Worship and allowing area municipal official plans and/or zoning by-laws to regulate the location of these uses, subject to meeting criteria including land use compatibility; and
• Reporting back to Regional Council on recommended Employment Area
Conversions upon completion of review and analysis, and receipt of area municipal
positions as a component of the LNA;
• Encouraging the redevelopment of brownfield sites and greyfield sites, and prioritizing the redevelopment of brownfield and greyfield sites within Strategic Growth Areas and
other intensification areas; and
• Considering Settlement Area Boundary Expansion Requests based on criteria, if it is determined through Phase One of the LNA that additional land is required to accommodate the 2051 growth forecast.
City staff generally support the proposed policy directions related to the Vibrant Urban
System. In particular, staff recommend:
• That Waterfront Places (e.g., Frenchman’s Bay) not be identified as Strategic Growth Areas and that any policies referring to minimum density targets for these areas be removed if this designation is retained in the ROP; and
• That the existing policy prohibiting Places of Worship within Employment Areas be removed, and that area municipalities be enabled to regulate the location of these uses. This addresses the concern the City previously expressed through
comments on the Region’s Growth Management Discussion Paper regarding the
challenges faced by places of worship to establish within residential areas, and takes into account the functions and services they offer within the context of building “complete communities”. This change would provide for greater flexibility and opportunity for Places of Worship to locate within the City.
3.4.1 Employment Area Conversion Requests
Regional staff will be reporting back to Regional Council on recommended employment area conversions (requests to re-designate an Employment Area to a “non-employment” use or to permit additional uses which would otherwise not be permitted) upon review and analysis of the requests and receipt of area municipal positions, as a component of the
Land Needs Assessment. To provide a transparent process for the consideration of Employment Area conversion requests, the Region formalized its evaluation process, criteria, and submission requirements, as described in Report 2020-P-11.
Prior to the release of the report, the Region had received a total of 47 Employment Area conversion requests representing approximately 780 hectares of land. Only one of these
requests was for lands within the City of Pickering, received from Malone Given Parsons,
on behalf of the owners of the Durham Live lands. In May, 2020 Pickering Council resolved to support a request by Malone Given Parsons, on behalf of Pickering Developments Inc. (the owners of the Durham Live lands) to the Minister of Municipal Affairs and Housing (MMAH) for a Ministerial Zoning Order (MZO) to permit a wider range of uses, including
retail and residential uses that would complement the Pickering Casino Resort tourist
attraction. The MMAH granted the MZO, which effectively changed the land use permissions on the Durham Live lands east of Squires Beach Road, from prestige
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employment uses to also permit retail and limited residential uses. By virtue of supporting
the MZO, the Council of Pickering agreed to the conversion of the subject Employment Area lands.
Accordingly, staff are recommending that the Employment Conversion Request for the Durham Live lands (approximately 90.5 hectares) between Squires Beach Road and Church Street, be considered through the Land Needs Assessment.
3.4.2 Settlement Area Boundary Expansion Requests
The Region has received ongoing requests for settlement area boundary expansion since the initiation of Envision Durham. Prior to the release of the report, the Region had received a total of 38 settlement area boundary expansion requests, representing approximately
2,670 hectares of land. Of those requests, 7 were for lands within the City of Pickering,
predominantly for lands within northeast Pickering (see Attachment #1 – Map of Requests for Boundary Expansion – Ajax and Pickering – Excerpt from the Envision Durham Policy Directions Report).
In this regard, Pickering Council passed 2 motions, on September 23, 2019 and November 25, 2019 respectively, in relation to the possible future designation of additional
urban land in Pickering. The motion passed by Council on September 23, 2019 requested, among other things, that the Region of Durham include in their review, all lands within the City of Pickering meeting the following criteria:
• lands not restricted by availability of servicing;
• lands that do not comprise a Specialty Crop Area;
• lands that are not within a Natural Heritage System;
• lands not located in the Moraine Natural Core and Linkage Areas;
• lands experiencing growth pressures and/or with locations in the white belt that are appropriate for growth and can achieve a healthy, connected, thriving and complete community; and
• lands that have existing or planned infrastructure to support and accommodate growth.
Further, the motion passed by Council on November 25, 2019 states that the Council of the Corporation of the City of Pickering supports the Vision and Community Planning
Principles for the lands in northeast Pickering (at the time being referred to as Veraine),
and reaffirms its request that the Region of Durham include these lands in the settlement area boundary during its current Municipal Comprehensive Review. A copy of these Motions are contained in Attachments #2 and #3 to this Report. Adding an area of this size (approximately 1,650 hectares) would permit a community that would
accommodate approximately 60,000 residents, 10,500 population related jobs as well as
33,000 employment related jobs. Five of the seven requests for an urban area boundary expansion in Pickering are for lands in this vicinity.
A request has also been made to add lands municipally known as 3580 Audley Road, approximately 6.8 hectares in size, to the Hamlet of Kinsale, to permit the development of a
7 lot plan of subdivision on private services.
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With regard to proposed Settlement Area Boundary Expansions, and in accordance with
the City’s recommendations put forward in PLN 32-19, (which provided comments on the Region’s Growth Management Discussion Paper), staff are recommending:
• that the Region have regard to Pickering Council Resolutions #140/19 and #173/19 requesting, among other things, the inclusion of northeast Pickering in an urban area boundary expansion; and
• that the Region’s Land Needs Assessment consider a scenario reflecting a future airport and the potential implications it may have in terms of population and employment allocation and growth.
Completion of the Land Needs Assessment will determine if and how much new urban land is required to accommodate the Region’s 2051 growth forecast. Should a determination be made that additional land is required, the Growth Management Study (GMS) will proceed to phase two to determine the most appropriate location(s) for Settlement Area Boundary
Expansion in Durham.
Due to the ongoing GMS, additional policy directions for the Urban System and finalization of proposed policy directions will be released as part of phase one and, if required, through phase two after the study is completed.
Staff are generally supportive of the recommendations outlined in the Growth Opportunities and Challenges Report and will continue to remain engaged in the Region’s GMS.
3.5 Thriving Rural System
The current Rural System comprises 84 percent of the region’s land base, and houses approximately 8 percent of Durham’s population (54,000 residents). Most of the rural area is planned for agricultural and open space uses, interspersed with rural settlements. Land use designations that make up the current Rural System include: Prime Agricultural Areas;
Rural Settlements (consisting of existing Hamlets, Country Residential Subdivisions, Residential Clusters and 4 hectare lots); and Aggregate Resource Extraction Areas. In Pickering, the rural area comprises: the Rouge National Urban Park; the Duffins-Rouge Agricultural Preserve; and 8 Hamlets, 3 Rural Clusters, and 5 Country Residential Subdivisions, disbursed across the rural area including Prime Agricultural lands and Natural
Areas.
Proposed policy directions intended to support a thriving Rural System include:
• Creation of a Rural Lands Designation consistent with the rural lands classification in Provincial Plans, and will comprise lands with lesser quality soils, areas without
environmentally significant features, and permitted non-agricultural uses such as golf courses and cemeteries;
• Permitting a full range of agricultural, agriculture-related and on-farm diversified uses in accordance with the provincial Guidelines on Permitted Uses in Ontario’s Prime
Agricultural Areas;
• Updating the ROP to ensure policies related to the Duffins-Rouge Agricultural Preserve reflect those contained in the Central Pickering Development Plan and the
Pickering Official Plan;
Report PLN 29-21 June 7, 2021
Subject: The Municipal Comprehensive Review Page 15
of the Durham Regional Official Plan
• Adding the Rouge National Urban Park as a Special Policy Area and referring to the Park’s Management Plan and for adjacent land uses to have consideration for this plan;
• Continuing to prohibit the creation of parcels of land for agricultural uses of less than
40 hectares; and
• Requiring the rehabilitation of Aggregate Resource Extraction Areas back to an agricultural condition for sites in Prime Agricultural Areas, and incorporating relevant Greenbelt Plan rehabilitation policies.
Further, the Region is currently reviewing the Provincial Agricultural System, which comprises the agricultural land base and agri-food network. The Provincial Agricultural System mapping will be refined through 2021 for inclusion in the draft ROP. Area Municipal staff will be consulted in this review.
City staff generally support the proposed policy directions for the Thriving Rural System.
Building on these directions, the following key comments are provided:
• Access to fast and reliable fiber optic services has not only become a critical ingredient to sustainable farming and the ability of farmers to adapt, diversify and modernize their farming operations, but has proven to be an essential service for rural
communities who, through the impacts of COVID-19 measures, have been forced to rely more on Internet services. Accordingly, staff recommend that the Region expand the goals and directions with regard to the Agricultural/Rural System in Durham to support the provision of reliable Internet services to the rural area; and
• Through the adoption of Official Plan Amendment 27 to the Pickering Official Plan in
2017, the City included mapping of High Potential Aggregate Resources within the rural settlement of Barclay Estates, at the insistence of the Province, even though the resource had been extracted and the license removed. Staff request that the designation of High Potential Aggregate Resource Areas on lands within the
limits of Settlement Areas (e.g., Barclay Estates) be removed.
3.6 Protected Greenlands System
The current Greenlands System comprises approximately 40 percent of the region’s land base and weaves through both the Urban and Rural Systems. This system contains areas with the highest concentrations of sensitive and/or significant natural features and
functions, agricultural and rural lands. Land use designations that currently comprise the Greenlands System in the ROP include: Major Open Space Areas; Oak Ridges Moraine Areas; Waterfront Areas (along the Lake Ontario Waterfront); Open Space Linkages; and Waterfront Links.
In Pickering, the Greenlands System is reflected in the Major Open Space Areas, primarily
consisting of: valleylands, and natural heritage and hydrologic features, and areas
associated with the various creeks that flow from the Oak Ridges Moraine and the rural lands in north Pickering; the Oak Ridges Moraine lands in the north; an Open Space Linkage north of Finch Avenue, generally between Scarborough-Pickering Townline and Whites Road; and Waterfront Areas along the Lake Ontario shoreline, including a
Report PLN 29-21 June 7, 2021
Subject: The Municipal Comprehensive Review Page 16
of the Durham Regional Official Plan
Waterfront Link which abuts the north perimeter of the Pickering Nuclear Generating
Station.
The Greenlands System designations in the ROP are being examined and will be updated by the Region to implement provincial direction to establish a regional natural heritage system as well as a new rural lands designation.
Proposed Policy Directions in support of a Protected Greenlands System include:
• Establishing a systems-based Regional Natural Heritage System which will function as an overlay to the underlying land use designation (the current ROP employs a features-based approach to protect the Natural Heritage System);
• Recognizing Indigenous Traditional Ecological Knowledge in understanding sites and ecological features and in assessing cumulative impacts;
• Establishing a water resources system that includes ground and surface water features and areas;
• Ensuring conservation authorities, area municipalities, and other stakeholders consider climate change and the effects of severe weather events and cross-watershed impacts while preparing and updating watershed plans;
• Implementing policies and mapping to conform with Source Protection Plans;
• Adding policies to the ROP which encourage ecosystem compensation as a last resort, only where mitigation and avoidance are not possible; and
• Requiring new development and redevelopment to incorporate native and drought tolerant vegetation.
City staff are generally supportive of the Proposed Policy Directions for a Protected Greenlands System. It should be noted that the City has already revised its Official Plan through Official Plan Amendment (OPA) 36 to bring it into conformity with the Credit Valley,
Toronto and Region and Central Lake Conservation Authority Source Protection Plan, and is in the process of establishing and implementing ecosystem compensation policies through proposed OPA 35. Staff provide the following recommendations as it relates to the Protected Greenlands System Proposed Policy Directions:
• Staff support the proposed policy directions that Indigenous history and presence be considered in the design of communities and the review of development applications. However, it should be acknowledged that enhanced resources will likely be required by Indigenous Peoples to enable the sharing of Traditional Ecological Knowledge. Accordingly, staff recommend that the Region consider requesting the Province to make resources available to Indigenous Peoples to facilitate the sharing of Traditional Ecological Knowledge; and
• The Provincial Policy Statement and Provincial Plans indicates that municipalities and planning authorities shall consult with Indigenous communities on planning matters.
Staff recommend that the Region, through coordinated relationship-building and consultation with Indigenous communities, endeavor to provide guidance to local area municipalities in terms of establishing appropriate engagement processes to facilitate input on land use planning matters.
Report PLN 29-21 June 7, 2021
Subject: The Municipal Comprehensive Review Page 17
of the Durham Regional Official Plan
Durham Region is currently developing a Regional Natural Heritage System (NHS), in
consultation with the Envision Durham consulting team, Conservation Authorities, and the Area Municipal Working Group. Through this consultation, staff have provided input into the proposed criteria for mapping of significant woodlands and valleylands, as well as the draft NHS mapping. Systems-based ROP mapping will be developed and refined through 2021
for inclusion in the draft ROP.
3.7 Connected Transportation System
The Region's Transportation System is designed to facilitate the efficient movement of people and goods. Proposed Policy Directions for a Connected Transportation System include:
• Incorporating Transit Oriented Development (TOD) strategies as part of the development approvals process within Strategic Growth Areas connected by Higher Order Transit corridors;
• Ensuring that the transportation network is designed and planned to support
sustainable and multi-modal transportation options of walking, cycling, the use of transit, and supports mixed-use development;
• Providing for transit-supportive urban design and an improved active transportation network, so that 80 percent of residents and workers in the urban area are within
400 metres or a 5-minute walk to the nearest transit stop;
• Including the Primary Cycling Network and Regional Trail Network as part of the Regional Transportation System;
• Leveraging the Vision Zero Strategic Road Safety Action Plan through the design of facilities to support active transportation, control traffic speeds, and promote safe and attractive environments for pedestrians and cyclists; and,
• Ensuring the transportation and road network is designed and planned to support
sustainable and multi-modal transportation options of walking, cycling and use of
transit.
City staff are generally in support of the Proposed Policy Directions for a Connected Transportation System. These directions are aligned with the City’s draft Integrated Transportation Master Plan for which a notice of study completion has been issued. The
City has previously provided comments on the Proposed Policy Directions for Major Transit Station Areas through PLN 10-21. These policies are advancing separately and concurrently to the MCR.
3.8 Supporting Sections
In addition to the core policy areas, the new ROP will contain supporting components,
consisting of:
• Introductory contextual information such as the history of the Region, the purpose of the plan, and how to read the plan;
• A new component honouring and acknowledging Indigenous populations as well as
clarifying that the Mississauga’s of Scugog Island First Nation, as well as lands owned
Report PLN 29-21 June 7, 2021
Subject: The Municipal Comprehensive Review Page 18
of the Durham Regional Official Plan
by the Provincial and Federal Governments are not subject to the policies of the
Regional Official Plan;
• A glossary and index to help readers navigate the document;
• Updated mapping which considers accessibility, including the use of an online
mapping portal;
• Inclusion of policy direction that allows the Region to release supplemental information and/or guidelines to support implementation of the Plan;
• Inclusion of public consultation and engagement policies; and
• Inclusion of broader policies related to review and monitoring, which incorporate the potential for establishment/monitoring of broader key performance indicators to ensure that the intent of the Plan is being met.
City staff are generally supportive of the proposed policy directions pertaining to supporting
sections of the ROP.
4. Summary
Overall, staff are generally in support of the proposed policy directions outlined in the Proposed Policy Directions Report and the recommendations contained within the Growth
Opportunities and Challenges Report.
Envision Durham is anticipated to deliver a new forward-looking official plan that will guide growth and change in Durham in the years ahead – providing the blueprint for Durham to become known as the place to live, learn and thrive by 2051. Following these commenting/submission periods, the proposed policy directions will be reviewed based on
feedback received through the consultation process and will form the basis for the Region’s
new Official Plan’s draft policies.
Planning staff currently serve on the Envision Durham Municipal Working Group and continue to provide staff-to-staff feedback on the various policy matters that are brought forward for discussion as part of the Region’s Municipal Comprehensive Review process.
The City will have further opportunity to review and comment on the proposed draft policies prior to approval of the new Regional Official Plan.
Despite the continuously changing provincial policy landscape and disruptions caused by COVID-19, the Region has advised that they will be making every effort to meet the Growth Plan requirement deadline of July 1, 2022 for completion of Envision Durham.
Attachments:
1. Map of Urban Area Boundary Expansion Requests – Ajax and Pickering - Excerpt from the
Envision Durham Policy Directions Report
2. Pickering Council Resolution #140/19 3. Pickering Council Resolution #173/19 4. Report of the Regional Commissioner of Planning and Economic Development 2020-P-7 and Envision Durham Proposed Policy Directions Report, March 2021
Report PLN 29-21 June 7, 2021
Subject: The Municipal Comprehensive Review Page 19
of the Durham Regional Official Plan
Prepared By: Approved/Endorsed By:
Original Signed By Original Signed By
Kristy Kilbourne, MCIP, RPP Catherine Rose, MCIP, RPP Principal Planner, Policy Chief Planner
Original Signed By Original Signed By
Déan Jacobs, MCIP, RPP Kyle Bentley, P. Eng.
Manager, Policy & Geomatics Director, City Development & CBO
KK:DJ:ld
Recommended for the consideration
of Pickering City Council
Original Signed By
Marisa Carpino, M.A. Chief Administrative Officer
Attachment #1 to Report #PLN 29-21
Town of Ajax
City of
Pickering Lake Ridge RoadBrockRoadTaunton Road W
WestneyRoad N
Taunton Road E
SalemRoadNTaunton Road
Ninth Concession Road
Altona RoadLake Ridge Road NWhites RoadBER-05
BER-13
BER-12
BER-14
BER-16
BER-21
BER-23
031.5 Km
Requests for Boundary Expansion – Ajax and Pickering
Legend
Regional Official Plan, Schedule 'A' composite, 2017 consolidation. This map has been produced from a variety of sources. The Region of Durham does not make any representations concerning the accuracy,
likely results, or reliability of the use of the materials. The Region hereby disclaims all representations and warranties. Digital cartography by The Regional Municipality of Durham, Planning and Economic
Development Department, 2019. All rights reserved. May not be reproduced without permission.
Data Sources and Disclaimer
A
Prime Agricultural Areas
Living Areas
Specific Study Area 'A'AAA
Major Open Space Areas
Employment Areas
Urban Area Boundary
Municipal BoundaryWaterfront Areas
Regional Corridors
Regional Centres
Lands Subject to BoundaryExpansion Request
Attachment #2 to Report #PLN 29-21
Council Decision Resolution #140/19
WHEREAS, the City of Pickering is projected to be a driving force for residential and economic growth in Durham Region and the GTA over the next 2 decades;
And Whereas, by the year 2031 the estimated population of Pickering will grow to 190,000;
And Whereas, the lack of affordable and sustainable housing options have reached a crisis in parts of Canada, and in particular the Greater Toronto area;
And Whereas, the City of Pickering recognizes that there is an urgent need to create an
age friendly housing strategy that includes reviewing and redefining its urban/living boundaries consistent with current and future growth within the GTA, Durham, and City of Pickering beyond 2031;
And Whereas, the City of Pickering considers all serviceable lands with access to water and sewer within its current and potential urban/living boundaries be considered as a
living area;
And Whereas, the Province of Ontario has recognized the need for more housing choices and more affordability;
And Whereas, the Ministry of Municipal Affairs and Housing has produced its “More Homes, More Choice: Ontario’s Housing Supply Action Plan”, and has given royal assent
to Bill 108 (More Homes, More Choice Act, 2019) to address housing supply, housing variety and affordability;
And Whereas, the City of Pickering has commenced a Strategic Plan Review that includes redefining its urban/living boundaries;
And Whereas, the Provincial Government amended the Growth Plan to permit some
additional options for urban area boundary expansions, and to allow upper and single- tier municipalities to request alternative intensification targets to address, among other matters, greater housing supply, and affordability;
And Whereas, proposed amendments to the Provincial Policy Statement will allow consideration of market demands and needs in determining housing options, as a
strategy to provide a more diverse range of grade related homes;
And Whereas, the Region of Durham is currently undertaking a municipal comprehensive review of its settlement areas, including a land needs assessment as required by the Growth Plan for the Greater Golden Horseshoe;
And Whereas, on February 27, 2019, Durham Regional Council commented on
Amendment 1 to the Growth Plan for the Greater Golden Horseshoe 2017 in support of a minimum density of 50 persons and jobs per gross hectare for new greenfield developments, and a region-wide intensification target of a minimum 45% within the existing built boundary;
Council Decision Resolution #140/19
And Whereas, the City of Pickering supports the Region’s comments on Amendment 1 to the Growth Plan;
Now therefore be it resolved that the Council of the Corporation for the City of Pickering
request that the Region of Durham in their review include:
1. All lands within the City of Pickering meet the following criteria:
• Lands not restricted by availability of servicing
• Lands that do not comprise a Specialty Crop Area
• Lands that are not within a Natural Heritage System
• Lands not located in the Moraine Natural Core and Linkage Areas
• Lands experiencing growth pressures and or with locations in the white belt that are appropriate for growth and can achieve a healthy, connected, thriving and complete community
• Lands that have existing or planned infrastructure to support and accommodate growth
2. That the Region of Durham be requested to seek approval of the Minister of Municipal Affairs and Housing to an alternate intensification rate of 45% for Durham Region that
will enable greater flexibility to provide a more diverse range of grade related housing
mix;
3. That City staff be directed to report back to Planning & Development Committee in the first quarter of 2020 outlining a process to develop an age friendly housing strategy, including changes to Pickering’s Official Plan and any required secondary plan
reviews of those lands in Pickering that meet the stated criteria of recommendation #1;
and,
4. That a copy of this resolution be forwarded to the Premier of Ontario, Durham Region MPPs, all Durham Regional Municipalities, and the Region of Durham.
Attachment #3 to Report #PLN 29-21
Council Decision Resolution #173/19
WHEREAS, at the September 23, 2019 Council meeting, the City of Pickering adopted Resolution #140/19 “An Age Friendly Affordable Housing Strategy”;
And Whereas, included in this Resolution was a request for Durham Region to include in their Municipal Comprehensive Review all lands within the City of Pickering that meet the following criteria:
• lands not restricted by availability of servicing
• lands that do not compromise a specialty crop area
• lands that are not within a natural heritage system
• lands not located in the moraine natural core and linkage areas
• lands experiencing growth pressures and/or with locations in the white belt that are appropriate for growth and can achieve a healthy, connected, thriving and complete community
• lands that have existing or planned infrastructure to support and accommodate
growth;
And Whereas, at the Planning and Development Committee meeting of November 4, 2019, the Community of Veraine presentation was made to the City of Pickering, being a
new community proposed for northeast Pickering based on thriving, connected and
complete community principles that comprise inclusivity and affordability;
And Whereas, among other things Veraine provides an opportunity that can address the need for age friendly, affordable housing options for future generations for decades to come;
Now therefore be it resolved that the Council of The Corporation of the City of Pickering:
1. Supports the Vision and Community Planning Principles for the lands in northeast Pickering known as Veraine, and reaffirms its request that the Region of Durham include these lands in the settlement area boundary during its current Municipal Comprehensive Review;
2. That City Staff be directed to report back to Committee in Q1 2020 outlining a
process to initiate a secondary plan for the new community of Veraine based on the Community Planning Principles in Appendix 1 attached to this Motion;
3. That City Staff be directed through the CAO’s Office to discuss with the landowners an arrangement for a dedicated team that will work on the Veraine file, without
impacting other priorities of the City of Pickering; and,
4. That a copy of this resolution be forwarded to the Region of Durham.
Attachment #4 to Report #PLN 29-21
If this information is required in an accessible format, please contact 1-800-372-1102 ext. 2564
The Regional Municipality of Durham
Report
To: Planning and Economic Development Committee
From: Commissioner of Planning and Economic Development
Report: #2021-P-7
Date: March 2, 2021
Subject:
Envision Durham – Proposed Policy Directions, File: D12-01
Recommendation:
That the Planning and Economic Development Committee recommends:
That this report be received for information.
Report:
1.Purpose
1.1 The purpose of this report is to advise Committee members that Proposed Policy
Directions, contained in Attachment #1, are being released for public and agency
comment. These policy directions are a key component of Envision Durham, the
Municipal Comprehensive Review (MCR) of the Regional Official Plan (ROP).
1.2 Comments on the Proposed Policy Directions are being requested by June 30,
2021, a 120-day (four month) submission window.
1.3 In addition, submissions for new and/or amended requests for Settlement Area
Boundary Expansion are requested by May 31, 2021, a 90-day submission window.
Report #2021-P-7 Page 2 of 10
2. Previous Reports and Decisions
2.1 Envision Durham is a multi-year project that received authorization to proceed in
May 2018, see Report #2018-COW-93. This project has been the subject of several
reports to Council. Recent activities have included:
a. Developing and reporting upon the Employment Area conversion criteria and
submission process (see Reports #2020-P-11 and #2020-INFO-94);
b. Commenting on Amendment 1 to A Place to Grow (Growth Plan), which
updated population and employment forecasts for Durham to 2051 (see
Reports #2020-P-14 and #2020-INFO-83);
c. Establishing a new framework, with a streamlined structure and approach to
support a new and compelling ROP (see Report #2020-P-24); and
d. Examining and preparing proposed policy directions and delineations for
existing and future Major Transit Station Areas, to be provided as a
standalone amendment (see Report #2020-P-27).
3. Background
3.1 Envision Durham is currently in Stage 3 (“Direct”). The attached Proposed Policy
Directions were developed and informed based on best practice reviews, research,
public engagement and feedback received during Stages 1 (“Discover”) and 2
(“Discuss”) of the Envision Durham process. They are also intended to respond to
submissions received through Stage 2, a summary of which can be found at
durham.ca/EnvisionDurhamSubmissions.
3.2 These Proposed Policy Directions present potential changes to land use planning
policies, and public input is being requested. The proposed directions are not
intended to be exhaustive but introduce certain directions where further input
is being sought before draft policies are introduced within a proposed new
ROP.
3.3 As a key component of Envision Durham, a Growth Management Study (GMS) is
being completed in two phases. The first phase of the GMS focuses on the
completion of a Land Needs Assessment (LNA). The LNA is a comprehensive
review and calculation of the Region’s land base, including existing urban areas, to
determine how the Growth Plan population and employment forecasts can be
accommodated and how much, if any, additional urban land is required. The second
phase of the GMS, if required, will focus on determining the most appropriate
location for Urban Boundary Expansions.
Report #2021-P-7 Page 3 of 10
3.4 Attachment #2 to this report provides a Growth Opportunities and Challenges
Report prepared by the Region’s consultants. This report serves as a starting point
for the LNA and related technical studies and provides essential context; discusses
impacts from broader demographic and economic trends, local growth and
development trends; and describes other factors that affect growth. The Growth
Opportunities and Challenges Report includes several recommendations that will
carry forward into the LNA and help shape the overall outcome of the GMS.
4.Overview of Proposed Policy Directions
4.1 Based on the framework endorsed by Regional Council in November 2020, the
proposed policy directions provide an indication of how the new ROP will be
structured around chapters that represent seven balanced, aspirational, outcome-
oriented Strategic Directions, reflective of the region’s diverse characteristics:
a.Prosperous Economy;
b.Healthy Communities;
c.Supportive Infrastructure;
d.Vibrant Urban System;
e.Thriving Rural System;
f.Protected Greenlands System; and
g.Connected Transportation System.
4.2 Each Strategic Direction describes a series of policy topics, discusses comments
where received and introduces proposed policy direction(s), where applicable.
4.3 Global events, such as the COVID-19 pandemic, underscore the importance of
planning and preparing for a resilient, prosperous economy at the regional scale. To
date, the economic disruption of COVID-19 has been severe, while the longer-term
sustained economic impact worldwide, and more specifically within Durham, is
largely unknown.
4.4 The impacts of COVID-19, resulting primarily from travel restrictions and economic
disruption, are anticipated to have a negative impact on near term labour force
growth and keep near-term (i.e. 2020 and 2021) immigration levels across Canada,
including in Durham, below recent historical averages. On the other hand, the
Oshawa CMA had the highest rate of population growth in 2020, Canada-wide.
While the Region has limited control over its ability to influence these macro-
economic and policy factors, the Region does have the ability to recognize
emerging trends. As a result, staff will continue to closely monitor the impacts of
Report #2021-P-7 Page 4 of 10
COVID-19 on near-term and long-term population and employment growth across
the GGH and Durham.
4.5 To solicit feedback on the Proposed Policy Directions, an online survey was
developed to help facilitate input. Each proposed policy direction has been
highlighted by report section, with a corresponding “poll” survey at
durham.ca/EnvisionDurhamDirections. Specific comments can also be
provided directly into the survey for each proposed direction.
Prosperous Economy
4.6 Economic development objectives evolve over time with changes in broader
economic trends, regional growth, and in response to changing local priorities and
issues. Proposed policy directions that are intended to support a prosperous
economy include:
a.Determining and implementing an appropriate supply of Employment Areas
with access to municipal water and sewage services;
b. Supporting balanced population and employment growth and the
diversification of the region’s employment base;
c.Supporting collaboration with educational institutions and the business
community in programs that create and maintain a highly skilled regional
labour force;
d. Supporting the agricultural and agri-food sector, including new opportunities
for agri-tourism, on farm diversified uses and the diversification of agricultural
operations; and
e. Recognizing the importance of, and encouraging the expansion of leading-
edge technologies, including high-speed broadband infrastructure.
Healthy Communities
4.7 The built environment has a direct effect on our health. Establishing and
implementing policies that shape the development of healthy communities that
address quality of life, health, safety, convenience and well-being of present and
future residents is one of the primary functions of an official plan.
4.8 Proposed policy directions intended to foster healthy communities include:
a.Introducing a greenhouse gas (GHG) emission reduction target in the new
ROP so as to achieve net-zero as an aspirational objective;
Report #2021-P-7 Page 5 of 10
b. Encouraging and supporting climate resilient development, redevelopment
and retrofits;
c. Encouraging community hubs in transit-supportive locations where existing
cultural and community services and facilities exist, especially within Strategic
Growth Areas;
d. Collaborating with area municipalities on developing age-friendly design
guidelines;
e. Completing a Regional Housing Assessment Report to enable the Region’s
area municipalities to undertake Inclusionary Zoning within their respective
jurisdictions; and
f. Establishing a new affordable housing target of at least 35 per cent of new
housing within Strategic Growth Areas.
Supportive Infrastructure
4.9 Ensuring supportive municipal infrastructure is in place (or will be in place for future
needs) and maintained on a regular basis is essential for a growing, economically
competitive region. Proposed policy directions intended for supportive infrastructure
include:
a. Encouraging stormwater management practices supporting low impact
development (LID) and sustainable urban design within the public realm;
b. Recognizing energy conservation and efficiency measures, and renewable
and alternative energy systems as critical to reducing greenhouse gas
emissions;
c. Adapting and building resiliency to the impacts of climate change; and
d. Permitting and promoting alternative energy systems and renewable energy
systems in accordance with provincial and federal requirements, while
prohibiting large-scale commercial renewable energy facilities in Prime
Agricultural Areas and critical environmental areas.
Vibrant Urban System
4.10 The Urban System is comprised of lands within the Region’s Urban Area Boundary,
designated to accommodate the vast majority of the region’s forecasted population
and employment growth. The Urban System is intended to comprise distinct Urban
Areas, functioning as healthy and complete communities, and guided by policies
that aim to separate incompatible uses, provide for focal points, concentrations of
urban activities and essential connections.
Report #2021-P-7 Page 6 of 10
4.11 Additional policy directions for the Urban System and finalization of those proposed
will be released as the various phases of the GMS are completed.
4.12 Some of the proposed policy directions that would foster a vibrant Urban System,
as contained with Attachment #1, include:
a. Reviewing and refining existing Regional Centres against the density targets
and planned function as described in ROP policy, in consultation with area
municipal staff;
b. Designating and delineating Regional Centres in Beaverton, Cannington,
Sunderland, Uxbridge and Port Perry as “Rural Regional Centres” in
recognition of their role as unique places and their historic function;
c. Designating Highway 2 from the Toronto/Durham border easterly to Highway
418 in Clarington, and Simcoe Street from Gibb Street in downtown Oshawa
to Highway 407 as “Rapid Transit Spine Intensification Corridors”, signaling
their status as Strategic Growth Areas with densities, built form and a mix of
uses that will support Light Rail Transit in the long term;
d. Allowing Places of Worship within Employment Areas subject to meeting
criteria including land use compatibility; and
e. Encouraging the redevelopment of brownfield sites and greyfield sites and
prioritize the redevelopment of brownfield and greyfield sites within Strategic
Growth Areas and other intensification areas.
4.13 If necessary, settlement area boundary expansions will be considered through the
GMS (Phase 2), after the completion of the LNA, that will determine the amount of
urban land required to accommodate the 2051 growth forecasts.
4.14 To inform this work, a 90-day submission window for new and/or amended requests
for Settlement Area boundary expansions will allow proponents the opportunity to
respond to or address the criteria identified within Settlement Area Boundary
Expansion section of Attachment #1.
4.15 The final date to submit a Settlement Area boundary expansion request for
consideration through Envision Durham will be May 31, 2021. All submissions
and supporting information should be made directly via email to
EnvisionDurham@durham.ca.
Thriving Rural System
4.16 The current Rural System comprises 84 per cent of the region’s land base and
houses approximately eight per cent of Durham’s population (54,000 residents).
Report #2021-P-7 Page 7 of 10
With almost 300,000 acres of Durham in production, agriculture is one of the largest
primary goods producing sectors within the Region. Most of the rural area is
planned for agricultural and open space uses, interspersed with rural settlements.
Proposed policy directions intended to support a thriving Rural System include:
a. Permitting a full range of agricultural, agriculture-related and on-farm
diversified uses in accordance with the provincial Guidelines on Permitted
Uses in Ontario’s Prime Agricultural Areas;
b. Continuing to prohibit the creation of parcels of land for agricultural uses of
less than 40 hectares; and
c. Requiring the rehabilitation of Aggregate Resource Extraction Areas back to
an agricultural condition for sites in Prime Agricultural Areas and incorporating
relevant Greenbelt Plan rehabilitation policies.
4.17 The Region is currently reviewing the provincial Agricultural System, comprised of
the agricultural land base and agri-food network. Systems-based ROP mapping will
be developed and refined through 2021 for inclusion in the draft ROP.
Protected Greenlands System
4.18 The current Greenlands System comprises approximately 40 per cent of the
region’s land base – weaving through both the Urban and Rural Systems. It
contains areas with the highest concentrations of sensitive and/or significant natural
features and functions, agricultural and rural lands. Examples of proposed policy
directions that would support a protected Greenlands System include:
a. Recognizing Traditional Ecological Knowledge in understanding sites and
ecological features and in assessing cumulative impacts;
b. Establishing a water resources system that includes ground and surface
water features and areas, the Lake Simcoe watershed boundary and former
Lake Iroquois Shoreline;
c. Ensuring conservation authorities, area municipalities and other stakeholders
consider climate change and the effects of severe weather events and cross-
watershed impacts while preparing and updating watershed plans;
d. Seeking to reduce stormwater runoff volume and pollutant loadings within
Designated Urban Areas in the Lake Simcoe watershed, in accordance with
the Lake Simcoe Protection Plan; and
e. Requiring new development and redevelopment to incorporate native and
drought tolerant vegetation.
Report #2021-P-7 Page 8 of 10
4.19 The Provincial Policy Statement, 2020, requires the establishment of a Natural
Heritage System (NHS) that includes key natural heritage features and areas, and
the connections between them. In addition to satisfying provincial conformity
requirements, a systems-based approach reflects best practices in natural heritage
planning because it recognizes the critical role that linkages between features play
in establishing and maintaining ecological integrity.
4.20 Staff are currently developing a Regional NHS, in consultation with the Envision
Durham Conservation Authority and Area Municipal Working Groups. Systems-
based ROP mapping will be developed and refined through 2021 for inclusion in the
draft ROP.
Connected Transportation System
4.21 The Region's Transportation System is designed to move people and goods.
Proposed policy directions for a connected Transportation System include:
a. Incorporating Transit Oriented Development (TOD) strategies as part of the
development approvals process within Strategic Growth Areas connected by
Higher Order Transit corridors;
b. Ensuring that the transportation network is designed and planned to support
sustainable and multi-modal transportation options of walking, cycling and the
use of transit and supports mixed-use development;
c. Providing for transit-supportive urban design and an improved active
transportation network, so that 80 per cent of residents and workers in the
urban area are within 400 metres or a five-minute walk to the nearest transit
stop;
d. Including the Primary Cycling Network and Regional Trail Network as part of
the Regional Transportation System;
e. Leveraging the Vision Zero Strategic Road Safety Action Plan through the
design of facilities to support active transportation, control traffic speeds and
promote safe and attractive environments for pedestrians and cyclists;
f. Establishing a new Schedule showing future right-of-way (ROW) width
requirements for all arterial roads under regional and area municipal
jurisdiction; and
g. Ensuring the transportation and road network is designed and planned to
support sustainable and multi-modal transportation options of walking, cycling
and use of transit.
Report #2021-P-7 Page 9 of 10
5. Relationship to Strategic Plan
5.1 This report aligns with/addresses all the strategic goals and priorities in the Durham
Region Strategic Plan.
6. Summary
6.1 The Proposed Policy Directions were prepared by Regional planning staff in
consultation with Regional staff from the Office of the CAO, Legal, Works, Finance,
Health, Durham Region Transit, Social Services – Housing Services, and Economic
Development and Tourism.
6.2 Regional staff continue to meet with and receive input from the Envision Durham
Conservation Authority and Area Municipal Working Groups. Feedback from these
Working Groups helped to inform the proposed policy directions.
6.3 Comments on the Proposed Policy Directions are requested by June 30, 2021, a
120-day submission window. The online survey will be closed to submissions
immediately following this date.
6.4 Submissions for new and/or amended requests for Settlement Area boundary
expansion are requested by May 31, 2021, a 90-day submission window.
Submissions should have regard for the criteria outlined in the Settlement Area
Boundary Expansion section of the enclosed report and include mapping of the
subject property and a description of the proposed land use and built form.
Settlement Area boundary expansion requests should be made directly via email to
EnvisionDurham@durham.ca.
6.5 Following these commenting/submission periods, the proposed policy directions will
be reviewed based on feedback received through the consultation process and will
form the basis for our new Official Plan’s draft policies.
7. Next Steps
7.1 The Proposed Policy Directions will be posted to the project web page at
durham.ca/EnvisionDurham for public and agency input. Interested parties are
encouraged to provide feedback using the online survey at
durham.ca/EnvisionDurhamDirections. The Proposed Policy Directions and survey
will be announced by way of:
a. News releases and public service announcements;
b. Social media platforms, including Facebook, Twitter and LinkedIn; and
Report #2021-P-7 Page 10 of 10
c. Email notifications and report circulation, as detailed below.
7.2 A copy of this report, the Proposed Policy Directions and an invitation to complete
the online survey will be forwarded to Durham’s area municipalities, Indigenous
communities, conservation authorities, BILD – Durham Chapter, the Ministry of
Municipal Affairs and Housing, the Envision Durham Interested Parties List, as well
as to any stakeholders that have already made Settlement Area boundary
expansion requests and/or inquiries, for review and comment.
8. Attachments
Attachment #1: Proposed Policy Directions
Attachment #2: Growth Challenges and Opportunities Report, prepared by Urban
Strategies Inc. and Watson & Associates Ltd. for the Region’s
Growth Management Study
Respectfully submitted,
Original signed by
Brian Bridgeman, MCIP, RPP
Commissioner of Planning and
Economic Development
Recommended for Presentation to Committee
Original signed by
Elaine C. Baxter-Trahair
Chief Administrative Officer
DURHAMENVISION
Proposed
Policy
Directions
March 2021
Durham Region
Planning and Economic
Development Department
Report
These Proposed Policy Directions are published for public and agency comment as part of Envision
Durham, the Municipal Comprehensive Review of the Regional Official Plan.
Report contents and proposed directions do not necessarily represent the position of Regional
Council on changes that may be considered to the Regional Official Plan.
All information reported and/or collected through this report and related online survey will help
inform and be used as part of the Municipal Comprehensive Review.
Please provide your comments on these Proposed Policy Directions by June 30, 2021.
1 | Envision Durham
About Envision Durham
Envision Durham, the Municipal
Comprehensive Review (MCR) of the
Regional Official Plan (ROP), is an opportunity
to plan for fundamental change, by replacing
the current ROP and establishing a
progressive and forward-looking planning
vision for the Region to 2051.
The Region is undertaking Envision Durham
to review:
• How and where our cities and towns may
grow.
• How to use and protect our land and
resources.
• What housing types and job
opportunities are needed for our
residents.
• How people and goods move within,
across and beyond our region.
We’re planning for an attractive place to live,
work, play, grow and invest – and we’re
asking for your help.
Why review the Official Plan?
The ROP guides decisions on long-term
growth, infrastructure investment and
development–providing policies to ensure an
improved quality of life–to secure the health,
safety, convenience and well-being of
present and future residents of Durham.
Under the Planning Act, there is a legislative
requirement to review the current ROP every
five years; whereas new official plans must
be reviewed within 10 years of coming into
effect. Since the approval of the last ROP
update (January 2013), the Province of
Ontario has completed several significant
provincial policy initiatives, including a
coordinated review and update of the
following provincial plans:
• The Growth Plan for the Greater Golden
Horseshoe, 2017, which was replaced by
A Place to Grow: Growth Plan for the
Greater Golden Horseshoe in May 2019,
and further amended by Amendment 1 in
August 2020.
• The Greenbelt Plan, 2017.
• The Oak Ridges Moraine Conservation
Plan, 2017 (ORMCP).
• Provincial Policy Statement, 2020 (PPS).
The Planning Act requires the Region to
complete a provincial plan conformity
exercise to amend the ROP to ensure that it:
• Conforms with provincial plans or does
not conflict with them.
• Has regard to matters of provincial
interest.
• Is consistent with Provincial Policy
Statements.
Envision Durham constitutes Durham’s
provincial plan conformity exercise and its
five-year review of the ROP within this
broader MCR process, satisfying these
legislative requirements.
Envision Durham | 2
How to get involved
Public input is integral to the success of Envision Durham – we want to hear from you! Please use
this opportunity to have your say about our future – tell us if we’re headed in the right direction
on the key Proposed Policy Directions described throughout this document.
Join the conversation by visiting durham.ca/EnvisionDurhamDirections to submit your comments
directly online.
To receive timely notifications on the Envision Durham process, please visit
durham.ca/EnvisionDurham to subscribe for project updates
3 | Envision Durham
Table of Contents
About Envision Durham………………………………………………………………………………………………………………………………..1
Why review the Official Plan? ........................................................................................................................ 1
Executive summary………………………………….......................................................................………………..…………….8
Introduction……………………………………………………………………………………………………………………………………………….10
Background ................................................................................................................................................... 10
Stage 1 – Discover ..................................................................................................................................... 10
Stage 2 – Discuss ....................................................................................................................................... 10
Outreach and Engagement: .................................................................................................................. 11
Stage 3 – Direct ......................................................................................................................................... 11
Policy Review Approach………………………………………………………………………………………………………………………………13
Format of Report.………………………………………………………………………………………………………………………………………14
Proposed Policy Directions………………………………………………………………………………………………………………………….15
Prosperous Economy .................................................................................................................................... 15
Goals for a Prosperous Economy .............................................................................................................. 16
Economic Development Policies .............................................................................................................. 16
Broadband Infrastructure ......................................................................................................................... 17
Pickering Federal Airport Lands ................................................................................................................ 18
Healthy Communities ................................................................................................................................... 20
Goals for Healthy Communities ................................................................................................................ 21
Sustainability ............................................................................................................................................ 21
Greenhouse Gas Reduction ...................................................................................................................... 22
Climate Resilient Development ................................................................................................................ 25
Air Quality ................................................................................................................................................. 27
Tree Canopy .............................................................................................................................................. 28
Complete Communities ............................................................................................................................ 29
Urban Agriculture ..................................................................................................................................... 31
Public Realm and Urban Design................................................................................................................ 32
Downtowns ............................................................................................................................................... 34
Community Hubs ...................................................................................................................................... 36
Age-Friendly Planning ............................................................................................................................... 37
Community Safety and Well-Being Planning ............................................................................................ 38
Envision Durham | 4
Diverse Housing ........................................................................................................................................ 39
Supply of Land for Housing ....................................................................................................................... 40
Housing Mix: ......................................................................................................................................... 40
Housing Options ....................................................................................................................................... 41
Affordable Housing ................................................................................................................................... 43
Affordable Housing Definition: ............................................................................................................. 43
Affordable Housing Targets: ................................................................................................................. 44
Supporting Affordable Housing: ........................................................................................................... 45
Inclusionary Zoning ................................................................................................................................... 47
Secondary Units ........................................................................................................................................ 47
Microhomes .............................................................................................................................................. 49
Shared Living ............................................................................................................................................. 50
Adaptive Re-use ........................................................................................................................................ 51
Condominium Conversion and Demolition Control ................................................................................. 51
Short-term Rentals ................................................................................................................................... 53
Special Needs Housing .............................................................................................................................. 54
Supportive Infrastructure ............................................................................................................................. 56
Goals for Supportive Infrastructure .......................................................................................................... 56
Green Infrastructure ................................................................................................................................. 57
Waste Management ................................................................................................................................. 58
Telecommunications Infrastructure ......................................................................................................... 59
Energy ....................................................................................................................................................... 59
Vibrant Urban System................................................................................................................................... 62
Regional Growth Management Study ...................................................................................................... 64
Regional Population and Employment Forecasts ..................................................................................... 65
Goals for a Vibrant Urban System ............................................................................................................ 66
Delineated Built-Up Areas and Designated Greenfield Areas .................................................................. 68
Identifying and Planning for Strategic Growth Areas ............................................................................... 69
Centres: ................................................................................................................................................. 70
Major Transit Station Areas: ................................................................................................................. 72
Corridors: .............................................................................................................................................. 73
Waterfront Places: ................................................................................................................................ 75
Supporting Strategic Growth Areas: ..................................................................................................... 75
5 | Envision Durham
Living Areas ............................................................................................................................................... 79
Central Pickering Development Plan Area ............................................................................................... 79
Updated Targets and Measuring Density ................................................................................................. 80
Planning for Employment ......................................................................................................................... 83
Employment Areas: .............................................................................................................................. 83
Employment Related Policies: .............................................................................................................. 87
Certain Sensitive Land Uses in Employment Areas: ............................................................................. 88
Land Use Compatibility: ........................................................................................................................ 88
“Mixed Use Employment Areas”: ......................................................................................................... 89
Employment Area Conversion: ............................................................................................................. 91
Brownfields and Site Contamination ........................................................................................................ 92
Settlement Area Boundary Expansion ...................................................................................................... 92
Secondary Plan Considerations ................................................................................................................ 95
Thriving Rural System ................................................................................................................................... 97
Goals for a Thriving Rural System ............................................................................................................. 99
Provincial Agricultural System .................................................................................................................. 99
Rural System ........................................................................................................................................... 100
Cemeteries .............................................................................................................................................. 101
Minimum Distance Separation ............................................................................................................... 102
Rural Settlements ................................................................................................................................... 103
Edge Planning ......................................................................................................................................... 103
Specific Policy Areas ............................................................................................................................... 104
Cannabis Cultivation and Processing ...................................................................................................... 105
Rural Lot Creation ................................................................................................................................... 107
Secondary Dwellings for Farm Help: .................................................................................................. 108
On-Farm Diversified Uses: .................................................................................................................. 108
Parcels for Agricultural Uses: .............................................................................................................. 109
Abutting Surplus Farm Dwellings: ...................................................................................................... 109
Non-Abutting Surplus Farm Dwellings: .............................................................................................. 110
Regional Nodes ....................................................................................................................................... 111
Aggregate Resource Extraction Areas .................................................................................................... 111
Protected Greenlands System .................................................................................................................... 114
Envision Durham | 6
Goals for a Protected Greenlands System .............................................................................................. 116
Traditional Ecological Knowledge ........................................................................................................... 116
Natural Heritage System ......................................................................................................................... 117
Open Space Linkages and Waterfront Links ........................................................................................... 119
Key Natural Heritage and Key Hydrologic Features ............................................................................... 120
Vegetation Protection Zones .................................................................................................................. 122
Water Resources .................................................................................................................................... 123
Identifying a Water Resources System: .............................................................................................. 123
Watershed Planning: .......................................................................................................................... 124
Lake Simcoe Protection Plan .................................................................................................................. 125
Source Protection ................................................................................................................................... 126
Natural Hazards ...................................................................................................................................... 129
Shoreline Hazards: .............................................................................................................................. 129
Wildland Fire ........................................................................................................................................... 129
Open Space Areas and Greenbelt Urban River Valleys .......................................................................... 130
Oak Ridges Moraine Areas ..................................................................................................................... 132
Waterfront Areas .................................................................................................................................... 132
Tourist Activity/Recreation Nodes ......................................................................................................... 133
Environmental Stewardship ................................................................................................................... 133
Ecosystem Compensation....................................................................................................................... 135
Invasive Species Management ............................................................................................................... 136
Excess Soil Management ........................................................................................................................ 137
Septage ................................................................................................................................................... 139
Environmental Noise .............................................................................................................................. 140
Environmental Assessments ................................................................................................................... 140
Connected Transportation System ............................................................................................................. 142
Goals for a Connected Transportation System ....................................................................................... 143
Transit Oriented Development ............................................................................................................... 144
Transit Oriented Development in MTSAs: .......................................................................................... 147
Transit Oriented Development in SGAs: ............................................................................................. 147
Transit-Supportive Development: ...................................................................................................... 148
Commuter Stations ................................................................................................................................. 148
Active Transportation ............................................................................................................................. 151
7 | Envision Durham
General Policies for Active Transportation: ........................................................................................ 152
Active Transportation within a Connected Transportation System: .................................................. 153
Active Transportation within a Vibrant Urban System: ...................................................................... 154
Active Transportation within Healthy Communities: ......................................................................... 154
Active Transportation within Supportive Infrastructure: ................................................................... 154
Active Transportation within a Protected Greenlands System: ......................................................... 154
Transportation Demand Management ................................................................................................... 155
Arterial Right-of-Way Protection ............................................................................................................ 157
Multi-Modal Level of Service .................................................................................................................. 159
Additional Provincial Conformity Considerations .................................................................................. 160
Other Transportation-Related Policy Reviews ....................................................................................... 161
Freight and Goods Movement: ........................................................................................................... 161
Environmental Assessments for Arterial Roads: ................................................................................ 162
Emerging Technologies: ...................................................................................................................... 163
Supporting Sections .................................................................................................................................... 165
Introductory Components ...................................................................................................................... 165
Honouring and acknowledging Indigenous Populations within the region ........................................... 165
Indigenous Territory Acknowledgement: ........................................................................................... 165
Mississaugas of Scugog Island First Nation: ....................................................................................... 166
Supporting Implementation of the Plan ................................................................................................. 166
Public Consultation and Engagement ..................................................................................................... 167
Review and Monitoring .......................................................................................................................... 168
How to provide feedback………………………………………………………………………………………………………………………….169
Next steps…………………………………………………………………………………………………………………………………………………170
Appendix A: Glossary of Proposed New/Amended Terms…………………………………………………………………………171
Appendix B: Requests for Employment Area Conversion………………………………………………………………………….178
Appendix C: Settlement Area Boundary Expansion – Evaluation Criteria………………………………………………….196
Appendix D: Requests for Boundary Expansion………………………………………………………………………………………..204
Envision Durham | 8
Executive summary
The Region is entering a period of significant
growth and change. By 2051, the Region is
forecast to accommodate a population of 1.3
million residents, and 460,000 jobs. This
represents nearly a doubling of the Region's
2020 population of approximately 705,000,
and a more than doubling of the Region's
approximately 210,000 jobs.
Envision Durham’s Proposed Policy Directions
present potential changes to land use
planning policies intended to support this
period of change with directions that
respond to:
• heightening expectations to address
climate change by embracing a low-
carbon pathway to reducing greenhouse
gas emissions, particularly within the
transportation and building sectors;
• growing demands to improve mobility
options by emphasizing increased
opportunities for active transportation
and transit availability;
• focusing intensification within strategic
growth areas, including along corridors
and the areas surrounding existing and
planned GO Stations;
• establishing a systems-based approach to
promote the continued protection of the
natural environment;
• planning approaches that further support
the region’s Agricultural System, agri-
food network, and an increasingly
diversifying agricultural sector; and
• facilitating the development of high-
quality job opportunities by supporting
collaboration with educational
institutions, the business community,
service providers, and governments at all
levels.
The Proposed Policy Directions are not
intended to be exhaustive, but introduce
over 250 directions where further input is
being sought before draft policies are
introduced within a proposed new Regional
Official Plan (ROP).
This report is structured around the new ROP
framework, endorsed by Regional Council in
November 2020, that reflects seven
balanced, aspirational, outcome-oriented
Strategic Directions:
• Prosperous Economy;
• Healthy Communities;
• Supportive Infrastructure;
• Vibrant Urban System;
• Thriving Rural System;
• Protected Greenlands System; and
• Connected Transportation System.
Each Strategic Direction describes a series of
policy topics, discusses comments where
received and introduces proposed policy
direction(s), where applicable.
To solicit feedback on the Proposed Policy
Directions, an online survey was developed
to help facilitate input. Each proposed policy
direction has been highlighted by report
section, with a corresponding “poll” survey at
durham.ca/EnvisionDurhamDirections.
Specific comments can also be provided
directly into the survey for each proposed
direction. Comments on these Proposed
Policy Directions are requested by June 30,
2021.
9 | Envision Durham
Following this 120-day submission window,
the proposed directions will be reviewed
based on feedback received through the
consultation process and will form the basis
for a new forward-looking ROP that will guide
growth and change in Durham in the years
ahead – providing the blueprint for Durham
to become known as the place to live, learn
and thrive by 2051.
Envision Durham | 10
Introduction
The purpose of this report is to introduce
proposed policy directions for public review
and input. Informed by best practice
reviews, research, public engagement and
feedback received during Stages 1 and 2 of
the Envision Durham process, this report
responds to submissions received through
the Stage 2 Discussion Papers. It also outlines
how to provide feedback on the proposed
policy directions.
Input received on these proposals will inform
the development of draft policies for the new
Regional Official Plan.
Background
Envision Durham was authorized by Regional
Council to proceed in May 2018 (Report
#2018-COW-93). The multi-year project has
been taking place in four stages, as follows:
• Stage 1 – Discover
• Stage 2 – Discuss
• Stage 3 – Direct
• Stage 4 – Draft
Each stage provides an opportunity to share
information, solicit input, and to re-engage
the public and interested parties.
Stage 1 – Discover
In February 2019, the first stage (“Discover”)
commenced, with a public engagement
program launched with an online project hub
(durham.ca/EnvisionDurham). A public
opinion survey (Report #2019-P-4) was
released, posing a series of questions on a
variety of planning and development topics
across the region.
Stage 2 – Discuss
Over 2019, the second stage (“Discuss”) was
advanced. Six theme-based discussion papers
were prepared and released, each of which
provided background information and posed
separate questions on specific topics:
• Agriculture and Rural System – released
March 5, 2019 (Report #2019-P-12)
• Climate Change and Sustainability –
released May 7, 2019 (Report #2019-P-
26)
• Growth Management: The Urban System
– released June 4, 2019 (Report #2019-P-
31)
• Environment and Greenlands System –
released September 3, 2019 (Report
#2019-P-39)
• Transportation System – released
October 1, 2019 (Report #2019-P-41)
• Housing Policy Planning – released
December 3, 2019 (Report #2019-P-47)
These Discussion Papers included background
information that informed the discussion and
analysis within this report. Readers are
encouraged to refer to respective Discussion
Papers for additional information and policy
context when reviewing the proposed policy
directions.
Also, in 2019, professional consulting services
were retained to assist with the Growth
Management Study (GMS) component of
Envision Durham.
11 | Envision Durham
Outreach and Engagement:
Participation opportunities have occurred
across a variety of platforms, including pop-
up information kiosks, in-person and virtual
meetings and presentations (including to
Regional Advisory Committees and the BILD
Durham Chapter Liaison group), working
group sessions, workbooks, email and social
media campaigns and a public opinion
survey. Feedback and research on a variety of
topics helped inform the development of a
new ROP framework and proposed policy
directions.
In response to the COVID-19 State of
Emergency initiated in March 2020, staff
have continued to evaluate public and
stakeholder feedback, while meeting
remotely with the Area Municipal and
Conservation Authority Working Groups,
various proponents and the GMS consultants.
Public comments and questions continue to
be received, and project progress continues
to be communicated online via the Envision
Durham web page and through interested
parties email list.
Stage 3 – Direct
Envision Durham is currently in Stage 3
(“Direct”). Over the course of 2020, the
Growth Management Study has continued to
progress.
In August, 2020 Amendment 1 to A Place to
Grow: Growth Plan for the Greater Golden
Horseshoe came into effect (Report #2020-
INFO-83), allowing significant components of
the GMS to continue, including:
• The comprehensive Land Needs
Assessment supported by the required
technical and feasibility studies; and
• The area municipal allocations of the new
regional population employment
forecasts, now with a 2051 time-horizon.
As of January 2021, a detailed examination of
the intensification potential of Strategic
Growth Areas is being examined, and
employment conversion requests are being
evaluated, informed by Council-endorsed
criteria and a submission process (Report
#2020-P-11). A total of 42 employment
conversion requests were received by the
September 23, 2020 submission deadline
(Report # 2020-INFO-94). Five additional
conversion requests were received outside of
the Region’s 90-day submission window (also
see the Employment Area Conversion
section).
In November, 2020 Regional Council
endorsed the framework for the new ROP
that would include a streamlined structure
and approach to support a new and
compelling ROP (Report #2020-P-24).
In December, 2020 Proposed Policy
Directions for Major Transit Station Areas
(MTSAs) (Report #2020-P-27) was released
for public review and comment.
The presentation of the Proposed Policy
Directions within this report represents a
significant milestone in Envision Durham.
The Growth Management Study, including
the Land Needs Assessment and the
advancement of a Major Transit Station Area
policies is proceeding concurrently and will
Envision Durham | 12
be reported on separately as these
components are completed.
As required by the Growth Plan, the
timeframe for completing Envision Durham
for submission to the Province remains July 1,
2022. Although continued changes to
provincial policies and plans have impacted
the ability of all Greater Golden Horseshoe
(GGH) Regions to complete their MCRs by the
prescribed conformity date, as well as
disruptions caused by the COVID-19
pandemic, all necessary steps are being taken
in an effort to meet this deadline. Ultimately,
the goal of the Envision Durham exercise is to
deliver a new forward-looking official plan
that will guide growth and change in Durham
in the years ahead – providing the blueprint
for Durham to become known as the place to
live, learn and thrive by 2051.
13 | Envision Durham
Policy Review Approach
Policy reviews and proposed directions
generally fall within one of three categories:
• Matters of provincial conformity –
proposed policy changes required to
satisfy legislative requirements based on
new or updated provincial policies and
plans (i.e. “Policy areas that must
change”).
• Housekeeping – components of the
current ROP that are still relevant, in
principle, but may require an update,
clarification, or streamlining and
therefore may be carried-forward to a
new ROP with refinements (i.e. “Policy
areas that should change”).
o While the entirety of the ROP is under
review, there are instances where
there are generally sound policy
directions that are aligned and
consistent with best practices and are
reflected across other regions in the
GGH. Such policies are being reviewed
as a matter of housekeeping but may
not change substantially.
• New policies or approaches – generally
identified through research, within the
Discussion Papers, and/or received
through submissions from stakeholders
(i.e. “Policy areas that could change”).
Online Compendium of Submissions
These Proposed Policy Directions are
intended to respond to submissions received
through Stage 2. Discussion paper
submissions and responses have been
summarized in an online compendium. To
view this compendium, please visit
durham.ca/EnvisionDurhamSubmissions.
Envision Durham | 14
Format of Report
Based on a framework that has been
endorsed by Regional Council, the new ROP
will be structured around chapters that
represent seven balanced, aspirational,
outcome-oriented Strategic Directions,
reflective of the region’s diverse
characteristics:
Prosperous Economy (pages 15-19)
Healthy Communities (pages 20-55)
Supportive Infrastructure (pages 56-61)
Vibrant Urban System (pages 62-96)
Thriving Rural System (pages 97-113)
Protected Greenlands System (pages
114-141)
Connected Transportation System
(pages 142-164)
Each Strategic Direction will be supported by
long-term goals that will guide a suite of
planning objectives and policies.
The Proposed Policy Directions provide an
indication of the framework for the new ROP.
Each Strategic Direction describes a series of
policy topics, discusses comments where
received, and introduces proposed policy
direction(s), where applicable. The Proposed
Policy Directions are not intended to be
exhaustive but introduce certain directions
where further input is being sought before
draft policies appear within a proposed new
Regional Official Plan.
Proposed Policy Directions will be
highlighted using shaded call-out boxes and
are numbered to allow for cross-referencing.
Where commentary and resulting proposed
policy direction(s) relates to a discussion
question from Stage 2, the connection will be
noted in text, identifying the applicable
Discussion Paper.
Figure 1: Stage 2 theme-based Discussion Papers,
released through 2019.
Where a proposed policy direction is
tied to a potential Key Performance Indicator
(KPI) in the new ROP, an “analytics” icon is
illustrated.
The identification of relevant targets and
measures intended to be monitored on a
regular basis, based on data availability, will
be developed internally by the Region or, to
satisfy those mandated by the Province (also
see the Review and Monitoring section).
15 | Envision Durham
Proposed Policy Directions
Prosperous Economy
Since the first ROP was approved in 1978, the
Plan has contained regional goals and
objectives for Economic Development. These
goals and objectives have evolved over time
with changes in broader economic trends,
regional growth, as well as in response to
changing local priorities and issues.
Many of the themes and policies currently
found in Section 3 – Economic Development,
such as striving to balance population and
employment growth, diversifying the regional
employment base, and working in
partnership with area municipalities,
industry, and educational institutions
continue to resonate. However, it is
important that these goals, objectives and
policies remain current, compelling and
actionable. The proposed updated objectives
and policies were informed by the Durham
Region Strategic Plan, the Region’s Economic
Development Strategy and Action Plan, the
Broadband Strategy, and responds to
updated provincial policies, including the PPS
and Growth Plan.
While focused primarily on the structural
components of the Urban System and on
how to effectively manage future growth, the
Urban System Discussion Paper broadly
discussed regional employment and other
economic development related topics. A
review of Economic Development policies
identified the need to strengthen through
policy the interrelationship between key
infrastructure and development, the
importance of supporting and fostering
innovation, and the value of developing
targeted strategies and action plans, in
furthering economic development initiatives
in the region.
Global events, such as the COVID-19
pandemic, underscore the importance of
planning and preparing for a resilient,
prosperous economy at the regional scale. To
date, the economic disruption of COVID-19
has been severe, while the longer-term
sustained economic impact worldwide, and
more specifically within Durham, is largely
unknown.
The impacts of COVID-19, resulting primarily
from travel restrictions and economic
disruption, are anticipated to have a negative
impact on near term labour force growth and
keep near-term (i.e. 2020 and 2021)
immigration levels across Canada, including
in Durham, below recent historical averages.
While the Region has limited control over its
ability to influence these macro-economic
and policy factors, the Region does have the
ability to recognize emerging trends. As a
result, staff will continue to monitor the
impacts of COVID-19 on near-term and long-
term population and employment growth
across the GGH and Durham Region.
For additional commentary on the impacts of
COVID-19, please refer to the Durham
Growth Management Study consultant’s
Growth Opportunities and Challenges Report
that accompanies these Proposed Policy
Directions.
This chapter outlines the proposed policy
directions intended to support a prosperous
economy.
Envision Durham | 16
Goals for a Prosperous Economy
1. Proposed Direction: Goals for a
Prosperous Economy
The following Goal is proposed for the
Prosperous Economy section of the ROP:
1. Support the development of a strong,
resilient and prosperous economy that
maximizes opportunities for business and
employment growth (jobs), innovation,
and partnerships, to develop the region
to its fullest economic potential.
Economic Development Policies
2. Proposed Direction: Economic
Development Policies
The following policy directions are proposed
for the Prosperous Economy section of the
ROP:
1. Recognize the importance of
infrastructure to facilitate economic
development, including a policy requiring
that Strategic Growth Areas be
appropriately serviced with Regional
infrastructure to achieve their
development and/or intensification
potential.
2. Determine and implement an
appropriate supply of Employment Areas
with access to municipal water and
sewage services be provided, with a
requirement that the supply and
development of such lands be regularly
monitored.
3. Recognize the importance of knowledge-
based industries and emerging leading-
edge technologies, including policies that
support the expansion of related
infrastructure.
4. Support the ongoing growth of Durham’s
energy sector, including the continued
safe operation of existing Nuclear
Generating Stations, the potential future
expansion of the Darlington Nuclear
Generating Station, and the ongoing
growth of related energy businesses and
industries.
5. Support the Region’s transition to a clean
energy economy as articulated in the
Durham Community Energy Plan.
6. Promote collaboration between the
energy sector and post-secondary
institutions to attract clean energy
industries including supply chain and
research and development to Durham
Region.
7. Support the establishment and expansion
of innovation hubs within the region.
8. Support balanced population and
employment growth and the
diversification of the region’s
employment base, including a policy
requirement to monitor on a regular basis
the regional job to population ratio, the
achievement of population and
employment forecasts, and the growth,
distribution and composition of the
region’s employment base.
9. Identify Strategic Growth Areas as
appropriate locations to focus high-
density mixed-use development,
including major office and major
institutional uses.
17 | Envision Durham
10. Support collaboration with educational
institutions and the business community
in programs that create and maintain a
highly skilled regional labour force.
11. Support the agricultural and agri-food
sector, including the changing nature of
agricultural operations and new
opportunities such as agri-tourism, on
farm diversified uses, and the
diversification of agricultural operations.
12. Recognize that it has been a long-
standing Regional aspiration to balance
population and employment growth to
the extent possible, to lower the burden
on the residential tax base, reduce
pressure on the road system and above
all, provide diverse employment
opportunities for Regional residents close
to home. Therefore, the Region’s
planning, economic development, and
growth management programs and
initiatives will be on the basis of achieving
the Provincial Population and
Employment Forecasts, while continuing
to aspire to achieve a jobs to population
ratio of 50 per cent (one job for every two
residents) by seeking and supporting
employment intensive developments as
opportunities arise.
13. Support the expansion of GO Rail service
to Bowmanville, the implementation of
Rapid Transit, the expansion of the Goods
Movement Network, the implementation
of the Regional Cycling Plan, and effective
use of special intermodal facilities such as
the Oshawa Executive Airport and the
Port of Oshawa in recognition of the
correlation between transportation
networks/infrastructure and job
creation/economic development.
14. Require the preparation and/or regular
updating of a Regional Economic
Development Strategy and Action Plan, a
Regional Marketing Plan, Agricultural
Strategy and a Regional Tourism
Development Strategy.
Broadband Infrastructure
In recognition of the growing shift of
economic, social, educational and
entertainment activities to online formats
dependent on high-speed broadband
infrastructure, the Region undertook the
preparation of Broadband Strategy which
was completed in 2019. The Strategy
identified that part of the Region, especially
the north, do not have adequate broadband
service, and recognizes the importance of
broadband infrastructure. The Strategy
outlines a series of actions to promote the
expansion of broadband networks,
particularly to underserved areas. Action 2C
directs the consideration of ROP policies that
support broadband infrastructure as part of
the MCR. The Durham Region Strategic Plan
reinforces this action item by prioritizing the
enhancement of communication networks to
better connect people more effectively.
To inform the implementation of the
Broadband Strategy and Strategic Plan, the
Urban System Discussion Paper asked the
following discussion question #17: “What
type of Regional Official Plan policies should
be provided to support the deployment of
broadband infrastructure?”. Responses
expressed wide support for broadband
policies that acknowledge the importance of
Envision Durham | 18
broadband as essential infrastructure for
economic development, and for policies that
support its deployment within both urban
and rural communities. There was general
agreement that policies should encourage
broadband infrastructure as part of new
development/construction.
3. Proposed Direction: Broadband
Infrastructure
1. Recognize the importance and encourage
the expansion of leading-edge
technologies, including high-speed
broadband infrastructure.
2. Require new development to be designed
to enable the implementation of high-
speed broadband, where feasible.
3. Support the establishment of a Regional
Broadband Network and continue to
engage our area municipal partners and
service providers.
4. Enable the Region to participate,
financially or otherwise, in projects that
may include those from Internet Services
Providers or as may be identified through
a potential Community Improvement Plan
that would expand broadband
infrastructure to underserved areas.
5. Encourage the provincial and federal
governments to continue to provide
funding programs that support the
expansion of high-speed broadband
services to underserved areas and to
provide access to their infrastructure to
promote co-location opportunities.
Pickering Federal Airport Lands
In 1972, the federal government acquired
land within the municipalities of Markham,
Uxbridge and Pickering for the purpose of
developing a new major international airport.
Following this direction by the federal
government, the Region has taken steps to
prepare for an eventual airport. These steps
include protecting the lands for a future
airport in the ROP by designating a land use
planning structure of compatible and
complimentary uses surrounding and
connecting the future airport site, and by
planning and constructing infrastructure,
including the oversizing of municipal services,
to support a future airport.
In recent years, there have been several
changes in the status of the federal airport
lands. Concluding in 2017, the federal
government transferred over 50 per cent of
the original federal airport lands towards the
creation of the Rouge National Urban Park.
While the remaining 3,885 hectares continue
to be held for an airport and related uses, a
definitive decision has not yet been made by
the federal government as to whether it will
advance the development of an airport on
the remaining lands.
Since the federal government acquired the
lands, the prospect of an airport in Pickering
has elicited both support and opposition by
various stakeholders and interest groups.
Although the Urban System Discussion Paper
did not seek input on the development of an
airport in Pickering, submissions were
received that both sought continued
protection and support of the development
of an airport through ROP policy, as well as
submissions that opposed the development
19 | Envision Durham
of an airport in favor of continued
agricultural use of the lands.
Although the decision of whether to proceed
with an airport remains outstanding and fully
within the jurisdiction of the Federal
Government, Regional Council continues to
support the development of an airport and
related aviation hub in Pickering. These lands
provide an opportunity to create an
innovative, sustainable hub that protects and
integrates the approximately 3,885 hectares
of green space and agricultural uses into its
site design from the start. This position is
reflected in the Durham Region Strategic
Plan, recent Council resolutions, and through
the reports and studies commissioned by the
Region that demonstrate the need and
economic benefit of an airport that
incorporate the substantial agricultural land
assets through innovative sustainability and
environmental management approaches.
4. Proposed Direction: Pickering Federal
Airport Lands
1. Revise ROP mapping to reflect the current
boundaries of the Pickering Federal
Airport Lands.
2. Support the development of an airport on
the Federal Airport Lands in Pickering and
encourage the federal government to
make a timely decision to develop an
airport on the Lands.
3. Support the development of an aviation
based multimodal employment hub
surrounding the airport, and that the
necessary municipal services and
supporting transportation and transit
infrastructure be provided by the
responsible service providers.
Envision Durham | 20
Healthy Communities
The built environment has a direct effect on
our health. The PPS broadly states that
healthy, liveable and safe communities are
generally sustained by:
• encouraging efficient development and
land use patterns;
• accommodating a range and mix of
housing options, including affordable and
market-based choice;
• providing ample opportunities for
employment, institutional uses,
recreation, park and open space, and
other uses to meet long-term needs;
• promoting the integration of land use
planning, growth management,
intensification, infrastructure planning
and transit-supportive development;
• improving accessibility for persons with
disabilities and older persons by
addressing land use barriers which
restrict their full participation in society;
• promoting development and land use
patterns that protect the natural
environment and conserve biodiversity;
and
• preparing for the regional impacts of a
changing climate.
Establishing and implementing policies that
shape the development of healthy
communities is one of the primary functions
of an official plan. Policies that address
quality of life, health, safety, convenience
and well-being of present and future
residents of the region are contained within
the current ROP, most notably in the
following sections:
• Section 2: Environment
• Section 4: Housing
• Section 5: Cultural, Health and
Community Facilities, and Infrastructure
However, there is a continually growing
imperative to address climate change and
improved performance and resiliency of the
built environment, while improving access
and availability of jobs, services and
infrastructure and the affordability of homes.
It is therefore appropriate that greater policy
guidance be given for healthy and safe
communities under such themes as:
• Sustainability, including climate change
adaptation/mitigation and climate
resilient development;
• Complete communities, including
accessible design within the public realm
and a wide range of housing options; and
• Community health and services, including
community hubs, age-friendly planning,
community safety and well-being
planning, and cultural, health and
community facilities.
The Region is dedicated to making sure that
everyone in Durham has the same
opportunities to live, work, study and play in
a community that welcomes and supports
them. This commitment to diversity, equity
and inclusion is also reflected in the Durham
Region Strategic Plan’s Goal (2.5) to building
a healthy, inclusive, age-friendly community
where everyone feels a sense of belonging.
The Region recognizes that the demographic
and socio-economic makeup of the Durham
21 | Envision Durham
is always evolving, and as a result strives to
maintain a detailed understanding of these
changes by preparing the Durham Profile
following each five year Census period.
This chapter provides proposed policy
directions intended to foster healthy
communities.
Goals for Healthy Communities
5.Proposed Direction: Goals for Healthy
Communities
The following overarching goals are intended
to be broad, all-encompassing goals to foster
Healthy Communities across the region:
1.Prepare built and natural environments
to be low-carbon and climate-resilient.
2.Plan complete communities that improve
the quality of life for residents.
3.Enhance community health, safety and
well-being by planning for sufficient
community services.
Sustainability
Policies in the PPS, Growth Plan, Greenbelt
Plan, ORMCP and Lake Simcoe Protection
Plan support the development of complete
communities, a prosperous economy, a clean
and healthy environment and social equity.
Although there are existing policies in the
ROP that reflect these broad directions, there
is an opportunity to strengthen these
policies, particularly under the theme of
sustainability.
For example, Goal 1 of the Durham Region
Strategic Plan is to protect the environment
for the future by demonstrating leadership in
sustainability and addressing climate change,
including the following priorities:
•accelerate the adoption of green
technologies and clean energy solutions
through strategic partnerships and
investment;
•increase diversion and resource recovery;
•protect, preserve and restore the natural
environment, including greenspaces,
waterways, parks, trails, and farmlands;
•demonstrate leadership in sustainability
and addressing climate change; and
•expand sustainable and active
transportation.
These priorities are supported by provincial
direction requiring the Region to prepare for
the impacts of a changing climate. To further
emphasize the Region’s commitment to
accelerate the transition towards a low-
carbon, climate-resilient community,
Regional Council declared a climate
emergency on January 29, 2020 that
acknowledged the role of municipalities to
respond through policies, programs, and
capital investments to reduce greenhouse
gas emissions in Durham. The following
action items from the declaration are being
considered through the development of the
new ROP:
•reduce overall greenhouse gas emissions
to prepare for the Region’s future
climate;
•review current corporate plans and
identify how climate change
considerations will be embedded across
all elements of Regional business;
Envision Durham | 22
• recognize environmental sustainability
and climate change as a priority in the
Regional Strategic Plan and the Regional
Official Plan; and
• work with senior levels of government to
reduce emissions and build resiliency to
climate impacts.
The new ROP will include policies that that
protect the natural environment, establish
and grow healthy communities, and support
the development of a strong, diverse
economy. Policy language will be either
augmented or added throughout the Plan to:
• identify, protect and enhance a new
regional Natural Heritage System and
Water Resources System, including key
natural heritage features and key
hydrologic features and areas and their
ecological functions;
• increase the rate of intensification to, at a
minimum, achieve the requirements of
the Growth Plan, and thereby reduce the
potential need and rate of greenfield
development;
• support the rural economy by protecting
the agricultural land base and broadening
agricultural land use permissions;
• optimize the use of existing infrastructure
and coordinate new infrastructure
development with planning for growth;
• promote and facilitate a range of housing
types and tenures, including attainable
and affordable housing;
• prioritize projects and initiatives that
would improve accessibility and safety in
our communities so that universal access
to community services for all ages and
abilities is achieved;
• strive to conserve and promote
significant cultural heritage resources and
landscapes;
• balance jobs and population and
encourage economic diversity;
• take action to improve air quality and
employ climate change mitigation and
adaptation measures;
• reduce reliance on the single occupant
automobile as the preferred mode of
travel while increasing access to more
sustainable transportation modes; and
• take advantage of opportunities to
improve climate resilience in the waste,
water, and energy sectors for the benefit
of the Region and its residents.
Greenhouse Gas Reduction
As a leader in climate change, Durham
Region is committed to understanding and
responding to the impacts of a changing
climate. Regional Council established a
Sustainability Office and the Durham Region
Roundtable on Climate Change (DRRCC) in
2009 under the Office of the CAO, and since
that time have released a series of key
climate change initiatives:
• Durham Community Climate Change
Local Action Plan;
• Durham Community Climate Adaptation
Plan (awarded a Federation of Canadian
Municipalities (FCM) Sustainable
Communities Award in the Climate
Change category for the Adaptation Plan);
23 | Envision Durham
• Keeping Our Cool: Managing Urban Heat
Islands in Durham Region; and
• Durham Community Energy Plan.
Regional Council has endorsed a series of
long-term greenhouse gas (GHG) reduction
targets. First introduced in the Community
Climate Change Local Action Plan in 2012,
and then within the Durham Community
Energy Plan in 2019, these targets were as
follows:
• 5 per cent reduction of GHG emission by
2015;
• 20 per cent reduction by 2020; and
• 80 per cent reduction by 2050 over the
2007 baseline levels.
The current ROP supports incremental
reduction of GHG emission and other air
pollutants generated by the Region’s own
corporate activities and functions (policy
2.3.46). However, it does not include policies
that reflect Council-endorsed GHG emission
reduction targets, neither as an overall goal,
nor as part of the consideration for future
development applications as a climate
change mitigation, adaptation, and resiliency
measure.
The Climate Change and Sustainability
Discussion Paper posed discussion question
#3: “Should the additional GHG reduction
policies that are encouraged in the Growth
Plan and Greenbelt Plan be incorporated into
the Regional Official Plan? How do you think
this topic should be addressed?”. Area
municipalities and conservation authorities
support policies that would address GHG
reduction and further the goals and
objectives outlined in the Durham
Community Climate Local Action Plan and the
Durham Community Climate Adaptation Plan,
and the “Low Carbon Pathway” illustrated in
the Durham Community Energy Plan.
Submissions indicate a desire to adopt
progressive GHG reduction policies that
exceed the requirements of the provincial
policies, while also supporting area municipal
initiatives.
The Durham Region Sustainability Office
provided feedback indicating the importance
of including Durham’s GHG emission
reduction targets in the ROP to support
Council direction and its commitment to
achieving the Region’s targets, with a
mechanism to monitor progress regularly.
Since the release of the Climate Change and
Sustainability Discussion Paper, the federal
government has introduced legislation (Bill C-
12) that would require the setting of national
targets for the reduction of GHG emissions to
attain net-zero emissions in Canada by 2050.
Several responses expressed the desire to
exceed provincial requirements, including the
current requirements of the Ontario Building
Code, and adopt best practices. Feedback
also spoke to including GHG reduction
initiatives within the ROP such as identifying
climate change vulnerabilities through
mapping of floods, vulnerable populations,
and neighbourhood scale resiliency;
developing a Regional budget for
infrastructure planning and asset mapping;
expanding transit and green energy
infrastructure; and creating a formal
monitoring/reporting program for GHG
targets.
Other upper and single tier municipalities
within Ontario incorporate GHG reduction
Envision Durham | 24
targets at varying degrees within their official
plans. For example, the Cities of Guelph and
Kingston can be seen as best practices by
adopting GHG emission reduction targets
within their Official Plans. Kingston includes a
detailed section on climate change that
makes the connection between the climate
adaptation and mitigation measures within
its official plan as a means to achieve its
Council-adopted GHG targets and includes
considerations for GHG emission in the
development review process. Toronto, York,
and Peel Regions include GHG emission
reduction as part of key themes, goals, and
objectives within their official plans, with
associated policies on energy, air quality, the
environment, and healthy, sustainable
communities. The York Region Official Plan
includes policy language that implements and
supports the York Region Sustainability
Strategy.
Some of the area municipal official plans
within Durham incorporate policies that
support GHG emission reductions as part of
their general sustainability and climate
change policies. Some have incorporated
these policy approaches into additional
subject areas including water conservation,
energy, building design, air quality, and urban
agriculture. The City of Oshawa Official Plan
includes policies to monitor GHG emissions
of corporate facilities and activities.
6. Proposed Direction: Greenhouse Gas
Reduction
1. Encourage a culture of energy and water
conservation for new and existing
development and promote greenhouse
gas (GHG) emission reduction from all
sources, in particular the transportation
and building sectors, as a key objective.
2. Include Council-endorsed GHG
emission reduction targets in the Official
Plan so as to achieve net-zero as an
aspirational objective.
3. Support the development of green
infrastructure including low impact
development and stormwater
management systems, planting of native
tree species, green roofs and other
sustainable design practices.
4. Encourage energy efficient construction
and green building design, including net-
zero and net-zero ready development.
5. Support the implementation of a region-
wide building retrofit program that
provides support for home and building
owners in making deep energy retrofits
through access to finance, utility
programs and contractors.
6. Encourage renewable, alternative and
district energy systems (also see Energy
Conservation section).
7. Identify and address links between
climate change, community planning and
public health.
8. Promote the uptake of electric, hybrid, or
alternative fuel vehicles, through the
provision of public charging
infrastructure, the delivery of education
and awareness initiatives and through
leadership in adopting such vehicles in
the Regions fleet where appropriate.
9. Implement energy efficiency and
distributed renewable energy systems in
the design and construction of new
25 | Envision Durham
Regional facilities and through retrofits of
existing facilities to demonstrate local
market leadership.
10. Encourage area municipalities to develop
GHG reduction targets for their corporate
operations that demonstrate municipal
sector leadership in the community-wide
effort to reach net-zero emissions by
2050 and implement corporate GHG
reduction programs.
11. Encourage area municipalities to develop
and implement community-wide GHG
reduction programs in collaboration with
the Region, energy utilities and other key
stakeholders.
12. Encourage collaboration between the
Region, area municipalities, waste
collection providers and waste producers
to:
a) achieve consistent delivery of waste
management services across the
region;
b) require that all new residential
developments, higher density
residential buildings and mixed-use
buildings incorporate multi-stream
waste collection and diversion
capabilities; and
c) support the migration of existing higher
density residential and mixed-use
buildings to multi-stream waste
collection and diversion.
13. Encourage area municipalities to provide
policies, programs and standards to
support achievement of these targets and
monitor progress.
Climate Resilient Development
Regional Council has made a commitment to
adapting to and mitigating the impacts of a
changing climate by building resilient,
healthy, and sustainable communities. This
commitment is demonstrated through
Council’s adoption of GHG emission
reduction targets which serve as a key
indicator of climate action. One key anchor of
this commitment includes the Durham
Community Energy Plan. It outlines a “Low
Carbon Pathway” which includes specific
action items to achieve the Region’s GHG
targets. These action items include various
land use considerations, including green
building and design, net-zero development,
and retrofit programming.
The current ROP generally supports an
energy efficient living environment and
promotes energy efficient buildings and
infrastructure, including retrofits and energy
efficient practices for existing and future
developments, and orienting buildings to
maximize solar exposure. It also supports the
adoption of sustainable practices in area
municipal official plans. However, these
policies are relatively high level, and do not
elaborate specifically on matters of green
infrastructure, green building design, net-
zero or low carbon development, and
retrofits of existing buildings.
Area municipalities, conservation authorities,
and members of the public have responded
to various discussion questions (#2, 5, 6, 8,
and 9) from within the Climate Change and
Sustainability Discussion Paper, and question
#19 of the Environment and Greenlands
Discussion Paper with strong support for
Envision Durham | 26
climate resilient development policies,
specifically around three key areas:
• low carbon and net-zero development
such as solar/cool roofs, alternative
energy, and passive design;
• green infrastructure including stormwater
management, low impact development,
tree planting, green roofs, and other
green design components within the
urban realm; and
• retrofits of existing development.
Significant feedback indicates support of
aligning policies with the Low Carbon
Pathway outlined in the Durham Community
Energy Plan, which highlights low carbon and
net-zero development as a key action item.
Submissions also demonstrate a desire to
have a region-wide green development
standard, and a green infrastructure asset
management plan.
Additional feedback indicated support for
policies that go beyond the requirements of
the Ontario Building Code, to consider LEED
standards, including factors such as building
orientation, window location, increased
insulation, and passive design1. There is also
support for green infrastructure such as tree
planting, and low impact development.
Other upper and single tier municipalities,
including York, Peel, and Guelph have woven
climate resilient development into various
sections of their plans, ranging from water
1 Passive design refers to minimizing energy use,
particularly from heating and cooling systems, by
taking advantage of natural energy (i.e. passive solar
gain) where possible. Examples include solar
conservation, energy, and urban design. The
City of Kingston has incorporated policies
within its development review and energy
conservation sections. The City of Toronto
has incorporated policies into its sections
that speak to urban centres, mixed use areas,
institutional areas, and the public.
Area municipal official plans support climate
resilient development in various sections,
including general directions, stormwater
management, urban design sustainability and
climate change, built form, parking (in
relation to low impact and permeable
parking lots), and energy.
7. Proposed Direction: Climate Resilient
Development
1. Establish a Climate Resilient Development
subsection as a component of the Healthy
Communities chapter that addresses key
areas including:
a) energy efficiency, including low carbon
and net-zero/net-zero ready new
development and retrofits of existing
buildings and infrastructure;
b) water conservation;
c) natural environment based climate
solutions, as proposed in the Protected
Greenlands System chapter; and
d) sustainable urban design, including the
encouragement of green building
design and materials, passive design
orientation, air sealing, increased/enhanced
insulation, strategic placement of windows and
daylighting, as well as designing buildings to take
advantage of natural ventilation, where possible.
27 | Envision Durham
(such as solar orientation) and green
infrastructure.
2. Incorporate objectives and policies that
encourage and support climate resilient
development, redevelopment and
retrofits.
3. Request that the Government of Ontario
update the Ontario Building Code to
require improvements to the standards of
residential construction that would
improve resilience to the effects of
climate change and improved
sustainability.
4. Encourage area municipalities to establish
guidelines, practices and incentive
programs to improve the energy, water
and stormwater management
performance of new construction from
the effects of climate change.
5. Encourage measures to improve energy
efficiency in new buildings, including
building design that promotes low carbon
and net-zero development.
6. Promote building conservation and
adaptive re-use, including the recycling of
building materials.
7. Encourage measures within new
development which provide for water
conservation and re-use.
8. Promote and encourage energy and
water conservation and efficiency
strategies, including demand
management, water recycling, green
infrastructure and low impact
development across all sectors.
9. Encourage area municipalities to include
water conservation considerations in the
development of local green development
practices and sustainability guidelines.
These considerations may include
establishing water conservation targets
for new development.
10. Require the submission of supporting
information that addresses green
infrastructure, net-zero ready
development and proposed building
practices; and demonstrate how the
proposed development would help
support the Region’s Climate Resilient
Development and Sustainability
objectives, as a requirement for a
complete application.
11. Require area municipalities to include
policies for developments subject to site
plan control to include sustainable design
elements including exterior sustainable
design, landscaping, permeable paving
materials, bicycle parking and street
furniture as part of their official plan
updates.
Air Quality
The PPS and Growth Plan requires that
municipalities promote land use patterns
that minimize impacts to air quality and
support energy efficiency through:
• compact built form;
• active transportation and transit between
residential and employment uses;
• focus travel intensive land uses close to
existing/planned transit;
• focus freight intensive land uses to higher
order transportation facilities;
• transit supportive development and
intensification with a mix of uses;
Envision Durham | 28
• design that maximizes energy efficiency;
and
• vegetation and green infrastructure.
Although no explicit questions on air quality
were asked as part of the Climate Change
and Sustainability Discussion Paper,
submissions received identified “air quality”
as an area that could use additional policy
support.
Current ROP policies focus on creating
healthy and sustainable communities by
promoting alternative modes of
transportation and protecting environmental
features. However, there is an opportunity to
strengthen the connection between policies
in the ROP and how they would help improve
air quality.
8. Proposed Direction: Air Quality
1. Include policy language that explicitly
references improved air quality as an
objective for ROP by:
a) promoting and facilitating
alternative/active modes of
transportation;
b) improving the energy efficiency of
buildings and modes of travel, including
infrastructure that encourages the use
of low-carbon vehicles;
c) increasing the tree canopy;
d) protecting and enhancing the natural
environment; and
e) promoting intensification and compact
built form.
2. Require the submission of an Air Quality
Study as part of complete application
requirement where air quality is a
potential concern between facilities and
sensitive land uses.
Tree Canopy
The PPS requires that municipalities prepare
for and minimize the negative impacts to air
quality and climate change and that planning
authorities should maximize vegetation
within settlement areas, where feasible.
The Growth Plan includes the requirement to
mitigate and adapt to the impacts of a
changing climate, improve resilience and
reduce GHG emissions, and integrate green
infrastructure and appropriate low impact
development.
The current ROP does not include tree
canopy targets, however, it does encourage
area municipalities to develop Urban Tree
Strategies (ROP policy 2.3.19 (g)), which may
or may not include targets. Examples of this
approach include Ajax’s Urban Forestry
Management Plan, Clarington’s Urban Forest
Strategy, and Whitby’s Urban Forest Master
Plan.
While some area municipalities may not have
urban tree strategies, they do incorporate
tree preservation and planting into urban
design guidelines, and as part of
development review and approvals
processes. Area municipalities also promote
various tree planting initiatives.
Discussion question #10 of the Climate
Change and Sustainability Discussion Paper
asked: “Should a tree canopy target be
established? If so, should there be separate
targets for urban versus rural areas?”.
29 | Envision Durham
Although there was no consensus on
whether the Region should adopt a tree
canopy target, some suggested both urban
and rural targets while others noted that it
may be more practical to have a natural
cover target for the rural area. Some
suggested enabling policies to support area
municipalities in their tree preservation and
planting efforts. It was noted that if a tree
canopy target is included, the establishment
of a baseline of current tree canopy and
forest inventory/management plan would be
required. Others suggested that the Region
coordinate an Urban Forest Strategy.
York Region developed a Forest Management
Study (including tiered woodland canopy
targets of 25 per cent by 2031, canopy cover
of 35 per cent by 2031, and 40 per cent by
2051) that can serve as a reference.
9. Proposed Direction: Tree Canopy
1. Recognize that increasing tree canopy
cover has many public health,
environmental, social and economic
benefits including, but not limited to:
a) reducing the urban heat island effect;
b) creating and linking wildlife habitats;
and
c) improving air quality.
2. Include policy language that commits the
Region to establishing regional tree
canopy target in urban and rural areas as
part of a Regional Forest Management
Plan or similar study.
3. Continue to encourage area
municipalities to develop Urban Tree
Strategies that provide direction related
to protection, stewardship, monitoring
and outreach that would preserve and
enhance the urban tree canopy.
4. Provide policies to ensure that tree
preservation and/or planting is
considered as part of area municipal tree
by-laws and the development review and
approvals process.
5. Encourage area municipalities to
participate in programs and initiatives
that contribute to increasing regional tree
canopy cover including:
a) tree planting programs on private
lands;
b) land stewardship and restoration
programs (e.g. land
conservancies/trusts); and
c) programs that would enhance tree
cover on area municipal road
allowances.
6. Introduce tree planting on Regional road
allowances and on Regionally owned
properties where practical and
appropriate.
7. Require that native tree species be used
in new tree planting initiatives.
Complete Communities
The Durham Region Strategic Plan includes a
Goal (2.1) to revitalize existing
neighbourhoods and build complete
communities that are walkable, well-
connected, and have a mix of attainable
housing.
The current ROP identifies a broad goal of
creating healthy and complete sustainable
communities and has incorporated policy
directions within various sections, including:
Envision Durham | 30
Environment, Economic Development,
Housing, Cultural, Health, and Community
Facilities, Urban System, and Transportation
System. However, there is an opportunity to
strengthen the notion of “complete
communities” as a theme that would
permeate the new ROP.
The Urban System Discussion Paper solicited
feedback through question #1: “Is the Urban
System achieving the Regional Official Plan
vision of creating distinct Urban Areas,
balancing population and employment
growth, and achieving healthy and complete
communities?”.
In addition, questions #2, 3, 5, 18, 19, and 20
all solicited feedback from area
municipalities, agencies, and the public which
denoted strong support for enhancing the
Region’s complete communities’ policies.
Feedback also indicated this goal has only
been partially achieved through the current
ROP.
In general, feedback encouraged the Region
to better connect compact, complete
communities and its relationship to climate
mitigation and adaptation. It was also noted
that there is a need to distinguish complete
communities within the context of the
northern, rural municipalities within Durham.
Other upper and single-tier municipalities
within the GTHA approach complete
communities at varying degrees. For
example, the York and Peel Regional Official
Plans dedicate entire chapters to the theme
of complete communities, while weaving it
into various other relevant sections of their
plans, including: housing, sustainability,
transit, and water and wastewater servicing,
employment areas, and energy. The City of
Toronto Official Plan incorporates the theme
of complete communities within its vision
and public realm policies.
10. Proposed Direction: Complete
Communities
1. Establish a Complete Communities
subsection as a component of the Healthy
Communities chapter that includes a
revised definition of “complete
communities”, and include its various
components, including but not limited to:
a) a full range of attainable housing
options;
b) a variety of employment opportunities;
c) institutional facilities and amenities,
including places of worship, schools
and hospitals;
d) an appropriate supply of recreational
facilities, places, and spaces;
e) a readily available supply of healthy,
local, and affordable food options;
f) easily accessible community hubs;
g) universally accessible and age-friendly
communities for residents of all ages
and abilities;
h) a variety of transit supportive, mixed-
use Strategic Growth Areas;
i) an interconnected system of ecological,
urban, and rural systems;
j) an enhanced and protected natural
environment;
k) a view to climate adaptation and
mitigation, where greenhouse gas
emissions are reduced by:
31 | Envision Durham
i. implementing a multi-modal
transportation system that supports
increased transit use and
alternative, active modes of travel,
thereby reducing vehicle emissions;
ii. improving the climate resiliency of
new and existing development;
iii. improving the energy efficiency of
buildings and modes of
transportation;
iv. implementing local distributed and
renewable energy systems; and
v. other sustainable development
practices.
l) An integrated approach to land use
planning, growth management, transit-
supportive development,
intensification, infrastructure planning
and the optimization of transit
investments; and
m) Establishing vibrant places and spaces,
including a public realm characterized
by compact built form.
2. Require, within area municipal official
plan updates and new secondary plans,
policies relating to complete
communities, that include:
a) a range of housing options;
b) community hubs within a reasonable
walking distance, supporting
community needs including retail,
community services, facilities and
health care;
c) live-work opportunities through
policies and zoning standards, including
permissions for mixed uses;
d) high quality urban design, with a public
realm that incorporates universally
accessible design;
e) energy efficiency in new development;
f) climate resilient development,
including low carbon or net-zero
designs, solar, green, and cool roofs,
green infrastructure, low impact design
and other similar measures; and
g) an integrated and easily accessible
open space network that includes a
variety of recreational facilities,
opportunities and public spaces.
3. Rationalize the existing definition of
“healthy and complete, sustainable
communities” with the provincially
defined term “complete communities”
for consistency.
4. Embed policies for complete communities
including: housing, transportation, urban
system, public realm, employment,
community hubs and climate resilient
development sections of the new ROP.
Urban Agriculture
While the current ROP supports the notion of
food security and an Urban System that
provides convenient access to fresh locally
grown produce, farmer’s markets and
community gardens, additional policies that
encourage urban agriculture and enable
provincial policies are necessary in the new
ROP.
The Growth Plan directs municipalities to
expand convenient access to urban
agriculture, and to include urban agriculture
in public open space systems. In addition, the
Envision Durham | 32
Growth Plan requires that local food and
food security must be included official plan
policies for the reduction of greenhouse
gases.
The Greenbelt Plan requires that
municipalities support urban agriculture in
settlement areas and as part of the agri-food
network.
In addition, comments received in response
to discussion question #4 on “How can the
Region support urban agriculture through
policy in the ROP?” noted the following:
• new policies should be added to support
urban agriculture, but it should remain
high level and allow for area municipal
flexibility;
• definitions for “urban agriculture” and
“agri-food system” should be added; and
• permissions for establishing urban
agricultural uses within appropriate land
use designations should be included.
Currently, Urban Agriculture is referenced in
the Directions and Urban Systems sections of
the current ROP, as matters of food security
and locally grown food, but not in terms of
urban agriculture in itself. It is appropriate
that the Urban Agriculture policies be
updated and broadened in recognition of its
benefits, including how its helps mitigate
climate change, economically supports the
local agricultural community, and helps
improve food security.
11. Proposed Direction: Urban Agriculture
1. Add a definition for “urban agriculture” as
noted in the Glossary (see Appendix A).
2. Require the inclusion of polices for urban
agriculture and community gardens with
consideration for scale and compatibility
within area municipal official plan
updates, or secondary plans as
appropriate.
Public Realm and Urban Design
Regional Council, through its Age-Friendly
Strategy and Action Plan for Durham (Age-
Friendly Durham), has indicated its
commitment to be a healthy community
where all residents – regardless of age,
ethnicity, race, gender, or ability – feel
included, respected, and enjoy a high quality
of life. This Strategy has implications on the
design of public spaces and the application of
universal design principles (also see Age-
Friendly Planning section).
The current ROP acknowledges that good
urban design is a key component of the
public realm and is addressed in policies on
the Regional Structure, the Urban System,
Centres, Corridors, Waterfront Places, Living
Areas, Employment Areas, and in Road
Network Design. The ROP currently requires
area municipalities to include detailed urban
design policies in their official plans or
secondary plans. There is an opportunity to
incorporate additional public realm policies
that include age-friendly urban design and
sustainability as a component of healthy and
complete communities.
The City of Oshawa provided comments on
the Urban System Discussion Paper with
strong support for policies addressing urban
design and built form that contribute to a
strong public realm. Additionally, area
municipalities responded to discussion
33 | Envision Durham
question #3 on “How can Regional Official
Plan Policies support the needs of an aging
population?” with strong support for urban
design policies that incorporate universal
design principles within the built
environment that support populations of all
ages and abilities.
Other upper and single tier municipalities in
Ontario incorporate public realm and urban
design policies. The Official Plans for the
Regions of York and Peel, and the Cities of
Toronto and Kingston include general policies
that signal the importance of good urban
design as contributing to accessible, strong,
and vibrant communities – including centres,
corridors, employment areas, and residential
areas. The Official Plans for York Region and
the City of Kingston specifically tie good
urban design to broader sustainability
principles, by incorporating green
infrastructure policies and other elements of
the public realm that contribute to climate
resiliency. All surveyed upper tier municipal
official plans direct area municipalities to
include more detailed urban design
guidelines or require that good urban design
principles be addressed through secondary
planning.
12. Proposed Direction: Public Realm and
Urban Design
1. Establish a Public Realm and Urban
Design subsection as a component of the
Healthy Communities chapter with
policies that support key areas through
the review and approval of development
applications, including:
a) a high quality public realm where the
character, and the built and natural
heritage of existing areas is respected;
b) support for a variety of placemaking
opportunities, with active pedestrian-
oriented destinations;
c) support for the use of sustainable
landscaping and streetscape design
approaches, including green
infrastructure, while promoting energy-
efficient building design (also see
Climate Resilient Development
section); and
d) support compatibility and integration
of new buildings with the surrounding
built form, incorporating transit
oriented development, promoting
accessible, age-friendly design, and
ensuring a high quality of public spaces
including parkland and urban squares.
2. Continue to support current ROP policies
2.3.5 (a, b, c and d) that promote the
enhancement of visual amenities in the
urban environment; encourage area
municipalities to enact by-laws that relate
to urban design and the public realm;
identify, protect, and upgrade attractive
gateways and access points to the
Region; and encourage native trees as
visual barriers along provincial highways.
3. That where feasible, through the design,
development and operation of new
Regional facilities, that energy efficient
building designs and approaches be
implemented, such as water conservation
and waste reduction techniques,
sustainable landscape, sustainable
streetscape and building development
practices, parking for hybrid or electric
Envision Durham | 34
fleet vehicles, active transportation
infrastructure, adaptive reuse where
feasible, and partnerships to promote a
vibrant public realm.
4. Cooperate with area municipalities in the
establishment of an age-friendly
community design guideline.
5. Require area municipal official plans,
secondary plans, and zoning by-laws to
have regard for high quality and
sustainable urban design, a vibrant public
realm, parking management, street
design and the public realm and urban
design policies, particularly within
downtown areas.
6. Add definitions for “public realm” and
“universal accessibility design principles”
as noted in the Glossary (see Appendix A).
Downtowns
The current ROP includes policies related to
downtowns as part of the Urban System’s
policy framework for “Centres”. The Urban
System describes a hierarchy of Centres
within the Regional Structure, including
Urban Growth Centres, Regional Centres, and
Local Centres.
Not all Centres are similar. Some Centres, like
Downtown Whitby or Downtown Port Perry
are the historic cores of their community,
characterized by an existing fine-grained
pattern of streets and blocks, with buildings
scaled to the pedestrian and oriented to face
a traditional “main street”. Other Centres,
like Downtown Ajax or the Pickering City
Centre are characterized by larger parcels of
land, existing on-site surface parking areas
with a larger format retail focus, with a
variety of public, recreational and
institutional uses. These Centres tend to be
better suited to accommodate larger scale
redevelopment or intensification
opportunities. These downtowns are the
heart of their communities.
Still other areas such as Taunton/Baldwin in
Whitby and Highway 2/Trulls Road in
Courtice are also identified as Regional
Centres and accommodate retail and services
in a plaza format, but would not constitute
“downtowns”, do not include extensive
leisure or cultural activities, nor do they have
extensive opportunities for social gathering.
Discussion question #18 within the Urban
Systems Discussion Paper asked: “How can
Regional Official Plan policies support the
achievement of strong, vibrant, and healthy
downtowns?”. Area municipalities generally
indicated a need for policy support around
achieving strong, vibrant, and healthy
downtowns that support a high quality and
well-connected public realm as a paramount
design objective. Additional feedback
suggested a desire to integrate the natural
environment into urban areas, including a
suggestion to go beyond the minimum
intensification targets to support further
growth within downtowns.
There is an opportunity to better reflect the
diverse character of Centres by incorporating
policies that acknowledge the unique
characteristics of existing downtowns.
Responsiveness to local historic character is
necessary in historic districts; whereas larger
emerging downtowns may have more
significant urban redevelopment
opportunities, but the finer grained urban
35 | Envision Durham
fabric of local streets, blocks and street facing
buildings is yet to materialize.
Area municipal official plans include policies
for downtowns (separate from commercial or
urban growth centres) to varying degrees,
depending on their geography (i.e. northern
vs. southern municipalities).
Other upper and single tier municipal official
plans include policies on the characterization
of downtowns that serve as best practice
examples for the ROP to consider.
13. Proposed Direction: Downtowns
1. Recognize downtowns as key destinations
based on their historic/traditional
function as centres for culture and
commerce, their built form and their
cultural/social importance.
2. Include policies to strengthen and
enhance the role of downtowns as
walkable centres of tourism, recreation,
higher density housing, employment,
main street shopping and social
gathering.
3. Encourage the preservation and
enhancement of the local, historical,
and/or cultural heritage and character of
Durham’s downtowns.
4. Emphasize the importance of protecting
the distinct character and heritage of
downtowns during
redevelopment/intensification through
careful consideration for scale and
massing, protection of important built
elements and other heritage
components, visual connections with
historic neighbourhoods and the
preservation of cultural heritage of
buildings and structures.
5. Encourage economic development,
tourism and shopping functions by
promoting downtowns as key places to
locate businesses, restaurants, cafés and
other attractions that are well-served by
transit, and accessible through a variety
of modes of transportation.
6. Include policies for downtowns so they
may thrive as attractive locations for
employment and residential growth, by:
a) balancing intensification and
redevelopment with sensitivity to local
heritage and character;
b) providing accessible and complete
communities that meet the needs of
local residents;
c) incorporating a range of appropriate
housing options;
d) improving sustainability and climate
resiliency;
e) support active transportation; and
f) supporting their function as focal points
for culture, art, entertainment, and
assembly.
7. Encourage area municipalities to include
policies that support downtowns,
including policies that:
a) strengthen their role and character
within their respective municipalities;
b) preserve and enhance historic and
cultural resources and functions;
c) provides for appropriate development
that addresses the built, natural and
Envision Durham | 36
cultural heritage of the downtown
within which it is situated;
d) guides development, redevelopment
and intensification while protecting and
preserving heritage buildings, features
and functions;
e) support the restoration and where
appropriate, the adaptive re-use of
heritage buildings;
f) provide an appropriate interface or
transition between new developments
and heritage buildings or heritage
conservation districts as may be
applicable; and
g) provides for development that is
compatible with existing communities.
Community Hubs
Community hubs are places where residents
can access a range of services in one place.
The Growth Plan recognizes the importance
of co-locating services and facilities within
community hubs and requires municipalities
to concentrate public service facilities around
existing facilities as a means to achieving
complete communities.
Regional Council, through its Age-Friendly
Strategy and Action Plan for Durham, has
indicated its commitment to be a healthy
community where all residents – regardless
of age, ethnicity, race, gender, or ability –
have access to community services,
amenities, and health care.
The current ROP identifies the goal of
creating healthy and complete communities,
and locating cultural, health, and community
services near Urban Areas and Hamlets to
meet the needs of residents. There is an
opportunity to incorporate language around
community hubs and their role in facilitating
complete and accessible communities.
Responses to the Urban Systems Discussion
Paper commented on emerging trends and
various ways to support the achievement of
strong, vibrant, and healthy downtowns (i.e.
discussion questions #18 and #20) and
suggested the importance of strengthening
connectivity between areas by co-locating
public services.
Other upper and single-tier municipal official
plans within the GTHA include policies on the
co-location of services, amenities, and transit
to meet the needs of residents. There is an
opportunity for Durham to identify policies
that support community hubs within the
ROP.
14. Proposed Direction: Community Hubs
1. Incorporate objectives and directional
policies for community hubs that:
a) promote the co-location of new
cultural, health, and community
facilities and public services in
community hubs;
b) encourage the renovation and
adaptation of existing community
facilities, provide for co-location
opportunities, and support the
establishment of new community hubs
within Strategic Growth Areas, Hamlets
and other locations as appropriate;
c) encourage the establishment and
development of community hubs in
transit-supportive locations where
existing cultural and community
37 | Envision Durham
services and facilities exist, with
preference given to Strategic Growth
Areas as preferred locations;
d) require area municipal official plans to
include policies for community hubs;
2. Add a definition for “community hub” as
noted in the Glossary (see Appendix A).
Age-Friendly Planning
In 2017, Regional Council endorsed the Age
Friendly Durham Strategy and Action Plan. A
primary component of the age-friendly vision
for Durham is to ensure that all members of
the community feel included, respected, and
enjoy a high quality of life. Age-Friendly
Durham places an emphasis on active,
healthy aging where the needs of Durham
residents are met across their lifespan. It
includes action items in subject areas that
include outdoor spaces and buildings,
transportation, housing, and social
participation.
Although the current ROP does not explicitly
speak to the concept of age-friendly
development, it does encourage assisted
housing for families, seniors, and special
needs groups.
The Growth Management discussion paper
on the Urban System posed discussion
question #3 on “How can Regional Official
Plan Policies support the needs of an aging
population?”. Area municipalities responded
to the discussion question with support for
policies that would promote opportunities to
support an aging population and would allow
residents to age in place, primarily through
policies on housing, urban design, and
transportation.
Other feedback from various stakeholders
identified the need for development that
supports an aging population, including
multigenerational housing, garden suites and
secondary units.
Other upper and single-tier municipalities
refer to age-friendly development to various
degrees. For example, Official Plans for York
Region and the City of Toronto include age-
friendly planning as basic policy directions -
as part of a framework for planning for an
aging and diverse society that ensures
accessibility for all ages and abilities. The City
of Toronto Official Plan also incorporates
these elements within its housing section.
The Peel Region Official Plan, on the other
hand, includes a full section on age-friendly
planning that incorporates strong language
for advancing accessible communities.
15. Proposed Direction: Age-Friendly
Planning
1. Establish an Age-Friendly subsection as a
component of the proposed Healthy
Communities section in the ROP that:
a) recognizes and supports the needs of
Durham’s aging population and
provides policies to improve
opportunities for residents of all ages
and abilities to age actively and in
place;
b) promotes the integration of age-
friendly design considerations in the
preparation of plans and policies, and
in the design and construction of
buildings and communities;
c) encourages the use of universally
accessible design in the built
Envision Durham | 38
environment that is flexible to people’s
various needs and abilities, and
enhances the mobility and
independence of all residents;
d) requires the area municipalities to
implement age friendly provisions
within their respective official plans by
including policies that provide a full
range of housing options, and provides
for universally accessible design as part
of the development review and
approval process; and
e) cooperate with area municipalities and
other stakeholders to identify and
correct gaps in the built environment
that would hamper access and mobility
of vulnerable populations.
2. Integrate language that supports age-
friendly planning and the implementation
of the Age-Friendly Durham Strategy and
Action Plan within the various sections of
the Healthy Communities and Vibrant
Urban System chapters.
3. Collaborate with area municipalities to
consider developing age-friendly design
guidelines.
4. Include a policy in the Healthy
Communities chapter that connects
affordable housing options as a key
component of age-friendly planning, by
promoting a broad mix of housing types
in proximity to community hubs and
Strategic Growth Areas.
5. Encourage area municipalities to develop
policies and practices that would increase
the supply of affordable and accessible
housing types to support the needs of an
aging population.
6. Include policies in the Connected
Transportation System chapter so that
transportation systems are designed to
be inclusive of the needs of all ages and
abilities, including accessible transit
stations, terminals and stops; and that
universal access to transit; is ensured
through accessibility considerations that
are addressed during the design stage.
7. Incorporate age-friendly planning and
accessibility within active transportation
policies that address: pedestrian access,
safe pedestrian and cyclist connections,
neighbourhood connectivity, prioritizes
active transportation in the design of
arterial rights-of-way, reduces barriers to
active transportation, and prioritizes
improvement to connections in areas of
high need.
8. Amend existing policy 4.3.6 such that the
Region would not only promote but also
seek additional federal and/or provincial
programs for the provision of assisted
housing for families, seniors, and special
needs groups.
9. Add definitions for “active aging”, “age-
friendly planning” and “diverse
populations” as noted in the Glossary
(see Appendix A).
Community Safety and Well-Being
Planning
Across the province, communities are
required to develop Community Safety and
Well-Being Plans (CSWP). The Police Services
Act requires the plan be developed regionally
in partnership with Durham Regional Police
Service and in collaboration with area
39 | Envision Durham
municipalities, community partners and the
public.
Community safety and well-being describes a
condition where everyone feels safe, has a
sense of belonging, where individuals and
families can meet their needs for education,
health care, food, housing, income, and social
and cultural expression.
The Province requires the CSWP to include
the following:
• local priority risk factors;
• identify programs and strategies to
address those factors; and
• measurable outcomes to ensure that the
strategies are effective.
CSWPs are intended to formalize the shared
responsibility of safe and healthy
communities beyond policing. CSWPs require
an integrated approach to bring
municipalities, Indigenous communities and
partners together to bring the right services,
to the right people, at the right time. The
Region’s CSWP will proactively develop and
implement evidence-based strategies and
programs to address local priorities, such as
risk factors, vulnerable groups, etc. related to
crime and complex social issues, on a
sustainable basis.
Once completed, the CSWP will serve as the
Region’s first Human Services Plan, aligning
Durham Region with other local Regional
models of service delivery. It is appropriate
that policies be included within the new ROP
that are informed by, and will implement
recommendations of, the forthcoming CSWP,
where appropriate.
Diverse Housing
Housing is a basic human need. It is the
foundation for healthy and complete
communities. Over the last few decades
affordability and housing choice have
become growing concerns, and many
residents are challenged with finding a
suitable home in Durham that they can
afford. Providing housing options that are
appropriate for households of various
socioeconomic conditions and for people at
different stages in their life cycle and abilities
is vital to community-building.
Over the last decade, home prices and rents,
not just in Durham, but globally, have
increased significantly. Increases in wages
have not kept pace with increases in housing
costs. Although Durham has traditionally
been among the more affordable places to
live in the Greater Toronto and Hamilton
Area (GTHA), affordability and attainability
are increasing concerns. Upward pressure on
housing prices continue to pose a challenge
for the Region in achieving its current ROP
affordable housing target of 25 per cent.
A wider range in the forms of housing are
being constructed in Durham, including more
medium- and high-density forms of housing,
such as townhouses and apartments.
Secondary units (such as basement
apartments) are also becoming more
prominent. Smaller residential units are often
less expensive, offsetting higher prices in
other segments of the housing market.
The Region supports increasing the range and
mix of housing opportunities, including
affordable and special needs housing. At
Home in Durham – the Durham Region
Envision Durham | 40
Housing Plan (2014-2024), the Durham
Region Strategic Plan, Age-Friendly Durham,
and Affordable Rental and Seniors’ Housing
Task Force recommendations (2017) all
support the development of diverse housing
options.
The ROP supports complete communities
through policies that promote housing
options to meet the needs of current and
future residents. Housing policies should
both recognize the importance of providing a
full range of housing in terms of size, form,
tenure and affordability, and set out a
framework to achieve this objective. Using
land use planning, development tools and
funding, municipalities can target areas of
the housing spectrum that are not
adequately provided for by the market.
This section of the Healthy Communities
chapter outlines proposed policy directions
that support a diverse supply of housing. The
proposed policy directions are intended to
achieve the following primary objectives:
• support a range of housing options;
• encourage the production of new
affordable housing; and
• preserve and prevent the loss of existing
rental housing.
Supply of Land for Housing
In an effort to address housing affordability,
in 2019 the provincial government amended
the PPS (policy 1.4.1) to extend the duration
of time for which the minimum supply of
2 Ibid.
land must be available through a
combination of residential intensification and
land suitably designated for housing from 10
years to a 15 years’ supply. Municipalities
have the discretion to increase the minimum
supply of residential land suitably zoned to
facilitate residential intensification and
redevelopment, and land in draft approved
and registered plans from three years to five
years.
Durham’s supply of future residential units
within draft approved plans and
intensification sites currently exceeds the
minimum three-year requirement and
continues to be appropriate to maintain a
base requirement for a three-year supply as
part of the ROP.
The region is forecasted to grow from an
estimated population of 704,140 people in
20202 to 1,300,000 in 2051.3 The Growth
Management Study will establish how much
residential land supply will be required to
accommodate the Region’s forecasted
population growth to 2051.
Housing Mix:
Some submissions to the Housing Policy
Planning Discussion Paper encouraged the
Region to ensure that there is a sufficient
supply of low density housing and executive
homes. Other responses indicated that there
is a need for more affordable and special
needs housing.
The existing housing supply in Durham is
predominantly low density (roughly two-
3 Amendment 1 to A Place to Grow came into effect on
August 28, 2020.
41 | Envision Durham
thirds of households were single detached in
the 2016 Census) and increasingly expensive.
There is also sufficient capacity of vacant
properties to support demand for larger,
single-detached and estate homes. Research
undertaken by the Region in 2018 indicates
the potential for approximately 2,245
additional residential dwellings in the Rural
Area, the majority of which would be outside
of rural settlement areas. These additional
dwellings translate to approximately 6,800
additional residents in the Rural Area.
Conversely, the demand for affordable and
special needs housing is often not met by the
housing market and may require policy
and/or regulatory tools, or incentives to be
built.
Figure 2: Existing housing supply in May 2016 (Source:
Statistics Canada Census of Population).
Market demand is the total quantity
demanded across all consumers in a market
for all housing types. The Growth
Management Study, in particular, the Land
Needs Assessment will ultimately determine
the supply and mix of housing that is
appropriate to satisfy forecasted market
demand for housing in Durham through
2051. The LNA is being developed under
separate cover.
16. Proposed Direction: Supply of Land for
Housing
1. Provide a minimum 15 year supply of land
through residential intensification and
redevelopment and, if necessary, through
urban boundary expansion so that
sufficient lands will be designated and
available for residential development in
accordance with provincial policy.
2. Clarify that the current requirement for a
three year supply of residential units
through lands suitably zoned to facilitate
residential intensification and
redevelopment, and land in draft
approved and registered plans is a
“minimum” as the Region targets a supply
range of three to five years.
Housing Options
There is a need to accommodate an
appropriate range and mix of housing,
including affordable housing, seniors’
housing, and secondary units. There are
several policies which support a diverse mix
of housing options throughout the PPS and
Growth Plan. Recent changes to the PPS
include a new definition for “housing
options”. Although the current ROP already
includes goals and policies that support a
range and mix of housing, it does not have a
definition for housing options.
To help inform changes to the Region’s
housing policies, the Housing Policy Planning
Envision Durham | 42
Discussion Paper asked two questions to
obtain input on “Where are the most
appropriate locations to build mid-rise
apartments in Durham?” (question #14) and
“What ROP policies should be strengthened
to support the development of diverse
housing options including affordable
housing?” (question #18).
Public submissions confirmed that ROP
policies 4.3.9.b) and 8A.2.2 that direct higher-
density housing to Centres and Corridors are
still appropriate. The Growth Management
Study will assess appropriate locations for
mid-rise residential development through the
Intensification Strategy.
There was general support for policies to
encourage a range of housing options,
especially for housing needs that are not
generally met by the housing market.
Comments indicated that ROP policies should
be strengthened to a full range and mix of
housing, including affordable housing, to
accommodate a range of incomes and
household size, strategies to permit units in
accessory buildings, opportunities for gentle
density and missing middle housing.
There is a need to identify and support areas
of the housing spectrum that are not
adequately provided through the private
market. For example, there is a need for
affordable purpose-built rental and seniors’
housing in Durham.
To identify gaps in the housing market, the
Region will need to undertake a
comprehensive assessment of housing
through a review of the existing supply,
identifying the needs of current and future
residents, and targeting gaps where the
demand for specific housing options such as
affordable, rental and special needs housing
are not being met. A Regional Housing
Assessment report and policy guidance
within the Regional Official Plan will enable
area municipalities to implement inclusionary
zoning policies through their own Official
Plans and implemented through zoning by-
law amendments as opportunities arise.
Inclusionary zoning is a land-use planning
tool that enables municipalities to require
through the passage of a zoning by-law,
affordable housing units be included in new
residential developments.
Ontario Regulation 232/18 enables
municipalities to implement inclusionary
zoning. Prior to the passage of an
inclusionary zoning by-law, an assessment
report is required as part of the development
of Official Plan policies. The assessment
report must include an analysis of
demographics, income, housing supply, and
housing need and demand; current average
market prices and rents; and analysis of the
potential impacts of inclusionary zoning on
the housing market.
On September 3, 2019, the Province of
Ontario made changes to the legislation for
inclusionary zoning through Bill 108 (More
Homes, More Choice Act). The changes limit
where municipalities can implement
inclusionary zoning to protected major
transit station areas (areas surrounding and
including an existing or planned higher order
transit station that have a detailed
implementation framework in accordance
with Section 16(15) and 16 (16) of the
Planning Act) or areas where a development
43 | Envision Durham
permit system has been required by the
Minister of Municipal Affairs and Housing.
17. Proposed Direction: Housing Options
1. Add a definition, based on the PPS, for
“housing options” as noted in the
Glossary (see Appendix A).
2. Complete a Regional Housing Assessment
Report and develop enabling policies that
would allow the Region’s area
municipalities to undertake Inclusionary
Zoning within their respective
jurisdictions.
3. Strengthen policies to prevent the loss of
rental housing.
Affordable Housing
Several discussion questions related to
affordable housing were asked in the Housing
Policy Planning Discussion Paper, and a total
of 67 submission responses were received.
Comments related to affordable housing
included the following:
• the Region should maintain the ROP
definition for affordable housing to be
consistent with other municipalities in the
GTHA and the PPS;
• affordable housing should be measured
using median household income;
• regional policies that emphasize
intensification, higher densities,
secondary units and a broader mix and
diversity of residential types would
encourage the development of smaller
units that could create opportunities for
affordable and more attainable home
ownership; and
• area municipalities should be able to
determine the appropriateness and
implementation of targets at the local
level that support the Region-wide
affordable housing target.
First, there is a need to reexamine how we
define affordable housing, including how we
measure, monitor and report on such
housing, and determine appropriate targets.
Second, there is a need to strengthen policy
environment such that less expensive forms
of housing are better enabled, while barriers
to more affordable forms of housing are
identified and removed.
Affordable Housing Definition:
Housing is generally described as
“affordable” when households spend less
than 30 per cent of income on housing. Both
Statistics Canada’s Census of Population and
the Canada Mortgage and Housing
Corporation’s (CMHC) survey of core housing
need report on the number of households
spending 30 per cent or more of gross
income on shelter costs. The PPS defines
affordable housing the same way, but also
includes market-based thresholds.
The PPS defines affordable housing as:
a) in the case of ownership housing, the
least expensive of:
i. housing for which the purchase price
results in annual accommodation
costs which do not exceed 30 per cent
of gross annual household income for
Envision Durham | 44
low and moderate income
households; or
ii. housing for which the purchase price
is at least 10 per cent below the
average purchase price of a resale
unit in the regional market area;
b) in the case of rental housing, the least
expensive of:
i. a unit for which the rent does not
exceed 30 per cent of gross annual
household income for low and
moderate income households; or
ii. a unit for which the rent is at or below
the average market rent of a unit in
the regional market area.
The current ROP definition matches the PPS.
Although some municipalities do not include
market-based thresholds, they would only be
considered if they were lower than the
income-based thresholds. The PPS and
current ROP definition therefore have a
higher standard for affordable housing. It is
worth mentioning that funding for affordable
housing projects can target deeper levels of
affordability like 80 per cent of average
market rent.
Discussion questions #1 and #2 from the
Housing Policy Planning Discussion Paper
asked if the Region should maintain the ROP
definition for affordable rental and
ownership housing respectively. Public
consultation confirmed that the ROP
definition should be maintained to be
consistent with the PPS and other GTHA
municipalities.
Low and moderate income households are
defined as those in the bottom 60th
percentile. Some public responses suggested
that the Region use median income (50th
percentile) to calculate affordable housing.
Using the median income would establish a
lower threshold for determining “affordable”
housing. It should be noted that most
municipalities monitor affordable housing
using the 60th percentile, while others
including York Region also report on
affordable housing using median household
income.
18. Proposed Direction: Affordable Housing
Definition
1. The current ROP definition for affordable
housing is consistent with the PPS and
should be maintained.
2. The Region should consider
monitoring affordable housing using the
50th percentile in addition to using the
60th percentile.
Affordable Housing Targets:
The Housing Planning Policy Discussion Paper
posed question #4: “Should the Region
consider increasing or decreasing its
affordable housing targets?”. Responses
generally agreed that targeting 25 per cent of
all new housing as affordable is still
appropriate. Moreover, many municipalities
in Durham have their own targets for
affordable housing that are based on local
needs.
Many responses to question #4 stated that it
was not a fair comparison to use a regional
market area to measure affordability within
each of the area municipalities. It is more
difficult for municipalities in the south and
45 | Envision Durham
west of the region to achieve the same
standard for affordability. However, the PPS
defines the regional market area as typically
being represented by the upper-tier
municipality (i.e. Durham Region). In some
cases, a regional market area can be larger,
but the PPS does not contemplate using a
smaller area.
To assist with the application of provincial
policy, it is suggested that the ROP target of
25 per cent affordable housing be applied to
the region as a whole. Applying this target to
the region as a whole is a similar approach to
other upper-tier municipalities such as York
Region, which targets a minimum of 25 per
cent of new housing units to be affordable
“across the region”. Area municipalities may
consider the Regional target as a minimum or
use a higher target where appropriate.
Within areas intended to accommodate
intensification, certain municipalities
including York and Clarington use a 35 per
cent affordable housing target for their
intensification areas. This approach is being
suggested within Durham’s Strategic Growth
Areas to increase affordable housing
opportunities in locations well-served by
transit.
The Housing Policy Planning Discussion Paper
posed question #5: “Should Durham consider
higher affordable housing targets within
specific locations, such as within Strategic
Growth Areas that are near key transit
corridors?”. Responses were generally
4 Barriers to affordable housing can include: a lack of
housing options, by type, size and tenure; the planning
approvals process, where zoning by-laws are not up to
date or aligned with provincial regulations; a lack of
supportive of higher affordable housing
targets in these areas. Official Plans for
Clarington and York Region have higher
targets for affordable housing in certain
locations.
19. Proposed Direction: Affordable Housing
Targets
1. Maintain a minimum affordable
housing target of 25 per cent which
would apply to the region as a whole.
2. Establish a new affordable housing
target for at least 35 per cent of new
housing within Strategic Growth Areas.
Supporting Affordable Housing:
The ROP should support complete
communities with affordable housing
choices. Affordable housing can take
different forms from secondary units and to
multi-residential apartments. Official Plan
policies and local zoning by-laws can
influence the supply of affordable housing by
removing barriers4 to building less expensive
housing.
The Housing Planning Policy Discussion Paper
asked question #3: “Should the Region take a
more active role to increase affordable home
ownership options?”. Responses generally
agreed that the Region should continue to
focus on affordable rental housing; however,
incentives for new construction or relief from planning
fees; an absence of policies encouraging innovative
housing forms and tenure, such microhomes and
shared living arrangements, etc.
Envision Durham | 46
there is also support for increasing home
ownership. Some have suggested that
affordable ownership housing can be
supported through policies that emphasize
intensification, higher densities, smaller units
and a broad mix of residential types.
Many responses also identified financial
incentives to increase the supply of
affordable housing. Currently, Durham
Region provides the following tools which
support the development of affordable
housing:
1. redevelopment credits under
development charge by-laws;
2. exemptions under the Development
Charge Act, UOIT Act and Regional DC by-
laws;
3. intensification servicing policy; and
4. Regional Revitalization Program (RRP).
Municipalities can also establish incentives
through Community Improvement Plans
(CIPs) under section 28 of the Planning Act.
CIPs enable municipalities to provide grants,
loans or other incentives for affordable
housing projects, such as reductions or
deferrals of application fees, and
development charge deferrals or reductions.
The Region is concurrently undertaking an
investigation of a Regional CIP that could be
used to support the delivery of affordable
housing.
Figure 3: Ritson Residence, located in Oshawa, is an
example of housing that received funding to build
affordable rental units.
Not all incentives require direct public
funding. Households in need of affordable
housing often require less parking, which is
expensive to construct and maintain.
Although the regulation of residential parking
standards is not within the Region’s
jurisdiction, the ROP could encourage area
municipalities to consider reduced parking
standards as one way to help offset some of
the cost of developing affordable housing.
20. Proposed Direction: Supporting
Affordable Housing
1. Add a new policy to encourage less
expensive housing including secondary
units, microhomes, purpose-built rental
housing and medium and high-density
apartments in areas that are well served
by local amenities including transit,
schools and parks.
2. Encourage reduced parking standards as
a way to support the delivery of
affordable housing, including purpose-
built rental housing.
47 | Envision Durham
Inclusionary Zoning
The Province recently amended the Planning
Act to allow lower-tier municipalities to
implement inclusionary zoning to create
affordable housing. Although inclusionary
zoning must be applied through area
municipal zoning by-laws, there may be role
for the Region to facilitate inclusionary
zoning in Durham.
The inclusionary zoning regulation (O. Reg.
232/18) allows the use of inclusionary zoning
within a protected Major Transit Station
Area, Development Permit System (DPS)
area, or as ordered by the Minister. The
regulation prohibits the use of inclusionary
zoning from developments which contain
fewer than 10 residential units, although
proposals from non-profit housing providers
are exempt from this requirement. The
regulation also includes minimum transition
provisions for an Official Plan amendment
and/or a Zoning by-law amendment made
prior to the adoption of a municipal
inclusionary zoning framework. The Planning
Act allows municipalities to use inclusionary
zoning to require up to 10 per cent of
residential developments in protected MTSAs
to be affordable.
To help inform changes to the Region’s
housing policies, the Housing Policy Planning
Discussion Paper asked: “Should the ROP
include policies on inclusionary zoning?”
(question #8). Submissions generally
supported ROP policies that encourage area
municipalities to implement inclusionary
zoning, as one tool to help increase
affordable housing, and allow each area
municipality to determine if inclusionary
zoning is appropriate within their respective
jurisdiction. Many respondents felt there
could be a role for the Region to help
facilitate and administer inclusionary zoning
in Durham.
Provincial regulations prescribe how
municipalities can implement inclusionary
zoning and the first step is to complete an
assessment report to understand local
housing supply and demand, financial
viability, as well as potential impacts which
might arise from inclusionary zoning. Work
on the Regional Housing Assessment Report
was initiated in December 2020 and is
expected to be completed in 2021. The
assessment report will also serve as the basis
for implementing inclusionary zoning within
the Region’s area municipalities (where
permitted by provincial regulation).
21. Proposed Direction: Inclusionary Zoning
1. As noted in Proposed Direction 17. (2.)
above, complete a Regional Housing
Assessment Report (currently underway)
to address housing supply and demand as
well as financial viability. Upon
completion of the Regional Housing
Assessment Report, establish inclusionary
zoning policies in the Regional Official
Plan to enable area municipalities to
establish inclusionary zoning within their
respective jurisdictions within Major
Transit Station Areas.
Secondary Units
Significant updates to the Region’s existing
approach and policies related to “secondary
units” are necessary to conform to the
current provincial policy landscape. While
Envision Durham | 48
secondary units (referred to in provincial
plans as “additional residential units”) are
encouraged within the current ROP as a
means to increase affordable rental housing
and residential intensification, regional
initiatives and significant shifts in provincial
direction highlight the importance of this
form of housing and the need to bring ROP
policies into conformity.
Both the At Home in Durham and the
Affordable and Seniors’ Housing Task Force
recommendations support the creation and
maintenance of rental housing, specifically
acknowledging the need to encourage area
municipalities to review and develop
enabling policies for secondary units in
existing housing and new housing
developments. A key step towards achieving
this objective is to update ROP policies in
accordance with provincial plan directions
and Planning Act regulations.
To help inform the Region’s conformity
exercise, the Housing Policy Planning
Discussion Paper asked a discussion question
(#7) to better understand “What other
barriers should be removed to make it easier
to build secondary units, such as basement
apartments?”. In addition to parking
requirements, which were decidedly a local
matter, other considerations highlighted
servicing constraints (particularly within rural
communities) and the potential impact of
secondary unit regulations on temporary use
housing, such as “garden suites”.
Secondary units are an important tool in
contributing to the supply of private sector
affordable housing choices and are widely
recognized as one of the most affordable
forms of rental housing. This housing form
contributes to affordability by optimizing the
use of the existing housing stock and
infrastructure, while also providing an
income stream for homeowners, including
younger and older homeowners, who may
respectively have a greater need for income
to help finance and/or remain in their homes.
22. Proposed Direction: Secondary Units
1. Introduce policies for secondary units
that would:
a) permit the authorization of secondary
units in detached, semi-detached and
townhouses, where feasible (local
standard setting still applies);
b) permit secondary units within buildings
or structures ancillary to the primary
dwelling. This direction applies even if
the primary dwelling already contains a
secondary unit; and
c) encourage reduced parking
requirements such as one parking
space per secondary unit (including
“tandem” parking), except where an
area municipal by-law is passed to
remove this requirement for one
parking space (i.e. in areas well-served
by transit, such as MTSAs, Regional
Centres and Corridors).
2. Allow for secondary units subject to the
availability of appropriate water and
sewer servicing.
3. Maintain permissions for “garden suites”
as a housing option, provided they are
authorized through a temporary use by-
law, and are identified as one of the
potential forms of secondary units (i.e.
49 | Envision Durham
building or structure ancillary to a
primary dwelling).
Microhomes
“Microhomes” or “tiny homes”, are an
emerging form of smaller, prefabricated
dwellings that have risen in popularity due to
their cost savings, that are quicker and
cheaper to build and maintain than a typical
house. Microhomes represent an alternative
housing option and have the potential to
assist with both affordable home ownership
and rental housing supply.
The Region recently expedited innovative
housing developments that feature modular
homes (prefabricated units) and a
“microhome pilot” for temporary supportive
housing (Report #2020-SS-9), consistent with
the goals of At Home in Durham and
Council’s commitment to increasing the
supply of affordable housing.
Figure 4: An example of a 320 sq. ft. microhome pilot
built in Oshawa by Durham Non-Profit Housing
Corporation.
In light of this emerging housing solution, the
Housing Planning Policy Discussion Paper
posed question #13: “Should the Region
encourage the development of tiny homes to
enable more affordable housing options? If
so, where?”.
There was general support for tiny homes as
a relatively low-cost housing solution, with an
emphasis on the notion that these units are a
potential option for housing that is:
affordable; accessible; and can act as a
temporary solution to assist with
homelessness. While the potential benefits
were recognized, from a policy perspective, it
was acknowledged that barriers to building
tiny/microhomes exist given there are
currently no consistent practices, zoning by-
law provisions, or definition that
contemplates size, mobility, etc.
Although there are no current barriers to
constructing “microhomes” as a single
detached dwelling type, to help reduce any
perceived barriers, the following proposed
policy directions focus on clarifying
permissions that already exist to facilitate
“microhomes” as a viable built form within
the region.
23. Proposed Direction: Microhomes
1. Add a definition for “microhomes” as
noted in the Glossary (see Appendix A).
2. Require that microhomes comply with
the health and safety requirements of
Ontario’s Building Code, municipal zoning
and other local by-laws.
3. Clarify that a microhome may be an
appropriate form for a temporary garden
suite or secondary unit ancillary to the
primary dwelling, where permitted.
Envision Durham | 50
Shared Living
Shared living is another potential solution to
improving housing affordability. Innovative
housing arrangements, including co-
ownership and shared equity models, have
the potential to create affordable ownership
housing and can appeal to first-time
homebuyers, seniors wanting to downsize
and others. In addition, shared living
arrangements provide for a range of health,
economic and social benefits.
In recognition of the role that innovative
living have on affordable housing, the
Affordable and Seniors’ Housing Task Force
adopted recommendation 2-11 which
“Supports the implementation of innovative
forms of affordable rental and seniors’
housing, including pocket housing, garden
suites, secondary units, as well as innovative
forms of tenure, including co-ownership and
life-lease housing.”
Planning policies and by-laws need to be
crafted so they do not create unnecessary
barriers to innovative housing arrangements
such as shared living. As per Bill 69 (the
Golden Girls Act, 2019), planning authorities
cannot pass a by-law that has the effect of
distinguishing between persons who are
related and persons who are unrelated
including, for greater certainty, unrelated
seniors in respect to occupancy.
In light of this approach, the Housing
Planning Policy Discussion Paper posed
question #17: “Should the Region have a role
in helping to facilitate shared living
housing?”. While there was general support
for the notion of shared living, jurisdictional
scans did not identify meaningful upper-tier
tools that would help facilitate, or likewise,
create barriers to, such arrangements.
Current ROP policies do not preclude this
form of housing arrangement.
Therefore, it is proposed that “innovative
housing arrangements” be supported by a
new definition for “housing options”. The
ROP would introduce policy to monitor new
and innovative forms of affordable housing
arrangements and encourage area
municipalities to enable innovative housing
arrangements through area municipal plans,
policies and by-laws.
24. Proposed Direction: Shared Living
1. Support the practice of shared living,
including various iterations of innovative
housing arrangements, by adopting a new
definition for “housing options”
consistent with the PPS (also see Housing
Options section). This new definition
should explicitly include a variety of
housing arrangements and forms such as,
but not limited to shared living, life lease
housing, co-ownership housing, co-
operative housing, community land trusts
and land lease community homes.
2. Monitor and enable new and innovative
affordable “housing options” which is
inclusive of shared living arrangements,
regardless of tenure.
3. Encourage the development of new
affordable rental and ownership housing
options, including a variety of innovative
housing arrangements.
51 | Envision Durham
Adaptive Re-use
Area municipalities are responsible for
conserving, protecting and enhancing the
built and cultural heritage resources of the
municipality, but the Region has a role in
supporting best practices including adaptive
re-use.
A public submission received through the
Housing Planning Policy Discussion Paper
suggested that consideration be given to
adaptive re-use of heritage properties,
including residential as well as former
commercial and industrial buildings, for the
purposes of converting into multi-unit
housing developments. The renovation of the
Genosha Hotel in downtown Oshawa to
mixed-use residential apartments above
ground floor commercial uses was cited as a
good example of adaptive re-use. This project
was made possible in part by the Region’s
Revitalization Program (RRP).
There are existing provincial policies that
support the notion of adaptive re-use,
namely as a consideration before developing
new public service facilities (PPS) and for
building conservation as a means to promote
integrated waste management (Growth
Plan).
The Region already supports and participates
through the RRP, financially and otherwise, in
the intensification, redevelopment and
revitalization of properties and entire areas,
which does not preclude adaptive re-use of
existing buildings.
In addition, the Region encourages the
conservation, protection and/or
enhancement of built and cultural heritage
resources, wherein adaptive re-use would be
considered one of the methods for
conserving and enhancing such resources.
Councils of the area municipalities have
jurisdiction over how to utilize the Ontario
Heritage Act to implement this policy
direction. Nonetheless, there remains an
opportunity for the Region to support
adaptive re-use as a viable option to
minimizing waste while strengthening built
and cultural heritage.
25. Proposed Direction: Adaptive Re-use
1. Encourage built and cultural resource
conservation through adaptive re-use.
2. Support the adaptive re-use of existing
buildings.
Condominium Conversion and
Demolition Control
Condominium ownership has become the
dominant ownership model for higher
density residential development. At the same
time, the construction of new purpose-built
rental housing has remained low. The
existing rental housing stock is aging and in
many cases is in need of repair. There is also
increasing demand to convert existing rental
buildings to condominium ownership, either
as separate owner-occupied units or for
purchase by investors as individually owned
rental properties.
There is also increasing demand toward
demolishing existing rental apartment
buildings to permit higher density privately-
owned condominium buildings. Often, these
Envision Durham | 52
proposals are in areas that would support
residential intensification.
When considering new development
applications, in accordance with the PPS and
Growth Plan, municipalities are required to
support a range and mix of housing options.
As a part of a balanced housing system, the
region requires an appropriate balance
between rental and private ownership to
provide housing to residents of various
socioeconomic needs.
Several Regional plans and strategies
promote a range and mix of housing options.
Affordable rental is identified as the second
goal of At Home in Durham, and objective 4.1
of the Housing Plan is to preserve rental
stock. Furthermore, Affordable Rental and
Seniors’ Housing Task Force recommendation
1.8 is to preserve purpose-built rental though
demolition control.
Since the preservation of rental housing is a
Regional priority, the Housing Policy Planning
Discussion Paper asked three questions
specifically related to condominium
conversion and demolition (#9, 10 and 11):
• Should Durham continue to combine
certain area municipalities as a part of its
required three per cent vacancy rate for
rental conversion?
• Should Durham consider reviewing its
rental conversion policies to consider
exceptions under certain circumstances?
• Should the ROP encourage municipalities
to enact demolition control by-laws to
preserve existing rental housing?
Responses to the Housing Policy Planning
Discussion Paper generally support stronger
policies to protect rental housing from
condominium conversion. Some responses
supported ROP policies to protect rental
housing from demolition, although most
believe that area municipalities should
determine if and where such regulations
should apply.
ROP policies currently protect rental supply
by discouraging condominium conversions
when vacancy rates are at or below three per
cent. In recent years, the Region has received
residential development requests for the
following two scenarios:
• the conversion of existing rental
properties to condominium tenure; and
• the construction of new condominium
units at the expense of demolishing
existing multi-unit rental housing.
In accordance with Section 99.1 (1) of the
Ontario Municipal Act, 2001, where at least
six dwelling units exist, area municipalities
may prohibit and regulate the following:
• the demolition of residential rental
properties; and
• the conversion of residential rental
properties to a purpose other than the
purpose of a residential rental property.
Many municipalities in Ontario have official
plan policies that discourage conversion of
residential rental units to condominium
tenure and some single and lower-tier
municipalities have demolition control by-
laws. Although the current ROP contains
policies that discourage condominium
53 | Envision Durham
conversions, opportunities exist to clarify and
strengthen those policies to further protect
rental housing.
26. Proposed Direction: Condominium
Conversion and Demolition Control
1. Amend ROP policy 4.3.4 for
administrative simplicity to ungroup the
area municipal rental vacancy thresholds,
so that the vacancy rate must be three
per cent or higher for one year in both
the region as a whole and the respective
area municipality, for a conversion from a
rental property to a condominium to be
permitted.
2. Consider an exemption to current policy
4.3.4 provided that criteria are met to
mitigate the loss of older rental housing
stock, such as:
a) demonstrating that there is a net
benefit for housing in Durham that will
advance the goals of the Region’s 10-
year housing and homelessness plan
(At Home in Durham);
b) ensuring existing tenants will have the
right of first refusal to purchase a
replacement unit;
c) requiring a suitable tenant relocation
plan for any existing residents who may
require relocation assistance; and
d) a Regional Official Plan Amendment
may be required if the rental vacancy
rate is below three per cent.
3. Add definitions for “rental housing”,
“rental property” and “condominium
conversion” as noted in the Glossary (see
Appendix A).
4. Consider policies that encourage area
municipalities to protect rental housing
from demolition.
Short-term Rentals
In the last decade short-term rentals have
emerged as a significant challenge for many
municipalities in the GTHA, Ontario and
across the world. Although these types of
accommodations can help tourism, they can
also impact the supply of homes for people
to live.
Short term rentals detract from a readily
available supply of permanent housing units.
It is important to preserve rental housing as a
vital component of a healthy housing system
in Durham.
Short-term rentals can provide some
additional supply to the housing market for
some residents that do not need a private
kitchen and living space, but where these
units replace existing homes and apartments,
they can magnify affordability concerns.
The Housing Policy Planning Discussion Paper
asked: “Should the ROP include policies
regarding the regulation of short-term rental
housing?” (question #12). Submissions
received generally support ROP policies that
encourage area municipalities to regulate
short-term rentals, but there is still appears
to be a desire to let each area municipality
determine if and where such regulations are
appropriate. Many respondents also believe
that there is a role for the Region to monitor
short-term rentals in Durham.
Single- and lower-tier municipalities can use
regulation and licensing to help prevent the
Envision Durham | 54
loss of permanent rental housing from
conversion to short-term rentals. Many
municipalities including Toronto and Oshawa
have implemented zoning by-laws that
regulate short-term rentals as a way to
mitigate the loss of housing. For example,
some municipalities regulate short term
rentals by allowing them only within an
owner’s principal residence, allowing hosts to
rent suites or rooms but not an entire house
or apartment.
Municipalities may choose to consider
regulating short-term rentals where rental
supply is low and demand for tourist
accommodations are high. For example, in
Durham’s northern municipalities, there is
also a need to enable tourism activities like
fishing and hunting, where there are fewer
tourist accommodation options. As a result,
demand is created to existing rental units to
tourists for a short-term stay. This scenario
can put additional pressure on an already low
supply of rental units for longer-term rentals.
To preserve existing rental housing the
Region could encourage municipalities in
Durham to regulate short-term rentals if
there is significant risk to the local rental
housing supply that would result in a decline
in affordability.
The Region should monitor and identify
trends associated with short-term rentals to
help municipalities identify if there is a need
to regulate them. Monitoring could include
an annual survey of short-term rental units,
monitoring academic research and following
best practices from other communities.
27. Proposed Direction: Short-term Rentals
1. Consider ROP policies that encourage
area municipalities to enact zoning by-
laws, regulate and license short-term
rentals if and where they determine it to
be appropriate.
2. Support municipalities by undertaking an
ongoing monitoring program to measure
the number of short-term rentals by type
(room or entire home) compared with the
broader rental housing market.
Special Needs Housing
Provincial land use policies encourage
housing options that accommodate all types
of people and households throughout
Ontario, including accessible housing options
for seniors and other people with physical
and mental health challenges. Accessible
housing design entails eliminating mobility
barriers like stairs and narrow doorways.
It is important to locate accessible and
seniors’ housing near services (institutional,
community, commercial, etc.), amenities
(parks, trails, etc.) and transit, typically found
within designated intensification areas. ROP
policies could be strengthened to protect and
encourage accessible and seniors’ housing
within these areas as well.
28. Proposed Direction: Special Needs
Housing
1. Encourage and prioritize the
development of accessible and
supportive housing options for people
with special needs in areas that have
55 | Envision Durham
access to community services, amenities
and health care.
2. Require that all major residential
development applications within
Strategic Growth Areas provide an
Affordability and Accessibility Analysis
within the Planning Justification Report.
For the purposes of this policy, major
residential development means the
creation of 100 or more residential units,
or, the construction of a residential
building or buildings with a gross floor
area of 10,000 square metres or more.
3. Add a definition for “special needs
housing” as noted in the Glossary (see
Appendix A).
Envision Durham | 56
Supportive Infrastructure
The planning, financing and provision of
adequate municipal services5 is a principal
role of the Region. Ensuring supportive
municipal infrastructure is in place (or will be
in place for future needs) and maintained on
a regular basis is essential for a growing,
economically competitive region.
The current ROP does an appropriate job of
setting the context for policies that apply to
addressing infrastructure needs, namely
through:
• Section 5: Cultural, Health and
Community Facilities, and Infrastructure;
and
• Section 6: Finance.
In addition, specific policies throughout the
current ROP are intended to ensure water
and sewage services, both public and private,
are available to support the health and
sustainability of settlement areas. The key
policies governing the provision of services
within specific settlement area designations
will largely be carried over, where
appropriate, to the new ROP in accordance
with the servicing hierarchy set out by the
PPS. Under this hierarchy:
• municipal sewage services and municipal
water services are the preferred form of
servicing for settlement areas;
5 Within the context of Supportive Infrastructure
delivered by the Region, “municipal services” refers to
growth-related infrastructure such as regional roads,
• in areas where full municipal sewage and
water services are not available, planned
or feasible, municipalities may allow the
use of private communal sewage services
and private communal water services;
• where the above noted options are not
available, planned or feasible, individual
on-site sewage services and individual on-
site water services may be used provided
site conditions are suitable over the long-
term;
• partial services shall only be permitted
under certain circumstances, including
where necessary to address failed
individual on-site sewage and water
services in an existing development, or
within settlement areas to allow for
infilling and minor rounding out of
existing development provided site
conditions are suitable over the long-
term.
This chapter highlights proposed policy
directions for supportive infrastructure.
Goals for Supportive Infrastructure
Envision Durham provides an opportunity to
elevate the importance and emphasize the
influence that supportive infrastructure has
on region-building. As a result, “Supportive
Infrastructure” is a strategic direction within
the new ROP, where a new chapter is
proposed to address the following themes:
• Financial management;
water distribution and treatment, and sewage
collection and treatment.
57 | Envision Durham
• Municipal servicing; and
• Energy and utilities.
29. Proposed Direction: Goals for Supportive
Infrastructure
The following overarching goals are intended
to reinforce the importance and provision of
Supportive Infrastructure across the region:
1. Maintain the long-term financial
sustainability of the Region by managing
its financial resources in a fiscally
responsible and prudent manner.
2. Provide the necessary Regional municipal
services to meet current and projected
needs for orderly growth in the region in
an environmentally and financially
sustainable manner.
3. Enable the efficient delivery, location and
effective use of energy and utilities.
Recent provincial direction has emphasized
the need for municipalities to undertake an
integrated approach to land use planning,
infrastructure investments, and
environmental protection. While the Region
has always taken a coordinated approach to
asset management and to planning and
financing infrastructure, there are several
new Growth Plan conformity requirements,
and emerging best practices pertaining to
infrastructure that will be addressed within
the new ROP, including:
• planning for infrastructure that is
supported by infrastructure master plans
and asset management plans to ensure
infrastructure is financially viable over its
full life cycle;
• considerations for low impact
development and green infrastructure;
• encouraging the co-location of linear
infrastructure; and
• requirements for assessing infrastructure
vulnerability and identifying priority
actions to increase infrastructure
resilience and adapt to climate change.
In addition, the following proposed policy
directions are intended supplement these
anticipated changes and generally reinforce
Supportive Infrastructure.
Green Infrastructure
Broad policy directions for climate resilient
development are being proposed through the
new Healthy Communities chapter. There
remains an opportunity to promote the use
of green infrastructure through the delivery
of regional services.
Feedback from the Durham Sustainability
Office, area municipalities and conservation
authorities on the Climate Change and
Sustainability and Environment and
Greenlands Discussion Papers strongly
recommended that policies be added into the
ROP to support climate resilient development
in order to adapt and mitigate to a changing
climate, support the Region’s commitment to
reducing greenhouse gas emissions, and
demonstrate leadership in climate mitigation.
It was particularly emphasized that
integrating green infrastructure and climate
mitigation must be introduced at the start of
the design process, and that begins with the
community’s underlying infrastructure.
Envision Durham | 58
30. Proposed Direction: Green Infrastructure
1. Establish policies which:
a) encourage stormwater management
practices through green infrastructure
policies supporting low impact
development (LID); and
b) promote sustainable urban design
within the public realm, incorporating
principles of green infrastructure where
feasible.
2. Require the submission of supporting
information that demonstrates how the
proposed development would help
support the Region’s Climate Resilient
Development and Sustainability
objectives, as a requirement for a
complete application (also see Climate
Resilient Development section).
3. Add definitions for “green infrastructure”
and “low impact development (LID)
stormwater management practices” as
noted in the Glossary (see Appendix A).
Waste Management
The ROP contains waste management
policies that direct Regional Council to
pursue measures related to the Rethink,
Reduce, Reuse, Recycle and Recover waste
principles and policies related to the
development of landfills in the Region. The
waste management section of the new ROP
will incorporate changes to provincial policy.
The Growth Plan directs municipalities to
develop and implement official plan policies
to support and plan comprehensively at the
regional level for integrated waste
management. These policies include
enhancing waste reduction, organics
management, reuse, recycling and recovery.
The Growth Plan also directs municipalities to
identify new opportunities for energy from
waste.
The Region’s current Long-Term Waste
Management Plan 2021-2041 focuses on
reducing waste generation and maximizing
diversion of waste from disposal for the next
20 years. The ROP will help advance these
goals by supporting waste diversion, reducing
the quantity of waste to be managed and
supporting sustainability to address climate
change.
The current ROP definition of “landfill”
closely aligns with the definition of “waste
disposal site” found in the Environmental
Protection Act and includes all manner of
waste disposal sites, not only landfills. To
increase clarity, rather than defining landfill
sites, the new ROP should more broadly
include a definition for “waste disposal site.”
Additionally, further clarity is needed to
determine which types of waste disposal
sites require a regional official plan
amendment (ROPA). Existing policy requires
a ROPA for a landfill, but not for other types
of waste disposal sites, such as waste
transfer stations and recycling facilities.
It is proposed that where a waste disposal
site triggers the requirement for an
Environmental Assessment, the Region would
require an official plan amendment to ensure
that the requisite studies are completed and
that adverse effects are avoided or mitigated.
59 | Envision Durham
31. Proposed Direction: Waste Management
1. Support new opportunities for energy
from waste, source reduction, reuse,
diversion and energy from waste where
appropriate, consistent with the Long-
Term Waste Management Plan guiding
principles.
2. Recognize the Region’s Long-Term Waste
Management Plan and support for other
Regional initiatives and coordination with
area municipalities.
3. Add a definition for “waste disposal site”
as noted in the Glossary (see Appendix A).
4. Require new waste disposal sites that
trigger the requirement for an
Environmental Assessment be considered
through a Regional Official Plan
Amendment.
5. Add a policy that requires studies to
ensure the protection of human health
and the environment, including studies
that address impacts on air emissions,
leachate, noise, odour, dust and
recommendations that address such
impacts as applicable prior to the
approval of any new or expanded waste
disposal site.
Telecommunications Infrastructure
In support of the proposed policy directions
for Broadband infrastructure within the
Prosperous Economy section, some
responses to the Urban System Discussion
Paper’s discussion question #17: “What type
of Regional Official Plan policies should be
provided to support the deployment of
broadband infrastructure?” also indicated a
preference for more detailed policies related
to co-location of
broadband/telecommunication
infrastructure, the establishment of a “dig-
once” policy that would provide broadband
conduit as part of road construction projects,
and policies that allow regional funding for
broadband projects through Community
Improvement Plans.
32. Proposed Direction:
Telecommunications Infrastructure
1. Investigate the feasibility of a Dig Once
policy, which would allow and/or require
broadband infrastructure to be installed
during road construction/reconstruction
and other major development activities.
2. Encourage co-location on shared towers
and structures, wherever possible.
Energy
Implementation of energy conservation and
efficiency measures and the establishment of
renewable and alternative energy systems
across the region will help our communities
mitigate, adapt and build resilience to the
impacts of climate change.
While the current ROP supports renewable
energy, a new emphasis on climate change
and direction from the Durham Region
Strategic Plan indicates a need for more
comprehensive policies.
There is broad support for renewable and
alternative energy systems across all
provincial planning documents, including the
specific identification of district energy. The
area municipalities, to varying degrees, also
Envision Durham | 60
support the development of alternative and
renewable energy through their official plan
policies.
The Climate Change and Sustainability
Discussion Paper asked several questions
pertaining to energy sources, production and
distribution (questions #5 to #7). In summary,
responses indicated:
• most municipalities support restrictions
for large renewable energy facilities on
prime agricultural lands, as well as within
and/or in proximity to natural heritage
systems, vegetation protection zones,
and natural hazards;
• there is a desire for the Region to consult
with area municipalities to develop
renewable and alternative energy
infrastructure;
• land use compatibility is paramount;
• district energy is an area that should be
supported by the Region;
• opportunities should be sought for
academic collaborations and support of
new innovations, public/private
partnerships and demonstration and pilot
projects; and
• the Region should facilitate connections
between area municipalities and energy
providers.
33. Proposed Direction: Energy
1. Recognize energy conservation and
efficiency measures and renewable and
alternative energy systems as critical to
reducing greenhouse gas emissions and
adapting and building resiliency to the
impacts of climate change.
2. Continue to promote efficient land use
and development patterns that facilitate
sustainable transportation, energy
efficient design and low carbon district
and renewable energy generation
options.
3. Encourage the development of
Community Energy Plans as a part of the
secondary planning process to help
achieve reduced energy demand, support
active transportation and transit and
utilize renewable and alternative energy
options.
4. Add definitions, based on the PPS, for
“alternative energy systems”, “renewable
energy systems” and “renewable energy
source” as noted in the Glossary (see
Appendix A).
5. Encourage and support prudent energy
conservation and efficiency measures
including:
a) deep building retrofits (municipal and
private) that reduce energy and GHG
emissions by 40 per cent or greater;
b) energy assessments for new
development;
c) municipal green development practices
and related initiatives, including
programs and incentives;
d) green infrastructure and passive solar
gains; and
e) renewable natural gas production
through Regional infrastructure.
6. Permit and promote alternative energy
systems and renewable energy systems
(e.g. wind, solar, biogas, etc.) in
accordance with provincial and federal
requirements.
61 | Envision Durham
7. Prohibit large-scale commercial
renewable energy facilities in Prime
Agricultural Areas and within natural
hazards and key natural heritage features
and areas and associated vegetation
protection zones.
8. Support innovative ways to develop
renewable and alternative energy
projects through mechanisms like public-
private partnerships or demonstration
and pilot projects.
9. Provide direction to the area
municipalities to regulate the design and
scale of renewable energy systems
through their official plans and zoning by-
laws with consideration for land use
compatibility, including impacts to the
natural environment.
10. Encourage the development of district
energy systems, especially those based
on leveraging Regional infrastructure (e.g.
sewer heat recovery) low carbon and
renewable energy and provide direction
to the area municipalities to promote and
facilitate district energy through their
official plans and zoning by-laws.
11. Encourage new development and
municipally owned facilities to connect to
existing and planned district energy
networks, whenever feasible.
12. Complete a District Energy Feasibility
Study, in consultation with the area
municipalities that identifies locations
with potential for district energy systems.
Envision Durham | 62
Vibrant Urban System
The current Urban System is comprised of
lands within the Urban Area Boundary (Urban
Areas) which are designated to
accommodate the vast majority of the
region’s forecasted population and
employment growth. The Urban System is
intended to comprise distinct Urban Areas,
functioning as healthy and complete
communities, and guided by policies that aim
to separate incompatible uses, provide for
focal points, concentrations of urban
activities, and essential connections.
The components that currently make up the
Urban System are identified on Figure 5,
including:
• Living Areas: areas used predominantly
for housing purposes and population
related employment. Living Areas include
a diverse range of housing sizes, types and
tenure, and also permit additional non-
residential uses where such uses are
compatible with their surroundings.
• Employment Areas: lands set aside for
businesses and industries that require
separation from sensitive uses, such as
residential uses. Employment Areas are
characterized by their need to have access
to highway, rail, and/or shipping facilities.
• Urban Growth Centres: focal points for
intensive urban development and the
main concentrations of institutional,
public services, major office, commercial,
recreational, residential, entertainment,
and cultural land uses, and also serve as
major employment centres (specifically
downtown Pickering and downtown
Oshawa).
• Regional Centres: the main
concentrations of urban activity, but at a
smaller scale than Urban Growth Centres,
providing a fully integrated array of
institutional, commercial, major retail,
residential, recreational, cultural,
entertainment, and major office uses.
• Regional Corridors: lands along arterial
roads that connect centres and form key
connections and provide for the
movement of people and goods between
Centres. Regional Corridors support public
transit through mixed use development at
higher densities.
• Waterfront Places: focal points along the
Lake Ontario waterfront that integrate a
range of residential, commercial, and
recreational uses with the surrounding
Greenlands System.
These Urban System components appear in
the schedules of the ROP using symbols and
designations. To implement the policies of
the updated Growth Plan, the designations of
the Urban System will be refined and, in
some cases, have their detailed boundaries
delineated in the ROP.
This chapter provides an update on the
Growth Management Study, as well as
provides initial proposed policy directions
related to a vibrant Urban System structure
and policy framework, particularly on topics
and responses to discussion questions from
in the Urban System Discussion Paper.
Further policy directions will be released as
the various phases of the Growth
Management Study are completed.
63 | Envision Durham
Figure 5: Durham’s Urban System as currently designated in the Regional Official Plan.
Envision Durham | 64
Regional Growth Management Study
The Region is undertaking a Growth
Management Study (GMS) as part of Envision
Durham. The purpose of the GMS is to assess
where and how future population and
employment growth should be
accommodated within the region and across
Durham’s eight area municipalities. To assist
with the GMS, the Region retained the
consulting services of Urban Strategies Inc.
supported by Watson & Associates
Economists Ltd.
The GMS is being undertaken in two phases.
Phase One consists of the completion of a
Land Needs Assessment (LNA) and related
technical studies, which will evaluate the
ability of the existing Urban System to
accommodate forecasted growth. Phase Two
will assess the most appropriate location for
any necessary Settlement Area Boundary
Expansions.
Key outcomes of the GMS will include:
• allocating the Regional growth forecast
across Durham’s area municipalities to
the year 2051;
• determining if the Region can achieve the
various density and intensification targets
contained in the Growth Plan;
• determining how much urban land is
required for Community Areas and/or
Employment Areas, and whether (and
how much) Settlement Area Boundary
Expansion is required to accommodate
forecasted growth;
• determining whether certain
Employment Areas should be re-
designated for non-employment use;
• if additional urban land is required,
determining the most appropriate
location(s) for Settlement Area Boundary
Expansion; and
• necessary updates to the Urban System
and the related policy framework to plan
for complete communities that
accommodate growth in an efficient,
managed, and sustainable fashion that
also achieves conformity with provincial
policy.
Figure 6: Growth Management Study components.
65 | Envision Durham
All components of Phase One of the GMS are
currently underway, with a tentative
completion date targeted for mid-2021.
Further details can be found in the
accompanying Durham Growth Management
Study consultant’s Growth Opportunities and
Challenges Report, which serves as a starting
point for undertaking the LNA and related
technical studies by providing essential
context, discussing impacts from broader
demographic and economic trends, local
growth and development trends, and other
factors that affect growth. The Growth
Opportunities and Challenges Report includes
a number of recommendations based on
factors that will affect growth which will
carry forward into subsequent studies of the
LNA and shape the overall outcome of the
GMS.
34. Proposed Direction: Regional Growth
Management Study
1. Refer to the accompanying Durham
Growth Management Study (GMS)
consultant’s Growth Opportunities and
Challenges Report for further details on
the GMS, including essential context and
initial recommendations for undertaking
the Land Needs Assessment and related
technical studies.
Regional Population and Employment
Forecasts
The Growth Plan requires upper-tier and
single-tier municipalities to plan for and
accommodate the population and
6Amendment 1 to A Place to Grow came into effect on
August 28, 2020.
employment forecasts that the Province
assigns them. At the onset of Envision
Durham, the Growth Plan allocated to
Durham a 2041 forecast of 1,190,000 people
and 430,000 jobs. Recent amendments to the
Growth Plan6 have extended the planning
horizon to 2051 and increased total forecast
for Durham to 1,300,000 people and 460,000
jobs. Included with the amendments is a new
provision that allows upper-tier and single-
tier municipalities through their MCR process
to establish higher forecasts than those
provided in the Growth Plan if justified
through appropriate technical analysis and
studies.
Through the Durham Growth Management
Study – Growth Opportunities and Challenges
Report, the GMS consultant team assessed
the 2051 Growth Plan forecast for Durham
and determined that a significant increase in
growth rates will be required to achieve the
forecast (roughly double historic growth
rates). The current 2051 Growth Plan
forecast is therefore viewed as aspirational
and a higher alternative local forecast is not
necessary.
Along with the long-term forecast, the
Growth Plan includes direction on where and
how growth should occur. This includes
policies that require the vast majority of
growth to be directed to Settlement Areas
that have a delineated built boundary, have
existing or planned municipal water and
wastewater systems, and that can support
the achievement of complete communities.
The Growth Plan also limits growth in rural
Envision Durham | 66
settlements, areas that do not have existing
or planned municipal water and wastewater
systems, and locations that are in the
Greenbelt Plan area. More specifically, policy
2.2.8.3 (k) limits Settlement Area Boundary
Expansion into the Greenbelt Plan Area to a
five per cent increase in the geographic size
of the current settlement area boundary, up
to a maximum of 10 hectares, of which only
50 per cent of the lands can be used for
residential development.
35. Proposed Direction: Regional Population
and Employment Forecasts
1. Implement the 2051 population and
employment forecast contained in the
Growth Plan, 2019 as the basis for the
Growth Management Study and Land
Needs Assessment. Based on work being
undertaken through the Land Needs
Assessment, higher long-term population
and employment forecasts are not being
recommended.
2. Provide, through the Land Needs
Assessment, a limited amount of growth
to Rural Settlements, limited expansion of
Settlement Areas located in the
Greenbelt Plan Area, and limited growth
in areas without municipal water and
wastewater systems as required by the
Growth Plan. Associated policies will be
included in the new ROP.
3. Extend the planning horizon for the ROP,
including associated population and
employment forecasts, area municipal
allocations, and other related targets, to
the year 2051. The regional and area
municipal population and employment
forecasts, households, and rural/urban
split, will be provided in five year
increments as an appendix to the new
ROP.
Goals for a Vibrant Urban System
The current ROP contains 19 goals for the
Urban System and its components, covering a
vast array of priorities and desired outcomes,
such as balancing population and
employment growth, evolving into healthy
and complete sustainable communities, and
directing growth to appropriate locations.
To evaluate the effectiveness and relevance
of the existing Urban System goals, and to
inform future updates, the Urban System
Discussion Paper posed two questions (#1
and #2): “Is the Urban System achieving the
Regional Official Plan vision of creating
distinct Urban Areas, balancing population
and employment growth, and achieving
complete communities” and “Are there any
additional goals for the Urban System that
should be included in the Regional Official
Plan?”.
Responses indicated that the Urban System
goals varied in their ability to create distinct
Urban Areas, balance population and
employment growth, and achieve complete
communities. Responses also suggested the
need to further elaborate and emphasize
these concepts, including more detailed
implementing policies.
With respect to additional goals that should
be incorporated into the Urban System
section of the ROP, one response indicated
there should be fewer, yet broader Urban
System goals, while others identified the
following subject areas as important
additions: addressing climate change,
67 | Envision Durham
providing a full range of housing mix,
focusing development/intensification within
Strategic Growth Areas, strengthening public
realm/urban design policies, focusing on
transit and transportation connections, and
protecting and integrating the environment
with the Urban System.
36. Proposed Direction: Goals for a Vibrant
Urban System
That the existing goals for the Urban System
and its various components be replaced with
the following:
1. Establish a vibrant Urban System that
supports the development of compact,
efficient, and complete communities
characterized by a mix of uses, a full
range of housing options, transit and
active transportation linkages, and
pedestrian-oriented built form that is
accessible to those of all abilities and
ages.
2. Balance employment and population
growth by ensuring an adequate supply
of Employment Areas, by supporting
emerging industries and trends in how
and where people choose to work, and by
encouraging the intensification of
employment generating uses in all
designations of the Urban System.
3. Value the diversity of areas and places
that comprise the Urban System by
protecting and integrating natural and
cultural heritage resources, encouraging
distinctive place-making through
architecture and high-quality urban
design, supporting historic downtowns
and recognizing the distinct character of
Urban Areas in Durham’s northern
municipalities.
4. Advance the development of Strategic
Growth Areas as focal points for
intensification, economic activity,
significant employment intensification
and employment generating uses,
culture, and entertainment, characterized
by people-oriented urban built form and
transit-oriented development.
5. Manage growth within the Urban System
by promoting intensification and
development that optimizes
infrastructure and public service facilities,
implementing practices that support
sustainability, climate change mitigation
and adaptation, while protecting the
components of the Greenlands System.
Envision Durham | 68
Delineated Built-Up Areas and
Designated Greenfield Areas
The Province established the Delineated Built
Boundary in 2006. Lands included inside the
Delineated Built Boundary were considered
to be in some stage of urbanization and are
referred to as Delineated Built-Up Areas.
Lands outside the Delineated Built Boundary
but inside the designated Urban Area
boundary were identified as Designated
Greenfield Areas.
Intensification is measured by the rate of
residential unit construction occurring within
Delineated Built-Up Areas. Any development
taking place outside of the Delineated Built
Boundary is considered Greenfield
development.
The Growth Plan promotes growth through
intensification throughout the entire
Delineated Built-Up Area, as well as through
focused intensification within Strategic
Growth Areas. The Growth Plan sets out a
region-wide intensification target requiring
not less than 50 per cent of all new annual
residential growth to occur within Delineated
Built Up Areas, guided by the development of
an intensification strategy.
Any additional Settlement Area Boundary
Expansion would result in new Designated
Greenfield Areas. The Growth Plan provides
policy directions for development in
Designated Greenfield Areas, which are
required to:
• support the achievement of complete
communities;
• support active transportation; and
• encourage the integration and sustained
viability of transit services by achieving
densities and urban forms that are transit
supportive.
The Growth Plan sets a Designated
Greenfield Areas density target of at least 50
people and jobs combined per hectare for
Durham. For both the Designated Greenfield
Areas density target and the intensification
target referenced above, Regional Council
may request an alternative target where it is
demonstrated that the Growth Plan target(s)
cannot be achieved.
Figure 7: Illustration of Delineated Built Boundary and Designated Greenfield Areas.
69 | Envision Durham
Through the Urban System Discussion Paper,
several submissions were received providing
opinion on appropriate intensification and
Designated Greenfield Areas density targets.
In some cases, the submission asked the
Region to request an alternative (lower)
intensification target. In other submissions,
comments indicated that the Region should
support higher levels of intensification
beyond the Growth Plan minimum, and also
apply higher density targets for Designated
Greenfield Areas.
As part of the GMS, technical studies are
being undertaken to assess the
intensification potential of the Region as well
as evaluate trends and densities being
achieved during development within
Designated Greenfield Areas. These studies
will inform appropriate targets for the ROP.
Until such studies and the broader LNA is
completed, it is premature to recommend or
request an alternative target.
37. Proposed Direction: Delineated Built-Up
Areas and Designated Greenfield Areas
1. That the generalized Urban Area
Boundary currently shown on the various
schedules of the ROP be refined and
more precisely delineated, based on
approved area municipal official plans.
2. Add a schedule to the ROP to more
clearly illustrate all of the lands within the
boundaries of Delineated Built-up Areas
and Designated Greenfield Areas.
3. Promote active transportation and transit
supportive development within
Designated Greenfield Areas.
4. Encourage community uses and
institutional uses to locate within
proximity to existing and planned transit.
5. Set the minimum intensification
target and the minimum density target
for Designated Greenfield Areas
contained in the Growth Plan through the
pending completion of the Growth
Management Study and related technical
studies.
6. Encourage developments to consider
climate resilience and low impact design
(also see Climate Resilient Development
section).
Identifying and Planning for Strategic
Growth Areas
The Growth Plan promotes an
“intensification first” approach to land use
planning and city building by placing an
emphasis on optimizing the use of land and
infrastructure. While the Growth Plan
broadly supports intensification and the
creation of compact and complete
communities, it prioritizes Strategic Growth
Areas (SGAs) as focused areas for mixed-use
development at high densities. SGAs are
considered key to achieving municipal
intensification targets.
SGAs are generally described in the Growth
Plan as nodes, corridors, and other areas to
be the focus for accommodating
intensification and higher-density mixed-uses
in a compact built form. Areas designated as
SGAs signify that they are appropriate
locations for focused and dense urban
development, supported by municipal
infrastructure and transit service. To
Envision Durham | 70
effectively monitor growth and performance,
the Growth Plan requires SGAs to be assigned
a minimum density target and their detailed
boundaries to be delineated in the ROP. SGAs
may be identified by both the Province and
the Region.
The current Urban System includes areas that
meet the definition of an SGA and will
therefore require delineation in the ROP.
Further, additional policy directions to
promote and support the appropriate form
of development in these places are required.
A review is currently underway of the
Region’s existing Urban System components
to identify appropriate areas for designation
as SGAs. Preliminary observations, outcomes,
and proposed directions are discussed in the
following sections related to Centres, MTSAs,
Corridors, Waterfront Places and proposed
directions for supporting SGAs.
Centres:
Durham’s existing Urban System includes a
hierarchy of Centres. Urban Growth Centres
are the highest order Centre within the
region. There are two Urban Growth Centres
located within Durham, currently designated
through use of a symbol in the ROP. The
Growth Plan designates Durham’s Urban
Growth Centres as SGAs and prescribes a
minimum density target of 200 people and
jobs per hectare, which must be planned to
be achieved by 2031.
Regional Centres are the next highest order
Centre within the ROP, intended to be
7 This figure excludes the Pickering Urban Growth
Centre, since the boundaries of the Urban Growth
planned and developed as the main
concentrations of urban activities, but
generally at a smaller scale than Urban
Growth Centres. There are 16 Regional
Centres7, including five northern Regional
Centres, currently designated in the ROP
using a symbol. Regional Centres are
important areas within the Urban System
framework, often strategically located along
key transit and transportation routes. Some
Regional Centres consist of larger parcels of
land, include traditional shopping centres,
and have the ability to accommodate
significant redevelopment without the need
for land assembly. Other Regional Centres
include many of the region’s historic
downtowns, where redevelopment may
typically consist of more modest
intensification or infill projects on smaller
parcels of land.
The ROP assigns a long term, minimum
density target of 75 residential units per
gross hectare with a floor space index of 2.5
for the southern Regional Centres, and a
long-term minimum density target of 15
residential units per gross hectare for the
Beaverton, Cannington, Sunderland,
Uxbridge and Port Perry Regional Centres
located in north Durham.
An assessment of the current state of
Regional Centres, as reported in the Urban
System Discussion Paper, indicates that most
have experienced development which to
date is far below their planned long-term
density target. In addition, preliminary results
from an analysis of intensification potential
Centre coincides with the boundaries of the Regional
Centre.
71 | Envision Durham
from a supply side perspective when
identifying the availability of underdeveloped
lands, suggests certain Regional Centres may
not have the ability to meet their long-term
density target. Intensification in such
Regional Centres may be constrained due to
the presence of natural heritage features, the
local context and character including historic
downtowns and the presence of heritage
properties, and the inclusion of extensive
stable neighbourhoods which are not
anticipated to experience a high rate of
redevelopment.
The final category in the ROP hierarchy of
Centres are Local Centres. ROP policy
recognizes three different types of Local
Centres of varying scale and function,
including Urban Centres, Community Centres,
and Neighbourhood Centres. Local Centres
are not specifically designated in the ROP and
are instead designated in area municipal
official plans.
As part of the last round of Official Plan
conformity review, area municipalities
delineated the boundaries of Urban Growth
Centres and Regional Centres in their Official
Plans. These existing boundaries have been
used by the Region for analysis purposes and
will form the basis of delineated boundaries
in the next ROP. As part of their response to
this Directions Report, area municipalities
may request minor modifications to the
current Urban Growth Centre or Regional
Centre boundaries by submitting mapping of
the revised boundaries with a supporting
rationale. Additionally, Regional staff may
identify and recommend minor adjustments
and in such cases with consult with area
municipal staff.
38. Proposed Direction: Centres
1. Designate and delineate Urban
Growth Centres as Strategic Growth
Areas and assign an associated minimum
density target of 200 people and jobs per
hectare to be planned to be achieved by
2031.
2. Review and refine existing Regional
Centres against the density targets and
planned function as described in ROP
policy. Certain Regional Centres shown to
be unlikely to achieve their long-term
density target or planned function, due to
their size and/or composition, will be
subject to refinement in consultation with
area municipal staff. Refinement may
include removal of the Regional Centre
designation or the refinement of their
detailed boundaries to more
appropriately reflect areas intended to
achieve the policies and density target for
Regional Centres.
3. Designate and delineate Regional
Centres, once refined in consultation with
area municipalities, in the ROP as
Strategic Growth Areas and assign an
associated minimum density target.
4. Designate and delineate Regional Centres
in Beaverton, Cannington, Sunderland,
Uxbridge and Port Perry as “Rural
Regional Centres” in recognition of their
unique and historic function as clusters
for local businesses; shopping and tourist
destinations; as concentrations of
services and amenities within and serving
a primarily rural setting; and, as key
locations for accommodating growth in
Envision Durham | 72
north Durham at a scale that is
appropriate for their context. To allow for
ongoing monitoring and service delivery,
it is proposed that the detailed
boundaries of Rural Regional Centres be
delineated in the ROP, however, are not
proposed to be designated as Strategic
Growth Areas as their growth potential is
more limited.
5. That the delineated boundaries for Urban
Growth Centres, Regional Centres and
Rural Regional Centres be based on the
current defined boundaries as contained
in area municipal official plans. As part of
their response to this Directions Report,
area municipalities may request modified
boundaries by submitting mapping of
revised boundaries along with a detailed
supporting rationale. Additionally,
Regional staff may identify and
recommend minor adjustments and, in
such cases, will further consult with area
municipal staff.
Major Transit Station Areas:
The concept of Major Transit Station Areas
(MTSAs) has existed since the initial Growth
Plan (2006) and is reflected in the current
ROP in policies for Transportation Hubs and
Commuter Stations. The updated Growth
Plan elevated the significance of MTSAs by
designating them as Strategic Growth Areas
and specifying a minimum density target of
150 people and jobs per hectare for MTSAs
located along Priority Transit Corridors.8
8 Within Durham Region, the only Priority Transit
Corridor is the Lakeshore East GO Transit rail line, up
The Urban System Discussion Paper outlined
a proposed approach for identifying and
planning for the MTSAs located around the
four existing and four future GO train stations
in Pickering, Ajax, Whitby, Oshawa, and
Clarington. Two discussion questions were
included in the paper to provide an
opportunity for the public and stakeholders
to offer input on the proposed approach. The
first related discussion question (#11) asked
“Is the proposed approach for delineating
and assigning density targets to existing and
future Major Transit Station Areas
appropriate?”. Responses confirmed that the
proposed approach to delineating and
assigning density targets to MTSAs was sound
and supported by the affected municipalities.
To solicit input on proposed boundaries for
the eight MTSAs, the second related
discussion question (#12) asked “Do you have
any feedback or input on the proposed draft
Major Station Area delineations?”. Responses
generally indicated agreement with the
proposed delineations. In some cases, there
were individual private requests to extend
the boundary to include certain properties.
There were also a few instances where
further clarification was requested on how
Employment Areas within MTSA boundaries
would be treated, and how environmental
features and systems would be considered
during the planning of MTSAs.
In November 2019, recognizing the
opportunity of achieving Transit Oriented
Development within Major Transit Station
Areas, Regional Council directed staff to
to its current termination point at the existing Oshawa
GO Train Station.
73 | Envision Durham
accelerate the MTSA component of Envision
Durham. A separate Proposed Policy
Directions report, specific to the next steps
for MTSAs, has been prepared and was
released for review and response in
December 2020.
39. Proposed Direction: Major Transit
Station Areas
1. Refer to the Major Transit Station
Areas Proposed Policy Directions, dated
December 1, 2020, which includes a
recommendation that the Major Transit
Station Areas be designated in the ROP as
Strategic Growth Areas, have their
detailed boundaries delineated, and be
assigned an associated minimum density
target.
Corridors:
Regional Corridors were originally intended
to form key connections between Centres
and are considered the main arteries of the
Region’s urban structure. Regional Corridors
are designated as an overlay in the ROP, with
the underlying designation and policies
remaining applicable. They are intended to
be developed as higher density mixed-use
areas that support higher order transit
services and pedestrian-oriented
development. The ROP also includes enabling
policies for area municipal official plans to
designate Local Corridors and includes high
level policy directions and a minimum density
target.
There are 13 Regional Corridors currently
identified in the ROP. Where appropriate and
implemented in area municipal official plans,
the long-term density target for Regional
Corridors is at least 60 residential units per
gross hectare with a floor space index of 2.5.
Initial observations indicate that Regional
Corridors are not equal, with varying degrees
of connectivity, existing/planned transit
service, and the ability and suitability to
accommodate growth and intensification.
As part of the Urban System Discussion
Paper, two discussion questions were posed
seeking input on how to refine and evolve
the Regional Corridor designation. The first
related discussion question (#8) asked
“should the Region delineate only those
corridors with significant intensification
potential that are also within the Higher
Order Transit Network?”. The second related
discussion question (#9) asked “Should
Regional Corridors that are intended to be
priority areas for the highest level of transit
service (Highway 2 and Simcoe Street) be
delineated in the ROP and assigned an
increased minimum density target?”.
A wide range of responses to the discussion
questions were received. Some comments
indicated that the Region should continue to
identify all existing Regional Corridors,
because transit can always be added and
improved. Other comments suggested that
the Region should identify and focus on
priority corridors that have higher order
rapid transit and have the area municipalities
designate the other corridors in the area
municipal official plans. Further, other
respondents indicated a preference for more
conceptual and enabling regional policies and
boundary delineations, perhaps even a text-
based description of the Corridor, which
provides flexibility for area municipalities to
implement in more detail.
Envision Durham | 74
Specifically regarding the Highway 2 and
Simcoe Street Corridor segments, there was
more general agreement that these Regional
Corridors should have some primacy in the
ROP given their long term planned function
as Bus Rapid Transit/Light Rail Transit routes,
but there was a variety of comments on how
the ROP should delineate and assign
densities to these areas.
Although Regional staff and the GMS
consultant team are still in the process of
assessing Regional Corridors, based on their
planned function, local character, and growth
potential, the following preliminary
directions are proposed for review and
feedback.
40. Proposed Direction: Corridors
1. Designate the Highway 2 Regional
Corridor from the Toronto/Durham
border easterly to Highway 418 in
Clarington, and the Simcoe Street
Regional Corridor from Gibb Street in
downtown Oshawa to Highway 407 as a
“Rapid Transit Spine Intensification
Corridor” signaling its status as a Strategic
Growth Area with a long term planned
function to develop at higher densities
and with built form and a mix of uses that
will support Light Rail Transit. Designating
the Rapid Transit Spine Intensification
Corridor includes consideration of an
appropriate density target and
delineation approach.
2. That all other Regional Corridors be
reviewed and subject to refinement.
Through the review, the Regional
Corridor overlay would be evaluated
against the density target and policies
contained in the ROP. The intended
outcome of the review would be to
remove the Regional Corridor overlay
from areas that do not have the ability to
achieve the intended function as
described in ROP policy and summarized
by the following evaluation criteria:
a) the connectivity provided by the
Regional Corridor to Urban Growth
Centres, Regional Centres, Major
Transit Station Areas and significant
Employment Areas;
b) the alignment with existing or planned
Higher Order Transit Services; and
c) the potential to accommodate long
term growth and intensification.
3. As a subsequent step to the
refinement of Regional Corridors, that the
Regional Corridor policies be revised to
provide greater clarity on the geographic
application of density targets adjacent to
arterial roads and Rapid Transit Spines
contained in the ROP. Such revisions
would include designating the
generalized boundaries of intensification
areas along segments of Regional
Corridors on an appropriate Schedule and
specifying in policy the applicable density
target for such intensification areas. This
approach is intended to provide greater
certainty and direction during the
implementation, monitoring and review
of development proposals within
Regional Corridors.
4. Require area municipalities to delineate
the precise boundaries of designated
intensification areas along Regional
Corridors in their respective Official Plans.
75 | Envision Durham
Waterfront Places:
Waterfront Places are intended to be
developed as unique focal points along the
Lake Ontario Waterfront, with a mix of uses
integrated with the current Greenlands
System. There are five Waterfront Places
currently designated in the ROP using a
symbol. Current ROP policies recognize that
each Waterfront Place has a unique context
and provides flexibility for implementation by
area municipalities. Currently, the ROP
provides enabling policies including an
overall, long-term density target of at least
60 residential units per gross hectare and a
floor space index of 2.0 where determined
appropriate in area municipal official plans.
Through the Urban System Discussion Paper,
input was sought on the future treatment of
Waterfront Places in the ROP, including the
potential to designate these areas as SGAs.
Discussion question #10 asked “should
Waterfront Places be specifically designated
in the Regional Official Plan?”. Responses
indicated a strong preference to retain local
flexibility in the implementation and planning
of Waterfront Places by area municipalities.
Accordingly, most responses recommended
that Waterfront Places continue to be
designated in the ROP, with a slight majority
preferring the continued use of a symbol
with high-level enabling policies, as opposed
to being specifically delineated as SGAs with
prescriptive policy requirements. Some
responses noted that the continued
designation of Waterfront Places was
necessary to identify where development
and outdoor recreation opportunities should
occur within an otherwise continuous system
of shoreline and associated natural features.
41. Proposed Direction: Waterfront Places
1. Continue to recognize Waterfront Places
using a symbol with associated enabling
policies, allowing for flexibility in
implementation by area municipalities.
2. Waterfront Places are not proposed to be
designated as Strategic Growth Areas.
Supporting Strategic Growth Areas:
The existing densities of Urban Growth
Centres and Regional Centres as reported in
the Urban System Discussion Paper indicated
that further development and intensification,
often at significant levels, is required to
achieve Growth Plan and ROP targets. To
inform potential ROP policies that would
support development within these and other
SGAs, a related discussion question was
asked (#15): “Are additional strategies or
solutions required to support development in
Strategic Growth Areas?”.
A theme observed in the responses to
discussion question #15 was the need to plan
for and provide adequate growth-related
municipal services, such as roads, water and
sewage infrastructure to support
intensification, including pre-servicing. Other
comments included continuing to offer
financial incentives that support
development in SGAs, establishing a Regional
Community Improvement Plan, providing
flexibility to area municipalities to make
minor adjustments to the delineation of
Strategic Growth Areas without the
requirement for a Regional Official Plan
Amendment, and stronger policies that
require mixed-use development within SGAs.
Envision Durham | 76
A comment was also received requesting an
update on staff’s response to the following
direction from the May 9, 2019 Regional
Committee of the Whole: “That as part of the
Municipal Comprehensive Review with
respect to Intensification, a detailed analysis
be provided with respect to water and sewer
servicing constraints in Downtowns, major
transit station hubs and other key sites for
intensification, and that this analysis be
provided and reported in the first phase of
the review”.
The Region’s GMS consultants are
undertaking an intensification analysis as part
of Phase One of the GMS. The analysis
provides an inventory of intensification
potential within Urban Growth Centres,
Regional Centres, Regional Corridors, Major
Transit Station Areas, and Waterfront Places.
Area municipal staff have been asked to
comment on various drafts of the
intensification analysis so that knowledge
and expertise of local conditions could be
integrated into the analysis. The
intensification analysis will be reviewed by
the Region’s Works and Finance Departments
and Durham Region Transit to inform
potential service upgrades to support the
projected development in these areas.
Further detailed analysis may be required at
the time of the next Regional Development
Charge Background Study.
42. Proposed Direction: Supporting Strategic
Growth Areas
That new ROP policies specific to the
planning and development of Strategic
Growth Areas include the following:
1. Identify designated Strategic Growth
Areas and their delineated boundaries
within the ROP.
2. Prioritize the provision of municipal
services and infrastructure, including
water and wastewater services, to
Strategic Growth Areas.
3. Identify Strategic Growth Areas as priority
locations within the Region for the
highest order of intensification, dense
urban development and significant
employment generating uses such as
Major Office.
4. Not allow low density residential uses or
low-density land intensive employment
uses, including but not limited to car
washes, self-storage facilities and land
extensive warehousing uses within
Strategic Growth Areas.
5. Minimize the use of surface parking and
instead encourage underground and/or
structured parking in order to maximize
development potential and achieve
applicable density target and Floor Space
Index target.
6. Clarifying that where the boundaries of a
Centre, Corridor, Waterfront Place and/or
MTSA coincide or overlap, the applicable
higher density target requirement would
apply.
7. Requiring area municipalities to amend
their official plans and zoning by-laws to
delineate Strategic Growth Areas and
update policies to ensure the minimum
density targets contained in the ROP will
be achieved.
8. Require area municipal official plans to
include policies that identify permitted
77 | Envision Durham
uses and densities, and provide policy
guidance for building heights, siting and
design related elements.
9. Require area municipalities to include
appropriate policies to enable a transition
in heights and densities between new
development in Strategic Growth Areas
and surrounding areas.
10. Allow area municipalities, in consultation
with the Region, to make minor
refinements to the delineated boundaries
of any Strategic Growth Area without the
need for a Regional Official Plan
Amendment, except where such
boundaries coincide with arterial roads,
rail corridors, or clearly defined
environmental features. Minor
refinements may include the addition of
additional parcels adjacent to a Strategic
Growth Area Boundaries, or to account
for a refinement to environmental
features as a result of detailed study.
11. Add a definition for “Strategic Growth
Areas” consistent with the Growth Plan,
as noted in the Glossary (see Appendix A).
12. Requiring area municipalities to
incorporate Official Plan
policies/designations for Centres,
Corridors, MTSAs and Waterfront Places
such that community facilities and
amenities, including but not limited to
community uses and facilities, schools
and parkland, are provided to the
satisfaction of the school boards and
applicable agencies to support the
creation of complete communities.
Envision Durham | 78
Figure 8: Proposed refinements to the Urban System to designate Strategic Growth Areas.
79 | Envision Durham
Living Areas
The current ROP designates Living Areas as
communities predominately for housing
purposes, including a diverse range of
housing types, sizes, and tenures. ROP
policies permit additional uses within Living
Areas, such as offices, certain home
occupations, convenience stores, limited
retailing of goods and services, and certain
public and recreational uses. Area municipal
official plans are directed to include more
detailed policies for communities within
Living Areas and may permit additional uses
such as major retail uses, Employment Area
uses (which are not obnoxious in nature), and
others.
Within the context of provincial policy and
related guidance materials, the Living Areas
designation aligns with “Community Areas”.
In the Provincial Land Needs Assessment
Methodology, Community Areas are
described as areas for housing purposes and
for population-related jobs (i.e. schools,
retail, and service related), most office jobs,
and some employment related jobs.
43. Proposed Direction: Living Areas
1. Rename the Living Areas designation to
“Community Areas” in the ROP to align
with the terminology and intent of these
areas as described in provincial guidance
documents.
2. Identify Community Areas and Strategic
Growth Areas as appropriate locations for
the majority of population-related jobs.
Central Pickering Development Plan
Area
The Central Pickering Development Plan
(CPDP) is a provincial land use plan for the
Seaton Community and Duffins Rouge
Agricultural Preserve located in northwest
Pickering. The Seaton Community has been
planned to accommodate a population of
61,000 residents and 30,500 jobs by 2031,
with the long-term intensification goal of
70,000 residents and 35,000 jobs.
A requirement of the CPDP is for the Region
of Durham and the City of Pickering to amend
their Official Plans to conform and implement
the policies and schedules of the CPDP.
Currently, the ROP identifies lands subject to
the CPDP as Specific Policy Area A with
associated high-level policies on how
development in the Seaton Urban Area will
occur, but does not designate an urban
structure comprised of Regional land use
designations such as Living Areas,
Employment Areas, and Major Open Space
Areas or Prime Agricultural Areas (for lands
within the Duffins Rouge Agricultural
Preserve).
In recent years, there has been significant
progress in the development of Seaton. To
assess updates to the ROP as part of Envision
Durham that would better integrate the
CPDP planning area within the Regional
structure, the Urban Systems Discussion
Paper asked the following discussion
question #16: “Should a Regional structure,
consisting of appropriate Regional land use
designations, be applied to lands located
within the Central Pickering Development
Plan Area?”. Responses generally indicated
Envision Durham | 80
that it was appropriate to apply Regional land
use designations, as well as associated
policies, to the ROP for the CPDP planning
area.
44. Proposed Direction: Central Pickering
Development Plan Area
1. Identify a Regional structure for the
Central Pickering Development Plan area.
Policies would continue to indicate that
the area is subject to the provisions of the
Central Pickering Development Plan.
2. Add policies specific to the Central
Pickering Development Plan Area,
including appropriate references to the
Central Pickering Development Plan and
the City of Pickering Official Plan, where
additional detailed policies can be found.
Updated Targets and Measuring
Density
As part of the GMS exercise the current
density targets contained in the ROP will
need to be evaluated and potentially
updated to conform with provincial policy or
to reflect planned function and growth
potential of the Urban System. Also under
consideration are the metrics used in the
ROP to express and measure density targets.
Currently, the ROP includes density targets
expressed as the total number of people and
jobs per hectare, the ratio of total floor area
to land area (referred to in the ROP as Floor
Space Index), and the number of dwelling
units per hectare.
Figure 9: Methods of measuring density. The Regional Official Plan currently measures density by the total number of
residents and jobs per hectare (left image); the ratio of floor area to land area, referred to in the ROP as the Floor
Space Index (centre image); and the total number of dwelling units per hectare (right image).
81 | Envision Durham
There are further variations of how to
measure density, including the option to
apply either a net density or a gross density.
Gross density generally refers to a
measurement taken over any given land
area, whereas net density refers to a
measurement taken only after non-
developable areas and/or features have been
excluded from the land area calculation.
During meetings with area municipal staff,
discussions have identified challenges when
implementing current ROP targets.
Challenges include uncertainty on how to
align and apply the gross density targets
currently found in the ROP to situations
where the area municipal official plans uses
net density targets. Area municipal staff have
also commented that the Floor Space Index
(FSI) targets in the ROP are in some cases
unrealistic and challenging to implement, and
have provided examples of development
proposals where the gross units per hectare
density target has been met but FSI target
has not, suggesting these two metrics are not
aligned. Finally, it has been noted and
questioned why some Urban System
components are measured by people and
jobs per hectare while others are measured
using units per gross hectare, and that a
more consistent approach is preferred.
Through the Urban System Discussion Paper,
discussion question #7 asked “How should
density (gross or net) be measured in the
Regional Official Plan?”. Responses echoed
the concerns and challenges raised during
meetings with area municipal staff, including
a number of submissions requesting that the
FSI target be removed. The majority or
responses indicated a preference for net
densities to be applied in the ROP, although
some responses also suggested that a gross
density factor continue to be applied, and
then allow municipalities to determine how
to apply it on a net density basis.
Figure 10: Conceptual illustration of net density, which “nets out” certain features or non-developable areas such as
highways, railways, flood plains and natural features as part of a density calculation.
Envision Durham | 82
Through the Urban System Discussion Paper,
discussion question #7 asked “How should
density (gross or net) be measured in the
Regional Official Plan?”. Responses echoed
the concerns and challenges raised during
meetings with area municipal staff, including
a number of submissions requesting that the
FSI target be removed. The majority or
responses indicated a preference for net
densities to be applied in the ROP, although
some responses also suggested that a gross
density factor continue to be applied, and
then allow municipalities to determine how
to apply it on a net density basis.
The minimum density targets for Local
Centres and Local Corridors have not been
examined in detail and are not currently
monitored by the Region on an ongoing
basis. To provide additional flexibility and
discretion to area municipalities in achieving
area municipal intensification targets, it is
proposed that the existing minimum density
targets for Local Centres and Local Corridors
be removed and replaced with policy
language which enables the establishment of
appropriate targets in area municipal official
plans, provided such density targets do not
compete or supplant the function of Regional
Centres or Regional Corridors.
Regional staff and the GMS consultant team
are still in the process of assessing the
current ROP density targets as well as
appropriate density metrics for inclusion in
the ROP. Since no clear preference has yet
been identified through the consultation that
has taken place to date, preliminary
directions on how to measure density in the
ROP are proposed for review and feedback.
45. Proposed Direction: Updated Targets
and Measuring Density
1. As required by the Growth Plan, the
density target for Designated Greenfield
Areas will be expressed as a “people and
jobs per hectare” target. The following
may be netted out during the density
calculation of Designated Greenfield
Areas:
a) natural heritage features and areas,
natural heritage systems and
floodplains, provided development is
prohibited in these areas;
b) rights-of-ways for electricity
transmission lines, energy transmission
lines, freeways as defined by and
mapped as part of the Ontario Road
Network, and railways.
c) designated Employment Areas; and
d) cemeteries.
2. As required by the Growth Plan, provide
density targets for Urban Growth Centres
and MTSAs as a “people and jobs per
hectare” target that is measured as gross
density (measured across all lands within
the relevant boundaries). For consistency,
this approach will also be applied to
Regional Centres, Regional Corridors and
Waterfront Places.
3. Revise the Floor Space Index (FSI)
requirements of the ROP, which are
currently structured as minimum long-
term targets across the broader
geography of Centres, Corridors and
Waterfront Places. The revised FSI targets
will be adjusted to represent a minimum
standard of appropriate built form on
individual sites within Urban Growth
83 | Envision Durham
Centres, Regional Centres, Regional
Corridors and MTSAs. The objective of
this approach is to provide clearer
policies with specific and measurable
requirements that can be applied during
the review of development applications.
4. Provide policies that allow for the
inclusion of appropriate density targets
for Local Centres and Local Corridors to
be part of area municipal official plans.
Planning for Employment
Employment (job) distribution in Durham is
spread across the Urban System in a variety
of locations, forms, and functions.
Employment may be “population related”,
such as commercial, retail, personal service,
and institutional (e.g. schools), and may be
part of or in proximity to residential areas.
Employment uses that are characterized by
manufacturing, warehousing, storage,
assembly and processing and other uses with
unique land needs and/or require separation
from residential areas, are directed to
designated Employment Areas.
Outside of the Urban System, employment is
primarily rural in nature, and includes
agriculture (farms) and related businesses
and services, aggregate extraction
operations, uses within Rural Employment
Areas, tourism, recreation, as well as others.
Across the region, employment may also take
place as work from home, or as employment
with no-fixed place of work.
Employment Areas:
Lands designated as Employment Areas are
reserved for uses that require access to
transportation infrastructure (including
goods movement infrastructure), require
separation from sensitive lands uses (i.e.
residential uses), and/or benefit from
locating within proximity to similar
employment uses. Employment Areas offer
of a range of land parcel sizes, including large
sized parcels, which are necessary for land
intensive employment uses.
Policy directions that speak to the
importance protecting and maintaining an
adequate supply of Employment Areas are
found in the PPS, the Growth Plan, the
Durham Region Strategic Plan, as well as the
current ROP. The PPS, for example, requires
the Region to plan, protect, and preserve
Employment Areas for current and future
uses. The Growth Plan provides additional
and more specific direction, requiring the
Region to designate Employment Areas in the
ROP and protect them for appropriate
employment uses over the long term.
To achieve conformity with provincial
employment policy updates, the new ROP
will:
• implement Growth Plan direction for the
efficient use and intensification of
existing Employment Areas;
• establish minimum employment densities
and aligning high density employment
uses with transit;
• refine the current Employment Areas
designation to better reflect the actual
boundaries of Employment Areas, as
opposed to the generalized depictions
currently contained in the ROP; and
• identify Provincially Significant
Employment Zones, which have been
Envision Durham | 84
identified by the Province as areas for
long-term job creation and economic
development.
To inform other updates to Employment
Areas policy, the Urban System Discussion
Paper posed a related discussion question
(#6): “What Regional policies and approaches
could assist in achieving the Regional Official
Plan target that 50 per cent of all jobs be in
designated Employment Areas?”. One
response questioned the appropriateness of
maintaining the target that 50 per cent of
jobs be provided in Employment Areas, given
the shift away from manufacturing in
Ontario. Broader themes in the responses
included providing financial incentives,
reducing development charges, ensuring
adequate services and infrastructure
(including broadband) are available,
intensifying employment areas, establishing
minimum employment densities, and limiting
Employment Area conversion.
46. Proposed Direction: Employment Areas
1. Continue to require an adequate supply
of vacant land with Regional water and
sanitary services available within
designated Employment Areas to enable
the achievement of the Region’s
employment forecast.
2. Refine the current generalized
Employment Areas designation to reflect
more accurate and up to date boundaries
based on area municipal official plans and
information contained in the Region’s
Employment Land Inventory.
3. Apply the Employment Areas designation
to the employment lands located within
the Seaton/Central Pickering
Development Plan area.
4. Extend the Urban Area Boundary to
include the Darlington Nuclear
Generating Station, in recognition of the
scale of development, existing jobs, and
the existing provision of full municipal
services.
5. Identify a Regional interest in the
planning and regulatory process for new
nuclear development at the Darlington
Nuclear Generating Station as well as the
decommissioning and long-term plan for
future use of the Pickering Nuclear
Generating Station lands.
6. Identify and acknowledge the boundaries
of Provincially Significant Employment
Zones in the ROP.
7. Include a definition for “Provincially
Significant Employment Zones” and a
policy that indicates the Province may
issue additional supplementary direction
for these areas.
8. Delineate the boundaries of Rural
Employment Areas.
9. Assess the appropriateness of the
current ROP target that 50 per cent of the
employment forecast be planned to be
accommodated in Employment Areas.
10. Consider including additional policy
language for Regional Corridors in
Employment Areas that would:
a) Continue to encourage office buildings
and business parks to be located along
Regional Corridors;
b) Further to Policy Direction 48. (1.)
below, continue to encourage sensitive
85 | Envision Durham
land uses to locate outside of
Employment Areas. Any sensitive land
uses within an Employment Area,
including hotels, places of worship, and
other uses should locate along a
Regional Corridor or at the edge of an
Employment Area to preserve the
broad function of the Employment
Area;
c) Encourage transit-supportive
employment intensive uses to be
located along Regional Corridors, while
discouraging lower-intensity
employment uses; and
d) Permit a broader range of intensive
commercial uses along Regional
Corridors in Employment Areas above
what is allowed in the current ROP
related to personal service and retail
uses within Employment Areas.
11. As part of the GMS, develop a
Regional density target for Employment
Areas.
12. Enhance ROP policies to
promote/encourage the intensification of
existing Employment Areas.
13. Monitor the servicing status, supply,
and development of Employment Areas.
14. Continue to advance the Region’s pre-
servicing of Employment Lands project
outside of the Municipal Comprehensive
Review. Add policies that enable the
Region to undertake studies, strategies,
and infrastructure projects to extend
Regional services to Employment Areas,
should it be determined through regular
monitoring that there is not an adequate
supply of vacant and serviced lands
within Employment Areas.
Envision Durham | 86
Figure 11: Potential refinements to the Employment Areas designation.
87 | Envision Durham
Employment Related Policies:
Updates to the Growth Plan also include
broader employment related policies that
apply beyond only designated Employment
Areas. These updates include policy that
directs major office and appropriate major
institutional development to Urban Growth
Centres, Major Transit Station Areas, and/or
other Strategic Growth Areas with existing or
planned frequent transit service. Further, the
Growth Plan includes policy to promote
compact built form and intensification of
retail and service uses.
As part of the Urban System Discussion
Paper, two discussion questions were posed
seeking input on broader employment
related policy. Discussion question #4 asked:
“Are there specific policies or other measures
that are needed to enable the achievement
of employment forecasts and/or the Regional
Council target of one job for every two
persons?”. There were many different
responses to the question. In one case, the
respondent questioned why and on what
basis the ROP continues to identify a target
of one job for every two persons. Broader
themes in the responses included pre-
servicing of employment lands, maintaining
an adequate supply of employment areas in
strategic locations, supporting innovation
hubs, limiting the conversion of Employment
Areas, limiting the introduction of sensitive
land uses within Employment Areas, the
importance of other supportive
infrastructure (such as broadband), and
providing financial incentives and/or a
Regional Community Improvement Plan.
The second broader employment related
discussion question (#5) asked: “How can
Regional Official Plan policies recognize and
support the changing pattern of where and
how people work?”. Responses included high
level policies to support working from home
and employment with no fixed place of work,
encouraging live-work options, encouraging
office/co-working locations in Strategic
Growth Areas, supporting necessary
technologies to support the change in work
(i.e. broadband), stronger policy directions
for significant employment in Regional
Centres and Corridors, and ensuring
transit/transportation connections between
residential and employment areas.
47. Proposed Direction: Employment
Related Policies
1. Support the development of major office
and major institutional development in
Strategic Growth Areas, in particular
Urban Growth Centres and Major Transit
Station Areas, and Regional Corridors
with existing or planned frequent transit
service.
2. Recognize the importance of knowledge-
based industries and emerging leading-
edge technologies, including policies that
support the expansion of related
infrastructure (also see Broadband
Infrastructure section).
3. Support existing and emerging business
parks by promoting intensification,
supporting improved connectivity with
transit and active transportation,
promoting appropriate amenities, and
ensuring the introduction of non-
employment uses would be limited and
Envision Durham | 88
not negatively impact the primary
function of the area.
4. Promote compact built form and
intensification of jobs provided by retail
and service uses throughout the Urban
System where appropriate and permitted
by the underlying land use designation.
5. Acknowledge and support long term
trends for working from home and live-
work employment options and the
changing nature of employment.
6. Direct retail and office uses to locations
with existing or planned active
transportation infrastructure so that they
are accessible by existing or planned
public transit service.
Certain Sensitive Land Uses in
Employment Areas:
As noted earlier, current ROP policy prohibits
most sensitive land uses, such as nursing and
retirement homes, elementary and
secondary schools, and places of worship,
from locating within designated Employment
Areas. However, more recent provincial plans
(i.e. the updated Growth Plan) do not
explicitly prohibit places of worship in
Employment Areas. At the time of this
review, Durham Region is the only upper-tier
municipality within the GTHA that explicitly
prohibits places of worship within
Employment Areas.
Over time, a continually diversifying faith
base and property market realities have
shifted places of worship from traditionally
stand-alone institutional buildings to
alternative locations including modest units
within commercial plazas to units within
employment related condominium building
spaces to stand-alone buildings within
Employment Areas. As a result of this
changing landscape and in response to an
area municipal request to examine this issue,
the Urban System Discussion Paper asked a
specific discussion question (#19): “Should
places of worship be permitted in
Employment Areas?”. Responses varied, with
a slight majority of responses preferring the
continued prohibition on places of worship
within Employment Areas. Responses seeking
the flexibility to permit Places of Worship
within Employment Areas were often
premised on the basis of limiting such
permissions to appropriate areas.
48. Proposed Direction: Certain Sensitive
Land Uses in Employment Areas
1. Continue to encourage sensitive land uses
to locate outside of Employment Areas
and explicitly prohibit residential, nursing
and retirement homes, and elementary
and secondary schools within this
designation, while continuing to permit
them elsewhere, such as in Community
Areas and Strategic Growth Areas.
2. Remove the specific policy prohibition on
Places of Worship within Employment
Areas and allow area municipal official
plans and/or zoning by-laws to regulate
the location of these uses, subject to
meeting criteria including land use
compatibility.
Land Use Compatibility:
Land use compatibility is premised on the
recognition that some land uses and/or
facilities are expected or known to cause
89 | Envision Durham
environmental problems for other uses, and
therefore need to be protected and
separated from one another. A common
application of this principle is to separate and
buffer sensitive land uses, such as residential
and institutional uses, from uses and facilities
that emit noise, odour and/or other
emissions, such as industrial, manufacturing,
and processing uses.
Policies related to land use compatibility are
found in the PPS and the Growth Plan.
Provincial policy provides direction to ensure
major facilities, including energy generation
facilities, be separated from sensitive land
uses. Provincial Policy also prohibits
residential uses and limits other sensitive
uses within Employment Areas. There is also
a requirement to plan for an appropriate
interface between Employment Areas and
adjacent non-employment uses in order to
maintain land use compatibility. As discussed
in the section above, the current ROP
includes policies that prohibit most sensitive
land uses from locating within Employment
Areas.
In recent years, land use compatibility
concerns have become more prevalent
during land use planning exercises and
through development applications where
sensitive land uses have been introduced
near major facilities, industrial uses or
commercial areas. Through the Urban
Systems Discussion Paper, the Region
received submissions related to the
separation of incompatible uses, as well as
the need to protect and buffer of
Employment Areas from other sensitive uses.
The current ROP generally implements
provincial policy requirements related to land
use compatibility by prohibiting most
sensitive land uses within Employment Areas.
However, additional policy updates to reflect
recent changes to provincial policy and to
provide direction on study requirements and
buffering techniques are required, and to
provide guidance where designations abut
and conflicts could occur.
49. Proposed Direction: Land Use
Compatibility
1. Buffer and separate sensitive uses from
incompatible uses and provide policies to
identify when and what type of studies
are required to demonstrate land use
compatibility as part of development
applications.
2. Identify on an appropriate Schedule to
the ROP the Automatic Action Zone
associated with the Pickering Nuclear
Generating Station and the Darlington
Nuclear Generating Stations.
3. Require area municipal official plans to
include policies that restrict sensitive
lands uses within the Automatic Action
Zone for Nuclear Generating Stations
and/or outline how the impacts of these
facilities will be considered through the
review of development applications
within the Automatic Action Zone,
including addressing how adequate
egress will be maintained in the case of
an emergency.
“Mixed Use Employment Areas”:
At its June 24, 2020 meeting, Regional
Council passed a motion “that staff be
directed to research and report back to
Council on a specific mixed-use land
Envision Durham | 90
designation”. Discussion by Council members
indicated a desire to better understand the
interface between residential and
employment uses, and if residential uses
could be added to certain Employment Areas
while still maintaining an employment
function and minimum number of jobs in a
“mixed-use” format. It was suggested that
such an approach would not be considered as
a true conversion from Employment Areas to
Living Areas but would instead represent a
new designation consisting of both
residential and employment uses as part of a
development, and could serve as a lens for
examining conversion requests.
Through Envision Durham, the Region has
received submissions that seek to introduce
residential uses within Employment Areas.
These submissions often propose the
combination of residential,
commercial/retail, and employment
generators such as office and other
compatible employment uses and are often
characterized by their proponents as
appropriate mixed-use development. The
following is provided within the context of
provincial and regional policy.
Employment Areas are defined in provincial
policy as “Areas designated in an official plan
for clusters of business and economic
activities including, but not limited to,
manufacturing, warehousing, offices, and
associated retail and ancillary facilities”. The
Growth Plan requires the Region to designate
Employment Areas in the ROP and protect
them for appropriate employment uses over
the long term. Both the PPS and Growth Plan
require the prohibition of residential uses
within designated Employment Areas, while
other sensitive uses that are not ancillary to
the primary employment use must also be
prohibited or limited. Therefore, any
introduction of residential uses into an
Employment Area, regardless of the number
of residential units proposed or the proposed
employment yield constitutes an
Employment Area conversion. Under both
provincial and regional policy, the addition of
residential uses is not permitted within
designated Employment Areas.
Regional and area municipal official plans
policies can impose policy requirements
through land use designations that influence
the form and function of development, such
as requirements for a certain number of jobs
or employment floor space to be created as
part of a mixed-use area. However, there are
no provincial policy safeguards that would
mandate that a mix of uses be provided once
the conversion has been granted. Although
policies may be included within Regional or
area municipal official plans, they would
remain open to challenge and subsequent
removal through future applications and/or
appeals. Accordingly, there would be no
provincial policy safeguard to prevent the
removal any such locally imposed policy
requirements.
It should be noted that there are current
designations within the ROP that provide for
higher density mixed use development,
including Urban Growth Centres, Regional
Centres, Regional Corridors (within an
underlying Living Areas designation),
Waterfront Places, as well as enabling
provisions for local Centres and local
Corridors.
Employment Area conversion requests will be
evaluated consistent with the criteria that
91 | Envision Durham
were endorsed by Regional Council and will
form part of the Land Needs Assessment
exercise.
Employment Area Conversion:
Employment Area conversion generally refers
to the re-designation of Employment Area
lands to a ‘non-employment’ use, or to
permit additional uses which would
otherwise not be permitted. In many cases,
conversion requests often seek to introduce
residential or other prohibited sensitive land
uses into designated Employment Areas.
Provincial policy allows the consideration of
Employment Area conversion as part of a
Municipal Comprehensive Review. It also
outlines the conditions and criteria that must
be met in order to consider a conversion,
which includes the following:
• there is a need for the conversion;
• the lands are not required over the
horizon of the Growth Plan for the
employment purposes for which they are
designated;
• the municipality will maintain sufficient
employment lands to accommodate
forecasted employment growth to the
horizon of the Growth Plan;
• the proposed uses would not adversely
affect the overall viability of the
employment area or the achievement of
the minimum intensification and density
targets in the Growth Plan, as well as the
other policies of the Growth Plan; and
• there are existing or planned
infrastructure and public service facilities
to accommodate the proposed uses.
To assist in the development of local criteria
when considering Employment Area
Conversion requests, the Urban System
Discussion Paper posed a related discussion
question (#14): “Are there other criteria that
should be considered when evaluating
Employment Area conversions?”. Responses
varied, including some comments that the
minimum criteria contained in the Growth
Plan are sufficient. Most submissions,
however, identified additional criteria that
should be added as part of the Region’s
review, such as criteria to weigh the
retention of jobs as part of the conversion,
that parcel size, location, and proximity to
400 series highways and other goods
movement be evaluated, and that land use
compatibility be considered.
To provide a transparent process for the
consideration of Employment Area
conversion requests, the Region formalized
its evaluation process, criteria, and
submission requirements, as described in
Report #2020-P-11. As of February 1, 2021, a
total of 47 Employment Area conversion
requests representing approximately 780
hectares of land had been submitted to the
Region (see Appendix B).
50. Proposed Direction: Employment Area
Conversion
1. Report back to Council on recommended
Employment Area Conversions upon
completion of the review and analysis,
and receipt of area municipal positions,
as a component of the Land Needs
Assessment.
Envision Durham | 92
Brownfields and Site Contamination
Brownfield sites are undeveloped or
previously developed properties that may be
contaminated. They are usually, but not
exclusively, former industrial or commercial
properties that may be underutilized,
derelict, or vacant.
Greyfield sites are in most cases previously
developed commercial properties that are
now underutilized and/or derelict, but that
are generally not contaminated. Comments
received through the Urban System
Discussion Paper requested that the Region
examine and update brownfield and greyfield
related ROP policies.
The current ROP supports and promotes the
rejuvenation and redevelopment of
brownfield sites and regeneration areas.
However, to ensure that brownfield sites are
safe for both humans and the environment,
the ROP requires applications for
development and redevelopment to be
screened for known or suspected
contamination. In addition, the ROP requires
area municipalities to include policies in their
Plans to ensure matters of site contamination
are adequately addressed.
The ROP’s site contamination policies are
implemented through the Region’s Site
Contamination Protocol, which is under
review at this time. The current Protocol
requires development proponents to
complete and submit a Site Screening
Questionnaire (SSQ) which may lead to
additional environmental studies and
remediation work to ensure the site is
suitable for a sensitive use (i.e. residential).
The objective of reviewing the Protocol is to
streamline efficiencies and manage Regional
risk by ensuring the protection of human
health and the environment, while also
incorporating any new provincial
requirements and/or industry best practices.
Policy refinements are required to implement
provincial policies that emphasize the re-use
of brownfield and greyfield sites, particularly
through intensification and redevelopment.
The new ROP will reflect the outcome of the
review of the Protocol.
51. Proposed Direction: Brownfields and Site
Contamination
1. Encourage the redevelopment of
brownfield sites and greyfield sites and
prioritize the redevelopment of
brownfield and greyfield sites within
Strategic Growth Areas and other
intensification areas.
2. Incorporate terminology and references
to the Region’s Site Contamination
Protocol (pending the completion of the
Region’s review).
3. Require any necessary documentation to
implement the Region’s Protocol,
including a signed Site Screening
Questionnaire (SSQ), as a requirement for
a complete application.
Settlement Area Boundary Expansion
As required by provincial policy, the current
ROP only allows Settlement Area Boundary
Expansions to occur through a
comprehensive review process. The Growth
Plan also affirms that Settlement Area
Boundary Expansions should occur through
an MCR, with some policy exceptions that
93 | Envision Durham
make it possible for minor adjustments or
limited expansions to settlement area
boundaries outside of an MCR, subject to
certain criteria.
Growth Plan policy 2.2.8 outlines an
extensive list of requirements that must be
met when considering Settlement Area
Boundary Expansion. These requirements
involve both justifying the need for the
expansion by conducting a land budgeting
exercise and by also demonstrating that the
expansion is technically feasible. The Growth
Plan outlines the various elements when
assessing the feasibility of a Settlement Area
Boundary Expansion, including financing
implications for the required servicing and
infrastructure, impacts on natural heritage
system and features, impacts on the water
resource system and features, impacts on
prime agricultural areas, limited expansion
potential for areas within the Greenbelt Plan
Area, as well as others (see Appendix C).
Policy 7.3.11 of the current ROP outlines the
list of criteria when considering Settlement
Area Boundary Expansion. Many of these
criteria should be maintained in the ROP,
however, changes to the PPS and Growth
Plan require that certain criteria be updated
to conform with provincial policy. These
updates includes increasing the minimum
land supply from 10 to 15 years and
extending the maximum time horizon from
20 years to 2051. Criteria for Settlement Area
Boundary Expansion should also make
reference to the Agricultural System and agri-
food network, agricultural impact
assessment, limited potential within the
Greenbelt Plan Area, public service facilities,
stormwater management, key hydrologic
areas, and Natural Heritage System mapping.
To inform the Region’s evaluation of
Settlement Boundary Expansion Requests,
the Urban System Discussion Paper posed a
related discussion question (#13): “Are there
any other criteria that should be considered
when evaluating Settlement Area Boundary
Expansions?”. Overall, the responses
indicated that the requirements contained in
Growth Plan were sufficient and, in many
cases, confirmed the importance of certain
provincial requirements such as protecting
agricultural land, the availability of existing or
planned services, and environmental
protection. Comments were also received
suggesting the Region consider the
contiguity/proximity of proposed expansions
to existing Urban Boundaries, prioritizing
proposals that minimize the cost to provide
infrastructure and public service facilities,
and climate change adaptation/mitigation.
Appendix C summarizes the extensive list of
Settlement Area Boundary Expansion
evaluation criteria that are contained in the
Growth Plan, Regional Official Plan, as well as
additional enhancements/considerations that
are recommended and reflected in the
proposed policy directions.
The Region has received requests for
Settlement Area Boundary Expansion on an
on-going basis since the initiation of Envision
Durham. As of February 1, 2021, a total of 38
Settlement Area Boundary Expansion
requests, representing approximately 2,670
hectares of land had been submitted to the
Region (see Appendix D).
Settlement Area Boundary Expansion
submissions received to date includes
requests to extend the Urban Area Boundary,
as well as requests to expand or “round out”
Envision Durham | 94
rural settlement boundaries (hamlets)
located in the Rural System. In several
instances, the request to expand a hamlet
boundary relates to previous deferrals to
area municipal official plan exercises which
considered the “rounding out” of hamlet
boundaries. It is noted that the Greenbelt
Plan (2017) no longer permits the minor
rounding out of hamlet boundaries. Further,
the Region has received an interpretation
from Ministry of Municipal Affairs and
Housing staff, the planning approval
authority for the Regional Official Plan, that
the transition rules of the Greenbelt Act,
2005 have not changed in this regard, and as
such, further decisions on minor rounding
out, regardless of whether the matter is
deferred or appealed, would be subject to
the Greenbelt Plan (2017), which no longer
permits the minor rounding out of hamlets.
The completion of the LNA will determine if
and how much new urban land is required to
accommodate the Region’s 2051 growth
forecast. Should a determination be made
that additional land is required, the GMS will
proceed to Phase Two to determine the most
appropriate location for Settlement Area
Boundary Expansion.
52. Proposed Direction: Settlement Area
Boundary Expansion
1. Consider Settlement Area Boundary
Expansions in Phase Two of the Growth
Management Study, after the completion
of the Land Needs Assessment and if it
has been determined additional urban
land is required to accommodate the
2051 growth forecast.
2. Recommend the most appropriate
location(s) for Settlement Area Boundary
Expansion based on the criteria within
Appendix C, which includes section 2.2.8
of the Growth Plan and policy 7.3.11 of
the ROP, and the following additional
criteria:
a) that the proposed Settlement Area
Boundary Expansion represent a
contiguous, orderly, and logical
expansion to the existing Settlement
Area Boundary;
b) that the proposed Settlement Area
Boundary Expansion be in proximity to
existing or planned transit and active
transportation infrastructure;
c) that the proposed Settlement Area
Boundary Expansion minimize the need
to expand or extend public
infrastructure; and
d) that the proposed Settlement Area
Boundary Expansion contribute to
context-appropriate population and
employment growth that considers
balance and distribution across the
Region.
3. Establish a 90-day submission window
that closes on May 31, 2021 to allow
proponents to submit any new requests
for Settlement Area Boundary
Expansion, or for those with existing
requests, allow the opportunity update
their requests to respond/address these
criteria.
4. Ensure that future urban area boundary
expansion criteria within the new ROP be
consistent with requirements Growth
Plan policy 2.2.8.3.
95 | Envision Durham
5. Factor climate change mitigation and
adaptation into Settlement Boundary
Expansion recommendations, including:
a) That any Settlement Area Boundary
Expansion be contingent upon the
existence/completion of Watershed
Plan(s) that incorporates climate
change mitigation and adaptation
policies, and that Settlement Area
Boundary Expansion be required to
implement the recommendations of
any such Watershed Plan policies.
b) That any Settlement Area Boundary
Expansion provide protection and
improvement of the water resource
system and natural heritage system and
related features, including features that
sequester carbon, and that policies be
included requiring more detailed
policies and implementation
approaches as part of area municipal
official plans and Secondary Plans.
c) Require Settlement Area Boundary
Expansion to achieve a mix of uses at
densities and configurations that are
supportive of renewable and
alternative (low or zero carbon) energy
systems and that incorporate measures
and policies to support active
transportation and transit supportive
development. A policy will be included
which requires more detailed policies
be provided in area municipal official
plans and Secondary Plans.
6. In accordance with provincial policy,
Settlement Area Boundary Expansion
requests and outstanding deferrals that
propose the minor rounding
out/expansion to hamlet boundaries
located within the Greenbelt Plan Area
cannot be considered.
Secondary Plan Considerations
Greenfield development often involves larger
tracts of land and proceeds through planning
processes that include Secondary Plans and
background studies, such as Master
Environmental Servicing Plans, watershed
plans and/or sub-watershed plans, and other
associated studies and plans.
PPS policy 1.1.3.7 also allows municipalities
to implement phasing policies to ensure that
targets are achieved, and infrastructure and
public services are provided in a timely
manner to meet current and projected
needs. Growth Plan policy 2.2.8.c) allows for
Settlement Area Boundary Expansions only if
the timing and phasing of development
within the Designated Greenfield Area will
not adversely impact the achievement of
minimum intensification and density targets.
The current ROP specifies that the Region
may only consider amendments to an area
municipal official plans to designate a supply
of land for development, including expansion
to urban area boundaries, provided that the
amendment satisfy various criteria including
a phasing strategy for the urban area through
Secondary Plans in Greenfield Areas and an
intensification strategy in Built-Up Areas.
Furthermore, development of Greenfield
Areas that are greater than approximately 20
hectares shall only proceed within an
approved Secondary Plan, and policy
7.3.14.c) requires that Secondary Plans
consider sequential and orderly
development. The current ROP is in
conformity with provincial policy regarding
Envision Durham | 96
phasing strategies and does not need to be
updated substantially in this regard.
Other considerations for the preparation of
Secondary Plans required by the current ROP
include an assessment of how new growth
will affect the natural environment including
key natural heritage features and/or
hydrologic features. Secondary Plans should
also assess the need for area municipal
services and facilities required to support
development.
The Growth Plan now requires that
Secondary Plans for large-scale development
be supported by a stormwater management
plan and a subwatershed plan or equivalents.
Secondary Plans should also implement the
Growth Plan minimum density targets,
establish permitted uses, identify densities,
heights, and other elements of site design.
Policies are required in the new ROP to
include a requirement for a stormwater
management plan and a subwatershed plan
or equivalents to support Secondary Plans.
53. Proposed Direction: Secondary Plan
Considerations
1. Require consideration of a stormwater
management plan and a subwatershed
plan or equivalent to inform and support
area municipal Secondary Plan exercises.
2. Require policies that consider low carbon
energy systems and other measures as
part of Secondary Plans for new
communities to demonstrate how they
may achieve net-zero/net-zero ready
energy performance.
97 | Envision Durham
Thriving Rural System
The current Rural System comprises 84 per
cent of the region’s land base and houses
approximately eight per cent of Durham’s
population (54,000 residents). With almost
300,000 acres of Durham in production,
agriculture is one of the largest primary
goods producing sectors within the Region.
Most of the rural area is planned for
agricultural and open space uses,
interspersed with rural settlements.
The land use designations that make up the
current Rural System are:
• Prime Agricultural Areas: consists of
areas where prime agricultural lands
predominate. They also include areas of
lesser agricultural significance and
additional areas where there is a local
concentration of farms which exhibit
characteristics of ongoing agriculture.
Agricultural areas are used primarily for
agriculture and related uses.
• Rural Settlements: consists of existing
Hamlets, Country Residential
Subdivisions, Shoreline Residential Areas,
Rural Employment Areas, as well as
residential clusters and four hectare lots.
• Regional Nodes: are currently identified
as Kirby Ski Area (now Mount
Brimacombe) and Mosport Park (now
Canadian Tire Motorsports Park). The
development of these Nodes is intended
to complement the goals of the Plan and
where applicable, conform provincial
policy. New Regional Nodes are not
permitted.
• Aggregate Resource Extraction Areas:
are identified in the current ROP with
policies to ensure the orderly and
efficient extraction of aggregate
resources that minimizes social and
environmental impacts.
To implement provincial direction, including
the addition of a new Provincial Agricultural
System, the designations and symbology
used to identify the above noted Rural
System components (see Figure 12) will be
refined and, in some cases, removed. This
chapter outlines initial proposed policy
directions for a thriving Rural System
structure and policy framework.
Envision Durham | 98
Figure 12: Durham’s Rural System as currently designated in the Regional Official Plan.
99 | Envision Durham
Goals for a Thriving Rural System
The current ROP contains several goals for
the Rural System and its various components,
which cover a vast array of priorities and
desired outcomes, such as protecting and
maintaining agricultural land, support for the
role of rural settlements, specialized tourism
locations and aggregate extraction
opportunities.
To evaluate the effectiveness and relevance
of the existing Rural System goals, and to
inform future updates, the Agriculture and
Rural System Discussion Paper asked
discussion question #1: “Are the current
goals and directions for the Agricultural/Rural
System still relevant/appropriate?”.
Responses indicated the Rural System goals
should support the diversification of
agriculture uses, the Agricultural System and
climate change. Responses also suggested
the need to add consideration for
environmental stewardship and restoration
of land.
54. Proposed Direction: Goals for a Thriving
Rural System
That the existing goals for the Rural System
and its various components be replaced with
the following:
1. Establish a thriving Rural System that
supports rural businesses including
agriculture, aggregate extraction and
tourism.
2. Support the health and vitality of existing
Rural Settlements which serve the needs
of rural residents and area businesses.
3. Support a sustainable, diversified, and
productive Agricultural System.
4. Champion the wise-use and management
of resources.
5. Encourage land stewardship to enhance
natural heritage, protect drinking water
and support climate resiliency.
Provincial Agricultural System
The Region is in the process of incorporating
the Provincial Agricultural System. The
Agricultural System was mapped and issued
by the Province in 2018. It is comprised of a
group of inter-connected elements that
collectively create a viable, thriving
agricultural sector. The System has two
primary components:
• an agricultural land base comprised of
prime agricultural areas, including
specialty crop areas, and rural lands that
together create a continuous, productive
land base for agriculture; and
• an agri-food network, which includes
infrastructure, services and assets
important to the viability of the agri-food
sector.
The Provincial Agricultural System mapping is
being reviewed and refined by the Region
through Envision Durham. As part of this
work, the Agriculture and Rural Discussion
Paper asked question #7: “Are there any
additional considerations the Region should
have regard for in the refinement of the
Agricultural System Mapping?”. Comments
received through the Discussion Paper
indicated:
Envision Durham | 100
• support for the refinement process
outlined in the Discussion Paper;
• the importance of protecting
environmental features;
• divided feedback on the incorporation of
a new Rural Lands designation;
• consideration for supporting urban
agriculture;
• desire for early consultation and
involvement in the refinement process;
• concern over the expansion of prime
lands and resulting reduction of Major
Open Space Areas (MOSA) (reduced
flexibility of permitted uses); and
• site specific refinements.
These comments will be taken into
consideration as systems-based ROP mapping
is developed and refined through 2021 for
inclusion in the draft ROP.
Rural System
A review of the changes to provincial policy
and the Prime Agricultural Areas designation
in the ROP reveal a variety of changes are
warranted to broaden goals and policies that
would:
• permit a range of types, sizes and
intensities of agricultural uses;
• recognize normal farm practices;
• recognize the agri-food network;
• reference provincial guidance where
appropriate;
• discourage non-agricultural uses in prime
agricultural areas;
• further address compatibility by requiring
Agricultural Impact Assessments (AIAs)
where appropriate and necessary; and
• updates to reflect flexibility for farmers,
including to eliminate the requirement
for agricultural products to be sourced
from the farm unit upon which a farm
stand is situated.
Comments received through the Agriculture
and Rural System Discussion Paper indicated
that area municipalities find it challenging to
manage the scale (i.e. size) of some on-farm
diversified uses, as well as ensuring these
uses remain secondary to the primary
agricultural function of the property.
Additional challenges arise when related uses
generate increased traffic, noise, and other
impacts to adjacent agricultural operations
and rural residences. Other submissions
requested more clarity about the types of
uses permitted in the rural area.
As a result, proposed policy directions are
intended to provide support and direction for
how these uses should align with provincial
guidelines that provide recommendations for
approaches to minimize the impacts of these
uses to nearby properties and community
infrastructure (e.g. roads and servicing).
The new ROP will provide more clarity
regarding permitted uses in the Rural System
by developing a Rural Lands designation. This
designation will be comprised of lands
removed from the MOSA designation,
consisting of lower quality soils and areas
without environmentally significant features.
This designation will be consistent with the
rural classification used by provincial plans.
Permitted uses will include non-agricultural
101 | Envision Durham
(e.g. cemeteries) and major recreation (e.g.
golf courses).
55. Proposed Direction: Rural System
1. Promote and protect a full range of
agricultural, agriculture-related and on-
farm diversified uses as permitted, based
on provincial Guidelines on Permitted
Uses in Ontario’s Prime Agricultural
Areas. Incorporating the guidelines will
provide clarity, increase consistency of its
application and confirm support for the
wide range of permitted uses in the rural
area. Subject to criteria (e.g. servicing),
the Region supports the diversity and
economic prosperity of the agricultural
sector in Durham. This increased policy
support will confirm the range of
permitted agriculture-related uses,
including farm equipment repair shops,
produce processing and grain dryer farm
operations (if the produce/grain is from
the area). This clarification will also be
extended to on-farm diversified uses such
as agri-tourism (e.g. corn maze), café and
value-added uses (e.g. winery, bakery).
2. Ensure agriculture-related uses and on-
farm diversified uses are compatible with
and will not hinder surrounding
agricultural operations.
3. Require the use is appropriate based on
available rural services (e.g., do not
require the level of road access, water
and wastewater servicing, utilities, fire
protection and other public services
typically found in settlement areas).
4. Ensure that on-farm diversified uses are
clearly secondary to the principal
agricultural use of the property.
5. As outlined in the Guidelines on
Permitted Uses in Ontario’s Prime
Agricultural Areas, manage the scale of
on-farm diversified uses by ensuring they
don’t occupy more than two per cent of
the property on which the uses are
located, to a maximum of one hectare.
6. Monitor the cumulative impact of on-
farm diversified uses throughout the
Region.
7. Require that area municipal official plans
include detailed policies to limit the scale
of on-farm diversified uses and address
their compatibility with surrounding uses.
8. Area municipalities are encouraged to
support the establishment of agriculture-
related and on-farm diversified proposals.
To assist with limiting scale, managing
land use compatibility and ensuring
appropriate servicing availability, these
applications shall be considered by
amendment to the applicable zoning by-
law.
9. Add the following definitions, based on
the PPS, for “agricultural uses”,
“agriculture-related uses”, “agri-tourism
uses”, “on-farm diversified uses” and
“agri-food network” as noted in the
Glossary (see Appendix A).
Cemeteries
Cemeteries are recognized as necessary
community facilities. The establishment of
new cemeteries or expansion of existing ones
are subject to local official plan amendment.
Within the current ROP, cemeteries are not
permitted in Prime Agricultural Areas and
may be considered in Major Open Space
Areas subject to the development criteria of
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ROP policies 10A.2.4 and 10A.2.5.
Furthermore, small-scale institutional uses
are permitted in Countryside lands on the
Oak Ridges Moraine.
The Region is best served to guide these uses
to Major Open Space Areas and then
assessing them on a case-by-case basis.
However, there is limited available Major
Open Space (rural lands) that can
accommodate the desired 40 hectares of
land desired by cemetery operators.
Likewise, it is cost-prohibitive to acquire
similar tracts of land within the Urban
System. As such, Prime Agricultural Areas are
increasingly being considered as being more
affordable and providing the size
requirements that are sought after by the
cemetery operators.
While provincial policy does not explicitly
prohibit cemeteries within Prime Agricultural
Areas, they are relegated to lower priority
areas within Prime Agriculture Areas and are
subject to applicants demonstrating that
alternative locations (outside of Prime
Agriculture) are not feasible. The existing
prohibition of cemetery uses within Prime
Agricultural Areas, and the need for an
amendment to the ROP to permit expansions
to existing cemeteries in Prime Agricultural
Areas are being further investigated through
the Agricultural System mapping exercise
currently underway.
Land constraints across the GTHA and abroad
have resulted in solutions to the challenge of
interring the dead by using a variety of
alternatives, including natural burials,
mausolea, columbaria, multiple-use
cemeteries, and the reuse of existing burial
sites.
Comments received through the Agriculture
and Rural System Discussion Paper and
information gathered through a literature
review suggest that cemetery planning
requires an approximate 30-year timeframe,
and that broader coordination for cemetery
planning is required.
56. Proposed Direction: Cemeteries
1. Through the review of applications for
new cemeteries or expansions to existing
cemeteries, promote the efficient use of
cemetery lands which may include
columbaria or mausolea and encourage
approaches that support site
stewardship.
2. Additional proposed policy directions be
considered through the exercise to
enable the new “Rural Lands” designation
(also see Provincial Agricultural System
section).
Minimum Distance Separation
Minimum Distance Separation (MDS)
Formulae was developed by the Province to
reduce incompatibility concerns stemming
from odour impacts from livestock facilities
through distance separation.
The current ROP requires compliance with
MDS for:
• municipal facilities in Prime Agricultural
Areas;
• new land uses and lot creation, and new
or expanding livestock facilities in Prime
Agricultural Areas;
• delineation of Hamlet boundaries;
103 | Envision Durham
• development of a country residential
subdivision;
• infill development within Rural Clusters;
• the development of non-agricultural uses
in Major Open Space Areas;
• zoning to permit the continuation,
expansion or enlargement of legally
existing uses; and
• for any proposal for development or site
alteration outside of urban areas and/or
within 500 metres of a livestock facility.
The Agriculture and Rural System Discussion
Paper asked discussion question #2: “Are
there aspects of Minimum Distance
Separation or other considerations that you
would like to see addressed in greater detail
in the ROP?”. The responses were supportive
of the Region maintaining a high-level
approach, allowing for flexibility of
implementation at the local level.
57. Proposed Direction: Minimum Distance
Separation
1. Maintain current high-level approach
regarding MDS compliance.
2. Add the following clause any time MDS is
referenced: “as amended by the Province
from time to time.”
Rural Settlements
Rural Settlements include Hamlets, Country
Residential Subdivisions, Shoreline
Residential Areas and Rural Employment
Areas that are currently designated on
Schedule A of the ROP (see Figure 12). Rural
Settlements also include residential clusters
and four hectare (10 acre) lots.
Comments related to Rural Settlements were
received through the Agriculture and Rural
System Discussion Paper; however, the
ongoing Growth Management Study will
inform the Region’s approach to future policy
directions related to Rural Settlements.
Comments indicated: concern for impacts to
agriculture areas if boundaries are expanded;
settlement areas should be the most
permissive for lot creation; and, some site-
specific matters requiring further study and
consultation. As noted in the Regional
Population and Employment Forecasts
section, through the Land Needs Assessment,
only a limited amount of growth will be
directed to Rural Settlements, the Greenbelt
Plan Area, and areas without municipal water
and wastewater systems as required by the
Growth Plan. Associated policies will be
included in the new ROP.
The new ROP will include delineated Rural
Settlement boundaries as shown in area
municipal OPs and through the MCR process,
staff intend to resolve Hamlet boundary
deferrals in these areas.
Edge Planning
The interface between urban and rural uses,
as well as the existing fragmentation of
agricultural land continue to be a concern.
Smaller parcels are more likely to be owned
by non-farm residents, resulting in more
urban people living in the rural area. This
encroachment causes land use compatibility
concerns such as: trespass (e.g. snowmobiles
on cropland); complaints about noise, odour
or dust; traffic safety (e.g. tractors sharing
the road with cars and bicycles); and,
violation of biosecurity protocols (e.g. people
coming onto the farm property).
Envision Durham | 104
The Agriculture and Rural System Discussion
Paper asked discussion question #3: “In what
ways do you believe the Region should
address land use conflicts arising between
urban and rural land uses?”. In a similar
manner to the Rural Settlement policy
directions, the ongoing Growth Management
Study will inform the Region’s approach to
future policy directions related to edge
planning. This approach will ensure any
boundary expansions are done with
consideration for the impacts to rural land
uses.
Specific Policy Areas
There are currently three Specific Policy
Areas that apply to the following unique
areas of the region:
• Specific Policy Area A – Duffins/Rouge
Agricultural Preserve and Seaton
(Pickering);
• Specific Policy Area B – St. Marys Cement
(Clarington); and
• Specific Policy Area C – Port Granby
(Clarington).
The Agriculture and Rural System Discussion
Paper asked discussion question #5: “Are
there additional areas we should consider
identifying as Specific Policy Areas?”.
Comments indicated support for keeping
these Specific Policy Areas and identified
minor changes to reflect updates since the
last ROP review that resulted in Regional
Official Plan Amendment 114. The current
ROP also contains policies instructing area
municipalities to incorporate policies for
these specific areas into their official plans.
Comments were submitted in support of
recognizing the Rouge National Urban Park
(RNUP) as a Specific Policy Area. The Rouge
National Urban Park is administered by Parks
Canada under the Rouge National Urban Park
Act, 2015. The vision for the park includes
linking Lake Ontario with the Oak Ridges
Moraine, providing for education and
preservation opportunities, supporting
agriculture within the park lands and
conducting research on ecosystem based
subjects. The management plan that governs
these federal lands has been implemented
since the last ROP review, and the park is in
proximity to existing Specific Policy Area A.
Given the unique land use and federal
jurisdiction of the RNUP, it is appropriate to
recognize the Park as a Specific Policy Area.
Comments related to the Duffins/Rouge
Agricultural Preserve and Seaton (SPA-A)
included adding support for the goals of the
Duffins/Rouge Agriculture Preserve as
articulated in section 5.5 of the Central
Pickering Development Plan. In addition, as
changes to the Pickering OP have been made
since the last update of the ROP, updates to
SPA-A will be necessary to reflect these
updates.
With respect to Port Granby (SPA-C),
comments requested the ROP support
changes made to the ongoing clean up
initiative and the intent to establish a nature
reserve on the surplus lands. The Port Granby
lands in Clarington are part of the
Government of Canada’s Port Hope Initiative
Area. The goal of this project is to clean up
historic, low level radiation on 95 hectares of
the 270 hectare site. A proposed direction
has been added to reflect the Ganaraska
Region Conservation Authority (GRCA)
105 | Envision Durham
stewardship plan and the proposed vision for
the site.
58. Proposed Direction: Specific Policy Areas
1. Ensure Specific Policy Area A reflects
updates to the City of Pickering OP.
2. Add support for the goals of the
Duffins/Rouge Agricultural Preserve.
3. Encourage the Canadian Nuclear Safety
Commission to support the establishment
of a nature reserve within Specific Policy
Area C.
4. Add the Rouge National Urban Park
(RNUP) as a new Specific Policy Area and
encourage land uses to be consistent with
the Greenbelt Plan, the RNUP
Management Plan and for adjacent land
uses (outside the park) to have
consideration for the RNUP.
Cannabis Cultivation and Processing
The Cannabis Act came into force in October
2018 and Health Canada is responsible for
administering licenses. Under the Cannabis
Act, provinces and territories may authorize
the distribution and sale of cannabis. On June
14, 2019, additional regulations under the
Cannabis Act came into force regarding
cannabis edibles, extracts and topicals.
Under Health Canada, there are two types of
growers permitted:
• Licensed: Federal license to cultivate,
process and sell cannabis for medical or
non-medical purposes
(commercial/pharmaceutical); and
• Designated: A grower who has been
“designated” to produce cannabis for an
individual(s) with a medical cannabis
prescription.
Licensed growers are subject to strict
protocols, including security and odour
abatement measures. Designated growers
are not subject to the same criteria, making
them harder to monitor.
Area municipalities have noted an increased
in the number of cannabis operations as a
result of recent legalization in Canada.
Although they are regulated federally, there
is no specific guidance for
cannabis/marijuana in provincial land use
policies. In consultation with the Ministry of
Agriculture, Food and Rural Affairs
(OMAFRA), cannabis is typically considered a
form of agriculture in a similar manner to
greenhouse horticulture, mushroom farms,
etc.
Although cannabis was legalized federally,
where and how cannabis should be
permitted becomes the responsibility of
single or lower tier levels of government. In
the absence of federal legislation or
provincial policy, municipalities are grappling
with how to manage land use conflicts and
other complexities associated with this use.
These proposed policy directions are
considering cannabis strictly from a land use
perspective, as cannabis sales are not within
the Region’s jurisdiction. Such land uses may
be considered as agricultural or agricultural-
related uses and permitted as of right within
prime agricultural areas, however, they also
pose unique challenges related to size and
Envision Durham | 106
scale of the processing operations, water
usage and proximity to residential uses.
The Agriculture and Rural Discussion Paper
asked question #6: “Is there criteria that
should be considered when siting “new”
types of agricultural-related and on-farm
diversified uses?”. Submissions were mostly
related to cannabis and included concerns
about:
• protecting the rural character from seeing
a surplus of industrial style buildings on
prime agricultural land;
• land use compatibility (e.g. light, odour,
traffic and the perception of crime);
• capping building size given the extensive
scale these operations may require;
• servicing needs/water availably (e.g.
indoor growing facilities can be very high
water users); and
• processing - what is agricultural-related
and what is large scale
industrial/commercial. (The Guidelines on
Permitted Uses in Ontario’s Prime
Agricultural Areas provide direction for
how to differentiate between these two
categories.)
To further understand this issue from a policy
perspective, Regional staff consulted with
OMAFRA who confirmed that cannabis
cultivation is considered a form of agriculture
(growing a crop). OMAFRA does not provide
formal recommendations for mitigation but
has observed that setback requirements
(through implementing zoning by-laws) have
been implemented at the single/lower tier
municipal level in other areas of the
province.
Cannabis cultivation and on-site processing
should be considered in accordance with
provincial plans (e.g. Greenbelt Plan) and the
Guidelines on Permitted Uses in Ontario’s
Prime Agricultural Areas. These documents
guide the appropriate location for this use
depending on the unique characteristics of
each proposal.
It is also appropriate that large-scale
cannabis processing facilities, which occupy
large buildings and have functional
characteristics similar to industrial operations
with high water needs, should be located in
Employment Areas.
In order to regulate the characteristics of
these uses within agricultural areas, there are
tools available to area municipalities
(including zoning by-laws to regulate building
heights and setbacks, site plan approval to
regulate the character of buildings and the
layout of the site, and nuisance by-laws that
can regulate lighting, odour and related
impacts).
Based on staff’s review, there are no
proposed policy directions related to
cannabis cultivation and processing.
However, the Region offers the following
guidance:
• in the rural area, cannabis is subject to
the same criteria as any other agriculture,
agriculture-related, or on-farm diversified
use;
• depending on scale, servicing
requirements and land-use compatibility,
the appropriate location for the use may
be in a rural (Major Open Space Areas) or
Employment Areas;
107 | Envision Durham
• high water uses/effluent generators
should be on full municipal services; and
• OMAFRA Guidelines on Permitted Uses in
Ontario’s Prime Agricultural Areas should
be consulted when determining the
appropriate location for a proposal.
Rural Lot Creation
Durham’s rural area supports a complex and
dynamic network of agriculture, on-farm
diversified, agriculture-related, and non-
agricultural uses. Lot creation has a history of
being a complex matter in Durham. In order
to support the economic viability of the rural
area, the Region strives to balance the needs
of today’s rural business and property
owners, with the long-term goals for the land
base.
From an agricultural industry perspective, lot
creation allows landowners to:
• avoid tenant/landlord issues;
• expand the farm operation by using the
revenue from the sale of a surplus
dwelling to purchase land and/or
equipment;
• allows for business, estate or retirement
planning;
• provides non-farm housing options in the
rural area; and
• for non-abutting surplus farm dwellings
specifically, the restrictive zoning on the
retained lands helps to moderate the cost
of agricultural parcels.
From a land use planning perspective, the
following represents some of the issues with
the creation of new lots in the rural area:
• creation of vacant (potentially
undersized) agricultural parcels, zoned to
prohibit the construction of a dwelling in
perpetuity;
• viability of the retained agricultural lands
(especially if undersized) if farming trends
change over time;
• lack of flexibility for future generations of
farmers;
• fragmentation of the agricultural land
base;
• Minimum Distance Separation (MDS)
setback requirements may prohibit the
expansion or construction of a livestock
barn on the retained lands;
• potential for land use conflicts through
the introduction of non-farm residents
into the rural area; and
• for non-abutting surplus farm dwellings
specifically, uncertainty around the long-
term effectiveness of zoning retained
parcels to restrict the construction of new
residential dwellings.
Evidence suggests there is a need for the
Region to continue to limit severances in
rural areas:
• an assessment of existing lot sizes has
shown significant fragmentation has
already occurred across the Region; and
• data has shown a correlation between
parcel size and how it is used. As parcel
size increases, so does the percentage of
parcels still being used for farming. On
the other hand, as parcel size decreases,
the number of properties being used for
farming decreasing. This correlation
demonstrates that smaller parcel sizes
Envision Durham | 108
are likely to be owned by or sold to non-
farmers.
The Agriculture and Rural System Discussion
Paper asked the following question (#8):
“Should the ROP be more or less restrictive in
terms of lot creation in the Rural Area? What
criteria should be considered?”. This topic
received a range of responses, from those
supporting more restrictive policies, to those
who would like to see less restrictive lot
creation policies. However, the majority
appreciated the complex implications of
permitting severances in the rural area and
were therefore supportive of more restrictive
lot creation policies. Some comments
recommended the removal of the Regional
Official Plan Amendment requirement for
non-abutting scenarios; however, staff have
determined this mechanism allows the
Region to assess the appropriateness of
these applications on a case-by-case basis.
Secondary Dwellings for Farm Help:
Secondary dwellings in the context of the
Rural System refers to housing
accommodation for farm help. The PPS
definition for an agricultural use includes
accommodation for full-time farm labour
when the size and nature of the operation
requires additional employment.
While the PPS permits accommodation for
farm help, the OMAFRA’s Guidelines on
Permitted Uses outline a best practice of
farmers to consider alternatives to building
new, separate, permanent dwellings.
Alternatives include a second unit within an
existing building on the farm; a temporary
structure, such as a trailer or other portable
dwelling unit, or an existing dwelling on
another parcel owned by the operator,
whether on a farm, in a nearby settlement
area, or on a rural lot.
59. Proposed Direction: Secondary Dwellings
for Farm Help
1. Clarify that the severance of secondary
dwellings (originally constructed to
accommodate farm help), regardless of
the date they were established, shall be
prohibited.
2. Clarify that secondary dwellings (for farm
help) are no longer required to be
temporary on the Oak Ridges Moraine.
On-Farm Diversified Uses:
Based on the PPS definition for an on-farm
diversified use, a wide variety of uses may
qualify, as long they meet the criteria
described in OMAFRA’s Guidelines on
Permitted Uses in Ontario’s Prime
Agricultural Areas. Such uses include home
occupations, home industries, agri-tourism
uses, and uses that produce value-added
agricultural products.
On-farm diversified uses are required to be
secondary to the principal agricultural use of
the property and limited in area. The
Guidelines offer a recommended area
calculation, including direction for these uses
to be limited to no more than two per cent of
the property, to a maximum of one hectare.
Severing agriculture-related uses has the
potential to further fragment the agricultural
land base. Background research, including an
assessment of existing farm parcels, has
shown a wide range of farm parcel sizes
109 | Envision Durham
already exists. There is insufficient
justification to warrant the creation of more.
60. Proposed Direction: On-Farm Diversified
Uses
1. Prohibit severances for agriculture-
related uses or on-farm diversified uses.
Parcels for Agricultural Uses:
An agricultural use includes the growing of
crops; raising of livestock; raising of other
animals; aquaculture; apiaries; agro-forestry;
maple syrup production; and associated on-
farm buildings and structures, including
livestock facilities, manure storages, value-
retaining facilities, and accommodation for
full-time farm labour.
Due to the level of existing fragmentation in
the rural area, large tracts of land should be
protected. Research has shown a correlation
between the size of the property and the
likelihood it will remain owned and operated
by a farmer. Smaller parcels are more likely
to be purchased by non-farm residents.
61. Proposed Direction: Parcels for
Agricultural Uses
1. Continue to prohibit the creation of
parcels of land for agricultural uses of less
than 40 hectares.
2. Clarify that parcels on the Oak Ridges
Moraine are subject to the same 40
hectare minimum severance
requirements.
Abutting Surplus Farm Dwellings:
As noted above, lot creation in prime
agricultural areas is discouraged and may
only be permitted in limited circumstances.
Subject to criteria, the severance of a
residence surplus to a farming operation, as a
result of farm consolidation, may be
considered.
In Durham, when the parcels abut (i.e.
touch/neighbour) one another, they are
referred to as “abutting surplus farm dwelling
severances” and considered by the Land
Division Committee as an application for a lot
line adjustment. The process does not result
in the creation of a vacant lot or increase the
number of lots. These applications also
require an area municipal zoning by-law
amendment to prohibit any further
severances and/or the establishment of a
new/additional residential dwelling. A
Regional Official Plan Amendment is not
required for these applications.
Figure 13 illustrates a common abutting
surplus farm dwelling severance application.
The applicant owns farm parcel ‘B’, which
contains a farm dwelling and is acquiring
farm parcel ‘A’, which also contains a farm
dwelling. The farmer does not need both
dwellings, rendering the second one
“surplus” to their needs.
Envision Durham | 110
Figure 13: Abutting surplus farm dwelling severance.
62. Proposed Direction: Abutting Surplus
Farm Dwellings
1. Clarify that in circumstances where a
farm operation owns two or more
abutting farm parcels and are seeking a
severance, they shall be required to
merge (no net increase in the number of
lots).
Non-Abutting Surplus Farm Dwellings:
In Durham, when the parcels do not abut (i.e.
not touching or neighbouring one another),
they are referred to as “non-abutting surplus
farm dwelling severances” and considered by
an amendment to the ROP. This application
results in an increase in the number of total
lots in the rural area, and also produces a
vacant farm parcel which cannot have a
dwelling on it in perpetuity.
Some area municipalities require a local
official plan amendment for these proposals.
A zoning bylaw amendment is also required
to prohibit any further severances and the
establishment of any new/additional
residential dwelling.
Figure 14 illustrates a common non-abutting
surplus farm dwelling severance application.
The applicant owns the “non-abutting”
parcels outlined in yellow, many of which
already contain dwellings. They are now
acquiring the subject parcel (solid yellow),
which also contains a dwelling. The farmer
does not need this dwelling, rendering it
“surplus” to their needs. The resulting parcel
no longer contains a dwelling and will be
zoned to prohibit one from being constructed
in perpetuity.
Figure 14: Non-abutting surplus farm dwelling
severance.
63. Proposed Direction: Non-Abutting
Surplus Farm Dwellings
1. Include the following additional
conditions for approval of a non-abutting
farm severance:
a) the applicant is a bona-fide farmer;
111 | Envision Durham
b) farm consolidation shall have been
completed prior to the time of
application;
c) the maximum size of the surplus
dwelling lot shall be the size required
for private servicing, minimizing to the
extent possible, the amount of land
taken out of agricultural production;
d) the shape and dimensions of the
surplus farm dwelling lot shall:
i.) not impede agricultural operations
on the retained land; and
ii.) generally not exceed a certain
depth (i.e. 122 metres (400 feet)).
e) to discourage fragmentation, a
cumulative total of one severance is
permitted for each lot. All consents
granted on or after the approval of the
first ROP (1978) are to be included in
the calculation of the cumulative total.
2. Investigate the delegation of planning
approvals for non-abutting surplus farm
dwelling severances to the Commissioner
of Planning and Economic Development.
3. Add a definition for “bona-fide farmer” as
noted in the Glossary (see Appendix A).
Regional Nodes
This policy is a historic carryover from
Regional Official Plan Amendment (ROPA)
114. Prior to ROPA 114, the ROP contained
urban and rural nodes, but through this ROPA
114 process urban nodes were removed, and
the “Cullen Gardens” node was removed due
to its closure. As a result, only two Regional
Nodes remain, both of which are in the rural
area. The current ROP continues to identify
Regional Nodes at the Kirby Ski Area (now
known as Brimacombe) and Mosport Park
(now known as Canadian Tire Motorsport
Park).
The Agriculture and Rural System Discussion
Paper asked question #9: “Is there value in
continuing to identify Regional nodes in the
ROP? If so, what Regional Nodes, (or areas
exhibiting these characteristics), should be
considered?”. Responses were focused on
retaining the policy as written, with minor
updates. Through ROPA 114, it was
determined that no new nodes would be
considered, that certain nodes would be
removed (as noted above) and that the two
remaining nodes were to be grandfathered. It
was determined that urban nodes were not
needed, as such uses were permitted in
urban areas. Rural nodes were determined to
cause concerns due to potential land use
compatibility issues, as such it was
determined that no new nodes be
considered. Current proposed direction is
consistent with that approach.
64. Proposed Direction: Regional Nodes
1. Update the names of the existing
Regional Nodes.
2. Clarify that existing Nodes will continue
to be recognized, but that no new
Regional Nodes will be introduced to the
ROP.
Aggregate Resource Extraction Areas
Aggregate resources, such as sand, gravel,
bedrock, and clay, are used for road building
and construction. Durham contains
Envision Durham | 112
significant aggregate resources with most
aggregate resources concentrated in
Uxbridge, Scugog, Brock, and north
Clarington, coincident with the Oak Ridges
Moraine.
Changes to this policy section are being
proposed to conform with provincial plans. In
addition, there were comments received
through the Agriculture and Rural System
and Environment and Greenlands System
Discussion Papers, primarily related to the
levy breakdown and rehabilitation plans. The
Aggregate levy is a fee of 20.6 cents per
tonne of material extracted which is paid by
the aggregate operator to the Ontario
Aggregate Resources Corporation, who then
distribute the levy accordingly. Of this fee, 15
per cent is allocated to Durham Region as the
upper-tier municipality. The fee is governed
by Regulation 244/07 of the Aggregate
Resources Act. Levies are dictated by the
Aggregate Resources Act and fall outside the
scope of Envision Durham.
The following changes to the PPS were
examined as part of this review. Relevant
changes related to PPS conformity were
incorporated into proposed policy directions:
• identifying mineral aggregates, minerals
and petroleum through official plan
mapping;
• conserving mineral aggregate resources;
• rehabilitating aggregate extraction sites
in agricultural areas;
• regulating of the depth of extraction;
• promoting accessory aggregate recycling
facilities at extraction sites;
• encouraging comprehensive
rehabilitation planning where there is a
concentration of mineral aggregate
operations; and
• requiring rehabilitation to mitigate
negative impacts to the extent possible.
In addition to changes to the PPS, the
following changes were made to the Growth
Plan as it relates to aggregate resources.
Relevant changes related to Growth Plan
conformity were incorporated into proposed
policy directions:
• promotion of aggregate recycling and
conservation;
• aggregate siting policies related to the
new Growth Plan Natural Heritage
System;
• requirement for an Agricultural Impact
Assessment; and
• new rehabilitation standards.
Lastly, the following changes were made to
the Greenbelt Plan as it relates to aggregate
resources. Relevant changes related to
Greenbelt Plan conformity were also
incorporated into the following proposed
policy directions:
• addition of an Agricultural Impact
Assessment as a requirement for new
applications; and
• increased rehabilitation standards, with a
focus on agricultural rehabilitation.
Additionally, the Ontario Ministry of Natural
Resources and Forestry has launched a
website Pits and Quarries Online, which is a
searchable database of aggregate licenses in
the province. The database provides basic
site information and a map with the licensed
boundaries. Schedule E1 of the current ROP
113 | Envision Durham
presents the same information for licensed
aggregate sites in the region.
65. Proposed Direction: Aggregate Resource
Extraction Areas
1. Identify mineral aggregates, minerals and
petroleum resources through ROP
mapping.
2. Require the conservation and recycling of
mineral aggregate resources where
feasible.
3. Enhance aggregate resource
rehabilitation requirements, including
that Agricultural Impact Assessments, to
require rehabilitation back to an
agricultural condition for sites in Prime
Agricultural Areas and incorporating
relevant Greenbelt Plan rehabilitation
policies.
4. Reference the new Pits and Quarries
online resource in addition to identifying
licensed aggregate sites within ROP
mapping.
Envision Durham | 114
Protected Greenlands
System
The ROP establishes a Greenlands System
which makes up approximately 40 per cent of
the region’s land base, and weaves through
both the Urban and Rural Systems. It
contains areas with the highest
concentrations of sensitive and/or significant
natural features and functions, agricultural
and rural lands. Policies of the Greenlands
System aim to support environmental
protection and conservation, major
recreational uses, protection of waterfronts,
and rural and agricultural uses.
The land use designations that make up the
Greenlands System in the current ROP are:
• Major Open Space Areas: a continuous
system of open space lands in the urban
and rural areas that contain key natural
heritage and hydrologic features, prime
agricultural lands as well as lands of lesser
agricultural significance.
• Oak Ridges Moraine Areas: an area of
significant ecological and hydrological
significance that provides for clean and
abundant water resources, diverse plant
and animal habitat, an attractive
landscape and prime agricultural areas
and aggregate resources. Development
on the Oak Ridges Moraine is governed
by the Oak Ridges Moraine Conservation
Plan.
• Waterfront Areas: includes the
waterfronts of Lake Ontario, Lake Simcoe
and Lake Scugog which are intended to
be used for outdoor recreation and
function to protect significant natural
areas.
• Tourist Activity/Recreation Nodes:
specific nodes along the above noted
“Waterfront Areas” that are identified as
important to recreation and tourism and
are permitted to develop in this regard.
• Open Space Linkages: areas that provide
for the migration of flora and fauna, as
well as pedestrians between components
of the Greenlands System.
• Waterfront Linkages: are routes adjacent
to large facilities that connect the public
to the waterfront.
To implement provincial direction to
establish a regional natural heritage system
and agricultural system mapping into the
ROP, the Greenlands System designations
noted above are being examined and
updated. This chapter provides initial
proposed policy directions for a protected
Greenlands System structure and policy
framework.
115 | Envision Durham
Figure 15: Durham’s existing Greenlands System as designated in the Regional Official Plan.
Envision Durham | 116
Goals for a Protected Greenlands
System
The current ROP includes two policy sections
that apply to the natural environment:
• Section 2: Environment outlines basic
directions for the natural, built, and
cultural environments in the region; and
• Section 10: Greenlands System identifies
the structural components and associated
policies of the Greenlands System,
including specific policies for key natural
heritage features and areas.
Existing Environment goals focus on
preservation, conservation and enhancement
of the natural environment, minimizing
pollution of air, water and land resources and
community planning that preserves cultural
heritage resources and enhances public
health and safety. Greenlands System goals
speak to establishing a Greenlands System,
protecting significant habitats, providing for
recreational opportunities and protecting the
Oak Ridges Moraine and the region’s
waterfronts. Merging key components of
these two sections into one chapter in the
new ROP, reinforces the strategic direction of
a “Protected Greenlands System”. This
approach is intended to improve navigation
of the ROP and highlight the natural
environment as a critical component of the
regional structure.
Question #1 from the Environment and
Greenlands Discussion Paper asked, “Are the
current goals for the Environment and
Greenlands System still
relevant/appropriate?”. Responses indicate
that the existing goals are still appropriate
with suggestions to add themes of
restoration, climate change, ecological goods
and services, and no net loss. Under the new
ROP framework, many of the existing goals
will be retained as objectives, and the
additional themes identified through
feedback will be integrated into subsections
of the Protected Greenlands System chapter.
The following overarching goals are intended
to support a Protected Greenlands System
for the region.
66. Proposed Direction: Goals for a
Protected Greenlands System
That the existing Environment and
Greenlands System goals be replaced with
the following:
1. Establish a protected Greenlands System
that conserves, protects and enhances
water and land resources for present and
future generations.
2. Protect, restore and enhance an
interconnected Natural Heritage System
and Water Resources System across the
region.
Traditional Ecological Knowledge
In recent years, Traditional Ecological
Knowledge (TEK) has served as a key source
of information for understanding the impacts
of a changing climate. Research suggests that
the recognition of Indigenous, local, and
traditional knowledge systems has improved
management of ecosystems, natural
117 | Envision Durham
resources, and biodiversity.9 The notion of
incorporating TEK into the land use decisions
serves to add an extra social dimension to
planning from a socio-ecological perspective,
and its recognition by municipalities within
policy development processes is growing in
prominence.10 TEK is defined as knowledge
and values which have been acquired
through experience, observation, from the
land or from spiritual teachings, and handed
down from one generation to another.11
Question #6 of the Environment and
Greenlands Discussion Paper asked, “How
can the ROP support the consideration of
Traditional Ecological Knowledge in land use
decisions?”. Responses showed strong
support for TEK policies in the ROP related to
consultation with Indigenous communities
and incorporating Indigenous history and
knowledge into the decision-making process
for natural heritage planning.
Provincial direction does not require the
incorporation of policies on TEK but does
require coordination with Indigenous
communities to ensure meaningful
opportunities for engagement in the planning
process. The current ROP does not currently
address TEK or Indigenous engagement,
however proposed policy directions include
Indigenous consultation as a key objective
(see Public Consultation and Engagement
section). In addition to general engagement
policies, there is an opportunity to introduce
9 Markkula, I., Turunen, M. T., and Kantola, S. (2019).
Traditional and local knowledge in land use planning:
insights into the use of the Akwé: Kon Guidelines in
Eanodat, Finnish Sápmi. Ecology and Society, Mar
2019, Vol. 24, No. 1. Resilience Alliance.
<https://www.jstor.org/stable/26796911>
policy language to acknowledge TEK in
developing our understanding on the
importance of achieving a protected
Greenlands System that includes indigenous
knowledge.
Other jurisdictions have incorporated policy
language that ties Indigenous engagement
with archaeological resources. Regional staff
are developing updated cultural heritage and
archaeological resources direction that will
be included in the new ROP.
67. Proposed Direction: Traditional
Ecological Knowledge
1. Encourage consideration of Indigenous
history and presence in the design of
communities in the review of
development applications.
2. Recognize Traditional Ecological
Knowledge as a key input in
understanding sites and ecological
features and in assessing cumulative
impacts through the review of secondary
plans and development applications.
3. Add a definition for “Traditional
Ecological Knowledge” as noted in the
Glossary (see Appendix A).
Natural Heritage System
The PPS requires the establishment of a
natural heritage system (NHS) that includes
10 Ibid.
11 Deh Cho Land Use Planning Committee, Northwest
Territories (2003). Traditional Knowledge Policy.
<http://reviewboard.ca/upload/ref_library/Dehcho_tk
_policy.pdf>
Envision Durham | 118
key natural heritage features and areas and
the connections between them. In addition
to satisfying provincial conformity
requirements, a systems-based approach
reflects best practices in natural heritage
planning because it recognizes the critical
role that linkages between features play in
establishing and maintaining ecological
integrity.
The current ROP employs a features-based
approach to protecting the natural
environment. Current ROP policies recognize
that connections between features are
important, and policy protections are
provided at the features level. A Regional
NHS is in the process of being studied, that
once completed is intended to be included in
the new ROP.
Most area municipalities in the region have
established their own NHS. In some cases,
they have adopted conservation authority
systems datasets, while others have refined
their own system – based on both the
conservation authority systems and/or
utilizing their own, additional data sources.
Recognizing the two-tier municipal system in
Durham, discussion question #14 of the
Environment and Greenlands Discussion
Paper asked, “How should the Region best
protect the natural heritage system, features
and areas in the ROP (overlay, designation,
level of detail)?”. Responses to this question
were clear in their support for a systems-
based approach, but less definitive about
whether this system should be administered
as an overlay to another land use
designation, or land use designation in itself.
The Region is proposing a that the Natural
Heritage Systems be included as an “overlay”
to the underlying land use designation
comprised of the Greenbelt NHS and Natural
Core and Natural Linkage Areas of the
ORMCP and would apply outside of the urban
area boundary. Within the urban area
boundary, a combination of conservation
authority, area municipal and updated
features mapping would be used. This
approach meets the requirements of
provincial planning direction and continues
to maintain strong protections for key natural
heritage features and areas across the region
while allowing for further refinement at the
area municipal level or as detailed studies are
conducted for individual sites.
Natural heritage features and areas play a
significant role in the region’s ability to
mitigate, adapt and build resiliency to the
impacts of climate change. For example, they
act as carbon sinks, improve air quality and
reduce the urban heat island effect.
Therefore, it is critical to utilize best practices
for their protection, enhancement and
restoration, including establishing a
connected NHS. Protection, enhancement
and restoration of the regional NHS will be a
fundamental element of the new ROP.
The Region’s NHS will not exist in isolation.
Rather, it will be a component of a wider
provincial system of greenspaces and
features. As such, the ROP should consider
external connections such as those between
the regional NHS and the NHS of adjacent
municipalities and the regional NHS at the
boundaries of urban and rural areas to
ensure that those connections make sense
and support the objectives of the ROP. These
proposed connections to the NHS will be
supported by an edge mapping review.
119 | Envision Durham
Systems-based ROP mapping will be
developed and refined through 2021 that will
include the proposed NHS, Agricultural
System and Water Resource System, for
inclusion in the draft ROP.
68. Proposed Direction: Natural Heritage
System
1. Establish a regional NHS overlay as a
component of the protected Greenlands
System mapping.
2. Add language that permits the NHS to be
updated to reflect minor changes, as a
result of the newest and best available
data, at the date of consolidation without
an update to the ROP.
3. That an NHS policy section be added to
the ROP that includes:
a) objectives to promote a systems-based
approach to protecting the natural
environment, achieve no net loss and
to protect, enhance and restore
features and areas and their ecological
functions;
b) a policy to bring existing identified
linkages, including “Open Space
Linkages” and “Waterfront Links” and
future linkages and enhancement areas
identified through watershed plans
and/or area municipal assessments into
the regional NHS;
c) a policy to consider cross-jurisdictional
relationships and impacts on the
regional NHS and recognize the
importance and intent of external
connections, such as Urban River
Valleys within the Greenbelt Plan; and
d) a policy to support the completion of
climate vulnerability assessments to
identify areas of the regional NHS with
the greatest vulnerability to the
impacts of climate change and outline
suggested enhancements and/or
restoration needed to mitigate these
impacts.
4. Require area municipalities to develop an
NHS and/or refine their existing NHS
policies and mapping, including the
identification of enhancement areas and
linkages as necessary.
Open Space Linkages and Waterfront
Links
The current Schedule A of the ROP identifies
two Open Space Linkages:
• Pickering – north of Finch Avenue,
generally between Pickering Town
Townline and Whites Road; and
• Whitby/Oshawa – north of Taunton Road,
generally between Thickson Road and
Oshawa Creek.
Schedule A also identifies three Waterfront
Links:
• Pickering – abutting the north perimeter
of the Pickering Nuclear Generating
Station;
• Oshawa – connecting the Oshawa Creek
with Harmony Creek, north of the Port of
Oshawa; and
• Clarington – abutting the north perimeter
of both the Darlington Nuclear
Generating Station and St. Mary’s
Cement.
Envision Durham | 120
Open Space Linkage policies are intended to
provide connections within the Greenlands
System and direct area municipalities to
detail linkage locations, features and policies
in their official plans. Waterfront Links do not
have associated policies in the ROP and have
not been adopted by the area municipalities.
Instead, area municipalities focus on
mapping and policy direction for Waterfront
Areas.
Discussion question #10 of the Environment
and Greenlands Discussion Paper asked,
“Should Open Space Linkages and Waterfront
Links continue to be identified in the ROP? If
so, what additional areas should be identified
and how could the policies associated with
these areas be enhanced?”. Responses
generally showed support for retaining
linkages to contribute to wildlife habitat and
movement and to connect the NHS.
Establishing linkages more broadly as a
component of the NHS, noted above, and
including supportive policies will strengthen
the identification and protections for these
connections across the region.
Key Natural Heritage and Key
Hydrologic Features
The current ROP includes policies to protect
key natural heritage and hydrologic features
by restricting development and site
alteration within and adjacent to these
features, unless there are no negative
impacts to the feature and its ecological
function. General updates to these policies
12 Woodland cover is comprised of treed areas,
woodlots and forested areas. This is different from
tree canopy cover, which is comprised of tree
are required to reflect conformity with
provincial plans including:
• exceptions for habitat of endangered and
threatened species;
• exceptions for agricultural uses,
agricultural-related uses and on-farm
diversified uses;
• prohibition of stormwater management
systems;
• Growth Plan exceptions for
building/structure expansions and large-
scale development; and
• changes to terminology and definitions,
including Habitat of Endangered and
Threatened Species.
Regional staff use key natural heritage and
key hydrologic features mapping as a
screening tool for development applications.
An Environment Impact Study (EIS) is
required when development or site
alteration is proposed within or in proximity
to these features. Data gaps and
inconsistencies have been identified in the
region’s existing features mapping. Updates
are currently underway, in consultation with
the conservation authorities.
The current ROP contains a specific
woodlands policy section that identifies a 30
per cent woodland cover12 target and
suggest a woodlands inventory, tree planting
and stewardship programs as ways to protect
and enhance woodlands in the region. The
branches, stems and leaves/needles when looking at
the ground from above.
121 | Envision Durham
region currently has approximately 25.8 per
cent woodland coverage.
In order to enhance the resilience of
ecological features, improve resiliency,
mitigate the urban heat island effect and
help reduce the region’s climate footprint, it
is appropriate that the target be further
strengthened by proposing a higher cover
target, integrating findings from the
Significant Woodlands Study (currently
underway) and recognizing regional and local
woodlands by-laws.
The Significant Woodlands Study will
establish criteria for identifying which
woodlands in the region are “significant” and
therefore subject to specific policy
protections and will also update the region’s
existing woodlands mapping. This exercise
will ensure the region’s woodlands are
accurately identified and protected as part of
development review.
In addition to woodlands, examples from
other jurisdictions identify wetlands with
separate, specific policies due to their
important natural heritage and hydrologic
functions and social and economic benefits.
Wetlands also act as significant carbon sinks,
contributing to climate change mitigation. To
acknowledge their critical role as part of the
regional NHS, the ROP could include more
specific policies related to wetlands. Some
municipalities have included a goal of no net
loss of wetlands, which the Region should
also consider. No net loss is achieved by both
protecting wetlands from development and
degradation and restoring them through local
initiatives and ecosystem compensation.
Two questions related to natural heritage
features were asked as part of the
Environment and Greenlands Discussion
Paper: question #11 asked “How can the
Region best support the protection and
enhancement of significant woodlands in
Durham?” and question #12 asked “Should
there be targets included in the ROP for
other natural heritage and hydrologic
features in addition to woodlands?”.
Responses to these questions confirmed the
significance of woodlands and wetlands to
the ecological health of the natural system
and highlighted a general desire to see
targets established for other features,
especially wetlands.
69. Proposed Direction: Key Natural
Heritage and Key Hydrologic Features
1. Update the key natural heritage features
and key hydrologic features mapping to
reflect the most recent data from a
variety of sources including, but not
limited to the province (i.e. Ministry of
Natural Resources and Forestry),
conservation authorities and area
municipalities. These revisions should be
accompanied by policy language to
permit ongoing updates to this mapping
without a Regional Official Plan
Amendment.
2. That criteria for identifying significant
woodlands and woodlands mapping be
included in the ROP. Criteria and mapping
are being developed through a Significant
Woodlands Study, currently underway.
3. That the existing woodlands cover
target be examined based on the findings
of the Significant Woodlands Study.
Envision Durham | 122
4. Encourage area municipalities to develop
tree/woodland conservation by-laws for
woodlands not covered by the regional
by-law (woodlands less than one hectare
in size).
5. Continue to encourage area
municipalities to develop Urban Tree
Strategies and investigate the
opportunity to complete a regional Forest
Management Plan (also see Healthy
Communities - Tree Canopy section).
6. Encourage the use of native species for
tree planting initiatives.
7. Recognize the role of protecting and
enhancing features as a means to
increasing carbon sequestration.
8. That wetland mapping be established in
the ROP and that policy language be
added that sets a target of no net loss of
wetland function and area and that
promotes wetland restoration through
regional, area municipal, conservation
authority and other agency initiatives and
ecosystem compensation.
Vegetation Protection Zones
The land adjacent to natural heritage
features supports the ecological functions of
that feature and of the NHS. The PPS requires
that development and site alteration not be
permitted in lands adjacent to natural
heritage features and areas unless there are
no negative impacts on the feature or its
ecological functions. To achieve no negative
impact, it is important that the ROP not only
protect features, but also identify and
protect buffers around them. While the PPS
refers to these as “adjacent areas,” the
ORMCP, Greenbelt Plan and Lake Simcoe
Protection Plan refer to them as vegetation
protection zones. Existing policies in the ROP
implement provincial direction by generally
prohibiting development or site alteration in
vegetation protection zones.
Minimum vegetation protection zones are
established for key natural heritage features
within areas governed by the provincial plans
(Greenbelt, Oak Ridges Moraine, Lake Simcoe
watershed). Outside of these provincial plan
areas, many area municipalities have
undertaken the analysis to establish
minimum vegetation protection zones into
their NHS. At the regional level, current
practice is to determine the required
vegetation protection zone of an ecological
feature through the completion and review
of an Environmental Impact Study as part of a
development application.
Discussion question #13 of the Environment
and Greenlands Discussion Paper asked,
“Should the Region include more detailed
policies prescribing minimum vegetation
protection zones (where they are not
otherwise prescribed by provincial policy)?”.
Responses were mixed, with some suggesting
the region determine minimums to ensure
consistency, while others prefer that area
municipalities continue to establish
minimums.
One suggestion highlighted the potential to
require a 30-metre buffer for features along
the boundary of the regional NHS, based on
the findings of the Carruthers Creek
Watershed Plan. 30-metres is suggested
because it is consistent with standard
vegetation protection zone policies in the
Growth Plan, Greenbelt Plan, ORMCP and
Lake Simcoe Protection Plan and is also
123 | Envision Durham
reflected in many area municipal official
plans. Determinations will be made through
the NHS mapping exercise.
70. Proposed Direction: Vegetation
Protection Zones
1. Require that minimum vegetation
protection zones be established within
area municipal official plans and that such
vegetation protection zones be
established through appropriate studies
such as secondary plans, watershed plans
or Environmental Impact Studies.
Water Resources
Existing policies in the ROP provide a sound
policy framework for the region’s key
hydrologic features by supporting water
conservation measures, discouraging
alterations to watercourses and requiring
stormwater management, erosion and
sediment control plans. These policies and
others work together to protect the quality
and quantity of water in the region. Key
updates to the provincial plans related to
water resources include identification of a
water resources system (WRS)13 and
associated policies for hydrologic areas; new
policies to more comprehensively address
watershed planning and water conservation;
and integrating climate change
considerations. In addition to implementing
these provincial plan requirements, the ROP
will also implement relevant policies from the
13 The water resources system is comprised of ground
water features, hydrologic functions, natural heritage
features and areas, and surface water features
Lake Simcoe Protection Plan and applicable
source protection plans.
While the Environment and Greenlands
discussion paper did not ask a specific
question related to water resources, general
comments received suggest that the ROP
should recognize that the NHS and water
resources system are interconnected.
Identifying a Water Resources System:
Key hydrologic features in the region are
mapped together with key natural heritage
features. This mapping is reflective of the
features-based approach that the ROP
currently employs. Updates to the PPS
require that municipalities identify the
components of the water resources system in
policy and mapping. The new ROP will adopt
this systems-based approach.
Updates to underlying hydrological features
mapping will include:
• updates to mapping for wetlands,
permanent and intermittent springs, lakes
and littoral zones and other key hydrologic
features;
• delineation of significant groundwater
recharge areas, highly vulnerable aquifers
and significant surface water contribution
areas; and
• implementation of the Lake Simcoe
Protection Plan, and source protection
mapping requirements.
including shoreline areas, which are necessary for the
ecological and hydrological integrity of the watershed.
Envision Durham | 124
The water resources system, including key
hydrologic features and areas at the regional
scale, will be developed and refined as a
component of the systems-based ROP
mapping through 2021 for inclusion in the
draft ROP.
71. Proposed Direction: Identifying a Water
Resources System
1. That a water resources system be
established in the ROP that includes
ground and surface water features and
areas, the Lake Simcoe watershed
boundary and former Lake Iroquois
Shoreline. Key hydrologic areas include
significant groundwater recharge areas,
highly vulnerable aquifers and significant
surface water contribution areas.
2. Add policy language that provides for the
protection, improvement and restoration
of hydrologic functions of key hydrologic
areas.
3. Recognize the former Lake Iroquois
Shoreline as an area of hydrological
significance and include policy language
that encourages area municipalities to
include policies that seek to protect,
enhance and/or restore the shoreline’s
key natural heritage and hydrologic
features and areas as part of area
municipal official plans.
Watershed Planning:
The goal of watershed planning is to provide
a framework that includes goals, objectives,
targets and management recommendations
to protect, enhance and restore watersheds
so that they are healthy and resilient. The
current ROP recognizes watershed plans as
an effective planning tool in protecting
natural resources and supports the
preparation, update and implementation of
watershed plans. The majority of the region
is covered by watershed plans, many of
which are in the process of being updated.
New direction within the provincial land use
plans includes enhanced requirements for
municipalities to complete watershed plans,
or equivalent studies. These requirements
include, for example, ensuring watershed
planning is undertaken to support
comprehensive, integrated and long-term
planning and new requirements to consider
climate change impacts at the watershed
scale.
In 2018, the province released draft
watershed planning guidance to support the
implementation of this strengthened policy
approach. As this guidance has yet to be
finalized, the region will continue to monitor
its progress and will implement policies as
required.
72. Proposed Direction: Watershed Planning
1. Include a map that illustrates watershed
plan boundaries and conservation
authority boundaries as an Appendix to
the new ROP and allow updates to this
map without a Regional Official Plan
Amendment.
2. Ensure conservation authorities, area
municipalities and other stakeholders
consider the following, in priority order,
while preparing and updating watershed
plans:
a) climate change and the effects of
severe weather events;
125 | Envision Durham
b) targets and goals of the Great Lakes
Protection Act and Strategy; and
c) cross jurisdictional and cross-watershed
impacts.
3. Require that watershed plans and
updates include information and
management recommendations that:
a) inform water resources identification;
b) support the long-term protection,
enhancement and/or restoration of
water quality and quantity;
c) enable informed decisions on locations
for future growth;
d) provide recommendations that support
planning for water, wastewater and
stormwater infrastructure; and
e) protect the region’s key natural
heritage and key hydrologic features,
areas and functions.
Lake Simcoe Protection Plan
The Lake Simcoe watershed contains
significant natural, urban and agricultural
systems, including portions of the Oak Ridges
Moraine and the Greenbelt. It also holds
provincially-significant wetlands, woodlands
and prime agricultural areas.
The Lake Simcoe Protection Plan (LSPP), was
released on June 2, 2009, and is a provincial
plan that sets policies that are intended to
protect the Lake Simcoe watershed. It is a
watershed-based plan, established to
improve water quality, protect the
watershed’s natural heritage resources and
manage the effects of climate change and
invasive species. The Lake Simcoe Protection
Act requires municipalities to bring their
official plans into conformity with the LSPP.
In 2011, to assist in determining how the ROP
should be amended to implement the LSPP, a
discussion paper was prepared and endorsed
by the Planning and Economic Development
Committee (Report #2011-P-76). The findings
of the paper confirm that the ROP already
contains sound policy to protect the Lake
Simcoe watershed. Policies introduced
through Amendment 114 to the ROP in 2006,
addressing the PPS and Greenbelt Plan,
achieved similar policies. However, it also
suggests that there are aspects of the LSPP
that need to be addressed in the ROP.
The following recommendations from the
2011 LSPP Discussion Paper will be
implemented in the ROP, with the
understanding that further amendments may
be required based on the province’s 10-year
review of the LSPP (currently underway):
73. Proposed Direction: Lake Simcoe
Protection Plan
1. Add the Lake Simcoe Watershed
Boundary to relevant ROP maps.
2. Ensure growth management policies,
such as future urban area boundary
expansion criteria, address the
requirements of the Lake Simcoe
Protection Plan (LSPP).
3. Restrict the establishment of new
municipal sewage treatment plants in the
Lake Simcoe watershed to a new plant
that is intended to replace an existing
plant or a new plant that will provide
sewage services to existing development
that is on partial services or where
Envision Durham | 126
existing private sewage systems are
failing.
4. Provide policy direction to the area
municipalities to include policies within
their official plans to reduce stormwater
runoff volume and pollutant loadings
within Designated Urban Areas in the
Lake Simcoe watershed, in accordance
with the LSPP.
5. Encourage that any new private sewage
system be located more than 100 metres
from the Lake Simcoe Shoreline, other
lakes or any permanent streams within
the Lake Simcoe watershed. If such
systems must locate within 100 metres of
these areas, they will only be permitted in
accordance with the LSPP.
6. Require that an application to establish or
expand a major recreational use within
the Lake Simcoe watershed be
accompanied by a recreational water use
plan in accordance with the LSPP and
include a definition of recreational water
use plan in the ROP.
7. Enhance restrictions to development
within vegetation protection zones along
the Lake Simcoe shoreline, including:
a) adding a 30-metre vegetation
protection zone for Shoreline
Residential areas along the Lake Simcoe
shoreline; and
b) adding a 100-metre vegetation
protection zone along the Lake Simcoe
shoreline for areas outside of Urban
Areas and Rural Settlements.
8. Require that for lands within 240-metres
of the Lake Simcoe shoreline, an
Environmental Impact Study ensures that
development or site alteration maintains,
enhances or restores functional wildlife
movement corridors between key natural
heritage features key hydrologic features
and the shoreline.
9. Add a new policy that allows for the
continuation of existing uses in place
prior to June 2, 2009 in the Lake Simcoe
watershed.
Source Protection
In 2006, the province passed the Clean Water
Act, legislation designed to help communities
protect the sources of their drinking water.
The Clean Water Act was in response to the
contamination of a municipal well in
Walkerton in 2000. Under the Act, Source
Protection Areas and Source Protection
Regions were established across Ontario
based on the watershed boundaries of the
province’s 36 Conservation Authorities. Each
region has a Source Protection Committee
responsible for undertaking a technical
assessment of municipal water sources to
identify potential vulnerabilities, and for
developing a source protection plan. These
plans set out specific requirements that
regulate activities within identified
vulnerable areas to protect the quality and
quantity of drinking water. Vulnerable areas
are:
• Wellhead Protection Areas (WHPA)
(denoted as WHPA-A, B, C, D, and E);
• Intake Protection Zones (IPZ) (denoted as
IPZ 1 and 2);
• Significant Groundwater Recharge Areas;
and
• Highly Vulnerable Aquifers.
127 | Envision Durham
The current ROP sets out policies for the
protection of the quality and quantity of
water and identifies wellhead protection
areas and areas of high aquifer vulnerability,
based on direction from the Oak Ridges
Moraine Conservation Plan. The ROP does
not identify or provide policy direction for
vulnerable areas defined in the Clean Water
Act that are regulated through source
protection plans.
Source protection plans require that
municipalities implement source protection
policies into their official plans at the time of
the next official plan review. As such, these
proposed directions represent how the ROP
must change to conform to the four source
protection plans applicable to the region:
• the Trent Source Protection Plan;
• the Ganaraska Source Protection Plan;
• the South Georgian Bay Lake Simcoe
Source Protection Plan (SGBLS); and
• the Credit Valley, Toronto and Region and
Central Lake Ontario (CTC) Source
Protection Plan.
Some area municipalities have either
completed, or are in the process of
completing, amendments to their official
plans to implement specific source protection
policies that apply in their jurisdictions.
74. Proposed Direction: Source Protection
1. Establish mapping for the boundaries of
source protection plans and vulnerable
areas including Intake Protection Zones
(IPZs) and Wellhead Protection Areas
(WHPAs).
2. Rename the current Wellhead Protection
Areas section of the ROP to Source
Protection, with policy language added to
identify the requirements of the Clean
Water Act, 2006 and the four source
protection plans that apply to Durham.
3. Require planning decisions to conform to
the policies of the relevant source
protection plan for Planning Act
Applications submitted on or after the
effective date of the applicable source
protection plan.
4. Add the following Restricted Land Uses to
the current classification of land uses that
may be prohibited or restricted in the
ROP:
a) the application and storage of
agricultural source material;
b) the application, handing or storage of
non-agricultural source material,
commercial fertilizer or pesticides;
c) the handling or storage of road salt;
d) the storage of snow;
e) the handling or storage of fuel, dense
non-aqueous phase liquid, or an
organic solvent;
f) the use of land as livestock grazing or
pasturing land an outdoor confinement
yard or farmyard;
g) the establishment, operation or
maintenance of a waste disposal site
that does not require approval under
the Environmental Protection Act or
the Ontario Water Resources Act;
h) the management of runoff that
contains chemicals used in the de-icing
of aircraft; and
Envision Durham | 128
i) an activity that reduces the recharge of
an aquifer.
5. Require a Section 59 notice14 from the
Risk Management Official (RMO) for
proposals that include restricted land
uses.
6. Prohibit high risk land uses, as defined in
the current ROP Schedule E – Table E5,
within the Beaverton IPZ-1.
7. Protect WHPAs with the highest
vulnerability (i.e. a vulnerability score of
10) by ensuring that:
a) existing and future uses connect to
municipal sanitary sewers, where
feasible;
b) new development and lot creation,
where dependent on private onsite
sewage systems, meets the
requirements of the Ontario Building
Code, provincial and regional
standards;
c) large septic systems be prohibited
unless compliant with the applicable
source protection plan; and
d) consideration be given to the impact of
road salt for development that includes
impervious surfaces. Considerations
may also include the promotion of
innovative techniques and technologies
and training in the effects of over-
salting for service providers.
14 A Section 59 Notice is a written notice from the
RMO that is required prior to approval of any Building
Permit, Planning Act or Condominium Act application.
8. Add policies specific to the Credit Valley,
Toronto and Region and Central Lake
Ontario (CTC) source protection area to:
a) require new development to proceed
by way of site plan control to ensure
that the location of on-site sewage
systems and replacement beds for
vacant lots within WHPA-A and WHPA-
B with a vulnerability score of 10 do not
become a significant drinking water
threat;
b) address parking lot prohibitions within
WHPA-A; and
c) address salt management plans for new
roads and parking lots within WHPA-B
with a vulnerability score of 10.
9. Generally prohibit stormwater
management facilities within WHPAs with
a vulnerability score of 10 and the
Beaverton IPZ-1 and require sanitary
sewers and related pipes to locate
outside of these areas.
10. Prohibit the establishment of sewage
storage and treatment facilities, including
associated discharge (lagoons) within
WHPAs with a vulnerability score of eight
to 10 and those activities plus industrial
effluent discharges from Beaverton IPZ-1,
unless compliant with the applicable
source protection plan.
11. Add policies to address water quantity
threats within wellhead protection area
(quantity 1/quantity 2) that include
requirements for settlement area
boundary expansions, water balance
129 | Envision Durham
studies, Permits to Take Water and best
management practices for low impact
development.
12. Add definitions for “significant
groundwater recharge areas”, “highly
vulnerable aquifers”, “intake protection
zones”, “wellhead protection areas”, “risk
management official”, “prescribed
drinking water threats”, “designated
vulnerable area”, “vulnerability score”
and “agricultural source material” as
noted in the Glossary (see Appendix A).
Natural Hazards
Flooding, erosion, slope failures and dynamic
beaches have the potential to cause
significant harm to public health and safety
when people and property locate in areas
where these natural processes occur.
Provincial policy requires that development
generally be directed away from these areas
and current ROP policies conform with this
direction.
Climate change has the capacity to increase
the rate and severity of natural hazards, so
provincial policies require municipalities to
consider these impacts when managing
natural hazards. ROP natural hazards policies
should be strengthened to fill this gap.
In addition, general feedback on the
Environment and Greenlands Discussion
Paper was received that highlights the need
for focused policies on shoreline
management and flooding and erosion
hazards, land securement initiatives for
hazard lands and enhancing environmental
protections in these areas to mitigate the
impacts of climate change.
75. Proposed Direction: Natural Hazards
1. Include a new Natural and Human-made
Hazards policy section in the ROP.
2. Confirm that the Region will work with
area municipalities and conservation
authorities to develop and implement
strategies to address the impacts of
climate change on natural hazards.
3. Recognize the importance of protecting,
restoring and enhancing the natural
environment in the management of
natural hazards.
4. Include policies that direct development
outside shoreline areas impacted by
flooding, erosion and dynamic beach
hazards.
5. Encourage the transfer of hazard lands to
public agencies.
6. Add definitions for “dynamic beach
hazard” and “erosion hazard” as noted in
the Glossary (see Appendix A).
Shoreline Hazards:
76. Proposed Direction: Shoreline Hazards
1. Include policies to reinforce best
practices in shoreline management such
as those identified in established
shoreline management plans.
Wildland Fire
Hazardous forest types for wildland fire have
been brought into provincial policy as a
potential risk to public health and safety.
Development must be directed outside of
these areas unless the risk is mitigated in
Envision Durham | 130
accordance with wildland fire assessment
and mitigation standards. The Ministry of
Natural Resources and Forestry has provided
broad-level mapping to identify hazardous
forest types for wildland fire across the
province. They have also developed a
Wildland Fire Risk Assessment and Mitigation
Reference Manual that outlines assessment
and mitigation standards and provides policy
guidance for site assessments and potential
mapping refinements.
Discussion question #15 of the Environment
and Greenlands Discussion Paper posed the
question, “How should the ROP address the
issue of wildland fire?”. Responses included a
desire for the ROP to recognize wildland fire
as a risk to public health and safety, protect
the NHS from development to mitigate this
risk and implement local mitigation
measures.
77. Proposed Direction: Wildland Fire
1. Include policies to direct development
outside of hazardous sites and areas
considered unsafe due to hazardous
forest types for wildland fire.
2. Require consideration of hazardous forest
types for wildland fire in an
Environmental Impact Study when
development is proposed in or adjacent
to areas at risk for wildland fire, as
determined by mapping from the
Ministry of Natural Resources and
Forestry. Direct area municipalities to
refine generalized provincial mapping
based on local data, where available, and
15 Lands that are outside of settlement areas and
outside of prime agricultural areas.
other criteria suggested by provincial
guidance materials.
3. Direct area municipalities to include
policies to require wildfire risk
assessments and mitigation, where
applicable within their official plans and
zoning by-laws.
4. Add definitions for “hazardous forest
types for wildland fire” and “wildland
assessment and mitigation standards” as
noted in the Glossary (see Appendix A).
Open Space Areas and Greenbelt
Urban River Valleys
The ROP currently includes a Major Open
Space Areas (MOSA) designation that is
integrated with both the Urban and Rural
Systems. The MOSA designation, outside of
the urban area boundary, permits
agricultural, agricultural-related and on-farm
diversified uses and reflects lands containing
natural heritage and hydrologic features and
rural lands.15 MOSA within urban areas
generally consists of areas that make up
urban river valleys, connecting the Greenbelt
with Lake Ontario and other areas with
significant natural features.
Much of the MOSA designation outside of
urban areas has been identified as prime
agricultural or candidate agricultural land in
the Provincial Agricultural System mapping
(also see Provincial Agricultural System
section). As a result, it is anticipated that the
amount of land designated as Prime
131 | Envision Durham
Agricultural Area with be increased in the
ROP.
Discussion question #8 in the Environment
and Greenlands Discussion Paper asked, “Are
there additional factors the Region should
take into account when re-considering the
Major Open Space Areas designations?”.
Responses highlighted that land for parks and
recreation should be protected and indicated
a desire for existing permitted uses to be
allowed to continue and a clear policy
framework for the Agricultural System and
Greenlands System.
The 2005 Greenbelt Plan identified external
river valley connections. Many of these areas
are now designated as Urban River Valleys
and subject to policies of the Greenbelt Plan,
2017. This designation applies only to
publicly owned lands within the main
corridors of river valleys connecting the
Greenbelt to Lake Ontario and inland lakes.
Permitted uses within these areas continue
to be governed by the applicable policies of
regional and area municipal official plans,
only if those policies are in keeping with the
policies of the Greenbelt Plan. The intent of
Urban River Valleys policies in the Greenbelt
Plan are to promote stewardship,
remediation, parks and trails and
maintenance and enhancement of ecological
features and functions.
Existing MOSA policies in the ROP provide
direction in much the same way as Urban
River Valleys policies in the Greenbelt Plan. In
the urban area, the Greenbelt Urban River
Valleys designation generally overlaps with
the current ROP MOSA designation in the
urban area (except for a few areas that will
require refinement).
Refinement of the Open Space Areas
designation and inclusion of Urban River
Valleys will be addressed through the
establishment of a regional NHS and
implementation of the provincial agricultural
system.
78. Proposed Direction: Open Space Areas
and Greenbelt Urban River Valleys
1. Establish a Regional Natural Heritage
System as an “overlay” to the Open Space
Areas and Greenbelt Urban River Valley
designations, the detailed boundaries or
descriptions of which would be detailed
through area municipal official plan
updates or through more detailed area
specific studies, as applicable.
2. Add associated NHS policies into the ROP
that will apply to areas with features,
particularly along creek valleys (also see
Natural Heritage System section).
3. Within the urban area boundary,
establish Open Space Areas and include
mapping for Greenbelt Urban River
Valleys that considers the boundaries of
adjacent designations.
4. Include policies to reflect that the
predominant use of land within the
proposed Open Space Areas designation
will be conservation and environmental
protection, with major recreational,
kennels and landscape industry uses
encouraged to locate within Rural Lands.
5. Portions of the proposed Open Space
Areas designation that include lands
under public ownership will be subject to
the Urban River Valleys policies of the
Greenbelt Plan.
Envision Durham | 132
6. Privately owned lands within the
Greenbelt Urban River Valleys portion of
the proposed Open Space Areas
designation will be subject to the policies
of the ROP, including NHS policies.
Oak Ridges Moraine Areas
The Oak Ridges Moraine Conservation Plan
(ORMCP) was introduced in 2002 to provide
land use and resource management direction
for the Oak Ridges Moraine. As part of the
coordinated provincial plans review, the
ORMCP was updated in 2017. Updates
included minimal policy and terminology
changes to ensure consistency with the other
provincial plans. To achieve conformity, the
ROP will reflect new policy directions in the
ORMCP by:
3. recognizing the ORM and ORMCP for
their role in climate change adaptation
and mitigation;
4. adding policies related to best
management practices for excess soil;
5. adding policies that facilitate the
coordination of infrastructure planning
with land use planning.
6. adding policies to prohibit waste disposal
sites and soil conditioning sites within the
Natural Core Area, Natural Linkage Area,
key natural heritage features, key
hydrologic features and their vegetation
protection zones; and
7. adding policies to support agricultural
systems planning by:
a) implementing the provincial
agricultural system and providing for a
range of on-farm diversified uses;
b) expanding exemptions for agricultural
uses;
c) outlining when Agricultural Impact
Assessments (AIA) are required; and
d) protecting agricultural uses from the
impacts of non-agricultural uses.
Waterfront Areas
Waterfront Areas in Durham include areas
along the shorelines of Lake Ontario, Lake
Simcoe and Lake Scugog and are meant to be
areas for outdoor recreation that also focus
on natural heritage protection.
Provincial policy requires the protection of
waterfront areas for their natural heritage
and hydrological value and recreational and
tourism opportunities (including trails). The
Growth Plan also directs municipalities to
develop a public open space system along
shoreline areas. Although current ROP policy
generally satisfy these directions, it is
appropriate that the ROP address policies in
the Growth Plan and the Great Lakes Strategy
that speak to restoration of habitat and
ecological features in coastal areas.
Area municipal official plans already have
robust policies related to waterfront areas.
Most area municipal official plans capture
and expand on ROP policies. The wide
adoption of policies, significant amount of
parks and trails, and development of
waterfront master plans in some
municipalities illustrates that the Waterfront
Areas designation is a priority for both the
region and area municipalities and should not
be significantly altered.
133 | Envision Durham
79. Proposed Direction: Waterfront Areas
1. Ensure that policies providing for the
protection, restoration and enhancement
of ecological features along the
waterfront continues through the review
of development applications,
Environmental Impact Studies, planning
documents, management plans and
related initiatives for Waterfront Areas.
Tourist Activity/Recreation Nodes
Tourist Activity/Recreational Nodes are
identified in the ROP with symbols that
denote the locations of these uses. However,
there is little supportive policy direction,
beyond the intention that these places
develop as locations for tourism.
All but one of these Tourist
Activity/Recreational Nodes are within the
current Waterfront Areas designation which
allows for appropriate development and
emphasizes these areas as intended for
recreational uses.
Discussion question #9 of the Environment
and Greenlands Discussion Paper asked, “Do
you feel that a separate Tourist
Activity/Recreational Node designation is
necessary in the ROP? If so, do you feel the
policies should be enhanced or revised?”.
Responses to this question were mixed.
Some were supportive of retaining and even
expanding the designation, while others
questioned the need to identify Tourist
Activity/Recreational Nodes.
16 Bennett, Whitty, Finkbeiner et al., 2018.
As discussed earlier, proposed directions for
the Prosperous Economy section of the ROP
continue to emphasize the importance of
tourism. It is suggested that for simplicity, it
is not necessary that a separate Tourist
Activity/Recreational Node overlay or
designation be included in the ROP as the
Waterfront Areas designation would provide
the necessary policy permissions for such
uses to continue or expand. Such locations
could continue to develop as sites for tourism
consistent with the intent of the Waterfront
Areas as meant for outdoor recreation,
supported through Economic Development
policies of the new ROP, and more specific
policy direction at the area municipal level.
80. Proposed Direction: Tourist
Activity/Recreation Nodes
1. That Tourist Activity/Recreational Nodes
continue to be supported through
Regional and area municipal economic
development and tourism initiatives, as
well as within Waterfront Area policies
where applicable, without the need to
explicitly identify each location within the
new ROP.
Environmental Stewardship
Environmental stewardship refers to the
actions taken by individuals and groups to
protect, care for and responsibly use the
environment to support environmental or
social outcomes.16
Over 80 per cent of the region is located
within the Greenbelt, which includes various
Envision Durham | 134
natural and hydrological features and
agricultural areas. There is value in
acknowledging the ecological goods and
services that these areas provide and the role
that environmental stewardship plays in
protecting, enhancing and restoring these
areas.
The current ROP includes encouraging
policies on stewardship as a key direction and
includes policies on ecological integrity that
support the protection and enhancement of
the natural environment across various
sections. Special attention is paid to the
ecological integrity of the Oak Ridges
Moraine. There is an opportunity to enhance
these policies to ensure conformity with
provincial planning direction by
demonstrating the connection between
environmental stewardship and ecological
integrity, aligning with best practices, and
acknowledging the economic and cultural
benefits of the ecological resources and
features within the region.
Discussion question #7 of the Environment
and Greenlands System Discussion Paper
asked “How can the ROP best support
environmental stewardship efforts in
Durham? It further asked if there are other
examples of best practices?”. Responses to
this question and general responses to the
Climate Change and Sustainability Discussion
Paper indicate strong support for ROP
policies that encourage and promote
environmental stewardship programming.
This support can include the incentivization
of stewardship activities across various areas
including urban forestry and tree planting,
habitat protection, invasive species
management, farmland restoration and
wetland restoration, among others.
The principle of good stewardship, in
partnership with area municipalities,
conservation authorities and other agencies
and residents supports a current key ROP
objective to protect, enhance and restore the
region’s natural environment for the
ecological goods and services that it provides.
Proposed policy directions strengthen this
approach.
81. Proposed Direction: Environmental
Stewardship
1. Establish Environmental Stewardship
objectives that:
a) seek to protect, enhance and restore
the ecological integrity of the
Greenlands System and its natural
heritage features and functions;
b) acknowledge the ecological goods and
services provided by the natural
environment foster healthy and
complete communities, improve quality
of life, and support tourism in the
region; and
c) recognize that the agricultural land
base contributes to food production,
and that the provision, protection and
enhancement of agricultural resources
contributes to the provision of
ecological goods and services.
2. Support working with area municipalities
and conservation authorities through
education, stewardship initiatives and
promotion on the value of ecological
goods and services that result from
natural heritage conservation.
3. Encourage partnerships with area
municipalities, conservation authorities,
135 | Envision Durham
the province and other agencies to
promote environmental stewardship.
4. Encourage the Region to seek funding
sources to support the securement of
natural areas in accordance with a set of
land securement objectives.
5. Encourage area municipal official plans to
include environmental stewardship
policies.
6. Support ecosystem compensation (see
Ecosystem Compensation section).
7. Manage the establishment and spread of
invasive species (also see Invasive Species
Management section).
8. Support increasing public awareness,
stewardship and maintenance on the
value of the ecological integrity of water
resources, in partnership with area
municipalities, conservation authorities
and other organizations.
9. Encourage the stewardship of natural
features as part of trail building and
maintenance.
10. Add definitions for “ecological integrity”
and “ecological goods and services” as
noted in the Glossary (see Appendix A).
Ecosystem Compensation
There may be some cases where the removal
of natural features is best addressed through
ecosystem compensation, where the
approach is to replace natural features and
ecological functions lost.17
17 Toronto and Region Conservation Authority (TRCA).
Guideline for Determining Ecosystem Compensation.
2018.
The current ROP does not directly address
the principle of ecosystem compensation
outside of aggregate resource extraction
areas. Some area municipalities have
incorporated comprehensive policies on the
preservation, replacement and compensation
for natural features. Similarly, some
conservation authorities have prepared
detailed guidelines to administer the
implementation of ecosystem compensation.
Discussion question #5 of the Environment
and Greenlands Discussion Paper asked,
“Should policies regarding ecosystem
compensation and valuation be included in
the ROP through Envision Durham? If so, are
there examples of best practices?”.
Responses voiced strong support for the
establishment of policies that address
ecosystem compensation, with a specific
emphasis on preservation as the first step
with removal/replacement only if necessary.
Financial compensation has been identified
as a last resort, and only if other approaches
have been exhausted. Feedback also
suggested that the EIS should remain the
primary vehicle for implementing ecosystem
compensation.
82. Proposed Direction: Ecosystem
Compensation
1. Add a policy that allows ecosystem
compensation only as a last resort, when
mitigation and avoidance are not
possible.
Envision Durham | 136
2. Add a policy that confirms that the
Environmental Impact Study (EIS) is the
vehicle to address the potential to
protect, enhance or restore
environmental features and functions,
and only where such restoration is not
feasible as determined by an EIS and as
deemed appropriate by the region, the
applicable area municipality,
conservation authority and other
approval agencies, allow for the
compensation of such features and
functions that includes financial
mechanisms.
3. Require replacement with non-invasive,
native species of vegetation or
compensation where unavoidable, for all
healthy vegetation to be removed as part
of new development.
4. Add a definition for “ecosystem
compensation” as noted in the Glossary
(see Appendix A).
Invasive Species Management
Invasive species pose a significant threat to
the ecological health of the natural system in
various ways:
• aquatic invasive plants impact
recreational activities, displace native
vegetation, slow down water flow, and
alter oxygen levels;
• invasive fish and invertebrates compete
with native species for food, alter food
webs, destroy habitat and prey on native
fish eggs and larvae;
18 Ontario’s Invading Species Awareness Program.
• forest pests degrade the quality of wood,
destroy wildlife habitat and
recreational/cultural value; and
• terrestrial plants grow quickly and crowd
out native species.18
Common examples of invasive species in the
region include phragmites, dog straggling
vine and emerald ash borer. Through
collaborative efforts, the province, Region,
conservation authorities and area
municipalities are working to address the
management of these and other invasive
species.
Provincial plans acknowledge the importance
of protecting land, biodiversity, natural
features and resources for the long-term
quality of life, economic prosperity,
environmental health and ecological integrity
of the province. A component of this is the
inclusion of natural self-sustaining vegetation
within vegetation protection zones, Natural
Core and Natural Linkage Areas of the Oak
Ridges Moraine and conservation areas.
The Invasive Species Act and the Ontario
Invasive Species Strategic Plan identify
invasive species and highlight the need for a
coordinated approach to mitigate existing
invasive species and prevent the introduction
and spread of new populations. The Invasive
Species Strategic Plan provides specific
actions and tactics to help prevent new
invasive species from arriving and surviving in
the province, detect and respond rapidly to
the presence of new invaders, and effectively
manage the spread of existing invasive
species to reduce their harmful impacts on
137 | Envision Durham
the environment. It also identifies the
inclusion of policies in official plans as a key
tactic for prevention and mitigation of
invasive species.
Discussion question #2 of the Environment
and Greenlands Discussion Paper asked,
“How can the ROP be revised to further help
address the issue of invasive species?”.
Responses to this question unanimously
suggest that goals and policies should be
included in the ROP to support invasive
species management and the use of native
species.
83. Proposed Direction: Invasive Species
Management
1. Establish an Invasive Species
Management subsection as a component
of the Protected Greenlands System
chapter with objectives that:
a) highlight that invasive species
management is a key consideration in
the protection of our natural
environment;
b) indicate that the management of
invasive species represents an
important consideration in climate
change mitigation and adaptation
strategies; and
c) acknowledge that collaborative effort is
required amongst the region, area
municipalities, conservation
authorities, provincial agencies and
other organizations in carrying out
invasive species management.
2. Require invasive species management
plans and the provision of appropriate
vegetation protection zones, revegetated
with natural, self-sustaining vegetation
for all proposed developments adjacent
to key natural heritage features.
3. Require new development and
redevelopment to incorporate native and
drought tolerant vegetation.
4. Require that native plantings be provided
on Regionally owned land and rights-of-
way, as opportunities arise.
5. Support the establishment of a region-
wide Invasive Species Management Plan,
in partnership with area municipalities
and conservation authorities.
6. Require area municipalities to include
policies to manage non-native invasive
species and discourage the planting of
these species in new developments
within area municipal official plans.
7. Encourage ongoing monitoring and
reporting of initiatives for managing
invasive species being undertaken by area
municipalities and conservation
authorities.
8. Add definitions for “invasive species” and
“natural self-sustaining vegetation” as
noted in the Glossary (see Appendix A).
Excess Soil Management
As part of long-term planning for growth and
development within the GGH, the Province
introduced policy directions that require
municipalities to support on-site and local
reuse of excess soil, while also protecting
human health and the environment. Ontario
Regulation 406/19: On-Site and Excess Soil
Management established rules for when
excess soil is not a waste and outlines soil
quality standards for beneficial reuse. This
Envision Durham | 138
regulation has a staggered implementation
date, beginning January 2021. To support the
regulation, the Province has also developed
associated best management practices for
excess soil management through an Excess
Soil Management Policy Framework guidance
document.
Excess soil is a multi-faceted issue with
implications for the Urban System,
Agricultural System, Transportation System
and Greenlands System. It is most often
referenced in relation to the potential
environmental impacts of fill processing and
placement. For this reason, it is being
considered within the Protected Greenlands
System chapter of the ROP.
Beyond conformity with provincial planning
direction, responses to question #3 of the
Environment and Greenlands Discussion
Paper, “How can the Region best effectively
support local implementation of excess soil
policies?” indicate a desire for the region to
provide more direction for area
municipalities on excess soil management,
develop consistent standards or guidelines
with locational criteria, and consider regional
operations as generators of fill.
84. Proposed Direction: Excess Soil
Management
1. That an Excess Soil Management section
be established in the ROP that would:
a) Encourage on-site and local reuse of
excess soil and encourage soil
conservation through the use of low
impact development and planting new
and protecting existing trees and
vegetation.
b) Encourage soil processing facilities to
locate close to soil reuse sites, areas
where proposed development is
concentrated and along higher order
roads subject to the approval of the
applicable municipality.
c) Require that excess soil placement at
receiving sites be required to
demonstrate that the activity will not
have a negative impact on existing land
uses, the natural environment,
surrounding land uses and cultural
heritage resources through measures
such as screening, appropriate buffers
and setbacks, and containment
management.
d) Require the submission of a Soil
Management Plan as a complete
application requirement for new
development.
e) Promoting consideration of best
management practices for excess soil in
Regional operations.
f) Support the establishment of excess
soil management guidelines that would
outline requirements of a soil
management plan and identify
locational criteria for receiving sites.
g) Provide direction to the area
municipalities to:
i.) include policies within their official
plans that reflect best management
practices for excess soil
management provided by the
province;
ii.) determine appropriate locations for
excess soil storage and processing
139 | Envision Durham
sites through their official plans and
zoning by-laws; and
iii.) require site plan approval for all
new or expanding soil storage or
processing sites.
2. Encourage area municipalities to update
their fill and site alteration by-laws so
that they apply to conservation authority
regulated areas in accordance with the
Municipal Act.
3. Add a definition for “excess soil” as noted
in the Glossary (see Appendix A).
Septage
When septic tanks are pumped out, the raw,
untreated waste material (“septage”) is taken
away by truck for disposal. Disposal
sometimes occurs by way of mechanical
spreading on rural sites. The spreading of
septage is a use that is permitted by
provincial policy, subject to provincial
approval. The Province regulates these
operations through the Environmental
Compliance Approval (ECA) application
review process. Since the Region is not the
approval authority for ECAs, it may provide
comment on the application, but does not
have the authority to either “approve” or
“refuse” such applications.
19 Sewage biosolids are created when municipal
wastewater treatment facilities separate municipal wastewater (water from sewage systems, road drains,
etc.) into liquid (clean water that can be discharged to
a nearby stream or river) and the leftover solids. Solids
go through an additional treatment process to reduce
the presence of potentially harmful micro-organisms
and potential causes of odour. The final treated
Under the Environmental Protection Act,
septage is considered a waste. As noted
earlier, the definition of “landfill” in the ROP
does not specifically address the spreading of
septage. Raw, untreated septage spreading
poses the potential for impacts on
groundwater, surface water runoff as well as
odour impacts.
However, bio-solids19, which may also be
applied in agricultural operations, differs
from septage, as biosolids have been
processed in municipal wastewater
treatment plants.
Discussion question #4 of the Environment
and Greenlands Discussion Paper asked,
“Should the Region include policies in the
ROP restricting or limiting the land
application of septage?”. Comments received
ranged from a desire to prohibit these sites
entirely to suggested restrictions related to
key hydrological areas. Additional responses
noted that prohibitions may conflict with
provincial policy.
Proposed directions related to “waste
management” suggest aligning the waste
management definition in the Environmental
Protection Act with the current “landfill”
definition in the ROP. Given that septage
spreading meets the definition of a waste
disposal site it would not be subject to a
materials are sewage biosolids. Sewage biosolids that
do not exceed the regulatory limits for contaminants, pathogens and odour can be applied to farmland as a
non-agricultural source material (OMAFRA. Sewage
Biosolids – Managing Urban Nutrients Responsibly for
Crop Production.
<http://www.omafra.gov.on.ca/english/nm/nasm/info
/brochure.htm>).
Envision Durham | 140
ROPA, but rather regulated by the Province
via an ECA.
Environmental Noise
Environmental noise is known as an
accumulation of noise pollution that occurs
outdoors and is frequently described as
“unwanted sound”. Common sources of
noise pollution include transportation noise
generated by freeways, arterial roads,
airplane traffic and railways; heating,
ventilation, and air conditioning (HVAC)
equipment on top of commercial, industrial
and institutional buildings; and loading bays.
To protect people and the environment from
adverse noise pollution, the Ministry of the
Environment, Conservation and Parks (MECP)
created the Environmental Noise for
Stationary and Transportation Sources –
Approval and Planning document
(Publication NPC-300). Municipalities use
these guidelines to evaluate new
development proposals to ensure that the
use will not create adverse noise pollution to
the surrounding uses, and that the proposed
use will not be impacted by the existing noise
sources in the area.
The current ROP contains environmental
noise policies that require development to
consider noise impacts and prepare vehicular
noise studies if within 300 metres of an
arterial road. These policies also encourage
non-traditional noise attenuation measures
such as innovative designs, berms and
orientation of higher density developments.
Other municipalities outline additional
criteria for when a noise study or acoustical
audit is required.
While feedback on environmental noise
policies was not specifically solicited as part
of the Environment and Greenlands
Discussion Paper, general comments received
suggest that the Region consider green
infrastructure as an alternative noise
attenuation measure and expand the criteria
used to determine if a noise study is
required.
As Durham continues to grow, there are
many ways that noise can affect
development proposals. As a result, the
approach the Region uses to request a noise
study should also continue to evolve.
85. Proposed Direction: Environmental
Noise
1. Encourage green infrastructure and
passive noise attenuation measures in
place of acoustical fencing and other
traditional noise attenuation measures,
where feasible and appropriate.
2. Expand the criteria for when a noise
study is required as part of a complete
application including when noise sensitive
development is proposed near a:
a) Rapid Transit Spine;
b) railway line, including existing or
planned commuter rail;
c) freeway; and
d) mineral aggregate operation.
Environmental Assessments
An Environmental Assessment (EA) is a
decision-making process used by both the
government and private sector to analyze the
141 | Envision Durham
potential effects of certain activities on the
human and natural environment.
In Ontario, this process is legislated by the
Environmental Assessment Act and its
regulations. The purpose of this Act is to
provide for the protection, conservation and
wise management of Ontario’s environment.
It is intended to minimize or avoid adverse
environmental effects before they occur and
incorporate environmental factors into
decision-making.
The Environmental Assessment Act applies to
enterprises, activities, proposals, plans and
programs by provincial ministries,
municipalities and public bodies covered by
the Act, such as conservation authorities, and
Metrolinx, as well as private sector projects,
where applicable.
The current ROP contains comprehensive
policies to ensure EAs are completed for
energy, transportation and other
infrastructure projects. To achieve
conformity with updates to the provincial
plans, the new ROP will:
• add policy language to clarify that
development and site alteration are
prohibited within key natural heritage
features and key hydrologic features and
adjacent lands, unless an EIS shows no
negative impacts or if authorized through
an EA;
• encourage a coordinated response
between the region and area
municipalities to renewable energy
proposals under the Environmental
Assessment Act; and
• add policy language to clarify when EAs
are required including:
o Within the Greenlands System, for
infrastructure required to service the
community; and
o For all transportation infrastructure
and utilities permitted in the Oak
Ridges Moraine and Greenbelt.
Envision Durham | 142
Connected Transportation
System
In the current ROP, the Transportation
System is structured around several
designations applicable to roads, transit and
goods movement in Schedule C
(Transportation System maps) and Schedule
E – Table E7 (Arterial Road Criteria). These
designations are supported by various
policies in the Transportation System chapter
that describe Road Network and Design;
Transportation Demand Management,
Transit Priority Network, Regional Cycling
Plan, Goods Movement, Mitigating
Community and Environmental Impacts and
considerations for area municipal official
plans.
The current ROP designates four types of
roads, namely:
• Existing and future Freeways;
• Type A Arterials;
• Type B Arterials; and
• Type C Arterials.
This functional hierarchy is focused on the
movement of higher vehicular traffic volumes
at the top end over longer distances
(Freeways), while the arterials also carry
through movements of vehicles, but become
increasingly focused on land access and
increasing levels of community trips along
with having lower volumes. It also recognizes
the role of collectors and local roads
designated in area municipal official plans, as
part of the overall road network. The Arterial
Road Criteria, which comprise almost all
Regional roads as well as major roads under
area municipal jurisdiction, contain design
and functional specifications for each arterial
class. The classification system for arterial
roads is clear, concise and consistent with
accepted Transportation Association of
Canada and Institute of Transportation
Engineers best practices, based on a road
classification review that was completed as
part of the Region’s Arterial Corridor
Guidelines (2007).
In December 2017, the Durham
Transportation Master Plan (TMP), was
completed. The Durham TMP is a strategic
planning study that defines the policies,
programs and infrastructure modifications
needed to manage anticipated transportation
demand to the year 2031 and beyond. The
Durham TMP supports the growth forecasted
in the ROP through a multi-modal approach,
including walking, cycling, public transit,
autos and goods movement. There are
recommended actions in the Durham TMP
for the Region to implement, and some of
these pertain to the ROP.
A few actions recommended by the Durham
TMP pertained to recommended additions,
changes and deletions to the road, transit
and goods movement networks designated in
the ROP in Schedule C – Transportation
System, and associated policy updates. In July
2018, Amendment #171 to the ROP came
into effect, which implemented a number of
these key network recommendations from
the Durham TMP. Other actions from the
Durham TMP that had implications on ROP
policies, such as those related to land use
designations and development review
requirements, are now being addressed
through Envision Durham.
143 | Envision Durham
This chapter provides initial proposed policy
directions for a connected Transportation
System structure and policy framework.
Goals for a Connected Transportation
System
The current ROP contains four broad goals
for the Transportation System. These goals
are intended to work together to ensure the
Region’s system:
• provides an integrated, safe, efficient and
reliable experience for all users and
modes;
• offers a variety of mobility choices;
• supports retention of existing businesses
and attracting new investment and
economic activity; and
• supports sustainable transportation
initiatives.
Provincial plans contain a policy framework
that seeks to better integrate transportation
planning with land use planning. To achieve
this, investment in transit infrastructure is
identified as a priority to create opportunities
for intensification of existing urban areas in
key nodes that benefit from higher levels of
existing and planned transit service.
Provincial plans also speak to creating a
multi-modal transportation system that
increases the share of trips made by transit
and active transportation across the GGH.
Optimizing the use of existing infrastructure
and maximizes the benefits of investments in
future infrastructure where necessary is also
supported in these plans.
The Transportation System Discussion Paper
asked several questions that echoed several
recommended Actions from the Durham
TMP, and were consistent with provincial
plan policies, towards updating the goals for
the Region’s Transportation System. Key
questions that helped inform updated
Regional goals for transportation included
topics such as:
• planning considerations for transit-
supportive development;
• planning for all road users, as part of a
complete streets approach;
• protection of arterial road right-of-way
needs from a multi-modal perspective;
• expanding the importance of trip-
reduction and non-auto modes through
Transportation Demand Management
(TDM) measures;
• addressing freight and goods movement;
and
• supporting emerging technologies that
are changing the way residents are
making daily trips.
Responses to the questions indicated that
there was general support for emphasizing
the role of transit in land use planning,
creating higher priority for transit and active
transportation modes, support for new
transit and active transportation
infrastructure, and clearer policies to
implement transit-supportive development
including focusing their application in key
areas where Transit Oriented Development
(TOD) should occur.
Envision Durham | 144
86. Proposed Direction: Goals for a
Connected Transportation System
That the existing goals for the Transportation
System be replaced with the following:
1. Provide a connected Transportation
System that is integrated, safe, efficient,
reliable and fiscally sustainable to meet
existing and future needs of the region’s
residents and businesses.
2. Strategically invest in the Transportation
System by providing a variety of low
carbon mobility choices for residents of
all ages and abilities.
3. Design and construct transportation
infrastructure to reduce greenhouse gas
(GHG) emissions from the Transportation
System and avoid, minimize or mitigate
negative impacts on the natural
environment.
4. Facilitate the movement of people and
goods through a complete streets
approach to accommodate all modes of
transportation and strengthen the inter-
dependency between transportation and
land use.
There are other questions and themes in the
Transportation System Discussion Paper, as
well as other discussion papers, that touched
on planning considerations towards a
Connected Transportation System. These
include the need for protecting the natural
environment, including policies related to EA
processes for transportation infrastructure,
addressing and mitigating climate change
impacts, being age-friendly, long-term
protection of corridors for roads, transit and
active transportation facilities, supporting
economic development and growth
opportunities, including intensification, and
updating planning policies related to ports
and airports. These serve to frame the overall
goals for the Transportation System, creating
a potential framework for developing
objectives to help articulate the goals and
direct specific policies that will be developed
in the new ROP.
Transit Oriented Development
The development of Transit Oriented
Development (TOD) policies in Major Transit
Station Areas (MTSAs) surrounding the
existing and planned GO Stations on the GO
Lakeshore East rail line and extension to
Bowmanville has been presented under
separate cover. The MTSA Proposed Policy
Directions were presented to the Planning
and Economic Development Committee in
December 2020 and presented policy
proposals for review and comment.
The policy for TOD in MTSAs will address
provincial conformity (PPS and Growth Plan)
requirements. In addition, the 2041
Metrolinx Regional Transportation Plan (RTP)
identifies the importance of “first mile/last
mile” solutions to enhance and prioritize
pedestrian access to and from MTSAs. It also
recommends strengthening policies to
support transit connections to frequent rapid
transit networks, and highlighting specific
areas for intensification and development to
promote TOD through increased density and
mixed uses.
To effectively respond to Metrolinx
investments in Durham on the GO Lakeshore
East rail line and future extension to
Bowmanville, and the Metrolinx Transit
145 | Envision Durham
Oriented Communities strategy,20 Regional
Council established a Rapid Transit and TOD
Office (Report #2019-COW-26). The Office is
promoting and helping to implement future
developments including high density,
compact communities in proximity to the
existing and planned GO stations on the GO
Lakeshore East line and includes an
integrated mix of uses such as office,
residential, retail and community uses that
support transit ridership. The Office also
serves to promote transit infrastructure on
the Highway 2 and Simcoe Street Rapid
Transit Spines, such as the Durham-
Scarborough Bus Rapid Transit (BRT) and the
Simcoe Street Transit Priority Pilot Study.
Outside of MTSAs TOD policies are applicable
to the other SGAs, located along routes
where planned Higher Order Transit services
are designated in the ROP.21 The SGAs consist
of Urban Growth Centres, Regional Centres
and Regional Corridors (see Figure 16). These
existing designations in the ROP, including
density requirements and where delineated
boundaries should be applied, are being
reviewed as part of the Growth Management
Study, as described in the Vibrant Urban
System chapter.
20 Metrolinx’s Transit Oriented Communities strategy
uses the opportunity to leverage the Province’s
investment in transit infrastructure for new and
existing transit stations, and work with third parties to
reduce the costs to taxpayers. It seeks to increase transit ridership and reduce traffic congestion,
increase housing supply and jobs with access to
transit, catalyze complete communities based on good
planning principles, and create positive value capture
for the Province to maximize transit investment while
reducing taxpayer burden.
In order to ensure the Region achieves its
objectives and is consistent with provincial
direction of TOD policy, policies at the
provincial, regional and local levels have been
reviewed related to transit-supportive
development. Transit-supportive and TOD
are similar concepts, but there is a distinction
in terms of how the terminology is typically
applied, including for the purposes of this
policy review. Areas where a broader suite of
transit-supportive design and planning
measures for compact, mixed use
development are applied and tailored to the
level of existing or planned Higher Order
Transit service is considered TOD. General
transit-supportive policies to improve “first
mile/last mile” access to transit can be
applied throughout the urban area.
Proposed policy directions for transit-
supportive development have been informed
by key recommendations in the Durham
TMP, which directed staff to develop a TOD
guidelines document and checklist, and a
corresponding strategy with enabling policies
in the ROP (Actions #3, #4 and #5). They seek
to put the actions in the TMP into practice at
a regional planning level.
21 Higher Order Transit corridors in the Regional
Official Plan, for the purposes of this review, are the
combination of Rapid Transit Spine, High Frequency
Transit Network and, of course, Commuter Rail
designations. In the case of Commuter Rail, MTSAs are identified at the existing and future GO Stations along
the GO Lakeshore East line. It is designated as a
Priority Transit Corridor for the existing portion, and
the extension is designated as a Committed GO Transit
Rail Extension.
Envision Durham | 146
The current ROP does identify support for
TOD for some areas. Specifically, current
policy 11.3.18 indicates that higher density
and mixed use should be applied to areas
adjacent to Transportation Hubs, Commuter
Stations and Transit Spines. The current ROP
also promotes the provision of facilities and
amenities which support non-auto modes of
transportation. These include bus shelters,
active transportation facilities. It also
promotes good urban design considerations
such as the siting and orientation of buildings
that are street facing to reduce walking
distances to transit services, while supporting
limitations on surface parking and
encouraging the redevelopment of existing
surface parking areas. While the MTSA
Proposed Policy Directions will update TOD-
related measures around the existing and
planned stations along the GO Lakeshore East
rail line and its extension, it is appropriate
that this approach apply to other SGAs as
well.
The inclusion of TOD policies in the new ROP
will enable the Region to strengthen the
relationship between transportation and land
use by achieving its density targets for SGAs
while supporting use of Higher Order Transit.
TOD policies help ensure that the design
principles outlined below are applied
consistently within the Regional Centres and
Regional Corridor SGA designations served by
the planned Higher Order Transit network.
Figure 16: MTSAs and Other SGAs in the Context of the Higher Order Transit Network.
147 | Envision Durham
Proposed directions for transit-supportive
policies are divided into three general
categories: TOD that supports MTSAs, TOD
that supports the other SGAs along Higher
Order Transit, and transit-supportive policies
that are applied to the remaining designated
urban area.
Transit Oriented Development in MTSAs:
For TOD that supports MTSAs, the proposed
policy direction is as follows:
87. Proposed Direction: Transit Oriented
Development in MTSAs
1. Refer to the Major Transit Station Areas
Proposed Policy Directions, dated
December 1, 2020.
Transit Oriented Development in SGAs:
For TOD that supports SGAs that are not
MTSAs (i.e. Urban Growth Centres, Regional
Centres and Regional Corridors), the
proposed policy directions are as follows:
88. Proposed Direction: Transit Oriented
Development in SGAs
1. Incorporate TOD strategies in the
development approvals process by
creating and applying a TOD guideline
and checklist to be used for reviewing
development applications in areas within
SGAs connected by Higher Order Transit
corridors.
2. Ensure that the transportation network is
designed and planned to support
sustainable and multi-modal
transportation options of walking, cycling
and the use of transit and supports
mixed-use development.
3. Design arterial roads in SGAs, through a
complete streets approach, to help
control traffic speeds while promoting
safe, attractive environments for active
transportation.
4. Include policies to ensure that in Regional
Centres, measures on arterial roads such
as reduced geometric design standards,
enhanced streetscaping, maintaining and
encouraging on-street parking in historic
downtowns and on Type C Arterials, more
frequent intersections and controlled
pedestrian crossings are encouraged, and
will be updated through refinements to
the Arterial Road Criteria (currently in
Schedule E, Table E7).
5. Encourage measures to create enhanced
streetscaping, separate pedestrian and
cycling facilities, and more frequent
controlled pedestrian crossings in
Regional Corridors corresponding to
Rapid Transit Spines (sections of Highway
2 and Simcoe Street).
6. Include provisions for alternative
development standards to support TOD,
including reduced minimum parking
requirements and the establishment of
maximum parking requirements for both
privately initiated development
applications and area municipal zoning
by-laws, be encouraged in SGAs and
tailored to the level of transit service
proposed.
7. Collaborate with area municipalities to
guide the implementation of TOD,
recognizing the contribution of area
municipal official plans and secondary
Envision Durham | 148
plans in developing these types of policies
in SGAs.
Transit-Supportive Development:
For the urban area in general, the following
are proposed directions to make
development more transit-supportive:
89. Proposed Direction: Transit-Supportive
Development
1. Recognize and update existing transit-
supportive policies in the ROP, such as
policies 11.3.19 and 11.3.20 that address
development adjacent to Higher Order
Transit routes outside of MTSAs and
SGAs.
2. Enhance transit-supportive policies in the
ROP applying to the overall Urban System
(Section 8) to reflect provincial policy
updates (PPS, Growth Plan) and best
practices.
3. Provide for transit-supportive urban
design and an improved active
transportation network, wherein 80 per
cent of residents and workers in the
urban area are within a reasonable
walking distance to the nearest transit
stop (400 metres, representing a five-
minute walk).
Commuter Stations
The current Commuter Station and
Transportation Hub designations, and the
addition of a Transit Hub designation, were
reviewed for the following reasons:
• Action #13 in the Durham TMP entails
identifying transit station and terminal
needs, including needs for upgrades to
existing facilities and physical footprint
and operational parameters for future
facilities, as early as possible in the
planning process to enable protection of
land and permit long-term financial
planning; and
• Discussion question #6 in the
Transportation System Discussion Paper
was intended to solicit feedback on
Action #13 in the Durham TMP: “Do you
support a new Transit Hub designation
and policies as part of the ROP?”.
Through the policy review, it was determined
that the introduction of a new Transit Hub
designation could not be done in isolation
and would need to be integrated with a
review of the Commuter Station and
Transportation Hub designations.
In the current ROP’s Transit Priority Network
map (currently Schedule C, Map C2),
Commuter Stations and Transportation Hubs
are designated on the Commuter Rail line
corresponding to the existing GO Lakeshore
East rail service and its future extension to
Bowmanville. In the Growth Plan, the existing
GO Lakeshore East line is designated as a
Priority Transit Corridor, and the future
extension to Bowmanville is designated as a
Committed GO Transit Rail Extension. MTSAs
are being delineated around existing and
future GO Stations on the GO Lakeshore East
line to Bowmanville through the Growth
Management Study component of Envision
Durham.
The original Durham TMP (2005)
differentiated Transportation Hubs from
Commuter Stations, with the intention that
149 | Envision Durham
the Transportation Hubs would have greater
importance as travel destinations, transfer
points for different transit services (e.g., GO
Bus and Durham Region Transit), than
Commuter Stations. These recommendations
from the TMP were integrated into the ROP
through Regional Official Plan Amendment
114 in 2008. In the context of the GO
Lakeshore East rail line and planning for
MTSAs, all Commuter Stations function in a
similar manner.
The Pickering, Central Oshawa and
Bowmanville GO stations are designated as
Transportation Hubs rather than Commuter
Stations in the current ROP. Further, there is
a Transportation Hub designated at the
future Highway 407/Simcoe Street
Transitway station. It is the only Commuter
Station or Transportation Hub designation
that does not correspond to an existing or
future GO Station.
Besides the Highway 407/Simcoe Street
location, the other Transportation Hubs do
not differ significantly from the other GO
Stations designated as Commuter Stations on
the GO Lakeshore East line, based on the
Transportation Hub description in the ROP
(policy 11.3.18 f)). This policy describes
Transportation Hubs as being places that are
“major travel destinations and facilitate
transfers between different modes of travel
or between transit services.” In essence, this
is what any Commuter Station (GO Station)
does or is planned to do. Policy 11.3.18 does
not include a specific description for
Commuter Station, but it is referenced in the
Commuter Rail description as “transfer points
to other transit services and transportation
modes.”
There are other important transit terminals
or station locations, both existing and
planned outside of GO Stations such as the
existing Ontario Tech/Durham College North
Campus Terminal, Oshawa Centre Terminal
or future Baldwin Street Park and Ride, that
are not recognized in the current ROP. These
locations are identified in area municipal
official plans or by Durham Region Transit
(DRT) service plans and reflected in the
current Durham TMP. The Durham TMP also
identifies existing and future commuter lots,
some of which correspond to DRT transit
terminal or station locations or the planned
407 Transitway stations while others do not.
The appropriateness of designating Transit
Hubs on the Transit Priority Network map for
some or all these facilities was part of this
review from a ROP perspective.
The 407 Transitway is a planned rapid transit
facility that will parallel the 407 Express Toll
Route (ETR) and Highway 407 (south side)
from Burlington to Highway 35/115. It also
includes Highway 412 between Highway 407
and Dundas Street (west side), and Highway
418 between Highway 407 and Regional
Highway 2 (west side). The right-of-way
needs for the 407 Transitway facility and
commuter station locations, as part of the
overall highway right-of-way, were identified
by the Ministry of Transportation, Ontario
(MTO) through the 407 East Individual EA and
Preliminary Design Study to protect for its
future implementation. These lands include
the future BRT facility on its own right-of-way
parallel to the highway, commuter stations
and maintenance facilities. MTO has
completed EA studies for the 407 Transitway,
including the Kennedy Road to Brock Road
section along 407 ETR in Pickering (2016).
Envision Durham | 150
Recognizing that the 407 Transitway is a long-
term plan, the proposed transitway stations
as commuter lots and transit terminals are
being implemented on an interim basis.
Examples include the Brock Road Park and
Ride lot in Pickering, the Halls Road Park and
Ride lot (north of Dundas Street) and the
Baldwin Street Park and Ride lot (under
construction) in Whitby. In this regard, the
Durham TMP and current ROP (through the
Freeway Transit designation on Schedule C,
Map C3 and existing ROP policy 11.3.18 (g))
encourage the early implementation of the
407 Transitway commuter lots. These
commuter lots support increased transit use
and carpooling to facilitate long-distance
inter-municipal and inter-regional transit
trips, in advance of the 407 Transitway being
constructed as a rapid transit facility.
The designation of transit stations and
terminals in area municipal official plans is
not consistent in terms of terminology or the
intended type of facility described. While GO
Stations are identified in map schedules and
policy through a variety of terms, the
approach to other types of stations or
terminals (either GO and/or DRT) is quite
varied and is often done through policy
language rather than through a symbol or
land use designation.
Area municipal feedback received through
the Transportation System Discussion Paper
was somewhat supportive of a new Transit
Hub designation but requested clarity on its
definition and flexibility in terms of
implementation from an area municipal
perspective. One municipality felt it was not
necessary for the ROP to designate them at
all. Public comments spoke to encouraging
park and ride lots on Highway 407 in general,
which have a Transit Hub function as well as
promote carpooling.
While a new Transit Hub designation on the
Transit Priority Network schedule has been
considered, such a designation is not
considered necessary in the new ROP for the
following reasons:
• many of the future transit stations and
terminals located outside of GO stations,
included in the Durham TMP and DRT’s
service plans, are largely identified at
existing or planned 407 Transitway
stations;
• the location of commuter lots coinciding
with the future 407 Transitway is already
recognized in policy 11.3.18 g); and
• identifying other future transit station or
terminal sites is subject to change,
through updates in DRT service planning,
and a specific designation in the Transit
Priority Network may hamper flexibility in
siting locations. Outside of GO Stations
and commuter lots, these facilities tend
to be on privately-owned lands.
90. Proposed Direction: Commuter Stations
1. Maintain the current Commuter Station
designation at the existing and future GO
Stations on all designated existing and
future Commuter Rail facilities on the
Transit Priority Network (currently
Schedule C, Map C3).
2. Amend the Transportation Hub
designations to existing and future
Commuter Stations on the Transit Priority
Network, except for the Highway
151 | Envision Durham
407/Simcoe Street location, which should
be deleted.
3. Explicitly refer to the Commuter Station
designation within the Transit Priority
Network components of the new ROP.
4. Add a specific policy and/or map symbol
to identify that the future Grandview GO
Station, located west of Grandview Street
and south of Bloor Street in Oshawa, is
not part of the GO Lakeshore East
Extension to Bowmanville but is
designated for land protection purposes
only.
5. Ensure the location of future transit
terminals and stations in the Durham
TMP and DRT service plans be integrated
or protected for through the
development application review process.
6. Add policies related to active
transportation and the primacy of transit
access to existing transit stations in SGAs
outside of the arterial road right-of-way
(e.g. Ontario Tech/Durham College north
Oshawa campus).
Active Transportation
The PPS, Growth Plan, Metrolinx’s 2041 RTP
and the Durham TMP highlight the
importance of active transportation in
achieving healthy and complete communities
that support quality of life and help
municipalities maximize their investments in
infrastructure. Policies in the Growth Plan
require that transportation systems in the
GGH offer a balance of transportation
choices to reduce reliance on single-occupant
vehicle use and prioritize active
transportation, transit, and goods movement
over single-occupant vehicles. They also
require that active transportation networks
be both comprehensive and integrated, and
that municipalities implement Transportation
Demand Management (TDM) policies to
increase the modal share of active
transportation and transit. Further, the
Growth Plan recognizes that active
transportation is a key component in
achieving complete streets.
The current ROP addresses active
transportation in general, and cycling
specifically, in several policies contained in
the Urban System and Transportation System
sections. However, the active transportation
term, instead of “walking and cycling” could
be applied more often. Further, policies
related to active transportation, walking or
cycling should be applied more broadly given
the greater importance of complete streets,
the Regional Cycling Plan Update including
the Regional Trail Network, multi-modal
approaches and “first mile/last mile” transit
access to stops and stations.
In 2017, the Region approved the Age-
Friendly Durham Strategy and Action Plan,
which guides how decision-making for areas
of Regional responsibility reflects and
responds to the needs and lived experiences
of older adults (those age 55 and older). One
of the objectives of Age Friendly Durham is to
improve the safety and connectivity of
outdoor spaces to support active
transportation and ongoing access by older
adults.
In 2019, the Durham Vision Zero Strategic
Road Safety Action Plan was launched by the
Region. Durham Vision Zero aims to create
safer roads for drivers, pedestrians and
cyclists by ultimately eliminating fatal and
Envision Durham | 152
injury collisions, with a goal of a 10 per cent
reduction within five years (2019-2023). The
plan coordinates the expertise of a diverse
set of stakeholders in engineering,
enforcement and education to save lives and
reduce injuries caused by motor vehicles.
Emphasis areas for improving road safety
identified by Durham Vision Zero include
cyclists and pedestrians, and a series of
actions called countermeasures are
recommended to address road safety for
these vulnerable road users. By making the
road environment safer for active
transportation, Durham Vision Zero
encourages non-auto travel and the provision
of additional infrastructure to support it.
The official plans of some area municipalities
address active transportation quite robustly,
including policies that articulate how active
transportation can help achieve
environmental objectives related to climate
change; the integration of active
transportation with new development and
with other transportation networks, including
cross-jurisdictional connections; the
development of transportation facilities that
are barrier-free and that accommodate users
of all ages and abilities; safety through design
and TDM programs that reduce single-
occupant vehicle travel, including employer
programs and programs for schools.
A jurisdictional scan of other upper- or single-
tier municipalities in Ontario revealed that
most of their official plans address active
transportation quite comprehensively.
Policies in these plans include the age-
friendly design of transportation systems,
active transportation as it relates to
sustainability, detailing urban design
measures to support the comfort and safety
of cyclists and pedestrians, providing
direction and encouragement to area
municipalities, and TDM measures that
include active transportation. Several of
these official plans also include a map
schedule designating an active transportation
network or cycling network, with further
details referenced in a TMP, cycling and/or
active transportation plan.
Feedback received on the Transportation
System Discussion Paper was in response to
the question raised as to “How should the
Regional Official Plan recognize or plan for
enhanced trail connections as key active
transportation linkages within hydro
corridors and Waterfront Areas?” (question
#8). Responses from the area municipalities,
agencies and the public indicated support for
an integrated active transportation network
that provides strong connectivity to key
destinations; better connections between
cycling and transit; cycling/active
transportation programming and education;
TDM measures; and the use of a complete
streets approach to arterial road design.
General Policies for Active
Transportation:
91. Proposed Direction: General Policies for
Active Transportation
1. Add a new a map schedule of the
Region’s Primary Cycling Network and
Regional Trail Network to the
Transportation System maps (currently
Schedule C).
2. Enhance current Schedule E – Table E7 to
provide a more detailed description of
cycling facilities, and to reflect new
design standards flowing from the
153 | Envision Durham
Regional Cycling Plan Update and towards
a Complete Streets approach.
3. Add a definition, based on the PPS and
Growth Plan, for “active transportation”
as noted in the Glossary (see Appendix A).
In addition to the general policy directions,
proposed directions for policies in the
Connected Transportation System chapter
are noted below.
Active Transportation within a
Connected Transportation System:
92. Proposed Direction: Active
Transportation within a Connected
Transportation System
1. Include the Primary Cycling Network and
Regional Trail Network as part of the
Regional Transportation System.
2. Prioritize investments that advance active
transportation, transit, goods movement
and overall safety over those that
primarily benefit single-occupant vehicle
travel.
3. Recognize and support the Region’s role
to ensure the safe, year-round operation
of cycling and transit facilities through
design, signage, enforcement and
maintenance.
4. Include policy language to ensure that the
Transportation System is inclusive and
serves the needs of people of all ages and
abilities by ensuring pedestrian access to
transit stations, terminals and stops;
promoting neighbourhood walkability;
and, addressing accessibility
requirements during the design stage.
5. That in support of the Region’s Age-
Friendly Strategy and Action Plan, and
tied to the Vibrant Urban System policy
review, an accessible and safe urban
environment ensures safe, universally
accessible, direct and convenient
pedestrian access for various land uses
and community amenities; reduces
barriers and gaps to active
transportation; and focuses
improvements in areas of high need such
as SGAs and locations where there are
high volumes of active transportation,
particularly for seniors and elementary
and secondary school students.
6. Leverage the Vision Zero Strategic Road
Safety Action Plan in the design of
facilities to support active transportation,
including measures to control traffic
speeds while promoting safe and
attractive environments for pedestrians
and cyclists.
7. Promote the integration of different
modes of transportation through cycling
and transit-supportive facilities such as
bike racks and storage at transit
stations/stops.
8. Support commuters by including end of
trip active transportation facilities such as
showers and change rooms for
commercial and industrial developments.
9. Encourage area municipalities to enhance
pedestrian and cycling environments by
providing informational signage and
wayfinding systems to support
exploration and travel; extending active
transportation facilities into new
development areas as early as possible;
and, ensuring that active transportation
Envision Durham | 154
facilities, including bicycle parking, are
integrated with each other.
10. Ensure the Primary Cycling Network
reflects a proactive planning and funding
approach being proposed as part of the
Regional Cycling Plan Update.
11. Include a policy for the Regional Cycling
Plan to require that it be regularly
updated.
12. Support the Region’s intent to explore
and leverage opportunities from the
provincial and the federal governments,
as well as from other funding sources, for
active transportation and TDM measures
and programs.
13. Pedestrian and cycling policies are also
currently referenced in other sections of
the ROP. The following proposed
directions pertain to enhancing those
policies that will become part of the
Urban System, Healthy Communities and
Supportive Infrastructure chapters.
Active Transportation within a Vibrant
Urban System:
93. Proposed Direction: Active
Transportation within a Vibrant Urban
System
1. Include references to the active
transportation network in creating
people-oriented places.
2. Include language that the preparation of
area municipal plans also considers active
transportation, as the current policy
(8.3.10) is silent on this aspect.
3. That the planning of new SGAs includes
cycling connectivity along with
pedestrian-oriented environments and
transit friendly facilities, consistent with
policies identified in the Connected
Transportation System section.
Active Transportation within Healthy
Communities:
94. Proposed Direction: Active
Transportation within Healthy
Communities
1. Include language that the connection
between reducing single-occupant vehicle
use, through TDM and increasing the use
of active transportation, supports climate
change mitigation.
Active Transportation within Supportive
Infrastructure:
95. Proposed Direction: Active
Transportation within Supportive
Infrastructure
1. Encourage active transportation facilities
on utility corridors, Major Open Space
Areas and Waterfront Areas to benefit
both use of public lands and to
complement recreational uses within or
adjacent to these areas.
Active Transportation within a Protected
Greenlands System:
96. Proposed Direction: Active
Transportation within a Protected
Greenlands System
1. Recognize and promote the tourism value
of the Regional Trail Network and the
Primary Cycling Network.
155 | Envision Durham
Transportation Demand Management
Transportation Demand Management (TDM)
is the application of strategies and policies
that increase the efficiency of the
transportation system by influencing travel
behaviour. TDM is achieved by encouraging
people to utilize sustainable travel options
such as active transportation and transit, or
by providing flexible work arrangements that
allow people to work from home or commute
at different times.
Existing TDM policies within the ROP focus on
programs that encourage employers to
implement single-occupant vehicle trip
reduction strategies such as dedicated
carpool parking and end-of-trip cycling
facilities for cyclists. The Transportation
System Discussion Paper noted that there
may be more opportunities to provide
stronger support for Regional action and
advocacy on TDM, along with creating more
travel choices for more residents using the
transportation system. The Discussion Paper
highlighted initiatives mentioned in the
Durham TMP, including Smart Commute,
Active and Sustainable School Travel, TDM
development guidelines and the commuter
lot program. Discussion question #11 from
the Discussion Paper asked the following:
“Are other aspects of Transportation Demand
Management beyond employer and school
trips, and review of development
applications, that should be addressed in
greater detail in the Regional Official Plan?”.
The Durham TMP recommended that the
Region develop TDM development guidelines
and a checklist for reviewing new
development (Action #1). The
recommendation is to encourage active
transportation, transit use and auto trip
reduction for new development approvals.
Encouraging TDM measures through a
development review guideline and checklist
is noted to help achieve the mode share
targets for specific land use categories in the
Region, focused in the urban areas but
particularly in Urban Growth Centres and
along Rapid Transit Corridors (i.e. Regional
Centres and Corridors along sections of
Highway 2 and Simcoe Street).
The PPS and Growth Plan both support the
use of TDM policies in order to maximize the
efficiency of existing transportation
infrastructure by reducing trip distance and
time and by increasing the modal share of
active transportation and transit. Metrolinx’s
Regional Transportation Plan recommends
that official plans include a TDM strategy as
part of planning applications for any major
commercial, employment or institutional
development. Other provincial plans such as
MTO’s #CycleON and Transit-Supportive
Guidelines recognize the important role that
TDM strategies plan in influencing people’s
travel choices.
Most area municipal official plans in Durham
contain policies that promote TDM-
supportive features such as bike storage
facilities in new development. Others include
policies that support TDM programming such
as Smart Commute or active and sustainable
school travel programs. TDM supportive
measures for development review are also
referenced in certain official plans. In
particular, the Town of Ajax has a TDM
management plan including a development
guideline.
Envision Durham | 156
To support carpooling as a TDM measure, the
Region has established a Small Urban and
Rural Commuter Lot Program, as part of
Smart Commute Durham. Through the
program, commuter parking spots have been
designated and signed within area municipal
facilities (e.g., arenas, community centres)
along with existing carpool lots, primarily
serving the Region’s northern municipalities
and parts of Clarington. This program, along
with carpooling in general, should continue
to be supported and promoted including
through ROP policy.
Feedback on the Discussion Paper received
from area municipalities and other
stakeholders included:
• support for prioritizing active
transportation users in the planning
process;
• desire for expanding public transit as an
active transportation partner by
continuing support for “first/last mile”
across the Durham Region Transit (DRT)
high volume network with secure active
transportation parking along routes at
key pick up points, which is relevant to
TDM in that it supports initiatives such as
Smart Commute and TDM guidelines
which would increase the provision of
end-of-trip facilities for active
transportation;
• support for a TDM development guideline
and making the inclusion of TDM
strategies in some types of development
and at major destinations mandatory;
• support for specific types of TDM
measures, such as carpool parking lots
and secure bike storage facilities;
• support for education, training and
wayfinding as other important TDM tools
that can help promote the use of active
transportation and transit;
• interest in including examples of TDM
measures that could be incorporated into
new development;
• support for a policy that encourages area
municipalities to update their parking and
zoning by-laws to support and facilitate
TDM measures;
• an interest in potential partnerships
between transit providers and the private
sector and/or municipalities to offer
incentives for taking transit; and
• support for more or enhanced carpooling
initiatives and TDM-supportive
technologies such as broadband and
Intelligent Transportation Systems (ITS).
Given the above review, it is appropriate to
go beyond the approach to TDM in Durham’s
current ROP, which emphasizes TDM
programming. Addressing TDM through the
built environment and development review
process, along with TDM programming, is
even more important. Ensuring that new
development is designed to encourage and
support the use of transit and active
transportation, and the promotion of auto
trip reduction through remote working,
active school travel, broadband and other
technologies, should also be added to the
current TDM measures as part of a new ROP.
97. Proposed Direction: Transportation
Demand Management
1. Add a definition, based on the PPS, for
“Transportation Demand Management”
157 | Envision Durham
(TDM) as noted in the Glossary (see
Appendix A).
2. Add policy language supporting TDM to
help reduce the impacts of climate
change and support broadband and other
technologies to reduce the number of
work trips. Reducing transportation
demand not only improves the efficiency
of existing transportation infrastructure,
it also reduces energy and resource
consumption and emissions.
3. Enable the creation of a TDM
Development Guideline, which will
include a checklist, through policy. This
document will be created in parallel with
the Envision Durham consultation process
and will identify the types of TDM
measures that should be implemented as
part of the development review process,
depending on the nature of the proposed
development in terms of location and
land use.
4. Clarify the TDM programming offered by
the Region.
5. Formalize the Region’s role in planning
and promoting commuter lots, including
advocacy for the Province to implement
new facilities.
6. Require certain types of development
(such as a large commercial, mixed use,
industrial or multi-storey condominium
buildings) reviewed by the Region to
submit a TDM Plan as part of, or along
with, a Transportation Impact Study (TIS),
as a requirement for a complete
application.
7. Encourage the area municipalities to
promote urban design that supports the
use of active transportation and transit in
the development review process.
8. Encourage the area municipalities to
implement parking and zoning by-laws to
facilitate the implementation of TDM
measures.
9. Support the application of TDM measures
in exchange for reduced parking
standards in appropriate locations.
10. Investigate, in partnership with area
municipalities and Metrolinx, the need
for a regional parking strategy to support
TDM and TOD in SGAs.
Arterial Right-of-Way Protection
To assist in the preparation and review of
development applications under the Planning
Act and Municipal Class EA studies, and to
establish greater certainty in identifying
ultimate right-of-way needs on Regional and
area municipal arterial roads, it is appropriate
that an arterial right of way protection policy
be established.
The PPS identifies that transportation
systems should be planned and protect for
current and projected needs. Development
should not be permitted that could preclude,
negatively affect or be incompatible with the
long-term purpose of the corridor. Further,
the PPS allows the planning for infrastructure
and public service facilities beyond a 20-year
time horizon.
The Growth Plan echoes the PPS and speaks
to the optimization of infrastructure along
transit and transportation corridors, to
support the achievement of complete
communities through a more compact built
Envision Durham | 158
form. It also emphasizes a coordinated
approach between land use and
transportation planning, and between upper-
and lower-tier municipalities in planning and
protecting for transportation needs.
The possibility of a new map schedule and
associated policy updates for the ROP were
proposed through the following
recommendations:
• to implement Action #49 of the Durham
Transportation Master Plan (TMP), which
recommended a new map schedule to
specify ultimate regional road right-of-
way widths that can be acquired under
the Planning Act through development
applications; and
• to address question #9 raised in the
Transportation System Discussion Paper,
which asked if providing clearer future
right-of-way requirements for specific
sections of arterial roads would be
beneficial for development application
review or Class EA studies.
On the Transportation System Discussion
Paper, feedback received from the Works
Department, area municipalities, agencies
and the public were generally positive on
providing clearer ROW requirements on
arterial roads designated in the ROP.
Comments received included the use of more
specific right-of-way needs as being
beneficial in development review and
accommodation of transit, active
transportation, and stormwater management
facilities within the corridor. Further, clarity
of future right-of-way needs by section of
arterial road would allow for a more refined
application of needs in response to known
heritage buildings or districts, built form,
environmental or other constraints, and
would be more context-sensitive than
“blanket” maximums being applied
depending on the number of lanes planned.
The current ROP identifies ranges of right-of-
way widths to protect for in the review of
development applications, depending on the
functional designation of the arterial road
(i.e. Type A, Type B and Type C) and planned
number of lanes. Policy 11.3.4 enables the
taking road widenings as part of the
development review process along arterial
roads.
Interpretation of the ROP along with these
studies is not always clear, particularly in the
preparation of development applications by
developers and their consultants. Further,
the area municipalities do not have a
consistent approach in identifying exceptions
to arterial ROW from what is in the ROP and
their respective OPs. Having a right-of-way
map schedule would provide a clear source
of information to identify where exceptions
exist and can be applied in development
application review as well as other studies
(e.g. Class EAs for road widenings or
reconstruction). There are several upper and
single-tier municipalities, such as York,
Halton, Niagara and Greater Sudbury, that
designate right-of-way needs on arterial
roads by section. However, Durham would
extend this concept to arterial roads under
area municipal jurisdiction as well, to reflect
their OP policies and capital plans.
The identification of ultimate right-of-way
needs for arterial roads will support the
implementation of a complete streets
approach in the region. Right-of-way
159 | Envision Durham
protection benefits all road users, including
the accommodation of active transportation
and transit facilities. Specifying ultimate
right-of-way needs also creates the
opportunity for streetscaping and
landscaping to support healthy communities.
It also can provide the necessary space to
mitigate climate change impacts in terms of
embankments, stormwater management and
accommodating adaptive culverts and
bridges.
98. Proposed Direction: Arterial Right-of-
Way Protection
1. Create a new Schedule showing future
right-of-way width requirements for all
arterial roads under regional and area
municipal jurisdiction. The map would
show specific sections by planned ROW
width that can be applied in the
preparation and review of development
applications and as a starting point for
future Class EA studies looking at road
reconstruction, widening or extensions
and transit projects.
2. Create an accompanying table as an
appendix to the ROP describing the road
sections identified in the map schedule,
and corresponding right-of-way width
requirements.
3. Outline the types of facilities that can be
protected for when taking road widenings
through the development review process.
Multi-Modal Level of Service
Through the preparation of Transportation
Impact Studies that are filed in support of
new developments or road expansion
projects, an evaluation of the Level of Service
(LOS) is used to forecast the quality of the
road environment, focused on auto drivers. A
Multi-modal Level of Service (MMLOS)
expands the scope of these studies to include
an evaluation of the forecasted road
environment for other road users such as
transit riders, cyclists and pedestrians.
The PPS notes the importance of providing
efficient, cost-effective, reliable multi-modal
transportation system that is integrated with
adjacent systems and those of other
jurisdictions and is appropriate to address
projected needs to support the movement of
goods and people. A MMLOS approach is a
means to achieve a more multi-modal
transportation system in the planning for
new development and road expansion
projects.
The Durham TMP notes the importance of
MMLOS and identifies different approaches
to quantify it based on practices in other
jurisdictions, such as the City of Ottawa or
York Region. It identifies additional
considerations to lane configurations and
signal timing for cars to better support all
road users. For example, sidewalk width,
adjacent traffic volumes, on-street parking
and active transportation facilities are
assessed as part of the overall roadway
environment. The Durham TMP also notes
that is important to outline specific
thresholds or expectations for MMLOS
depending on the road corridor or land use
context. For example, Higher Order Transit
corridors may call for a higher ranking for
transit than lower density urban or rural
corridors.
Envision Durham | 160
Action #52 in the TMP recommends
developing a formal framework and using
Multi-modal Level of Service (MMLOS)
approaches to assess road designs and
allocate right-of-way and promote the use of
this concept for transportation impact
studies submitted as part of development
applications.
Echoing this action, the Transportation
System Discussion Paper asked, in question
#7: “How can Regional Official Plan policies
support planning for all road users when
assessing new developments and
reconstructing or building new roads?”.
Feedback from the area municipalities, other
agencies and the public was quite positive on
introducing a more balanced, multi-modal
approach.
99. Proposed Direction: Multi-Modal Level
of Service
1. Add a definition for “Multi-modal Level of
Service” (MMLOS) as noted in the
Glossary (see Appendix A).
2. Ensure, whenever feasible, the provision
of facilities to encourage multi-modal
transportation options will be included
when constructing or reconstructing
Regional transportation facilities to
ensure the comfort and safety of all road
users.
3. Ensure the transportation and road
network is designed and planned to
support sustainable and multi-modal
transportation options of walking, cycling
and use of transit.
4. Encourage the area municipalities to
integrate multi-modal transportation
options into new development, new
roads and rehabilitation projects to
support the safe, comfortable and
efficient movement of all modes of
transportation.
Additional Provincial Conformity
Considerations
There are several additional policy directions
for the Connected Transportation System,
beyond the conformity items previously
identified through the TOD (particularly as it
relates to MTSAs), TDM and Active
Transportation sections, that correspond to
conforming with the PPS and/or the Growth
Plan.
The Growth Plan identifies that as part of the
planning and management of the
transportation system in the GGH, a
complete streets approach “will be adopted”.
Through the above policy reviews, the theme
of complete streets is expressed in several
policy directions, as it supports the use of
non-auto modes of travel and influences the
design (and right-of-way needs) for arterial
roads. Not only does a complete streets
approach appear as part of one of the
proposed goals for the Connected
Transportation System section, it warrants its
own policy and definition in the new ROP. A
complete streets approach is also important
not only for provincial conformity, but the
complete streets approach is proposed to be
referenced in the context of other policy
language as the approach permeates other
aspects of transportation planning.
161 | Envision Durham
The delineation and related proposed policy
directions support the development of
MTSAs as high density, mixed use areas,
stems from Growth Plan conformity
requirements. The MTSAs are required where
the major transit stations (GO Station) are
along a Priority Transit Corridor as designated
in Schedule 5: Moving People – Transit.
Within Durham, the only Priority Transit
Corridor is the Lakeshore East GO Transit rail
line, up to its current termination point at the
existing Oshawa GO Train Station. Further,
the Region is also delineating MTSAs along
the Committed GO Transit Rail Extension
designation, corresponding to the extension
of the line to Bowmanville.
100. Proposed Direction: Additional
Provincial Conformity Considerations
1. Add a definition for “complete streets” as
noted in the Glossary (see Appendix A).
2. Ensure that, through policy, a complete
streets approach be integrated, to ensure
the needs and safety of all road users are
considered and appropriately
accommodated.
3. Add the Priority Transit Corridor and
Committed GO Transit Rail Extension
designations to the Transit Priority
Network schedule, as an overlay to the
Commuter Rail designation (currently
Schedule C, Map C3).
Other Transportation-Related Policy
Reviews
There are several transportation-related
topics where work is still ongoing, and
proposed policy directions for the new ROP
are forthcoming. These topics are being
addressed through separate, ongoing but
complementary consultation processes that
will continue in 2021.
Freight and Goods Movement:
A separate, but concurrent “Goods
Movement in Durham Review” is being
undertaken by the Transportation Planning
section, which will help inform the Envision
Durham review of the ROP. The purpose of
this Review is to support several Actions
identified in the Durham TMP related to
goods movement, including creating
standards for access and loading for different
land use types, the initiation of a Durham
freight forum, a goods movement
communication strategy and enhancing data
collection related to goods movement. The
review will assist the Region on furthering its
role supporting goods movement from a
transportation and economic perspective,
and help inform what policies the Region
should update and add to the new ROP.
The Transportation System Discussion Paper
covered three key initiatives related to goods
movement: the Port of Oshawa and St. Marys
Dock, Pickering Federal Airport Lands and
Traffic Management Guidelines for Hamlets.
These will be considered in terms of policy
directions as part of the Goods Movement in
Durham Review.
The Durham TMP also updated the Region’s
Strategic Goods Movement Network, which
is a tool for the Region to promote preferred
haul routes for truck traffic and prioritize
road investments to meet freight-supportive
road design standards. It also identifies the
network planned to accommodate full-load
Envision Durham | 162
commercial vehicles on a year-round basis. It
was updated into the ROP through
Amendment #171 in 2018 (currently in
Schedule C, Map C4). The Strategic Goods
Movement Network will be carried forward
into the new ROP, while supporting policies
will recognize its intention to fit into a
complete streets approach.
Environmental Assessments for Arterial
Roads:
The Transportation System Discussion Paper
posed question #10: “Is it appropriate that
the Regional Official Plan address an
integrated Class Environmental Assessment
and Planning Act process in new growth
areas to optimize the alignment and design
of arterial roads?”. The question was raised
with the secondary plan development and
approval process in mind. Secondary plans
often include new or extended arterial (and
collector roads) and widenings to existing
roads as well. In response to the question,
feedback from the area municipalities and
conservation authorities was generally
positive on providing greater clarity in the OP
on ensuring compliance on the Class EA
process for arterial roads, particularly when
they are tied to new developments.
The Municipal Engineers Association’s
(MEAs) Class EA process for roads has
specified that arterial and collector roads
beyond a certain cost threshold should be
subject to the Class EA process, rather than
simply be approved through the Planning Act
process and proceed to detailed design and
construction. However, prior to amendments
in 2007, the Class EA process considered
arterial and collector roads regardless of cost
pre-approved if part of a Planning Act
process such as a secondary plan. Even after
2007, the Class EA process was not always
consistently applied in the preparation of
secondary plans. A secondary plan of draft
plan of subdivision, if approved under the
Planning Act process only, may not identify
the most suitable alignment from an
environmental or engineering perspective. It
also can “piecemeal” the planning of a road
corridor leaving sections outside of the
developable area, such as a watercourse
crossing, up to others (often the area
municipality) to deal with later.
As part of the COVID-19 Economic Recovery
Act, 2020, changes to streamline the
provincial EA Act, and Class EAs such as the
MEA Class EA process, were proposed.
Changes to the Class EA process do provide
some clarity as to how arterial roads should
be considered in the context of secondary
plans and other Planning Act approvals.
Generally, the revised language allows for the
planning of arterial roads under the Planning
Act process, such as a secondary plan, as long
as alternative alignments have been
considered and evaluated subject to specific
criteria. Otherwise, a Class EA process is
required. These proposed changes mean that
more up-front planning as part of the
Planning Act process is required, mirroring
the EA process, is required to avoid an
integrated Planning Act/Class EA process or a
separate Class EA process in advance of
Planning Act approvals. Pending approval of
the changes proposed under the MEA Class
EA process, support for the planning and
design of arterial roads through the
secondary plan process can be articulated
through ROP policy.
163 | Envision Durham
The Connected Transportation System
section of the new ROP will consider a policy
to encourage initiating Class EA studies in
advance of, or integrated with, the Planning
Act for secondary plans or significant areas of
intensification for arterial roads as the best
approach. However, the policy will also
support the more streamlined approach
proposed by MEA, where feasible, for the
evaluation and assessment of arterial road
alignment alternatives as part of the
secondary plan process (i.e. avoiding the
need for a separate Class EA study), as long
as it in keeping with Class EA requirements
and does not lead to a piecemeal approach.
Emerging Technologies:
The Transportation System Discussion Paper
raised emerging technologies and their
current and evolving impact on travel.
Emerging technologies on the transportation
system are numerous, including ridesharing
services such as Uber or Lyft, bike and car
sharing services, how people access travel
information, Electric Vehicles, Automated
Vehicles, and Connected Vehicles. Discussion
question #13 asked: “What are the potential
implications of emerging technologies on the
Regional Transportation System?”.
Responses to this question received from
area municipalities and the public were quite
varied but spoke to the advantages and
disadvantages of these technologies in terms
of their impact on travel demand, transit
ridership and congestion.
The Region has embarked on the myDurham
Intelligent Communities Plan, a component
of which is a Smart Mobility Strategy. The
plan is intended to transform the Region
from the concept of “smart cities” or “smart
regions”, which focused strictly on data and
technology to improve efficiency and service
delivery, to connected Intelligent
Communities. It means that residents,
businesses and partners will collaborate and
innovate with the Region in terms of data-
driven decision making.
The concept of “smart cities” has evolved
over the past decade. While it used to focus
strictly on data and technology, municipal
leaders have learned that being smart is
more than that. According to the Intelligent
Communities Forum of Canada, intelligent
communities are more than technology and
infrastructure – they are focused on solving
problems that matter, not just the ones that
technology can address. The Region of
Durham is transitioning from being a Smart
Region – one that collects and uses data and
technology to improve efficiency and service
delivery – to a collection of connected
Intelligent Communities. We will still use data
and technology to improve service delivery,
but it will be informed by our residents,
businesses and partners. Durham’s Intelligent
Communities Plan will improve economic
competitiveness, engage citizens and
increase connectivity to support smarter,
healthier, more equitable and sustainable
communities.
As work on the myDurham Intelligent
Communities Plan evolves, a Smart Mobility
Strategy will help inform the Region’s role in
managing emerging technologies that use the
transportation network, which may have
implications for the ROP. These technologies
and approaches, which include Connected
and Automated Vehicles, use of ridesharing
services, increasing access to real time online
traffic and construction information
Envision Durham | 164
(including the Region’s Traffic Watch tool)
and Mobility as a Service online applications
for access to ridesharing, carsharing, transit
and other services. In addition, the use of
Intelligent Transportation Systems (ITS),
which are advanced and emerging
technologies to help manage the
transportation system such as the Region’s
traffic signal network, will help to make road
and transit networks more efficient. The ROP
will encourage ongoing Regional initiatives
related to ITS.
165 | Envision Durham
Supporting Sections
Introductory Components
The new ROP will not only be based on an
entirely new framework, it will also build on
the strengths of the existing ROP by
bolstering those components that remain
relevant, while establishing new policies and
approaches for a compelling, user-friendly
Plan. The introductory components of the
new ROP will set the stage, establish the
context and assist readers to navigate the:
• Historical context of the Region, and how
this shapes our future forward
(Prologue);
• Purpose of a Regional Official Plan;
• Preparation of the Plan;
• How to read the Plan; and
• Framework of the Plan, outlining a strong
regional vision that is supported by broad
strategic directions, ambitious goals,
pragmatic objectives and action-based
policies.
This section highlights proposed introductory
components that are both historical and
context-setting for the region.
Honouring and acknowledging
Indigenous Populations within the
region
Following the 2015 release of the Federal
Truth and Reconciliation Commission (TRC)
final report, land acknowledgements have
emerged as one of the responses to the TRC
“Calls to Action.”
The intent of a land acknowledgement
statement is to recognize the First Nations
Peoples on whose traditional territories we
live and work, show respect, acknowledge
their rights, pay homage to their traditions,
and to continue to pay tribute to their
contributions to our nations and our
respective communities.
It is intended that a specific statement of
recognition and respect be included as a
foundation for continuing the journey to
building healthy, reciprocal relationships
with Indigenous peoples. The following
proposed directions also encourage
meaningful engagement with Indigenous
communities (see also Traditional Ecological
Knowledge, and Public Consultation and
Engagement).
Indigenous Territory Acknowledgement:
Regional Council believes that traditional
territory acknowledgements are a respectful
and fitting way to recognize that this region
spans a portion of the territories covered by
the Williams Treaties, and that all eight area
municipalities of Durham are home to
Indigenous Peoples. As a result, the Council
Procedural By-law was amended to provide
for the reading of a traditional territory
acknowledgement at the beginning of every
Council meeting.
As Regional Council’s core planning
document, guiding decision-making on
current and long-term land use matters,
giving recognition to the original caretakers
of these lands is fitting within the ROP.
Envision Durham | 166
101. Proposed Direction: Indigenous
Territory Acknowledgement
1. That Regional Council’s current land
acknowledgement wording be adopted,
and amended from time-to-time as
appropriate, for the context of the ROP.
This acknowledgement should be stated
within the introductory section of the
ROP.
Mississaugas of Scugog Island First
Nation:
While the Mississaugas of Scugog Island First
Nation lands are not subject to the provisions
of the ROP (or provincial plans), it is
appropriate that the ROP explicitly recognize
and clarify that these lands are separate and
distinct, and not governed by these land use
planning policies.
The Conservation Authorities’ joint
submission on the Environment and
Greenlands Discussion Paper suggested that
consideration be given to including a Treaty
map in the ROP. However, a preferred
approach that focuses on the Mississaugas of
Scugog Island First Nation lands, while
conveying that these lands are a distinct
neighbouring jurisdiction, is to identify these
specific lands consistently within ROP
Schedules.
102. Proposed Direction: Mississaugas of
Scugog Island First Nation
1. Clarify that the ROP affects all lands
within the boundary of the Regional
Municipality of Durham, save and except
for the lands within the boundary of the
Mississaugas of Scugog Island First
Nation, as well as lands that are owned
by the provincial and/or federal
government.
2. Proposed text should be further
supported by mapping revisions that
identify the Mississaugas of Scugog Island
First Nations lands on all applicable ROP
Schedules.
Supporting Implementation of the
Plan
In addition to the new ROP’s introductory
section and the seven Strategic Directions’
themed chapters, there are key supporting
sections which serve to assist document
users with matters of implementation and
interpretation, including the:
• Glossary – formerly referred to as
“Definitions” (current Sub-Section 15A),
wherein terms and concepts will be
updated for clarity, consistency and
provincial conformity, where applicable
and as detailed throughout this report.
• Index – a new tool that will be introduced
through the new ROP to aid readers in
wayfinding specific policy areas and cross-
references, particularly within hardcopies
of the new ROP. This feature is intended
to help improve ease-of-use and service
delivery.
• Maps – formerly referred to as
“Schedules” (specifically Schedules A to
D). While the overall intent of the Plan’s
mapping remains largely intact – that is to
illustrate the regional structure,
differentiate land use designations,
167 | Envision Durham
identify key systems, networks and
boundaries, etc. – significant updates are
anticipated to reflect matters of
provincial conformity, including detailed
delineations of Strategic Growth Areas,
the addition of a new Agricultural System
and Regional Natural Heritage System, as
well as other revisions detailed
throughout this report.
In addition, there are major upgrades
proposed for the delivery of these maps,
including the use of an online mapping
portal, intended to improve internal staff
use across divisions, as well as provide
ease-of-use for the general public. New
mapping will be presented
comprehensively as part of the draft ROP.
A new section on “Implementing the Plan”
(currently Section 14) will continue to offer
guidance for the actions and decisions of all
governments, individuals, businesses and
stakeholders involved in interpreting and
implementing the land use planning policies
of the ROP.
While staff work towards updating policies
integral to implementing the new ROP, the
following exemplify new and updated
proposed policy directions, respectively.
103. Proposed Direction: Supporting
Implementation of the Plan
1. Add a statement that allows the Region
to release subsequent information and/or
guidelines to support the implementation
of the Plan.
Public Consultation and Engagement
Effective public consultation and engagement
is critical to good land use planning and
overall decision-making. While formal
requirements and procedures are mandatory
for Planning Act applications, the Region may
go beyond the minimum requirements and
expand on when and how enhanced
opportunities for input, including both
traditional and innovative engagement
methods, are applied to other exercises, such
as the development of studies, strategies and
action plans.
Updated provincial plans now explicitly
encourage planning authorities, such as the
Region, to build constructive, cooperative
relationships through meaningful
engagement with Indigenous communities to
facilitate knowledge-sharing in land use
planning processes and inform decision-
making.
104. Proposed Direction: Public
Consultation and Engagement
1. Foster an open, accessible and
collaborative planning process by
encouraging ongoing consultation and
engagement with the public,
stakeholders, and agencies, including a
renewed emphasis on meaningful
engagement with Indigenous
communities.
2. Wherever possible, efforts should be
made to promote broad community
awareness of planning issues and provide
enhanced opportunities for input through
both traditional (i.e. in-person) and
innovative methods, which may include
Envision Durham | 168
electronic media or other emerging
technologies.
Review and Monitoring
Reviewing and monitoring the ROP and its
components is a critical function of long-
range planning. These activities help:
• measure the effectiveness of some or all
of the policies;
• identify emerging trends for additional
review and research; and
• monitor the implementation of the plan.
Overall, the purpose of reviewing and
monitoring policies is to assess the Region’s
progress towards achieving the strategic
directions of the plan.
With respect to comprehensive reviews, the
Planning Act contains explicit requirements
related to reviewing and updating official
plans. These requirements were amended
through Bill 73, The Smart Growth for Our
Communities Act, 2015, wherein the
Province extended the review timeframe for
new official plans from a five-year cycle to
ten years, and at five-year intervals
thereafter. As a result of the “repeal and
replace” approach of the Envision Durham
exercise, the Planning Act would not require
another statutory review until 10 years after
the new ROP comes into effect (i.e. by 2032).
While formal plan reviews are more closely
regulated by provincial legislation,
monitoring and reporting on implementation
is more broadly completed as a matter of
good planning practice.
The current ROP policies for “Review and
Monitoring” are generally adequate and
were not subject to extensive stakeholder
feedback or formal provincial conformity
requirements. Nonetheless, current policies
were subject to review to ensure they are up
to date, incorporate appropriate indictors,
represent measures that can yield
meaningful results, and are flexible enough
to allow for the addition of new key
performance indicators, as deemed
appropriate, over time.
105. Proposed Direction: Review and
Monitoring
1. Introduce a new implementation
objective for “Review and Monitoring” to
ensure regular review, monitoring and
performance measurement is used to
identify emerging trends and guide the
successful implementation of this Plan.
2. Clarify that the review timeframe for new
official plans is now 10 years, which
returns to five-year intervals thereafter.
All or parts of the ROP may be reviewed
at any time at the request of Regional
Council.
3. Expand current monitoring policies from
growth management objectives, many of
which have been revised through the
updated Growth Plan, to incorporate the
potential for broader key performance
indicators.
169 | Envision Durham
How to provide feedback
To solicit feedback on the Proposed Policy
Directions, an online survey has been
developed to help facilitate input. Each
proposed direction has been highlighted, by
report section, with a corresponding “poll”
survey at
durham.ca/EnvisionDurhamDirections.
Using a Likert Scale, ranging from Strongly
Agree to Strongly Disagree, survey
respondents are asked to provide input on of
each of the proposed policy directions. In
addition, specific comments can be inputted
directly into the document for each proposed
direction.
A Likert Scale is a type of rating scale used to
measure attitudes or opinions. With this
scale, respondents are asked to rate items on
a level of agreement or importance.
While use of the online survey is preferred,
written responses will still be accepted via
email sent to EnvisionDurham@durham.ca or
sent to the attention of: Envision Durham,
c/o The Regional Municipality of Durham,
Planning and Economic Development
Department, 605 Rossland Road East, PO Box
623, Whitby, Ontario, L1N 6A3.
Paper copies and accessible formats are
available upon request by contacting
EnvisionDurham@durham.ca.
Comments on the Proposed Policy
Directions are requested by June 30, 2021 (a
120-day submission window). The online
survey will be closed to submissions
immediately following this date.
In addition, submissions for new and/or
amended requests for Settlement Area
Boundary Expansion are requested by May
31, 2021 (a 90-day submission window).
Submissions should have regard for the
criteria outlined in the Settlement Area
Boundary Expansion section of this report,
and include mapping of the subject property
and a description of the proposed land use
and built form. Settlement Area Boundary
Expansion requests should be made directly
via email to EnvisionDurham@durham.ca.
The Proposed Policy Directions and related
engagement instructions will be posted to
the project web page at
durham.ca/EnvisionDurham for comment.
Interested parties are encouraged to
subscribe for project updates and email
notifications through this web page. The
release of this Proposed Policy Directions
report and the opportunity to provide input
will be announced by way of:
• news release and public service
announcement;
• social media platforms, including
Facebook, Twitter and LinkedIn;
• email notifications directly to the Envision
Durham interested parties list;
• materials published online; and
circulation of Proposed Policy Directions to
the project working groups, including Area
Municipalities and Conservation Authorities,
relevant Regional Advisory Committees
(including DAAC, DEAC, DATC and DRRCC),
BILD – Durham Chapter, and the Ministry of
Municipal Affairs and Housing.
Envision Durham | 170
Next steps
The Proposed Policy Directions were
developed and informed based on best
practice reviews, research, public
engagement and feedback received during
Stages 1 and 2 of the Envision Durham
process. These proposed directions provide
an overview of proposed changes to existing
and new, emerging land use planning policies
for consideration with a new Regional Official
Plan and are intended to gather opinions and
to help shape future policy.
Your feedback on these proposed policy
directions are important to us. The Regional
Planning Division appreciates your interest
and encourages your participation
throughout the Envision Durham process. To
submit your comments, please visit
durham.ca/EnvisionDurhamDirections.
Comments on this Proposed Policy Directions
report are requested by June 30, 2021 (a
120-day submission window), while
Settlement Area Boundary Expansion
requests are requested by May 31, 2021 (a
90-day submission window).
Following the 120-day period, the proposed
policy directions will be reviewed based on
feedback received through the consultation
process and will form the basis for draft
policies. Interested parties will also have
opportunities to provide feedback on
proposed policies in a draft Regional Official
Plan.
Concurrent work is also being completed
through the Growth Management Study (i.e.
Land Needs Assessment), as well as
advancing a standalone Major Transit Station
Area Regional Official Plan Amendment.
To stay up-to-date on Envision Durham,
please visit durham.ca/EnvisionDurham and
subscribe to receive email updates.
171 | Envision Durham
Appendix A: Glossary of
Proposed New/Amended
Terms
Active aging: meaning the process of
optimizing opportunities for health,
participation, and security in order to
enhance quality of life as people age.
Active transportation: meaning human-
powered travel, including but not limited to,
walking, cycling, inline skating and travel with
the use of mobility aids, including motorized
wheelchairs and other power-assisted
devices moving at a comparable speed.
Age-friendly planning: meaning growth and
development of the physical environment
that recognizes the distinct needs of diverse
populations; and supports healthy and active
aging of residents of all ages and abilities
through supportive policies, services, and
infrastructure.
Agricultural uses: meaning the growing of
crops, including nursery, biomass, and
horticultural crops; raising of livestock;
raising of other animals for food, fur or fibre,
including poultry and fish; aquaculture;
apiaries; agro-forestry; maple syrup
production; and associated on-farm buildings
and structures, including, but not limited to
livestock facilities, manure storages, value-
retaining facilities, and accommodation for
full-time farm labour when the size and
nature of the operation requires additional
employment.
Agricultural source material (ASM): meaning
treated or untreated material that is capable
of being applied to land as a nutrient, but
does not include compost that meets the
Compost Guidelines, or a commercial
fertilizer. Some examples of ASM are manure
produced by farm animals, runoff from farm-
animal yards and manure storages, and
milking center wash water.
Agriculture-related uses: meaning those
farm related commercial and farm-related
industrial uses that are directly related to
farm operations in the area, support
agriculture, benefit from being in close
proximity to farm operations, and provide
direct products and/or services to farm
operations as a primary activity.
Agri-food network: meaning, within the
agricultural system, a network that includes
elements important to the viability of the
agri-food sector such as regional
infrastructure and transportation networks;
on-farm buildings and infrastructure;
agricultural services, farm markets,
distributors, and primary processing; and
vibrant, agriculture-supportive communities.
Agri-tourism uses: meaning those farm-
related tourism uses, including limited
accommodation such as a bed and breakfast,
that promote the enjoyment, education or
activities related to the farm operation.
Alternative energy systems: meaning a
system that uses sources of energy or energy
conversion processes to produce power, heat
and/or cooling that significantly reduces the
amount of harmful emissions to the
environment (air, earth and water) when
compared to conventional energy systems.
Automatic Action Zone: meaning a pre-
designated area immediately surrounding a
Envision Durham | 172
reactor facility where pre-planned protective
actions would be implemented by default on
the basis of reactor facility conditions with
the aim of preventing or reducing the
occurrence of severe deterministic effects
(Canadian Standards Association N1600,
General requirements for nuclear emergency
management programs).
Bona-fide farmer: meaning someone who
derives their primary source of income from
farming and can demonstrate their activities
are consistent with the definition of
agricultural uses.
Community hub: meaning a central location
where residents may access a range of
services in one place. Community hubs can
include: social, health, retail, cultural,
educational, recreational, and other services
and resources that support the daily needs of
the community’s residents.
Complete streets: meaning streets planned
to balance the needs of all road users,
including pedestrian, cyclists, transit-users
and motorists.
Condominium conversion: meaning the
conversion of a rental property to ownership
tenure through a plan of condominium.
Designated vulnerable areas: meaning
wellhead protection areas, intake protection
zones, significant groundwater recharge
areas and areas of high aquifer vulnerability.
Diverse populations: meaning distinct groups
within the population that require different
levels of services and needs which may
include and are not limited to: older adults,
children, youth, diverse ethnic populations,
Indigenous Populations, and recent
immigrants.
Dynamic beach hazard: meaning areas of
inherently unstable accumulations of
shoreline sediments along the Great Lakes –
St. Lawrence River System and large inland
lakes, as identified by provincial standards, as
amended from time to time. The dynamic
beach hazard limit consists of the flooding
hazard limit plus a dynamic beach allowance.
Ecological goods and services: meaning the
benefits which accrue to all living organisms
resulting from the ecological functions of
healthy ecosystems. Ecological goods and
services include clean air, fresh water,
biodiversity, nutrient cycling, water
management, soil retention, genetic
resources, food production, and climate
regulation which contribute to meeting
health, social, cultural, and economic needs.
The products and processes of ecological
goods and services are complex and occur
over long periods of time.
Ecological integrity: which includes
hydrological integrity, means the condition of
ecosystems in which:
i. the structure, composition and
function of the ecosystems are
unimpaired by the stresses from
human activity;
ii. natural ecological processes are intact
and self-sustaining; and
iii. the ecosystems evolve naturally.
Ecosystem compensation: meaning to
remediate, replace, or financially compensate
to offset the loss of natural heritage features
173 | Envision Durham
and negative impacts to biodiversity, as a
result of development.
Erosion hazard: meaning the loss of land, due
to human or natural processes, that poses a
threat to life and property. The erosion
hazard limit is determined using
considerations that include the 100 year
erosion rate, an allowance for slope stability,
and an erosion/erosion access allowance.
Excess soil: meaning soil, or soil mixed with
rock, that has been excavated as part of a
project and removed from the project area
for the project.
Green infrastructure: meaning natural and
human-made elements that provide
ecological and hydrological functions and
processes. Green infrastructure may include
components such as natural heritage
features and systems, parkland, stormwater
management systems, trees, natural
channels, permeable surfaces, and green
roofs.
Hazardous forest types for wildland fire:
meaning forest types assessed as being
associated with the risk of high to extreme
wildland fire using assessment tools provided
by the province.
Highly vulnerable aquifers: meaning an
aquifer that is particularly susceptible to
contamination because of its location near
the ground’s surface or where the types of
materials in the ground around it are highly
permeable.
Housing options: meaning a range of housing
types such as, but not limited to single-
detached, semi-detached, rowhouses,
townhouses, stacked townhouses,
multiplexes, secondary units, microhomes or
tiny homes, mid-rise and high-rise multi-
residential buildings. The term can also refer
to a variety of housing arrangements and
forms such as, but not limited to rental and
ownership housing, affordable housing,
accessible housing, housing for people with
special needs, seniors’ housing, community
housing, supportive housing, transitional
housing, shared living, co-ownership housing,
co-operative housing, community land trusts,
life lease housing, land lease community
homes, and housing related to employment,
institutional or educational uses.
Infrastructure: meaning physical structures
(facilities and corridors) that form the
foundation for development. Infrastructure
includes: sewage and water systems, septage
treatment systems, stormwater management
systems, waste management systems,
electricity generation facilities, electricity
transmission and distribution systems,
communications/telecommunications, transit
and transportation corridors and facilities, oil
and gas pipelines and associated facilities.
Intake protection zones: meaning the area
on the water and land immediately
surrounding a municipal water intake in a
lake, river or stream that may be vulnerable
to significant threats. The delineation of
intake protection zones is based on the
amount of time it takes for water to reach
the intake, as outlined below:
i. Intake Protection Zone 1: The one
kilometre circle around the drinking
water intake;
Envision Durham | 174
ii. Intake Protection Zone 2: The area
within a 2-hour time travel to the
drinking water intake; and
iii. Intake Protection Zone 3: The area
that may contribute contaminants to
an intake during an extreme event
and is based on modeling
contaminants released during the
extreme event.
Invasive Species: meaning plants, animals
and micro-organisms that spread when
introduced outside of their natural
distribution and cause serious and often
irreversible damage to ecosystems, the
economy, and society.
Low impact development (LID) stormwater
management practices: meaning an
approach to stormwater management that
seeks to manage rain and other precipitation
as close as possible to where it falls in order
to mitigate the impacts of increased runoff
and stormwater pollution. It comprises a set
of site design strategies and distributed,
small-scale structural practices to mimic the
natural hydrology to the greatest extent
possible through infiltration,
evapotranspiration, harvesting, filtration and
detention of stormwater. Low impact
development can include: bio-swales,
permeable pavement, rain gardens, green
roofs, and exfiltration systems.
Microhomes: also referred to as tiny homes,
meaning a small, self-contained dwelling unit
intended for year-round use, which cannot
move and is not designed to be moved under
its own power.
Multi-modal level of service (MMLOS):
meaning to measure the speed, convenience,
comfort and security of transportation
facilities experienced by users of all modes
(including pedestrians, cyclists, transit riders
and goods movement), in addition to
automobiles, in evaluating problems and
potential solutions.
Natural self-sustaining vegetation: meaning
vegetation dominated by native plant species
that can grow and persist without direct
human management, protection, or tending.
On-farm diversified uses: meaning uses that
are secondary to the principal agricultural
use of the property and are limited in area.
On-farm diversified uses include, but are not
limited to, home occupations, home
industries, agritourism uses, and uses that
produce value added agricultural products.
Ground-mounted solar facilities are
permitted in prime agricultural areas,
including specialty crop areas, only as on-
farm diversified uses.
Prescribed drinking water threats: meaning
activities prescribed to be drinking water
threats as outlined below:
i. The establishment, operation, or
maintenance of a waste disposal site
within the meaning of Part V of the
Environmental Protection Act;
ii. The establishment, operation or
maintenance of a system that
collects, stores, transmits or disposes
of sewage;
iii. The application of agricultural source
material to land;
iv. The storage of agricultural source
material;
175 | Envision Durham
v. The management of agricultural
source material;
vi. The application of non-agricultural
source material to land;
vii. The handling and storage of non-
agricultural source material;
viii. The application of commercial
fertilizer to land;
ix. The handling and storage of
commercial fertilizer;
x. The application of pesticide to land;
xi. The handling and storage of pesticide;
xii. The application of road salt;
xiii. The handling and storage of road salt;
xiv. The storage of snow;
xv. The handling and storage of fuel;
xvi. The handling and storage of dense
non-aqueous phase liquid;
xvii. The handling and storage of an
organic solvent;
xviii. The management of runoff that
contains chemicals used in de-icing of
aircraft;
xix. An activity that takes water from an
aquifer or surface water body without
returning the water taken to the same
aquifer or surface water body;
xx. An activity that reduces the recharge
of an aquifer; and
xxi. The use of land as livestock grazing or
pasturing land, an outdoor
confinement area, or a farm yard.
Public realm: meaning publicly accessible
external space between private buildings
including such areas as parking lots, streets,
sidewalks, squares, lanes, parks, and the
municipal boulevard.
Renewable energy source: meaning an
energy source that is renewed by natural
processes and includes wind, water, biomass,
biogas, biofuel, solar energy, geothermal
energy and tidal forces.
Renewable energy systems: meaning a
system that generates electricity, heat and/or
cooling from a renewable energy source.
Rental housing: meaning a building or
related group of buildings containing one or
more rented residential units, including
vacant units that have been used for rented
residential purposes.
Rental property: meaning land where rental
housing is located.
Risk management official: meaning the
official appointed under Part IV of the Clean
Water Act, 2006. The Risk Management
Official is responsible for making decisions
about risk management plans and risk
assessments and must meet the prescribed
criteria in the regulations under the Clean
Water Act, 2006.
Significant groundwater recharge areas:
meaning an area within which it is desirable
to regulate or monitor drinking water threats
that may affect the recharge of an aquifer.
Detailed mapping of significant groundwater
recharge areas is found in source protection
plans and their associated assessment
reports.
Special needs housing: meaning housing
used by people with specific needs beyond
economic needs, including mobility
requirements or support functions required
for daily living. Special needs housing may
Envision Durham | 176
include long-term care homes, seniors’
housing, accessible housing, community
housing, transitional housing and supportive
housing for persons with disabilities such as
physical, sensory or mental health
disabilities.
Strategic growth areas: meaning within the
Urban Area, centers, nodes, corridors and
other areas that have been identified at the
Regional scale to be the focus for
accommodating intensification and higher-
density mixed uses in a compact urban built
form. Strategic Growth Areas include Urban
Growth Centres, Major Transit Station Areas,
Regional Centres, and Rapid Transit
Intensification Spines (where applicable).
Lands within these areas may include major
opportunities for infill and/or
redevelopment, brownfield sites and/or
greyfield, or opportunities for the expansion
or conversion of existing buildings.
Traditional ecological knowledge: meaning
Indigenous knowledge and values which have
been acquired through experience,
observation, from the land or from spiritual
teachings through direct contact with the
environment, and handed down from one
generation to another. It includes the
relationships between plants, animals,
natural phenomena, landscapes, and timing
of events.
Transportation demand management
(TDM): meaning a set of strategies that result
in more efficient use of the transportation
system by influencing travel behaviour by
mode, time of day, frequency, trip length,
regulation, route, or cost.
Universal accessibility design principles:
meaning products, services, and
environments that can be used by people of
all ages and abilities, to the greatest extent
possible without the need for adaptation or
specialized design. Seven principles for
consideration include: equitable design,
flexibility in use, simple and intuitive use,
perceptible information, tolerance for error,
low physical effort, and size and space for
approach and use.
Urban agriculture: meaning the practice of
growing, processing and distribution of food
within urban centres in accordance with local
policies, by-laws and regulations.
Vulnerability score: meaning the scoring of a
designated vulnerable area that reflects its
vulnerability to contamination. The detailed
delineation of vulnerability scoring is found in
source protection plans and their associated
assessment reports.
Waste disposal site: meaning,
i. any land upon, into, in or through
which, or building or structure in
which, waste is deposited, disposed
of, handled, stored, transferred,
treated or processed; and
ii. any operation carried out or
machinery or equipment used in
connection with the depositing,
disposal, handling, storage, transfer,
treatment or processing referred to in
clause (i.).
Wellhead protection areas: meaning the
area around a municipal drinking water well
that may be vulnerable to threats in
accordance with the following:
177 | Envision Durham
i. For water quality threats, the size and
delineation of the wellhead
protection areas are determined by
how quickly water travels
underground to the well, measured in
years, as outlined below:
a. Wellhead Protection Area – A: The
area within a 100-metre radius of
the wellhead;
b. Wellhead Protection Area – B: The
area subject to a 2-year travel
period to the well;
c. Wellhead Protection Area – C: The
area subject to a 5-year travel
period to the well;
d. Wellhead Protection Area – D: The
area subject to a 25-year travel
period to the well; and
e. Wellhead Protection Area – E: The
area where a well is influenced by
surface water.
ii. For water quantity threats, the
delineation of the wellhead
protection area is based on a tiered
water budget analysis that
determined locations where there
was a moderate or significant threat
to water quantity. These are classified
as:
a. Wellhead Protection Area –
Quantity 1: The area where
activities that take water without
returning it to the same aquifer
may be a threat; and
b. Wellhead Protection Area –
Quantity 2: The area where
activities that reduce recharge may
be a threat.
Wildland assessment and mitigation
standards: meaning the combination of risk
assessment tools and environmentally
appropriate mitigation measures identified
by the province to be incorporated into the
design, construction and/or modification of
buildings, structures, properties and/or
communities to reduce the risk to public
safety, infrastructure and property from
wildland fire.
Envision Durham | 178
Appendix B: Requests for Employment Area Conversion
Current Requests for Employment Area Conversion as of February 1, 2021.
Conversion
Request-ID Municipality Site Location
(Address, if available)
Land Area
(Hectares)*
Description of Employment Conversion
Request
(as described by proponent)
CNR-01 Brock Multiple lots on the east
of Sideroad 18/Laidlaw
Street, south of the
Beaver River Wetland
Trail, Cannington
3.02 To re-designate from Employment Area to
permit residential uses (35 single detached
dwellings).
CNR-02 Whitby 1151 Dundas Street
West
2.91 or 4.10 To re-designate one of the two identified areas
on the site from Employment Area to permit
either a mixed-use development of high-
density residential uses (873 units) and ground
floor non-residential uses (parcel option A) or a
high-density residential development of 1,230
units (parcel option B). It has since been
confirmed that parcel option A is the
proponents preferred option.
CNR-03 Ajax 275 Westney Road South 1.8 To re-designate from Employment Area to
permit a mixed-use development of high
density residential (1000 units) and commercial
uses (805 sq. m) within the proposed Ajax
Major Transit Station Area boundary.
179 | Envision Durham
Conversion
Request-ID Municipality Site Location
(Address, if available)
Land Area
(Hectares)*
Description of Employment Conversion
Request
(as described by proponent)
CNR-04 Ajax 1901 Harwood Avenue
North
1.04 To re-designate from Employment Area to
permit a mixed-use development of residential
(400 units) and employment uses (1,858 sq.
m.). The southern edge of the property is
proposed to remain as Employment Area.
CNR-05 Oshawa 305 Columbus Road
West
25.3 To re-designate from Employment Area to
permit residential uses. Request includes lands
outside of proponent’s ownership. Proposal
would enable the development of 750 to 1,062
units on the lands owned by the proponent.
CNR-06 Whitby Lands north of Victoria
Street & west of
Montecorte Street (Part
of Lot 30, Con. 1 and Lot
31, Con. 1)
18.0 To re-designate from Employment Area to
permit a mixed-use development of residential
(4,900 units) and at-grade retail and service
uses.
Envision Durham | 180
Conversion
Request-ID Municipality Site Location
(Address, if available)
Land Area
(Hectares)*
Description of Employment Conversion
Request
(as described by proponent)
CNR-07 Ajax Northeast and Southeast
corners of Salem Road &
Kerrison Drive (Part of
Lot 6, Concession 2)
11.8 To re-designate from Employment Area to
Regional Centre to permit a mixed-use
development of high-density residential (2,873
units, of 171 assisted and 470 seniors housing
units) and non-residential uses including office,
gym, hotel, medical, retail, community,
convention, movie theatre (43,175 sq. m). The
eastern portion of the site is proposed to
remain as Employment Area.
CNR-08
*note: a
submission
form was not
received for
this request
Whitby 1730 Dundas Street
West
2.21 To re-designate a portion of the subject lands
fronting Dundas Street West from Employment
Areas to Living Areas to permit a mixed-use
development including a seniors’ building.
CNR-09 Ajax South side of Bayly
Street East, east of Shoal
Point Road (Part of Lot 4,
Range 3)
1.71 To re-designate from Employment Area to
permit residential uses (85 townhouse
dwellings).
181 | Envision Durham
Conversion
Request-ID Municipality Site Location
(Address, if available)
Land Area
(Hectares)*
Description of Employment Conversion
Request
(as described by proponent)
CNR-10 Pickering 1802 and 1902 Bayly
Street and 2028 Former
Kellino Street (referred
to as “Durham Live
Lands”)
90.5 To re-designate a portion of the lands from
Employment Area to add residential (up to
1,650 units inclusive of a component of
affordable housing units) and retail uses (up to
32,500 sq. m.)
Note: A Minister’s Zoning Order has since been
issued for these lands granting residential land
use permission.
CNR-11 Clarington 1766 Baseline Rd,
(Courtice)
11.08
**overlaps with
CNR-41
To re-designate from Employment Area to
permit mixed-use residential (1,097 units) and
non-residential uses include office, commercial
and retail (37,660 sq. m.)
CNR-12 Whitby 1275 Dundas Street
West
5.51 To re-designate the subject lands from
Employment Area to permit mixed-use
residential (200 units) and office/commercial
development (90,000 sq. m.)
CNR-13 Brock 276 Cameron Street East,
(Cannington)
13.62 To re-designate the subject lands from
Employment Area to Living Area to permit
residential uses.
Envision Durham | 182
Conversion
Request-ID Municipality Site Location
(Address, if available)
Land Area
(Hectares)*
Description of Employment Conversion
Request
(as described by proponent)
CNR-14 Ajax 1,3,5 & 7 Rossland Road
East and 901 Harwood
Ave. North
3.9 To re-designate the subject lands from
Employment Area to Living Area to permit
residential development (Phase 1
approximately 275 to 300 units with further
intensification potential over the long term).
CNR-15 Ajax 1401 Harwood Avenue
North
6.1 To re-designate from Employment Area to
Living Area to permit the development of
townhouses and a retirement/long term care
facility.
Note: A Minister’s Zoning Order (438/20) has
been issued permitting the retirement and
long-term care component of the request.
CNR-16 Brock 950 Concession Road 5
(Part of Lot 15,
Concession 4)
31.68 To re-designate from Employment Area to
Living Area to permit residential development
(approximately 200 units)
CNR-17 Scugog 1520, 1540 and 1580
Reach Street
31.0 To re-designate a portion of the property from
Employment Area to Living Area to permit a
mixed-use development.
CNR-18 Oshawa 204 to 230 Cordova Road
and 742 and 744 Oxford
Street
0.64
**overlaps with
CNR-45
To re-designate from Employment Area to
Living Area to permit residential development.
183 | Envision Durham
Conversion
Request-ID Municipality Site Location
(Address, if available)
Land Area
(Hectares)*
Description of Employment Conversion
Request
(as described by proponent)
CNR-19 Ajax 250 Rossland Road East 6.95 To re-designate from Employment Area to
permit a mixed-use development of high-
density residential (1,090 units) and non-
residential uses, including office and retail
(24,343 sq. m.).
CNR-20 Ajax 650 Beck Crescent 0.69 To re-designate from Employment Area to
permit a mixed-use development of high
density residential (200 units) and office (5,420
sq. m.).
CNR-21 Ajax 493 Bayly Street West 0.9 To be included in the boundary of the Ajax
Major Transit Station Area and to permit a
mixed-use development of high density
residential (1,100 units) and non-residential
uses, including service, commercial, office and
retail (1,858 sq. m.)
Envision Durham | 184
Conversion
Request-ID Municipality Site Location
(Address, if available)
Land Area
(Hectares)*
Description of Employment Conversion
Request
(as described by proponent)
CNR-22 Ajax 190 Westney Road South 0.6 To be included in the boundary of the Ajax
Major Transit Station Area and to permit a
mixed-use development of high density
residential (1,100 units) and non-residential
uses, including service, commercial, office,
retail, and supermarket (2,787 sq. m.).
Note: the subject site is already within the Ajax
GO Station Mixed Use Area as per the Town of
Ajax Official Plan and the submission is
requesting higher residential densities be
permitted.
CNR-23 Brock Beaver Avenue,
Beaverton (Part of Lots
11 and 12, Concession 5,
Thorah)
7.6 To re-designate from Employment Area to
permit residential development (103 single
detached and semi-detached dwellings and
120 apartment units) in the southern portion
of the existing Employment Area.
CNR-24 Whitby and
Oshawa
North and south sides of
Stellar Drive, west of
Thornton Road South
34.0 To be included in the boundary of the
Thornton’s Corner Major Transit Station Area
and allow for associated mixed-use
permissions.
185 | Envision Durham
Conversion
Request-ID Municipality Site Location
(Address, if available)
Land Area
(Hectares)*
Description of Employment Conversion
Request
(as described by proponent)
CNR-25 Whitby North and south sides of
Stellar Drive,
immediately east of the
Durham College Whitby
campus
12.5 To be included in the boundary of the
Thornton’s Corner Major Transit Station Area
and allow for associated mixed-use
permissions.
CNR-26 Clarington 1305 Trulls Road (East of
Trulls Road, north of the
CP Rail line)
26.69
**overlaps with
CNR-41
To be included in the boundary of the Courtice
Major Transit Station Area and allow for
associated mixed-use permissions.
CNR-27 Clarington 1246 Prestonvale Road 3.24
**overlaps with
CNR-40
To re-designate a portion of the site from
Employment Area to allow for residential uses
as per the Southwest Courtice Secondary Plan,
including approximately 100 low density units
on the applicant’s property.
CNR-28 Ajax 221 Church Street South
(Annandale Golf Course)
25.4 To re-designate from Employment Area to
introduce additional employment, retail and
residential uses on the developable portion of
the subject lands.
CNR-29 Whitby East side of Anderson
Street, directly north of
Highway 407.
3.22 To re-designate from Employment Area to
permit a mixed-use development including
residential (305 retirement residential units)
and commercial, office, and daycare uses
(5,841 sq. m.).
Envision Durham | 186
Conversion
Request-ID Municipality Site Location
(Address, if available)
Land Area
(Hectares)*
Description of Employment Conversion
Request
(as described by proponent)
CNR-30 Clarington 1593 Bloor Street and
1614 Trulls Road
45.0 To re-designate from Employment Area to
permit residential uses (ranging from low to
medium density) to be further determined
through an extension to the Southeast Courtice
Secondary Plan.
CNR-31 Ajax 493 and 509 Bayly Street
East, and surrounding
lands
2.0 To re-designate the subject property to Living
Area with the Regional Corridor Overlay.
The submission also encourages the Region to
consider the conversion of the surrounding
lands on the south side of Bayly Street
between Shoal Point Road to Audley Road.
CNR-32 Brock North side of Concession
Road 5, approximately
500 m east of Osborne
Road, in the Village of
Beaverton
4.34 To re-designate from Employment Area to
permit residential uses (46 single detached and
47 townhouse units).
CNR-33 Ajax 1541 Harwood Avenue
North
1.1 To re-designate from Employment Area to
Living Area to permit residential uses (up to 77
medium density units).
CNR-34 Ajax 479 Bayly street east
(East of Shoal Point
Road)
2.3 To re-designate from Employment Area to
Living Area and permit residential (up to 99
townhouse units) / mixed uses.
187 | Envision Durham
Conversion
Request-ID Municipality Site Location
(Address, if available)
Land Area
(Hectares)*
Description of Employment Conversion
Request
(as described by proponent)
CNR-35 Ajax 500 Salem Road North 1.67 To re-designate from Employment Area to
permit residential uses (120 retirement units)
CNR-36 Whitby 1629, 1635, 1650, 1741,
1751 and 1761 Victoria
Street East (Thickson
Ridge)
16.93 To maintain/expand existing retail permissions
and introduce residential uses that includes an
initial proposal of approximately 500 units and
seeking additional permissions for high density
mixed use residential for the balance of the
site.
CNR-37 Clarington Lands on the west side of
Courtice Road, directly
north of the proposed
Courtice GO Train station
(Part of Lots 29 and 30,
Concession 1,
Darlington)
46.31
**overlaps with
CNR-41
To re-designate the lands to permit residential,
mixed residential/employment uses, major
retail and commercial/ employment uses
within the proposed Courtice MTSA boundary.
CNR-38 Clarington 1218 Trulls Road 23.8 To re-designate from Employment Area to
permit residential, mixed
residential/employment uses, major retail and
commercial/employment uses west of the
proposed Courtice MTSA boundary.
Envision Durham | 188
Conversion
Request-ID Municipality Site Location
(Address, if available)
Land Area
(Hectares)*
Description of Employment Conversion
Request
(as described by proponent)
CNR-39 Oshawa 2380 Ritson Road and
2867 Bridle Road
10.33 To re-designate from Employment Area to
permit mixed residential (up to 630 units) and
non-residential uses including commercial,
retail, and employment uses (23,000 sq. m.).
CNR-40 Clarington Lands west of Robinson
Creek, south of the
future extension of
Fenning Drive, north of
Highway 401 (Southwest
Courtice Secondary Plan)
36.91
**overlaps with
CNR-27
To re-designate from Employment Area to:
permit low density and medium density
residential uses of approximately 1,200 units.
recognize other existing uses such as a
cemetery expansion, parkland, green space,
stormwater management facilities preserve the
opportunity of a future Highway 401
interchange currently slated within both the
Clarington and Regional Official Plans.
CNR-41 Clarington Courtice Major Transit
Station Area
189.72
**overlaps with
CNR-11, CNR-26 and
CNR-37
To convert the entirety of the MTSA lands to a
high-density mixed-use development.
Request includes lands that are outside the
Urban Area Boundary, located on the east side
of Courtice Road. A related Settlement Area
Boundary expansion request has also been
submitted to the Region for these lands.
189 | Envision Durham
Conversion
Request-ID Municipality Site Location
(Address, if available)
Land Area
(Hectares)*
Description of Employment Conversion
Request
(as described by proponent)
CNR-42 Clarington 1447 Prestonvale Road 8.8 To re-designate from Employment Area to
permit single detached residential dwellings in
proximity to the existing residences to the west
of the property.
CNR-43 Brock Lands on the south side
of Main Street,
approximately 600
metres west of Highway
12 (Part of Lot 12,
Concession 5, Thorah)
15.98 To re-designate from Employment Areas to
permit residential development (single family
dwellings).
CNR-44
*note: a
submission
form was not
received for
this request
Clarington Lands on the north side
of the CNR rail line, west
of Trulls Road (Part of
Lot 32, Concession 1,
Darlington)
17.43
**overlaps with
CNR-30
To re-designate from Employment Areas to
permit residential uses.
Envision Durham | 190
Conversion
Request-ID Municipality Site Location
(Address, if available)
Land Area
(Hectares)*
Description of Employment Conversion
Request
(as described by proponent)
CNR-45 Oshawa 204, 210, 214, 218, 226,
230, 240 and 248
Cordova Road, 700, 742
and 744 Oxford Street,
and 178-228 Valencia
Road including 0
Valencia Road and the
City-owned Oxford
Street road allowance
north of Valencia Road.
3.37
**overlaps with
CNR-18
To re-designate lands from Employment Areas
to Living Areas to permit a Regeneration Area
in the Oshawa Official Plan.
CNR-46 Oshawa North of Highway 407
East between Thornton
Road North and Simcoe
Street North.
30.56
** overlaps with
CNR-05
To re-designate lands from Employment Areas
to Major Open Space Areas to reflect the
intended purpose of the lands as Species at
Risk habitat compensation.
CNR-47 Oshawa North of Highway 401
between the CP rail line
and the Oshawa-Whitby
boundary.
49.36
** overlaps with
CNR-24
To re-designate for mixed-use development
(i.e. both residential and non-residential uses).
* Land area as indicated in the conversion request Submission Form as provided by the proponent. Staff have estimated the land
area where it was not provided or appeared to be incorrect.
** Conversion requests with this notation indicates that more than one Submission was made for the corresponding land.
Township
of Brock
Regional Rd 15
Highway 12RegionalRd 23
Highway 48
Regional Rd 12
Simcoe StreetCNR-01
CNR-13
CNR-16
CNR-23CNR-32
CNR-43
02.51.25 Km
Requests for Employment Area Conversion –Township of Brock
Legend
Cannington
Regional Official Plan, Schedule 'A' composite, 2017 consolidation. This map has been produced from a variety of sources. The Region of Durham does not make any representations concerning the accuracy,
likely results, or reliability of the use of the materials. The Region hereby disclaims all representations and warranties. Digital cartography by The Regional Municipality of Durham, Planning and Economic
Development Department, 2019. All rights reserved. May not be reproduced without permission. Requests received by the Region of Durham as of September 24, 2020.
Data Sources and Disclaimer
Prime Agricultural Areas
Living Areas
Major Open Space Areas
Employment Areas
Urban Area Boundary
Municipal BoundaryWaterfront Areas
Regional Corridors
Regional Centres
Lands Subject to EmploymentConversion Request
Beaverton
Lake Simcoe
Township
of Scugog Simcoe StreetScugog Street
Regio
n
al
Rd
1
9Highway 7 & 12R
e
a
ch
St
r
e
e
t Island RoadRegional Rd 21 Highw
ay
7
a
Shirley Road
Regional Highway 47
CNR-17
02.51.25 Km
Requests for Employment Area Conversion –Township of Scugog
Legend
Port Perry
Regional Official Plan, Schedule 'A' composite, 2017 consolidation. This map has been produced from a variety of sources. The Region of Durham does not make any representations concerning the accuracy,
likely results, or reliability of the use of the materials. The Region hereby disclaims all representations and warranties. Digital cartography by The Regional Municipality of Durham, Planning and Economic
Development Department, 2019. All rights reserved. May not be reproduced without permission. Requests received by the Region of Durham as of September 24, 2020.
Data Sources and Disclaimer
Prime Agricultural Areas
Living Areas
Major Open Space Areas
Employment Areas
Urban Area Boundary
Municipal BoundaryWaterfront Areas
Regional Corridors
Regional Centres
Lands Subject to EmploymentConversion Request Lake ScugogOak Ridge Moraine Areas
Town of Ajax
City of
Pickering Brock RoadHighway 401
Liverpool RoadSalemRoad S
We
s
tne
yRoad S
Taunton Road W
Finch Avenue
Bayly Street W
Kingsto
n
R
o
a
d
Kingston Road W
Bayly Street
Taunton Road E
Salem Road NBayly Street EWestney Road NKingston Road E
Taunton Road
CNR-03
CNR-07
CNR-09
CNR-10
CNR-14
CNR-04
CNR-15
CNR-22
CNR-21
CNR-20
CNR-19
CNR-28
CNR-31
CNR-35
CNR-34
CNR-33
01.50.75 Km
Requests for Employment Area Conversion – Ajax and Pickering
Legend
Lake Ontario
Regional Official Plan, Schedule 'A' composite, 2017 consolidation. This map has been produced from a variety of sources. The Region of Durham does not make any representations concerning the accuracy,
likely results, or reliability of the use of the materials. The Region hereby disclaims all representations and warranties. Digital cartography by The Regional Municipality of Durham, Planning and Economic
Development Department, 2019. All rights reserved. May not be reproduced without permission. Requests received by the Region of Durham as of September 24, 2020.
Data Sources and Disclaimer
A
Prime Agricultural Areas
Living Areas
Specific Study Area 'A'AAA
Major Open Space Areas
Employment Areas
Urban Area Boundary
Municipal BoundaryWaterfront Areas
Regional Corridors
Pickering Nuclear
Generating Station
Regional Centres
Lands Subject to EmploymentConversion Request
Town of
Whitby
City of
Oshawa
Highway412Stevenson RoadSThickson Road SHighwa
y
407
Ritson Road SWilson Road SLake RidgeRoadBloor Street E
Winchester Road E
Si
mc
oeSt
ree
t
NThickson Road NWinchester Road W
Rossland Road W
Adelaide Avenue EBaldwinStreetS
Olive Avenue
Adelaide Avenue
W Ritson Road NWilson Road NRossland Road E Harmony Road NGibb Street
Taunton Road E
Cochrane StreetHighway401 Thornton Road NBrock Street NTaunton Road W
FarewellStreetConsumers Drive
Victoria Street ELake Ridge Road NCNR-02
CNR-08
CNR-05
CNR-06
CNR-12
CNR-18
CNR-24
CNR-25
CNR-29
CNR-36
CNR-39
CNR-45
CNR-46
CNR-47
02.51.25 Km
Requests for Employment Area Conversion – Oshawa and Whitby
Lands Subject to EmploymentConversion Request
Legend
Oshawa
Airport
Regional Official Plan, Schedule 'A' composite, 2017 consolidation. This map has been produced from a variety of sources. The Region of Durham does not make any representations concerning the accuracy,
likely results, or reliability of the use of the materials. The Region hereby disclaims all representations and warranties. Digital cartography by The Regional Municipality of Durham, Planning and Economic
Development Department, 2019. All rights reserved. May not be reproduced without permission. Requests received by the Region of Durham as of September 24, 2020.
Data Sources and Disclaimer
Prime Agricultural Areas
Living Areas
Deferral Areas
Major Open Space Areas
Employment Areas
Urban Area Boundary
Municipal Boundary
Waterfront Areas
Regional Corridors
Lake Ontario
Special Study Areas
Regional Centres
Municipality
of Clarington Courtice RoadHighway
4
1
8
Bloor Street
Highway 401
CNR-11
CNR-26
CNR-27
CNR-30
CNR-38
CNR-42 CNR-41
CNR-40
CNR-37
CNR-44
00.650.33 Km
Requests for Employment Area Conversion – Courtice
Lands Subject to EmploymentConversion Request
Legend
Regional Official Plan, Schedule 'A' composite, 2017 consolidation. This map has been produced from a variety of sources. The Region of Durham does not make any representations concerning the accuracy,
likely results, or reliability of the use of the materials. The Region hereby disclaims all representations and warranties. Digital cartography by The Regional Municipality of Durham, Planning and Economic
Development Department, 2019. All rights reserved. May not be reproduced without permission. Requests received by the Region of Durham as of September 24, 2020.
Data Sources and Disclaimer
Prime Agricultural Areas
Living Areas
Major Open Space Areas
Employment Areas
Urban Area Boundary
Municipal BoundaryWaterfront Areas
Regional Corridors
Lake Ontario
Regional Centres
Envision Durham | 196
Appendix C: Settlement Area Boundary Expansion – Evaluation Criteria
Criterion/
Requirement Growth Plan, 2019 Durham Regional Official Plan Enhancements/Additional
Considerations
Demonstration of
Need for the
Expansion
2.2.8.2: A settlement area boundary
expansion may only occur through a
municipal comprehensive review
where it is demonstrated that:
a) based on the minimum
intensification and density targets in
this Plan and a lands needs
assessment undertaken in
accordance with policy 2.2.1.5,
sufficient opportunities
accommodate forecasted growth to
the horizon of this plan are not
available through intensification and
in the designated greenfield areas:
i) within the upper- or single tier
municipality, and
ii) within the applicable lower-tier
municipality;
b) the proposed expansion will make
available sufficient lands not
exceeding the horizon of this Plan,
based on the analysis provided in
7.3.11 Expansions to the Urban Area
boundaries beyond those shown on
Schedule ‘A’ – Regional Structure
shall only occur through a
comprehensive review of this Plan
having regard for the following:
e) the population and employment
forecasts established by the Plan;
f) the growth management
objectives of Policy 7.3.9; (refers to
minimum intensification target,
minimum designated greenfield
area density target, and target
employment growth for
employment areas);
g) the ability to provide for a
minimum 10-year housing and
employment land needs Region-
wide, with logical and sequential
development patterns. Where an
area municipality has no
opportunities for Urban Area
Boundary expansion, this policy
shall not be construed to provide
Evaluation will implement
the requirements of the
Growth Plan, 2019, where
the Regional Official Plan
reflects targets from the
Growth Plan, 2006 and are
therefore out of date and
require updates (forecast,
horizon, density and
intensification targets,
unit supply)
197 | Envision Durham
Criterion/
Requirement Growth Plan, 2019 Durham Regional Official Plan Enhancements/Additional
Considerations
policy 2.2.8.2 a), while minimizing
land consumption, and
c) the timing of the proposed
expansion and the phasing of
development within the designated
greenfield area will not adversely
affect the achievement of the
minimum intensification and density
targets in the Plan, as well as the
other policies of this Plan.
justification for Employment Area
designation conversions to satisfy
residential unit demand on an area
municipal basis;
n) the ability of the existing
designated Urban Area land base to
accommodate the growth forecasts
of Policy 7.3.3 in accordance with
relevant density and intensification
targets of this Plan;
o) the expansion makes available
sufficient lands for a time horizon
not exceeding 20 years;
Determining most
appropriate locations
for expansion based
on Feasibility
2.2.8.3: Where the need for a
settlement area boundary expansion
has been justified in accordance with
policy 2.2.8.2, the feasibility of the
proposed expansion will be
determined based on the
comprehensive application of all of
the policies of this Plan, including the
following:
7.3.11: Expansions to the Urban
Area boundaries beyond those
shown on Schedule ‘A’ – Regional
Structure shall only occur through a
comprehensive review of this Plan
having regard for the following:
Feasibility –
infrastructure and
public service facilities
2.2.8.3 a) there is sufficient capacity
in existing or planned infrastructure
and public service facilities;
7.3.11 c) existing or committed
infrastructure;
Proximity to existing or
planned transit and active
transportation
infrastructure.
Envision Durham | 198
Criterion/
Requirement Growth Plan, 2019 Durham Regional Official Plan Enhancements/Additional
Considerations
Feasibility –
infrastructure and
public service facilities
2.2.8.3 b) the infrastructure and
public service facilities needed would
be financially viable over the full life
cycle of these assets;
7.3.11 d) financial capability of the
Region;
The need to expand or
extend public
infrastructure is
minimized.
Feasibility – water,
wastewater, and
stormwater.
2.2.8.3 c) the proposed expansion
would be informed by applicable
water and wastewater master plans
or equivalent and stormwater master
plans or equivalent, as appropriate;
7.3.11 j) the ability to service the
area with full municipal water and
sewerage services.
Feasibility –
watershed conditions,
water resource
system
2.2.8.3 d) the proposed expansion,
including the associated water,
wastewater and stormwater
servicing, would be planned and
demonstrated to avoid, or if
avoidance is not possible, minimize
and mitigate any potential negative
impacts on watershed conditions and
the water resources system, including
the quality and quantity of water.
Feasibility – key
hydrologic areas and
Natural Heritage
System for the
Growth Plan, other
environmental
areas/features
2.2.8.3 e) key hydrological areas and
the Natural Heritage System for the
Growth Plan should be avoided
where possible;
7.3.11 b) impact on the natural
environment in accordance with the
relevant policies of Section 2;
199 | Envision Durham
Criterion/
Requirement Growth Plan, 2019 Durham Regional Official Plan Enhancements/Additional
Considerations
Feasibility – Prime
Agricultural Areas
2.2.8.3. f) prime agricultural areas
should be avoided where possible.
To support the Agricultural System,
alternative locations across upper- or
single-tier municipality will be
evaluated, prioritized and
determined based on avoiding,
minimizing and mitigating the impact
on the Agricultural System and in
accordance with the following:
i) expansion into specialty crop areas
is prohibited;
ii) reasonable alternatives that avoid
prime agricultural areas are
evaluated; and
iii) where prime agricultural areas
cannot be avoided, lower priority
agricultural lands are used;
7.3.11 h) where possible, avoid
prime agricultural areas, and as an
alternative consider lower priority
lands in prime agricultural areas.
Where it is not possible to avoid
prime agricultural lands, the
location of urban boundaries will
make use of natural or man-made
features such as road allowances,
valley lands and other natural
features to mitigate potential
conflicts between urban and
agricultural uses;
Feasibility – Impacts
on Agricultural uses
2.2.8.3 g) the settlement area to be
expanded is in compliance with the
minimum distance separation
formulae;
Feasibility – Impacts
on Agricultural uses
2.2.8.3 h) any adverse impacts on the
agri-food network, including
agricultural operations, from
Envision Durham | 200
Criterion/
Requirement Growth Plan, 2019 Durham Regional Official Plan Enhancements/Additional
Considerations
expanding settlement areas would be
avoided, or if avoidance is not
possible, minimized and mitigated as
determined through an agricultural
impact assessment;
Feasibility –
Resources and Public
Health and Safety
2.2.8.3 i) the policies of Section 2
(Wise Use and Management of
Resources) and 3 (Protecting Public
Health and Safety of the PPS are
applied;
7.3.11 i) the aggregate resource
capability of the area;
Feasibility – Other
provincial plans and
source protection
plans
2.2.8.3 j) the proposed expansion
would meet any applicable
requirements of the Greenbelt, Oak
Ridges Moraine Conservation,
Niagara Escarpment, and Lake Simcoe
Protection Plans and any applicable
source protection plan;
Feasibility – Greenbelt
Plan limitations
2.2.8.3 k) within the Protected
Countryside in the Greenbelt Area:
i. the settlement area to be expanded
is identified in the Greenbelt Plan as a
Town/Village;
ii. the proposed expansion would be
modest in size, representing no more
than a 5 per cent increase in the
7.3.11 k) for Urban Areas located
within the Protected Countryside of
the Greenbelt Plan Area,
subsequent to the 10-year
Greenbelt Plan review, the
environmental assessment in
support of expanded sewage and
water services must be completed
or approved prior to amending the
Urban Area boundary, and the
201 | Envision Durham
Criterion/
Requirement Growth Plan, 2019 Durham Regional Official Plan Enhancements/Additional
Considerations
geographic size of the settlement
area based on the settlement area
boundary delineated in the applicable
official plan as of July 1, 2017, up to a
maximum size of 10 hectares, and
residential development would not
be permitted on more than 50 per
cent of the lands that would be
added to the settlement area;
iii. the proposed expansion would
support the achievement of complete
communities or the local agricultural
economy;
iv. the proposed uses cannot be
reasonably accommodated within the
existing settlement area boundary;
v. the proposed expansion would be
serviced by existing municipal water
and wastewater systems without
impacting future intensification
opportunities in the existing
settlement area; and,
vi. expansion into the Natural
Heritage System that has been
identified in the Greenbelt Plan is
prohibited.
expansion must not extend into the
Greenbelt Natural Heritage System,
and the expansion is subject to the
relevant provisions of the Greenbelt
Plan.
7.3.11 l) Urban Areas outside the
Greenbelt Plan Area are not
permitted to expand into the
Greenbelt Plan Area;
Envision Durham | 202
Criterion/
Requirement Growth Plan, 2019 Durham Regional Official Plan Enhancements/Additional
Considerations
7.3.11 a) The Regional Structure
established by this Plan
The Settlement Area
Boundary Expansion
represent a contiguous,
orderly, and logical
expansion to the existing
Settlement Area
Boundary.
7.3.11 p) where a comprehensive
review of this Plan includes
consideration of lands for Urban
Area expansion within the City of
Pickering east of the Pickering
Airport lands, outside of the
Greenbelt Plan, the following
additional matters will be assessed
and evaluated at that time:
i. the amount and rate of
development that has occurred in
the Seaton Community; and
ii. the preparation and completion
of a watershed plan update for the
East Duffin and Carruthers Creek
watersheds.
The Settlement Area
Boundary Expansion
203 | Envision Durham
Criterion/
Requirement Growth Plan, 2019 Durham Regional Official Plan Enhancements/Additional
Considerations
contributes to context
appropriate population
and employment growth
that considers balance and
distribution across the
Region.
Envision Durham | 204
Appendix D: Requests for Boundary Expansion
Current Requests for Settlement Area Boundary Expansion as of February 1, 2021.
Conversion
Request-ID Municipality Site Location
(Address, if available)
Land Area
(Hectares)*
Description of Settlement Area Boundary
Expansion Request
(as described by proponent)
BER-1 Whitby Part of Lots 25, 26, 27
and 28, Concession V
4.2 Include the lands in the vicinity of the
Brooklin Secondary Plan Area that are
outside of the Greenbelt Plan within the
Urban Boundary.
BER-2 Clarington Lands east of Courtice
Road to the future
Highway 418
171.2 Include the lands in the Urban Boundary as
Employment Areas.
BER-3 Clarington 521 and 531 Rundle
Road
10.7 Include the lands in the Urban Boundary as
Employment Areas in order to permit
industrial uses, including a motor vehicle
wrecking yard and prestige industrial uses.
BER-4 Clarington Lot 29, Concession 4,
Orono
2.8 Include the balance of the property in the
Urban Boundary.
BER-5 Pickering North Part of Lot 6,
Concession 6
8.5
**overlaps with
BER-13
Include the lands in the Urban Boundary as
originally envisioned during the Region’s
previous Municipal Comprehensive Review.
205 | Envision Durham
Conversion
Request-ID Municipality Site Location
(Address, if available)
Land Area
(Hectares)*
Description of Settlement Area Boundary
Expansion Request
(as described by proponent)
BER-6 Scugog Lands bound by the
existing Port Perry
Urban Boundary, Hwy
7A, King Street and the
Hamlet of Manchester
95 Include the lands in the Urban Boundary to
permit a new community comprised of
residential, mixed use, community uses and
natural heritage features to accommodate
approximately 4,800 residents and 200
population-related jobs.
BER-7 Clarington 0 Courtice Road (east
side of Courtice Road,
north side of the
existing rail corridor)
35.5
**overlaps with
BER-2
Include the lands in the Urban Boundary as
part of the Courtice Major Transit Station
Area to permit a mixed-used, transit-
oriented, development proposal.
BER-8 Uxbridge 7370 Centre Road,
Uxbridge
39.7
(Already within the
Uxbridge Urban
Area)
Remove the lands from Special Study Area 6
designation in the ROP, increase the urban
population for the Uxbridge Urban Area to
20,000, and permit private communal
services on lands within the Urban Area to
allow development to occur on the Phase 2
Uxbridge lands. The development of the
subject property would accommodate 566
units.
BER-9 Scugog Part of Lots 21 and 22,
Concession 8, Port
Perry
19.8 Resolve outstanding deferral D5-1 to the
Scugog Official Plan which deferred the
approval of the inclusion of the subject lands
within the Port Perry Urban Boundary.
Envision Durham | 206
Conversion
Request-ID Municipality Site Location
(Address, if available)
Land Area
(Hectares)*
Description of Settlement Area Boundary
Expansion Request
(as described by proponent)
BER-10 Whitby and
Oshawa
550 Columbus Road
East, Whitby & 654
Columbus Road West,
Oshawa
93.8 Include the lands in the Urban Boundary as
Living Areas.
BER-11 Scugog 14611 Old Scugog
Road, Blackstock
27.48 Resolve deferral D2-1 to the Scugog Official
Plan by rounding out the boundaries of the
Hamlet of Blackstock to include a portion of
the subject property within the Hamlet
boundaries.
BER-12 Pickering All lands within the City
of Pickering that meet
a certain set of criteria
Specific lands were
not identified, and
therefore are not
currently mapped
Pickering Council request that Durham
consider all lands meeting a certain set of
criteria within the City of Pickering for
inclusion within the Urban Boundary.
BER-13 Pickering Lands known as North
East Pickering,
generally bound by
Highway 7, Concession
Road 8, Westney Road
and Lake Ridge Road
1,650
**overlaps with
BER-05, 14, 16 and
23
Include the lands in the Urban Boundary
with appropriate designations to permit a
community that would accommodate
approximately 60,000 residents and 10,500
population related jobs, as well as 33,000
employment related jobs.
BER-14 Pickering 3060 Highway 7 40.2
**overlaps with
BER-13
Expression of interest to include the lands in
the Urban Boundary. Further details to be
provided.
207 | Envision Durham
Conversion
Request-ID Municipality Site Location
(Address, if available)
Land Area
(Hectares)*
Description of Settlement Area Boundary
Expansion Request
(as described by proponent)
BER-15 Oshawa 2630 Harmony Road 0.8 Include the lands in the Urban Boundary to
permit up to 100 stacked Townhouses.
BER-16 Pickering 4015 and 4025 Salem
Road
4.1
**overlaps with
BER-13
Include the lands in the Urban Boundary and
designate as Regional Centre as considered
by the Region during the previous Municipal
Comprehensive Review.
BER-17 Whitby 555 Winchester Road
West
8.42 Include the lands, which are outside of the
Greenbelt Plan boundary, within the Urban
Boundary.
BER-18 Oshawa 201 Columbus Road
East
26.3 Expression of interest to include the lands in
the Urban Boundary. Further details to be
provided.
BER-19 Clarington Lands on the east side
of George Burley
Street, south of
Highway 2, Newtonville
3.19 Include the subject lands within the
boundary of the Hamlet of Newtonville.
BER-20 Clarington 1037 and 1067 Arthur
Street, Newcastle
5.6 Include the lands within the Urban Boundary
as Living Areas to develop 40 townhouse
dwellings.
Envision Durham | 208
Conversion
Request-ID Municipality Site Location
(Address, if available)
Land Area
(Hectares)*
Description of Settlement Area Boundary
Expansion Request
(as described by proponent)
BER-21 Pickering 3580 Audley Road,
Hamlet of Kinsale
6.8 Include the remainder of the subject lands
within the boundary of the Hamlet of
Kinsale to allow the development of a 7 lot
plan of subdivision on private services.
BER-22 Clarington 1835 Bloor Street and
1775 Bloor Street
50.6
**overlaps with
BER-02
Expression of interest to include the lands
within the Urban Boundary.
BER-23 Pickering Part of Lots 9, 10 and
11, Concession 5
77.42
**overlaps with
BER-13
Include the subject lands that are outside of
the Greenbelt Plan within the Urban
Boundary as Living Areas.
BER-24 Clarington Part of Lots 5, 6, and 7,
Concession 2
(Bowmanville)
113.5 Include the subject lands within the Urban
Boundary as Living Areas.
BER-25 Oshawa 2676 Harmony Road
North
5.6 Include the subject lands within the Urban
Boundary.
BER-26 Oshawa Part of Lots 4 and 5,
Concession 5
43.3 Include the balance of the subject lands
within the Urban Boundary.
209 | Envision Durham
Conversion
Request-ID Municipality Site Location
(Address, if available)
Land Area
(Hectares)*
Description of Settlement Area Boundary
Expansion Request
(as described by proponent)
BER-27 Brock Lands south of Brock
Concession Road 7,
west of Highway 12
(Sunderland)
14.0 Include the subject lands within the Urban
Boundary as Living Areas
BER-28 Clarington 2258 Highway #2
(Bowmanville)
12.5 Include the subject lands within the Urban
Boundary.
BER-29 Clarington 1546 Cobbledick Road,
Newcastle
72.0 Request the Region to review the Special
Study Area 2 designation of the ROP,
including updated land use permissions.
BER-30 Scugog Deferral Area D2-2 to
the Scugog Official Plan
70.7 Request that Deferrals to the Scugog Official
Plan Hamlet of Caesarea be resolved
through the ROP review.
BER-31 Scugog Deferral Areas D2-1
and D5-1 to the Scugog
Official Plan
47.28
**overlaps with
BER-11 & BER-09
Request that Deferrals to the Scugog Official
Plan for the Port Perry Urban Area and the
Hamlet of Blackstock be resolved through
the ROP review.
BER-32 Whitby Olpi Hills Court, Hamlet
of Ashburn
3.8 Expression of interest to include the subject
lands within the boundary of the Hamlet of
Ashburn.
Envision Durham | 210
Conversion
Request-ID Municipality Site Location
(Address, if available)
Land Area
(Hectares)*
Description of Settlement Area Boundary
Expansion Request
(as described by proponent)
BER-33 Brock Lands on the south side
of Thorah Concession
Road 5 (RR-15), west of
Highway 12.
128.3 Expression of interest to include the subject
lands within the Urban Boundary as
Employment Areas.
BER-34 Clarington 72 Ormiston Street and
Part of Lot 17,
Concession 5 near the
Hamlet of Hampton.
14.3 Request that the Deferrals to the Clarington
Official Plan be resolved to include the
subject lands within the Hamlet of Hampton,
and to also include adjacent lands to the
west within the Hamlet boundary, to permit
the development of a 13 Lot Plan of
Subdivision.
BER-35 Clarington 2825 Hancock Road,
Courtice
1.4 Include the subject lands within the Urban
Boundary.
BER-36 Clarington 2298 Highway 2,
Bowmanville
3.9 Include the subject lands within the Urban
Boundary.
BER-37 Brock C21605 Sideroad 18A,
north west of
Cannington.
47.7 Include the subject lands within the Urban
Boundary.
BER-38 Brock C2130 Concession 13,
north east of
Cannington.
40.5 Include the subject lands within the Urban
Boundary.
211 | Envision Durham
* Land area as indicated in the conversion request Submission Form as provided by the proponent. Staff have estimated the
land area where it was not provided or appeared to be incorrect.
** Requests with this notation indicates that more than one Submission was made for the corresponding land.
Township
of Brock
Regional Rd 1Regional Rd 15
Highway 12RegionalRd 23
Highway 7 Simcoe StreetHighway 48
Highway7&12Lake Ridge RoadRegional Rd 12
Regional Rd 10
BER-33
BER-27
BER-38BER-37
031.5 Km
Requests for Boundary Expansion – Township of Brock
Legend
Cannington
Regional Official Plan, Schedule 'A' composite, 2017 consolidation. This map has been produced from a variety of sources. The Region of Durham does not make any representations concerning the accuracy,
likely results, or reliability of the use of the materials. The Region hereby disclaims all representations and warranties. Digital cartography by The Regional Municipality of Durham, Planning and Economic
Development Department, 2019. All rights reserved. May not be reproduced without permission.
Data Sources and Disclaimer
Prime Agricultural Areas
Living Areas
Major Open Space Areas
Employment Areas
Urban Area Boundary
Municipal BoundaryWaterfront Areas
Regional Corridors
Regional Centres
Lands Subject to BoundaryExpansion Request
Beaverton
Lake Simcoe
Sunderland
Township
of Scugog
Township of
Uxbridge
Toronto Street SMain Street NReachStree
tLake RidgeRoadRegional Highway 47 Regional Rd 1BER-08
010.5 Km
Requests for Boundary Expansion – Township of Uxbridge
Legend
Regional Official Plan, Schedule 'A' composite, 2017 consolidation. This map has been produced from a variety of sources. The Region of Durham does not make any representations concerning the accuracy,
likely results, or reliability of the use of the materials. The Region hereby disclaims all representations and warranties. Digital cartography by The Regional Municipality of Durham, Planning and Economic
Development Department, 2019. All rights reserved. May not be reproduced without permission.
Data Sources and Disclaimer
Prime Agricultural Areas
Living Areas
Major Open Space Areas
Employment Areas
Urban Area Boundary
Municipal BoundaryWaterfront Areas
Regional Corridors
Regional Centres
Lands Subject to BoundaryExpansion Request
Oak Ridge Moraine Areas
Township
of Scugog
Scugog Street
SimcoeStreetRegional Rd 19Highway 7 & 12High
way 7aRegionalRd57Reach Street Island RoadRegional Rd 21
Shirley Road
Regional Highway 47
BER-09
BER-06
BER-11
BER-31
BER-30
031.5 Km
Requests for Boundary Expansion – Township of Scugog
Legend
Port Perry
Regional Official Plan, Schedule 'A' composite, 2017 consolidation. This map has been produced from a variety of sources. The Region of Durham does not make any representations concerning the accuracy,
likely results, or reliability of the use of the materials. The Region hereby disclaims all representations and warranties. Digital cartography by The Regional Municipality of Durham, Planning and Economic
Development Department, 2019. All rights reserved. May not be reproduced without permission.
Data Sources and Disclaimer
Prime Agricultural Areas
Living Areas
Major Open Space Areas
Employment Areas
Urban Area Boundary
Municipal BoundaryWaterfront Areas
Regional Corridors
Regional Centres
Lands Subject to BoundaryExpansion RequestLake ScugogOak Ridge Moraine Areas
Town of Ajax
City of
Pickering Lake Ridge RoadBrockRoadTaunton Road W
WestneyRoad N
Taunton Road E
SalemRoadNTaunton Road
Ninth Concession Road
Altona RoadLake Ridge Road NWhites RoadBER-05
BER-13
BER-12
BER-14
BER-16
BER-21
BER-23
031.5 Km
Requests for Boundary Expansion – Ajax and Pickering
Legend
Regional Official Plan, Schedule 'A' composite, 2017 consolidation. This map has been produced from a variety of sources. The Region of Durham does not make any representations concerning the accuracy,
likely results, or reliability of the use of the materials. The Region hereby disclaims all representations and warranties. Digital cartography by The Regional Municipality of Durham, Planning and Economic
Development Department, 2019. All rights reserved. May not be reproduced without permission.
Data Sources and Disclaimer
A
Prime Agricultural Areas
Living Areas
Specific Study Area 'A'AAA
Major Open Space Areas
Employment Areas
Urban Area Boundary
Municipal BoundaryWaterfront Areas
Regional Corridors
Regional Centres
Lands Subject to BoundaryExpansion Request
Town of
Whitby
City of
Oshawa
Simcoe Street NThickson Road NBaldwinStreetSWinchester Road W
Rossland Road WThornton Road NHighway 407
Raglan Road W
Winchester Road E
Rossland Road E Harmony Road NTaunton Road E Ritson Road NBrock Street NManning Road Wilson Road NTownline Road NTaunton Road WHighway 412Baldwin Street NMyrtle Road W
BER-32
BER-10
BER-15BER-17
BER-18
BER-25
BER-26
BER-01
031.5 Km
Requests for Boundary Expansion– Oshawa and Whitby
Lands Subject to BoundaryExpansion Request
Legend
OshawaAirport
Regional Official Plan, Schedule 'A' composite, 2017 consolidation. This map has been produced from a variety of sources. The Region of Durham does not make any representations concerning the accuracy,
likely results, or reliability of the use of the materials. The Region hereby disclaims all representations and warranties. Digital cartography by The Regional Municipality of Durham, Planning and Economic
Development Department, 2019. All rights reserved. May not be reproduced without permission.
Data Sources and Disclaimer
Prime Agricultural Areas
Living Areas
Deferral Areas
Major Open Space Areas
Employment Areas
Urban Area Boundary
Municipal Boundary
Waterfront Areas
Regional Corridors
Special Study Areas
Regional Centres
Municipality
of Clarington
Highway35&115Highway 407
Highway 401 RegionalRd18Courtice RoadHighway418Taunton Road
Highway 115Liberty Street NMain StreetRegional Highway 2
Ganaraska RoadBowmanvilleAvenueRegional Rd 3
Regional Rd 20
Darlington-Clarke Townline RoadBER-03
BER-04
BER-02
BER-07
BER-24
BER-22
BER-20
BER-19
BER-28
BER-29
BER-34
BER-35
BER-36
042Km
Requests for Boundary Expansion – Municipality of Clarington
Lands Subject to BoundaryExpansion Request
Legend
Regional Official Plan, Schedule 'A' composite, 2017 consolidation. This map has been produced from a variety of sources. The Region of Durham does not make any representations concerning the accuracy,
likely results, or reliability of the use of the materials. The Region hereby disclaims all representations and warranties. Digital cartography by The Regional Municipality of Durham, Planning and Economic
Development Department, 2019. All rights reserved. May not be reproduced without permission.
Data Sources and Disclaimer
Prime Agricultural Areas
Living Areas
Major Open Space Areas
Employment Areas
Urban Area Boundary
Municipal BoundaryWaterfront Areas
Regional Corridors
Lake Ontario
Regional Centres
Oak Ridge Moraine Areas
Darlington
Nuclear
Generating
Station
The Regional Municipality of Durham
605 Rossland Road East, Whitby, Ontario L1N 6A3
905-668-7711 or 1-800-372-1102
www.durham.ca
Attachment #2
Table of Contents
Executive Summary ....................................................................................................................1
1.Introduction: Setting the Context ........................................................................................5
2.Approach to the Land Needs Assessment ............................................................................6
3.Broad Factor’s Influencing Long-Term Growth in Durham ...................................................7
3.1 Durham Region’s Current Growth Performance Relative to the Greater Toronto Hamilton Area..7
3.2 Growth Outlook for Durham Region within the Context of the Greater Golden Horseshoe .......... 9
3.3 Structural Changes in the Macro-Economy Anticipated to Impact Economic Growth and the
Future of Work in the Greater Golden Horseshoe ............................................................................ 14
Influence of E-Commerce on Retail and Goods Movement Sector ................................................................. 16
Technological Disruption – Economic Disruptor or Generator of Future Labour Force Demand? ................... 17
What Factors are Influencing the Future of Work in Durham Region? ........................................................... 18
3.4 Planning for the New Economy in Durham Region ...................................................................... 20
3.5 Net Migration as a Key Source of Population Growth.................................................................. 22
Understanding the Key Components of Population Growth .......................................................................... 22
Historical Net Migration Trends Across the GTHA, 2010 to 2019 ................................................................... 23
Historical Net Migration Trends in Durham ................................................................................................... 23
Near-Term Impacts of COVID-19 on Regional Population and Employment Growth ...................................... 24
3.6 Summary of Observations ........................................................................................................... 27
4.Managing Growth in Durham Region: Opportunities and Challenges ...............................28
4.1 Long-Term Growth Outlook ......................................................................................................... 28
4.2 Managing Strong Population Growth .......................................................................................... 29
4.3 Linking Housing Choice and Economic Development ................................................................... 30
4.4 Planning for Existing and Future Generations ............................................................................. 35
Planning for Millennials and Generation Z .................................................................................................... 35
Continuing to Plan for Older Generations ..................................................................................................... 36
Promoting Investment Readiness and Competitiveness ................................................................................ 37
4.5 Planning for Employment Areas .................................................................................................. 38
4.6 Promoting the Rural Economy ..................................................................................................... 40
4.7 Aligning Growth with Significant Infrastructure Investment ....................................................... 41
4.8 Measuring Performance Against Broader Growth Management Objectives............................... 42
5.Conclusions ........................................................................................................................43
6.Next Steps ..........................................................................................................................44
1
Executive Summary
By 2051, Durham Region is forecast to accommodate a total population of 1,300,000 people and 460,000 jobs. This represents an increase of approximately 634,000 people and 223,200 jobs over the 35-year period since the last census in 2016 and the forecast
horizon year of 20511.
This Growth Opportunities and Challenges Report provides an overview of the opportunities and anticipated challenges to achieving forecasted growth over the next three decades in Durham Region. It establishes the foundation for undertaking the Land Needs Assessment by providing essential context, discussing impacts from broader
demographic and economic trends, local growth and development trends, and other
factors that would affect growth. By assessing these topics and themes, observations
and recommendations are provided to help guide and direct Durham’s long-term forecasted population and employment growth.
Each section of the Report provides observations and recommendations. These recommendations, based on factors that will affect growth, will carry forward into
subsequent studies of the Lands Needs Assessment (LNA) and shape the overall outcome of the Durham Growth Management Study (GMS). Below is a summary of the Report’s observations and recommendations organized by Report section:
Summary of Durham Region Population and Employment Growth Trends
•Recommendation: Through the Employment Strategy and regional economicdevelopment initiatives, consider approaches and marketing efforts to furtheremphasize growing knowledge-based sectors across the broader Greater
Golden Horseshoe (GGH) economy in an effort to raise the economic profile of
Durham Region. The Toronto-Waterloo Innovation Corridor is an internationally
recognized technology innovation supercluster extending from Waterloo Regionto the Toronto Region, including Durham. The international presence of thisinnovation corridor provides a key opportunity for Durham Region to leverage itsgrowing local economy in the technology sector.
•Recommendation: Through the Housing Strategy, prioritize growth in MajorTransit Station Areas (MTSAs) and other Strategic Growth Areas (SGA) whichleverage public transit investments that provide connectivity and access to
growing employment markets.
1 In accordance with Statistics Canada 2016 Census data and A Place to Grow, Growth Plan for the Greater Golden
Horseshoe, Schedule 3. Office Consolidation, 2020.
Growth Opportunities and Challenges – January 15th, 2021
2
Growth Opportunities and Challenges – January 15th, 2021
Planning for the New Economy in Durham Region
•Recommendation: Through the Region’s Employment Strategy, understand thestructural changes taking place in the broader economy and implications toplanning for employment growth and associated Employment Area land needs to2051. Further consider approaches that enable more proactive and adaptable
responses to economic change and disruption. Capitalize on opportunities
associated with technological and economic disruptors (where possible) throughgrowth strategies and related Regional Official Plan (ROP) policies that act as aframework to guide adaption and resiliency to rapid change.
•Recommendation: Building on the results of the Region’s Employment Strategy,Economic Development initiatives should leverage Durham’s distinct economicand competitive strengths with the context of the broader GGH economy (e.g.cost competitive development environment, established manufacturing and
energy sectors, as well as other growing knowledge-based sectors).
•Recommendation: Support the Region’s growing economy by encouragingpopulation and employment growth to areas that promotes a range of housingtypes and tenures, enhanced mobility, walkable and vibrant mixed-use
environments and amenity rich Employment Areas. In particular, through theIntensification Analysis and Employment Strategy, promote growth inEmployment Areas and SGAs which include Urban Growth Centres (UGCs) andMTSAs.
Net Migration as a Key Source of Population Growth
•Recommendation: Continue to monitor the impacts of COVID-19 on near-term
and long-term population and employment growth across the GGH and Durham
Region. Durham’s reliance on inter-provincial and intra-provincial net migrationsuggests the Region may be less impacted by a prolonged softening ofinternational immigration relative to some other Greater Toronto Hamilton Area(GTHA) municipalities. Recent 2020 residential building permit activity further
supports this hypothesis.
Long-Term Growth Outlook
•Recommendation: The Growth Plan, 2019 population and employment forecast
for Durham Region is aspirational and will require a significant increase in the
regional growth rate if it is to be achieved. It is recommended that the 2051forecast contained in the Growth Plan, 2019 be the basis for the Durham GMSand LNA. A higher long-term population and employment growth alternative isnot recommended.
3
Growth Opportunities and Challenges – January 15th, 2021
Managing Strong Population Growth
•Recommendation: Be proactive in anticipating and responding to change, byreporting on and regularly monitoring how evolving real estate market trends,consumer behavior and technological disruption is anticipated to influence
development patterns, land use planning and infrastructure investment priorities
across the Region. It is recommended that the Region incorporate results andoutcomes of the GMS in its annual monitoring of growth trends. Particular focusshould be given to the influence of evolving real estate market trends anddisruptive forces on housing demand by location, tenure and structure type, aswell as employment growth and non-residential building space requirements by
sector.
Linking Housing Choice and Economic Development
•Recommendation: Through the Housing Strategy and Employment Strategy,
reflect that the accommodation of skilled labour and the attraction of newbusinesses are inextricably linked and positively reinforce one another. As anoutcome of the GMS, provide recommendations on how to attract andaccommodate new skilled working residents to the Region within a broad rangeof housing options by type, location, tenure and affordability.
•Recommendation: Through the Durham GMS and MCR, prioritize growth andfurther infrastructure investment within SGAs and other priority intensificationareas that align with current and planned servicing and transit/transportationnetworks.
•Recommendation: Through the Durham GMS and MCR, consider appropriatepolicies that prioritize and promote office and mixed-use development withinSGAs, including MTSAs and UGCs, as well in other appropriate areas of theRegion. This includes ensuring that planning policies and regulations are
supportive of intensification initiatives and the economic objectives of the Region.
Where gaps exist between planning policy objectives and market demandregarding mixed-use and office development, the Region should also exploreutilizing financial tools/incentives to facilitate development where fiscally
sustainable.
4
Growth Opportunities and Challenges – January 15th, 2021
and new generations by increasing the market choice of housing available within
Durham Region by housing structure type.
•Recommendation: Through the Durham GMS and MCR, consider policies,
programs and initiatives that support a broad range of new housing options for all
ages and income groups. This should include rental apartments, condominiumsand entry-level townhome products (e.g. back-to-back townhomes and stacked-townhomes and apartments) for younger adults as well as a range of housingproducts, including seniors’ housing, to accommodate older adults.
Planning for Employment Areas and Mixed-Use Development
•Recommendation: Through the Employment Strategy, assess the currentcomposition of Employment Areas, including size, distribution and servicingstatus, and determine future employment land need.
•Recommendation: Through the Durham GMS and MCR, ensure that Durhamcontinues to offer a competitive array of land within Employment Areas, bydesignating an appropriate quantum of land and including Regional ROP policies
to regularly monitor and maintain a sufficient supply of shovel-ready vacant lands
across a diverse range of parcel sizes and locations within Employment Areas
(equivalent to a minimum five-years of forecast Regional demand).
•Recommendation: Through the Employment Strategy, consider the importance
of place-making for Employment Areas, including implementing appropriate
policies.
Promoting the Rural Economy
•Recommendation: Through the Employment Strategy, reflect the maintenance
and growth of a strong rural economy in Durham Region.
•Recommendation: Through the MCR, continue to emphasize through ROP
policies the importance of growth in the rural economy, including the agriculture,
resources, and, agri-tourism sectors. Maintain a policy framework identifyingwhich lands are part of the rural system and may be appropriate for agriculture,agri-tourism, and aggregate extraction, as well as other rural uses.These policydirections should also build on strengthening the already present tourism industry
in Durham’s rural economy, by promoting opportunities for farmers to operate
agri-tourism uses on agricultural lands.
Planning for Existing and Future Generations
•Recommendation: Through the Housing Strategy, reflect the continued need toaccommodate and plan for older generations while also attracting younger adults
5
Growth Opportunities and Challenges – January 15th, 2021
Aligning Growth with Significant Infrastructure Investment
•Recommendation: Through the GMS and MCR, incorporate an integratedapproach to land-use planning, servicing, and financial management within thebroader context of Regional growth management. Prioritize growth in areas thatmake efficient use of existing and planned regional infrastructure.
•Recommendation: Growth strategies and related ROP policies should include a
degree of flexibility in order to be more adaptative, and resilient to rapid changesin technology and continued structural shifts in the regional economy.
Broader Growth Management Objectives
•Recommendation: Durham Region should continue to plan growth in a mannerthat builds on the guiding principles of the Growth Plan 2019 and recognizes theimportance of enhanced livability, mobility and economic opportunity in the regionto successfully achieve sustainable growth.
1.0 Introduction: Setting the Context
In 2019, the Region launched Envision Durham, the Municipal Comprehensive Review (MCR) of the Regional Official Plan (ROP). The objectives of the MCR are to assess the following:
•How and where the cities and towns in Durham Region may grow;
•How to use and protect Durham’s land and resources;
•What housing types and job opportunities are needed for residents; and,
•How people and goods will move across Durham Region and beyond.
The Durham Growth Management Study (GMS) is a key component of Envision
Durham, providing the technical analysis and studies to determine where and how forecasted population and employment growth will be accommodated in the region by 2051. Phase 1 of the GMS focuses on preparing a Land Needs Assessment (LNA)
which will determine the Region’s urban area land need in order to accommodate forecasted growth. It builds on the background research and preliminary observations in the Envision Durham Discussion Papers, which addressed the following topics: Agriculture and Rural System; Climate Change and Sustainability; Growth
Management, including discussion of the Urban System and LNA; Environment and
Greenlands System; Transportation System; and Housing Policy Planning.
The purpose of this report is to provide a high-level summary of growth opportunities and challenges for Durham Region. It sets the planning context by providing an assessment of recent growth in Durham and the broader Greater Toronto Hamilton
Area (GTHA), provides an evaluation of broader economic and demographic trends that
6
Growth Opportunities and Challenges – January 15th, 2021
will affect growth in Durham, and includes an assessment of the population and employment forecasts to 2051 provided by the Province in Amendment 1 to the Growth
Plan, 2019. Expanding upon the Discussion Papers, further background analysis has been conducted to inform the opportunities and challenges to accommodating growth. This information provides a foundation point to undertake the LNA and related studies.
2.0 Approach to the Land Needs Assessment
The LNA will assess how Durham’s Urban Structure will accommodate the various density and intensification targets contained in the Growth Plan, 2019. A key outcome of the LNA is determining how much, if any, additional, urban land is required, by way of
settlement boundary expansion, to accommodate the forecasted growth.
Amendment 1 to the Growth Plan implemented the “reference” population and employment forecasts which was proposed by the Province as one of three potential growth scenarios. The Growth Plan, as amended, forecasts that Durham Region will
grow to a 2051 population of 1,300,000 and 460,000 jobs.
The LNA, now underway, includes the following key streams of analysis:
Growth Forecasts to 2051, including population, housing, and employment
allocations for the Region and by Area Municipality, using the Growth Plan, 2019
Forecast for Durham. Results in: Region-wide Growth Analysis and inputs
into the Housing Strategy
Intensification Analysis, identifying a recommend intensification target for
Durham by evaluating the growth potential in Strategic Growth Areas (SGA)
including: Urban Growth Centres, MTSAs, Regional Centres, Regional Corridors
and Waterfront Places as well as general intensification thorough-out the built-up
area. Results in: Housing Strategy
Employment Strategy including an overall sectoral analysis of employment
growth, employment land supply including intensification areas, Employment
Area Conversion Analysis and identification of employment land need to
accommodate job growth to 2051. Results in: Employment Strategy
Designated Greenfield Analysis, including assessment of current greenfield
densities, greenfield land supply, and the Community Area Land Needs Analysis.
Results in: Community Area Land Needs Analysis
Land Needs Assessment overview, providing a distillation of all the inputs to
determine if and how much additional land is required, through Settlement Area
7
Growth Opportunities and Challenges – January 15th, 2021
Boundary Expansion, to accommodate forecast population and job growth to
2051. Results in: Final Land Needs Assessment Recommendations Report
With all streams of work running concurrently, the LNA is expected to be completed
in, mid-2021. For each stream, the detailed analysis will be reported through Technical
Briefing Papers and a Final LNA Recommendation Report.
3.0 Broad Factors Influencing Long-Term Growth in Durham
A broad range of factors related to macro-economics as well as federal and provincial policy (e.g. global economic growth outlook, foreign exchange rates, federal immigration policy, federal trade policy and provincial planning policy) will continue to
have a strong influence on the Region’s relative performance with respect to population
and employment growth. Travel restrictions and economic disruption due to COVID-19 are also anticipated to have a negative impact on near term labour force growth and keep near-term (i.e. 2020 and 2021) immigration levels across Canada, including in Durham, below recent historical averages.
Growth in Durham will also continue to be strongly influenced by the structural
changes that are occurring within the macro economy. Similar to broader Provincial trends, Durham Region’s economy has transitioned away from goods production and towards service delivery. Ultimately, this will continue to influence Regional planning, economic development, and marketing initiatives which will be increasingly geared
towards a knowledge-driven and service-based economy.
Although there is limited ability to influence or control macro-economic trends or policy decisions by senior levels of government, the Region does have the ability to recognize emerging trends and position itself in a positive manner. This requires the Region to continue marketing itself as a hub for innovation, equipped with the human capital that is required to encourage on-going small and medium-sized business
development, entrepreneurship, and local investment retention.
3.1 Durham Region’s Current Growth Performance Relative to the Greater Toronto Hamilton Area
Since Durham is part of the GTHA, it is helpful to understand how Durham has been
growing in relation to its neighbouring regions. Figures 1 and 2 summarize how each of the upper-tier and single-tier municipalities across the GTHA are tracking to their respective 2021 OP population forecasts. Collectively, these municipalities are tracking at 99% of their 2021 respective Official Plan population forecasts. Comparatively, Durham Region is tracking at only 88% of its ROP population forecast, which lags
behind every other upper-tier and single-tier in the GTHA.
8
Figure 1 GTHA Upper/Single-Tier, Population Tracking to Official Plan Forecast, 20212
Recent employment growth levels achieved relative to Official Plan employment forecasts for upper-tier and single-tier GTHA municipalities indicate most municipalities have fallen short with respect to their near-term employment forecasts. Durham Region
is tracking well below its 2021 ROP target of 310,000 jobs with an estimated
employment base of 237,500 in 20213, and similarly lags behind all other upper-tier and single-tier municipalities in the GTHA.
2 Watson’s 2021 population forecast is 715,400 assuming a May reference point. The 2021 number is based largely on building permit activity from 2016 to 2020.
3 2019 Employment and Industry Report, Durham Region, February 2020.
Growth Opportunities and Challenges – January 15th, 2021
106%
102%99%97%96%92%
88%
70%
75%
80%
85%
90%
95%
100%
105%
110%
Peel Toronto G.T.H.A.Hamilton Halton York DurhamPercentage of 2021 GrowthForecast AchievedUpper/Single-Tier Municipality
Source: 2021 population from Greater Golden Horseshoe Growth Forecasts to 2051 Technical Report, June 2020, except for Durham Region derived by Watson & Associates Economists Ltd. Population targets for Hamilton and Toronto from the G.G.H. Growth Forecasts to 2041 Technical Report, November 2012. Remaining population targets derived from respective Official Plans.
9
Growth Opportunities and Challenges – January 15th, 2021
Figure 2 GTHA Upper/Single-Tier, Employment Tracking to Official Plan Forecast, 2021
While recent growth trends have Durham Region showing a slower pace of growth than the remainder of the GTHA, infrastructure investment is expected to enable higher levels of growth in the coming decades. A number of existing and planned infrastructure investments in the region (i.e. Hwy. 407 extension, high-order transit
including the extension of GO rail service to Bowmanville, the potential for the Pickering
Airport, and continued growth in local post-secondary institutions) are anticipated to drive population and employment growth rates higher in Durham over the next several decades, relative to historical trends. While these infrastructure investments are critical enablers of economic growth and investment, it is important to recognize that they are not the only factors which will influence long-term population and employment growth
trends across Durham Region.
3.2 Growth Outlook for Durham Region within the Context of the Greater Golden Horseshoe (GGH)
Future population and employment growth within Durham are strongly correlated
with the growth outlook and competitiveness of the GGH regional economy, illustrated in Map 1. Currently, the GGH is the fourth largest and one of the fastest growing larger City/Regions in North America. Employment opportunities are the primary driver of net migration to the GTHA as a whole as well as to Durham. Net migration, particularly international net migration, has been the key contributor to population growth across the
GTHA, including Durham Region, over the past two decades.
103%
92%90%
85%85%
82%
77%
70%
75%
80%
85%
90%
95%
100%
105%
Toronto G.T.H.A.Peel Hamilton Halton York DurhamPercentage of 2021 Growth Forecast AchievedUpper/Single-Tier Municipality
Source: 2021 employment from Greater Golden Horseshoe Growth Forecasts to 2051 Technical Report, June 2020, except for Durham Region derived by Watson & Associates Economists Ltd. Employment targets for Hamilton and Toronto from the G.G.H. Growth Forecasts to 2041 Technical Report, November 2012. Remaining employment targets derived from respective Official Plans.
10
Growth Opportunities and Challenges – January 15th, 2021
Map 1 Durham Region within the Context of the Greater Golden Horseshoe (GGH)
The Growth Plan, 2019 long-term outlook for the GGH is positive, characterized
by strong population growth fueled by economic expansion that is increasingly concentrated in large urban centres. As summarized in Figure 3, the population of the GGH is forecast to increase from 9.5 million in 2016 to 14.9 million in 2051.4 This represents a population increase of 5.3 million people (152,000 annually), or 1.3% annually between 2016 and 2051. With respect to the region’s economic potential, the
GGH employment base is forecast to increase from 4.6 million in 2016 to 7 million in
2051 (refer to Figure 4). This represents an employment increase of 2.4 million jobs (69,000 annually), or 1.2% annually between 2016 and 2051.
4 As previously mentioned, proposed Amendment 1 to the Growth Plan extends the Schedule 3 forecast
to 2051.
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Growth Opportunities and Challenges – January 15th, 2021
Figure 3 Historical and Forecast Population Growth for the Greater Golden Horseshoe (GGH),
2001 to 2051
Figure 4
Historical and Forecast Employment Growth for the Greater Golden Horseshoe (GGH), 2001 to 2051
The GGH represents the economic powerhouse of Ontario and is the centre of a
large portion of the economic activity in Canada. The GGH is economically diverse with most of the top 20 traded industry clusters throughout North America having a strong presence in this region. Within the GGH, the GTHA industrial and office commercial real estate markets are significant, having the third and sixth largest inventories,
respectively, in North America.5
With a robust economy and diverse mix of export-based employment sectors, the GGH is highly attractive on an international level to new businesses and investors. The GGH also has a strong appeal given the area’s regional infrastructure (i.e. Toronto Pearson International Airport, other regional airports, provincial highways, inter-modal facilities), access to labour force, post-secondary institutions, and proximity to the US
border. In turn, this continues to support steady population and housing growth within this region, largely driven by international net migration.
5 Source: Derived from Cushman & Wakefield Toronto Industrial Market Beat and US Industrial Market
Beat Snapshot, Q3 2017, and Cushman & Wakefield Toronto Office Market Beat and US Office Market
Beat Snapshot, Q3 2017 by Watson & Associates Economists Ltd.
Area 2001 2016 2051
Total
Population
Growth
Annual
Population
Growth
Annual
Population
Growth Rate
Total
Population
Growth
Annual
Population
Growth
Annual
Population
Growth Rate
G.T.H.A.5,808,000 7,183,000 11,170,000 1,375,000 92,000 1.4% 3,987,000 114,000 1.3%
G.G.H. Outer Ring 2,046,000 2,355,000 3,700,000 309,000 21,000 0.9% 1,345,000 38,000 1.3%
Total G.G.H 7,854,000 9,538,000 14,870,000 1,684,000 112,000 1.3% 5,332,000 152,000 1.3%
Note: Population includes the net Census undercount.
2001 to 2016 2016 to 2051
Source: 2001 to 2016 derived from Statistics Canada Census. 2016 to 2051 from A Place to Growth: Growth Plan for the Greater Golden Horseshoe (2020). Figure by Watson & Associates Economists Ltd., 2020.
Population
Area 2001 2016 2051
Total Employment Growth
Annual Employment Growth
Annual Employment Growth Rate
Total Employment Growth
Annual Employment Growth
Annual Employment Growth Rate
G.T.H.A.2,938,000 3,564,000 5,360,000 626,000 42,000 1.3% 1,796,000 51,000 1.2%
G.G.H. Outer Ring 890,000 1,034,000 1,650,000 144,000 10,000 1.0% 616,000 18,000 1.3%
Total G.G.H 3,828,000 4,598,000 7,010,000 770,000 51,000 1.2% 2,412,000 69,000 1.2%
2016 to 2051
Source: 2001 to 2016 derived from Statistics Canada Census. 2016 to 2051 from A Place to Growth: Growth Plan for the Grteater Golden Horseshoe (2020). Figure by Watson &
Associates Economists Ltd., 2020.
Employment 2001 to 2016
12
Growth Opportunities and Challenges – January 15th, 2021
The diverse and highly competitive GGH economy has fueled a steady level of employment growth over the past decade in most major sectors of the economy.
Employment growth has been particularly strong related to knowledge-based and creative-class service sectors, including professional, scientific, and technical services, financial services, information and cultural industries, education services, health care and social services, as well as real estate. Within the service sector, economic growth
has been notably robust for small to medium-scale knowledge-based businesses that
are focused on innovation, entrepreneurship, and technology.
The strength of the broader regional GGH economy presents a tremendous opportunity for the Durham Region economy and its residents within commuting
distance to this growing regional employment market. As displayed in Figure 5, 51% of
Durham Region residents work within Durham Region, while 49% of Durham Region residents commute to employment markets outside the Region for work.
Comparatively, Durham Region has a relatively low live/work6 ratio relative to the
other upper-tier and single-tier municipalities in the GTHA, behind the City of Toronto,
the City of Hamilton and Peel Region. The live/work employment ratio is a key metric that the Durham Region Official Plan aims to increase over time by providing greater opportunities for its residents to work throughout the Region across a growing and diversifying local economy. Opportunities to both leverage Durham growth within the GGH employment market while at the same time increasing employment opportunities
within the Region will be key to enabling growth within Durham Region.
6 Within this context, live/work refers to living and working within the same upper-tier or single-tier municipality.
Strength of the GGH
growing employment
market presents a
tremendous opportunity for
Durham’s economic growth.
Durham Region has a
relatively low live/work
ratio compared to other
upper-tier and single-tier
municipalities within the
GTHA.
13
Growth Opportunities and Challenges – January 15th, 2021
Figure 5 Percentage of Labour Force that Live and Work in the Same Upper-Tier/Single-Tier
Municipality (Including Work at Home)
The City of Toronto represents the largest employment market outside Durham, to which Durham Region residents commute. As of 2016, approximately 68% of all out-commuters from Durham Region are employed within the City of Toronto, while a large
part of the remainder commute to York Region and Peel Region. According to the
Growth Plan, 2019, the primary commuter-shed for Durham Region (which is comprised
of the City of Toronto, York Region and Peel Region) is expected to grow by close to 1 million jobs between 2016 to 2051. Regional employment opportunities within commuting distance represent a large part of what makes Durham Region a desirable location to live and drives a significant portion of the Durham housing market.
Durham Region’s recent focus on advancing existing and planned MTSAs and the expansion of GO Rail service to Bowmanville capitalizes on growing employment markets within commuter distance by leveraging investments in public transit and expanding access to employment opportunities.
Recommendation: Through the Employment Strategy and regional economic
development initiatives, consider approaches and marketing efforts to further
emphasize growing knowledge-based sectors across the broader Greater Golden Horseshoe (GGH) economy in effort to raise the economic profile of Durham Region. The Toronto-Waterloo Innovation Corridor is an internationally recognized technology innovation supercluster extending from Waterloo Region to the Toronto Region,
including Durham. The international presence of this innovation corridor provides a key
65%55%52%44%42%40%
7%
6%5%
7%9%9%
0%
10%
20%
30%
40%
50%
60%
70%
80%
Toronto Hamilton Peel Durham York HaltonShare of Employed Labour Force Upper/Single-Tier Municipality
Live/Work Work at Home
Note: Live/Work is based on usual place of work employment.Source: Derived from Statistics Canada 2016 Census data, by Watson & Associates Economists Ltd., 2020.
72%
49%51%51%57%61%
14
Growth Opportunities and Challenges – January 15th, 2021
opportunity for Durham Region to leverage its growing local economy in the technology sector.
Recommendation: Through the Housing Strategy, prioritize growth in Major Transit Station Areas (MTSAs) and other Strategic Growth Areas (SGA) which leverage public transit investments that provide connectivity and access to growing employment markets.
3.3 Structural Changes in the Macro-Economy Anticipated to Impact Economic Growth and the Future of Work in the Greater Golden Horseshoe
Notwithstanding the long-term economic growth opportunities, recent employment growth in Employment Areas across the GGH (including Durham Region)
has not been as robust as forecasted in most upper-tier/single tier OPs. This is largely due to structural changes in the macro-economy in recent decades. These structural changes have been largely driven by increased outsourcing of domestically manufactured goods to emerging global markets combined with increased automation of manufacturing processes.
Between 2003 and 2010, these challenges were further exacerbated in the
manufacturing sector across the GGH and more broadly across Ontario and Canada due to a high Canadian dollar relative to the US dollar. Since 2010, the manufacturing sector across Ontario including the GGH has shown signs of a steady recovery in terms of economic output, measured through gross domestic product (GDP); however, this
recovery was slow to materialize. Since 2010, Manufacturing job losses have generally stabilized across Ontario (refer to Figure 6). In Durham Region, this stabilization trend in the manufacturing sector has been supported by the reopening of the General Motors (GM) truck plant in Durham announced in 2020. While the manufacturing sector
remains vitally important to the provincial and regional economy with respect to jobs and
economic output, this sector is not anticipated to be a principal driver of long-term job
growth across the GGH, including Durham Region (refer to Figure 6).
15
Growth Opportunities and Challenges – January 15th, 2021
Figure 6 Manufacturing Labour Force Employment and GDP in Ontario, 2001 to 2020 YTD.
Compounding this trend of slower manufacturing employment across the GGH is
the increasing share of land-extensive uses that have been accommodated in Employment Areas at low employment densities, driven by strong regional demand in the transportation and warehousing sector. This trend has been particularly relevant for west/north GTHA municipalities, which offer an ample supply of designated greenfield
lands with access to regional transportation infrastructure (e.g. 400-series highways, the
Toronto Pearson International Airport, inter-modal facilities), and is also occurring in Durham.
Continued structural changes in the global economy and technological disruption will continue to influence the future nature of work and require municipalities to be responsive and adaptive to changing industry needs. Key highlights related to the
evolving structural changes and impacts to the Durham Region economy are provided below, including the recent impacts of COVID-19 on consumer behavior, influence of e-commerce, technology and disruptors and the changing nature of work, as well as the near to medium-term outlook for non-residential space needs.
The Technical Briefs supporting the Durham GMS will further address the
impacts of COVID-19 on both population, housing and employment growth in more detail.
40,000
50,000
60,000
70,000
80,000
90,000
100,000
110,000
600
700
800
900
1,000
1,100
1,200
Manufacturing G.D.P. (Millions)Labour Force Employment in Manufacturing (000s)Year
Labour Force - AnnualLabour Force - Monthly (3-Month Moving Average)G.D.P. - Annual (Chained 2012 Dollars)
Source:Annual labour force data from Statistics Canada Labour Force Survey, Table 282-0125, and monthly data from Table 14-10-0091-01.Annual G.D.P. data from Statistics Canada Table 36-10-0402-01, by Watson & Associates Economists Ltd., 2020.
16
Growth Opportunities and Challenges – January 15th, 2021
Influence of E-Commerce on Retail and Goods Movement Sector
•Changes in Consumer Behaviour through E-Commerce
o Retail e-commerce sales have risen steadily across Canada, with theproportion of online sales rising from 2.4% in 2016 to a high of 11.4% percent
in April 2020.7 Further, the digital impact of retail sales is even greater with
mobile purchasing platforms (e.g. UberEats, Skip the Dishes) that support
retail sales of local retailers.
o The rise of e-commerce has reduced the demand for retail square footage, inparticular retail space for the sale of goods-based retailers.8 This trend will
continue as consumer behaviours which have shifted over the course of thepandemic become entrenched.
o While e-commerce has been capturing market share from goods-based
retailers, growth in specific service-based retailers continues as they provide
social experiences and other services that cannot be purchased remotely.
•E-Commerce is a Driving Force Behind the Region’s Growing GoodsMovement Sector
o Increased outsourcing of manufacturing production to emerging global marketscontinues to drive the need for new consolidated, land-extensive warehousingfacilities to store and manage the distribution of goods produced locally as wellas goods imported from abroad.
o This continues to drive demand for increasingly larger, more land-extensivewarehousing facilities, generally in greenfield Employment Areas. Across NorthAmerica, the Goods Movement industry is continuously evolving at a rapid pace.As previously mentioned, e-commerce and technological improvements
represent the biggest drivers of change in the Goods Movement industry, drivenby the rapid growth of mobile technology.
o Just-in-time manufacturing will continue to be the industry norm, placingincreasing emphasis on more frequent and smaller deliveries by truck transport,
typically during the last mile.9 As the e-commerce market continues to expand,
7 Adapted from Retail Insider article, Retail E-Commerce Explodes in Canada Amid COVID-19 Pandemic,
prepared by Mario Toneguzzi, July 29, 2020 8 Goods-based retailer refers to retail facilities that sell goods to be used or consumed at home, including food-oriented retail (supermarkets and convenience stores), beer, wine and liquor stores, pharmacies and personal care stores, home improvement stores and stores selling general merchandise, apparel and furniture. 9 The last mile is commonly referred to in the logistics sector as the last leg of the transportation process
from the distribution centre or fulfillment hub to the final destination (i.e. the retailer or consumer).
17
Growth Opportunities and Challenges – January 15th, 2021
this component of the supply chain is becoming increasingly important to businesses as it has a direct influence on the customer experience. In addition to
the need to provide timely, accurate service delivery, it is also critical for industry to ensure cost efficiency given that 30% to over 50% of total parcel delivery cost is associated with this leg of the supply chain.10,11
Technological Disruption – Economic Disruptor or Generator of Future Labour Force
Demand?
•The Use of Technology in Commercial Services
o Digital and mobile technologies are making it easier to access goods and
services on-demand which has led to alternative platforms to purchase productsand services. Among these platforms are those that support the sharingeconomy which provide opportunities for individuals to earn an income byleveraging under-utilized assets. These platforms are providing customers with
an alternative to traditional buying/selling platforms, including those in hospitality
(e.g. hotels and taxis) and in office leasing (office sharing). It is anticipated thatfurther advancements in the sharing economy may have an increasingly negativeimpact on the need for non-residential building space and continued growth inprecarious employment. Other alternative purchasing platforms are providingincome-earning opportunities for individuals to perform services that are typically
not outsourced by households (e.g. assembling furniture, small householdrepairs, picking up food at fast-food restaurants, meal preparation, grocery pick-up and delivery).
•Automation and Rise of Artificial Intelligence
o According to the Brookfield Institute for Innovation + Entrepreneurship, over thenext 10 to 20 years, 42% of the Canadian labour force is at high risk of beingaffected by automation, either through significant task restructuring or
elimination. Jobs that are anticipated to be most highly impacted by automationare primarily within occupations that are administrative, routine, or orientedtowards sales and service.
o The net impacts to global GDP resulting from artificial intelligence (AI) are
anticipated to contribute up to $15.7 trillion to the global economy by 2030, more
than the current output of China and India combined. 12
10 Breaking Down the “Last-Mile Delivery”: Challenges and Solutions. October 12, 2016.
11 Parcel Delivery. The Future of the Last Mile. McKinsey & Company. September 2016.
12 Sizing the Prize. What’s the real value of AI for your business and how can you capitalize? PWC. 2017.
18
o Over the next decade, AI will generate massive disruption as both establishedbusinesses and new entrants drive innovation and develop new business
models. While the long-term net economic impacts of automation and/or AIappear to be positive, global competition from both established and emergingmarkets looking to capitalize on potential opportunities related to this technologywill be increasingly fierce.13
What Factors are Influencing the Future of Work in Durham Region?
•Opportunities Related to Remote Work and Learning are Anticipated toContinue Across Durham Region
o Over the 2001 to 2016 period, the percentage of the Durham Region’s labour
force defined as having a usual place of work declined, offset by a gradualincrease in the share of work at home employment and a steady increase in theshare of off-site employment or employees with no fixed place of work(NFPOW).14
o Within the Durham Region, the rising share of labour related to NFPOW hasbeen primarily driven by steady growth in the transportation and constructionsectors which are typically characterized as having a higher percentage of off-site employees.
o Looking forward, continued advances in technology and telecommunications(e.g. 5G technology) is anticipated to further enable remote work patterns andultimately increase the relative share of off-site employees over the long term.As outlined in Connecting our Communities, a Broadband Strategy for Durham
Region, the Region and Area Municipalities can play a role in influencing and
promoting the expansion and implementation of necessary technologies andinfrastructure to enable and capitalize on these trends.
o Over the coming decades, work from home and NFPOW employment in Durhamis expected to steadily increase as a result of these trends. Demographics and
socio-economics also play a role in the future demand for off-site and work athome employment within an increasingly knowledge- and technology-driveneconomy.
o Working with public and private sector partners, Durham Region has
considerable control to provide sufficient housing supply opportunities across a
broad range of residents by age and income. Continued efforts to increase
13 Ibid.
14 Statistics Canada defines NFPOW employees as “persons who do not go to the same workplace location at the beginning of each shift.” Such persons include landscape contractors, travelling
salespersons, independent truck drivers, etc.
Growth Opportunities and Challenges – January 15th, 2021
19
Growth Opportunities and Challenges – January 15th, 2021
market choice of ownership and rental housing can act to improve the Region’s competitive position by providing increased live/work opportunities.
•The Rise of the Gig Economy
o It is anticipated that many working residents in Durham Region, particularly
younger adults as well as older adults (i.e. Baby Boomers) approaching
retirement or semi-retirement will utilize technology to supplement their income inmore flexible ways in contrast to traditional work patterns.
o Technological innovation and improved broadband regional telecommunications
have been, and will continue to be, key drivers of economic expansion inknowledge-based sectors as well as the steady rise of the gig economy.15
•How COVID-19 is Accelerating Economic Disruption?
o In addition to its broader impacts on the economy, COVID-19 has acceleratedchanges in work and commerce as a result of technological disruptions that werealready in play prior to the pandemic.
o Enterprises will increasingly need to rethink the way they conduct business andoffer services and products with an increased emphasis on remote work enabledby technologies such as virtual private networks (VPNs), virtual meetings, cloudtechnology and other remote work collaboration tools, and may be at risk of
closure if they do not adapt these measures. These trends are anticipated to
have a direct influence on commercial and industrial real estate needs over both
the near and longer terms.
o As the percentage of employees working from home and off-site continues tosteadily rise, it may reduce the relative need for future non-residential space
needs. The trend towards increased remote work and learning, combined withthe impacts of e-commerce are anticipated to place downward pressure over thelong-term on retail, institutional and office space needs. These trends will befurther explored through Region’s MCR as part of the Employment Strategy.
15 The gig economy is characterized by flexible, temporary, or freelance jobs, often involving connecting
with clients or customers through an online platform.
20
Growth Opportunities and Challenges – January 15th, 2021
3.4 Planning for the New Economy in Durham Region
Based on many of the trends and disruptors discussed in the previous section, there
is a general recognition that a “new economy” which is more driven and dependent on technology and innovation has emerged. Looking forward, there will be increased competition for business development and investment in the “new economy”. Durham Region is located in proximity to several highly populated and growing upper-tier and single-tier municipalities with which it competes directly for business attraction and
investment. Each of these municipalities generally offer unique regional attributes that appeal to prospective international and local firms as well as new residents.
To remain competitive, Durham Region will need to continue to distinguish itself as a hub for innovation and technology while encouraging ongoing entrepreneurship, small
business development, and investment retention.
With three highly respected post-secondary institutions, including Ontario Tech University, Durham College, and Trent University, as well as an array of business support organizations, Durham Region is well-positioned and located within an internationally recognized technology innovation supercluster, known as the Toronto-Waterloo Innovation Corridor. The Toronto-Waterloo Innovation Corridor has strong
economic and employment growth potential based on its established presence as the largest technology cluster in Canada, critical mass of post-secondary institutions and incubators, access to skilled labour, and a high quality of life. The Toronto-Waterloo Innovation Corridor is the second largest and second fastest growing market in North
America related to technology talent, including over 200,000 tech workers and 15,000+
tech companies. The Toronto-Waterloo Innovation Corridor provides a key opportunity for Durham Region to leverage its growing local economy in the technology sector.
Further, Durham has particular strengths in the aerospace automation, automotive, and plastics, rubber and chemicals sectors. Durham Region’s greatest competitive advantages in the advanced manufacturing sector are related to the energy
and environmental sectors, as these sectors are forecast to be growth drivers in the
future.
Durham Region will need to
continue to make efforts to
distinguish itself as a hub for
innovation and technology
while encouraging ongoing
entrepreneurship, small
business development and
investment retention.
21
Durham Region is also home to Ontario’s most well-developed energy cluster. Collectively, this cluster comprises a number of diverse industries centred around
manufacturing, engineering, research and technology as well as utilities and power generation. It is noted that Ontario Power Generation (OPG) is currently planning a new corporate campus location within the Clarington Energy Park.16 This project, which is expected to be completed by 2024, will bring over 2,000 direct jobs to Clarington.17
Considerable long-term opportunities exist for Durham Region related to utilities
and power generation as well as renewable energy. Currently anchored by two nuclear power stations, the Region is home to a rich array of energy players which produce and distribute power, develop new and renewable energy technologies, alternative fuels, manufacturing components and systems, and provide service support to industry.
Durham Region has a unique collection of existing industries, infrastructure, skilled
labour, technology research and development, education and training facilities which will allow the Region to lead the Province in future growth within sectors related to energy, manufacturing and technology. Added to this, the Region is well equipped to accommodate new development and investment opportunities throughout its
established and developing industrial/business parks. Durham Region’s research-
intensive institutions play a pivotal role in ensuring research and manufacturing-based companies in Durham Region are at the forefront of technological innovation.
Building on its strong institutional, private-sector and community foundations, Durham Region has been active in increasing its readiness towards an ever-evolving knowledge-based economy through on-going leadership and investment. These efforts
will continue to be important in driving youth in-migration (both permanent and non-permanent residents), talent attraction and retention, global investment and regional employment opportunities ultimately geared towards an increasingly skilled labour market.
16 The Clarington Energy Park is located immediately south of Highway 401 and north of the CN rail corridor, between Courtice Road and Solina Road.
17 OPG Moving Headquarters to Clarington, Ontario. Ontario Power Generation. June 10, 2019.
Growth Opportunities and Challenges – January 15th, 2021
Durham Region has a unique collection of existing industries, infrastructure, skilled labour, technology research and development, education and training facilities which will allow the Region to lead the Province in future growth within sectors related to energy,
manufacturing and technology.
22
The northern municipalities of Durham Region and related economic structure are distinct from the southern lakeshore municipalities. Northern Durham is primarily
rural in nature, with urban settlement areas that are nestled within a primarily agricultural and natural environment. Key economic sectors in the northern communities have traditionally been agricultural, resource related, and tourism. However, the northern municipalities also include high concentrations of the “creative class” economy.
The presence of artists, actors, performers, writers and designers contributes a strong
sense of cultural development and creates a “quality of place” that attracts new residents to the communities within northern Durham.18 The economic base of northern Durham is also highly oriented towards small businesses and home-based occupations. These existing strengths emphasize the need for Durham’s GMS to focus efforts on expanding the economic sector strengths in northern Durham in particular in areas
geared towards agri-business, tourism, arts and culture, as well as small businesses and entrepreneurism.
Recommendation: Through the Region’s Employment Strategy, understand the structural changes taking place in the broader economy and implications to planning for
employment growth and associated Employment Area land needs to 2051. Further
consider approaches that enable more proactive and adaptable responses to economic change and disruption. Capitalize on opportunities associated with technological and economic disruptors (where possible) through growth strategies and related ROP policies that act as a framework to guide adaption and resiliency to rapid change.
Recommendation: Building on the results of the Region’s Employment Strategy,
leverage Durham’s distinct economic and competitive strengths with the context of the broader GGH economy (e.g. cost competitive development environment, established manufacturing and energy sectors and growing knowledge-based sectors).
Recommendation: Support the Region’s growing economy by encouraging population
and employment growth to areas that promotes a range of housing types and tenures,
enhanced mobility, walkable and vibrant mixed-use environments and amenity rich
Employment Areas. In particular, through the Intensification Analysis and Employment Strategy, promote growth in Employment Areas and SGAs which include Urban Growth Centres (UGCs) and MTSAs.
3.5 Net Migration as a Key Source of Population Growth
Understanding the Key Components of Population Growth
There are two primary components of population growth: natural increase (i.e. births less deaths) and net migration. As previously mentioned, population growth across the GTHA over the past two decades has been primarily driven by net migration
as opposed to natural increase. This trend is consistent with other regions of the Province and Canada as a whole. Over the next several decades, population growth
18 Northern Durham by the Numbers. Analysis and Commentary. A Competitive Analysis of North
Durham for the Rural Economic Development Strategic Plan 2012.
Growth Opportunities and Challenges – January 15th, 2021
23
Growth Opportunities and Challenges – January 15th, 2021
across the GTHA, including Durham Region, is anticipated to be driven almost solely from net migration with a decreasing share of growth by natural increase.
Historical Net Migration Trends Across the GTHA, 2010 to 2019
Over the past decade, international net-migration has represented a larger percentage of total net migration across the GTHA, including to Durham Region. This is due to the gradual decline in absolute net-migration levels from other Canadian
provinces (inter-provincial net migration) and from other regions within Ontario (intra-
provincial net migration). Between 2010 and 2015 all forms of net-migration levels across the GTHA steadily declined in absolute terms; followed by a sharp rebound between 2015 and 2019.
Historical Net Migration Trends in Durham
The recent rebound in net migration to Durham Region has been driven by
recent federal immigration policies combined with the macro-economic recovery experienced across Durham Region following the 2008/2009 financial crisis. However, local factors including housing affordability and a growing local economy have contributed to Durham’s recent net-migration rebound.
Two key factors which are believed
to have strongly contributed to the
Region’s local rebound in net
migration are the supply of
ownership housing opportunities
offered at competitive prices, as well as the Region’s growing local
economy.
24
Growth Opportunities and Challenges – January 15th, 2021
Figure 7 Durham Region, Historical Population Growth by Component, 1991 to 2019
Near-Term Impacts of COVID-19 on Regional Population and Employment Growth
To date, the downward impacts of COVID-19 on global economic output have been severe. Economic sectors such as travel and tourism, accommodation and food, manufacturing, energy, and financial have been hit particularly hard. Canada’s GDP
declined by approximately 39% in the second quarter of 2020 (April to June), even
when economic activities improved in May and June as containment measures gradually loosened beginning in May 2020.19 Restrictions have increased again into Q1 2021 resulting is prolonged economic impacts on downtown and tourism industries.
The required modifications to social behavior (i.e. physical distancing) and increased work from home requirements resulting from government-induced
containment measures have resulted in significant economic disruption. This has had a profound impact on consumer demand and consumption patterns.
Furthermore, escalating tensions and challenges related to international trade have also begun to raise questions regarding the potential vulnerabilities of globalization
and the structure of current global supply chains.
Currently, the level of sustained economic impact related to this “exogenous shock” to the world and the Canadian economy is largely unknown. Notwithstanding
19 Reuters Business News, August 28, 2020.
0
0.1
0.2
0.3
0.4
0.5
0.6
0
2000
4000
6000
8000
10000
12000
14000
1991-19921992-19931993-19941994-19951995-19961996-19971997-19981998-19991999-20002000-20012001-20022002-20032003-20042004-20052005-20062006-20072007-20082008-20092009-20102010-20112011-20122012-20132013-20142014-20152015-20162016-20172017-20182018-2019International Share of Net MigrationPopulation ChangePeriod
Natural Increase Net Migration International Migration Share of Total Net Migration
Source: Derived from Statistics Canada Annual Demographics Statistics/Estimates Components of Population Growth byWatson & Associates Economists Ltd., 2020.
Net Migration vs Natural Increase1991-2019: 67% / 33%
25
Growth Opportunities and Challenges – January 15th, 2021
this uncertainty, it is generally clear that the longer COVID-19 persists on an international scale, the greater the severity of the current global recession.
Despite the longer-term consequences of COVID-19 to some industries, firms, and individuals, the long-term economic outlook for the GGH remains positive and the region will continue to be attractive to newcomers. While the housing market across the GTHA got off to a slow start in early 2020 due to COVID-19, pent-up demand and
historically low mortgage rates have accelerated housing demand across the Toronto
region during the summer months of 2020. According to the Toronto Real Estate Board (TREB), the year-over-year average price growth across the GTA has increased by approximately 17%, while housing sales are also up by close to 30%, compared to July 2019. Active listings also shrank by approximately 16% compared to July 2019.
Notwithstanding the recent positive real estate trends identified for the GGH as a
whole, including Durham Region, there are a number of reasons to remain cautious with respect to the broader demand for housing across the GGH over the near-term (i.e. next one to three years) primarily due to reduced levels of immigration. This is because even after the COVID-19 crisis begins to lift, many economists warn that sustained
higher unemployment rates during the recovery period may reduce the incentive for
immigrants coming into Canada.20
Figure 8 summarizes admissions of permanent residents to Canada and Ontario by quarter since 2015. Looking forward over the remainder of 2020 and part of 2021, immigration levels to Canada and Ontario are anticipated to remain low as a result of travel restrictions due to COVID-19. This suggests that near-term immigration levels in
Durham Region (i.e. 2020 and 2021) will also remain below recent historical averages.
20 Stalling immigration may add to Canada’s COVID-19 economic woes. Fergal Smith, Steve Scherer.
Reuters. May 27, 2020.
26
Growth Opportunities and Challenges – January 15th, 2021
Figure 8 Quarterly Admission of Permanent Residents in Ontario Versus the Rest of Canada,
2015 to 2020
This near-term scenario has the potential to reduce population growth levels and
soften the housing market in areas of Ontario where population growth is most heavily
dependent on immigration. For the GGH, the City of Toronto, Peel Region and York Region would potentially be the most heavily impacted by such a trend. The remaining “905” Area of the GTHA, including Durham Region, which is more influenced by inter-provincial and intra-provincial net migration as a source of housing demand may
potentially be less impacted. Within Durham Region, year-to-date residential building permit activity has been notably stronger in eastern and northern Durham Region.
COVID-19 has the potential to
reduce population growth levels
and soften the housing market in
areas of Ontario where population
growth is most heavily dependent
on immigration. For Durham
Region, 2020 year-to-date
residential building permit activity
has been slightly stronger relative
to recent annual averages,
particularly in eastern and northern
Durham Region.
27
Growth Opportunities and Challenges – January 15th, 2021
Recommendation: Continue to monitor the impacts of COVID-19 on near-term and
long-term population and employment growth across the GGH and Durham Region.
Durham’s reliance on inter-provincial and intra-provincial net migration suggests the Region may be less impacted by a prolonged softening of international immigration relative to other GTHA municipalities.
3.6 Summary of Observations
A broad range of factors related to macro-economics as well as federal and provincial policy (e.g. global economic growth outlook, foreign exchange rates, federal immigration policy, federal trade policy and provincial planning policy) will continue to have a strong influence on the Region’s relative performance with respect to recent
population and employment growth. Travel restrictions and economic disruption due to
COVID-19 are also anticipated to negatively impact near term labour force growth and keep near-term (i.e. 2020 and 2021) immigration levels across Canada, including Durham Region, below recent historical averages. It is important to recognize that the Region of Durham has limited control in its ability to influence these above-mentioned macro-economic and policy factors, but does have the ability to recognize emerging
trends.
Durham Region also faces opportunities and challenges resulting from the structural changes that are occurring within the macro economy. Similar to the Province as a whole, Durham Region’s economy has transitioned away from goods production
and towards service delivery. Ultimately, this will continue to influence regional
planning, economic development, and marketing initiatives which will be increasingly geared to the knowledge-driven economy.
When considering the Region’s long-term economic outlook and regional competitive position, Durham Region does have considerable control and ability to position itself in a positive manner. This requires the Region to continue marketing itself
as a hub for innovation, equipped with the human capital (population growth) that is required to encourage on-going small to medium-sized business development, entrepreneurship, and local investment retention. Planning for Durham’s offering in housing choice, transit investment, quality of life and diversity in scale and character of
communities (large cities, towns and waterfront and Greenbelt environments) are also
important in increased competitiveness.
28
Growth Opportunities and Challenges – January 15th, 2021
4.0 Managing Growth in Durham Region: Opportunities and
Challenges
4.1 Long-Term Growth Outlook
As set out in Schedule 3 of the 2019 Growth Plan, Durham Region’s population and employment base is forecast to reach 1,300,000 and 460,000 respectively, by 2051. This represents an increase of approximately 634,000 persons and 223,200 employees, or an annual population and employment growth rate of both 1.9%, over the next 35
years.
As previously discussed, a broad range of factors are anticipated to drive higher population rates over the next several decades in Durham. Notwithstanding the tremendous economic growth potential that exists within Durham, the Growth Plan, 2019 population and employment forecast for Durham Region is aspirational. Forecast annual population and employment growth is anticipated to be approximately double
historical growth rates. Comparatively, by 2046 the Growth Plan population growth forecast for Durham Region is approximately 280,000 persons higher than the most recent population forecast (Summer 2020) prepared by the Ontario Ministry of Finance (MOF).
Notwithstanding the tremendous economic growth potential that exists within Durham, the Growth Plan, 2019 population and employment forecast for Durham Region is aspirational.
29
Growth Opportunities and Challenges – January 15th, 2021
Figure 9
Durham Region Population Forecast Comparison (Growth Plan vs. Ontario Ministry of Finance)
Recommendation: The Growth Plan, 2019 population and employment forecast for Durham Region is aspirational and will require a significant increase in the regional growth rate if it is to be achieved. It is recommended that the 2051 forecast contained in the Growth Plan, 2019 be the basis for the Durham GMS and LNA. A higher long-
term population and employment growth alternative is not recommended.
4.2 Managing Strong Population Growth
Looking forward, the continued rapid urbanization of existing and planned
greenfield areas across Durham, combined with targeted intensification within the
Region’s built-up urban areas, including focused growth within SGAs, is anticipated to present a number of growth management opportunities and challenges for the Region and its area municipalities. As previously mentioned, the increasing pace of technological change and advancement related to e-commerce, transportation
technology (i.e. high-order transit, autonomous vehicles/trucking) and robotics/artificial intelligence will continue to influence urban development patterns, infrastructure planning and economic growth trends in established and emerging economic sectors. A key objective for Durham Region will be to plan to accommodate growth and change in a manner that advances the Region’s livability in a sustainable manner.
Recommendation: Be proactive in anticipating and responding to change, by reporting
on and regularly monitoring how evolving real estate market trends, consumer behavior and technological disruption is anticipated to influence development patterns, land use planning and infrastructure investment priorities across the Region. It is recommended
527,623 584,304 626,607
713,300 755,000 795,600 835,400 874,400 913,200
665,834
715,000
804,000
902,000
997,000
1,090,000
1,193,000
1,300,000
300,000
500,000
700,000
900,000
1,100,000
1,300,000
1,500,000
2001 2006 2011 2016 2021 2026 2031 2036 2041 2046 2051Total Population (Including Undercount)Year
Historical GGH Growth Forecasts to 2051 Technical Report (2020)M.O.F. Summer 2020 Durham Region Population Forecast (2020)
Source: Historical data (2001 to 2016) from Statistics Canada Census.Forecast by Watson & Associates Economists Ltd., 2020.Note: Population includes the net Census undercout. Numbers have been rounded.
30
Growth Opportunities and Challenges – January 15th, 2021
that the Region incorporate results and outcomes of the GMS in its regular monitoring of growth trends. Particular focus should be given to the influence of evolving real estate
market trends and disruptive forces on housing demand by location, tenure and structure type, as well as employment growth and non-residential building space requirements by sector.
4.3 Linking Housing Choice and Economic Development
In accordance with the 2016 Census, Durham Region had a total of 227,900
occupied residential dwelling units. Historically, low-density housing has comprised the majority of total dwellings units in the Region. In 2016, 72% of housing was low-density dwellings (single and semi-detached) compared to 14% for medium- (townhouses, rowhouses) and 13% for high-density (condominium and rental apartments) units. The
share of low-density dwellings in the Region has been declining over the past 15 years with an increasing percentage of new dwellings comprised of medium- and high-density housing forms.
Durham Region has a strong tradition of home ownership with approximately
81% (approximately 185,000 units) of housing units defined as owner occupied.21
Durham Region’s owner-occupied households are largely comprised of freehold
ground-oriented housing units, including detached dwellings and townhouses.
Within the context of the broader regional market area, average housing prices for new detached units in Durham Region (average of $920,000 in 2019) are among the lowest when compared with the other GTHA municipalities. As further described in
Figure 10 below, new housing prices are substantially higher in other GTA municipalities, averaging in the City of Toronto $1.9 million, York Region $1.7 million, Halton Region $1.6 million, and Peel Region $1.3 million.
Durham Region offers greater market choice of new detached homes at various price points compared to most other upper-tier/single-tier municipalities examined within the
broader regional market area. However, the surrounding municipalities in the GGH Outer Ring also generate competition for Durham with respect to low-density housing demand, which are not included in Figure 10.
21 2016 Statistics Canada Census.
Durham Region offers greater market
choice of new detached homes at
various price points compared to other
upper-tier/single-tier municipalities
examined within the broader regional
market area.
31
Growth Opportunities and Challenges – January 15th, 2021
Figure 10 Absorbed Single Detached Units by Price Range, GTA Upper/Single-Tier Municipalities,
2018
Over the past two decades, Durham Region has also experienced strong growth related to both medium-density (townhomes, apartments in duplexes) and high-density (apartments) development. Between 2016 and 2021, it is anticipated that approximately 6,200 medium-density and 6,500 high-density housing units will be added to Durham’s
housing base, representing approximately 60% of total estimated housing growth over this period. During the previous five-year period (2011 to 2016) medium and high-density housing development represented just 40% of total housing growth.
Since 2011, a notable share of residential development activity has been
accommodated within the built-up area (BUA) reinforcing that there is a growing market
for higher density residential intensification. Since 2011, the Region’s share of residential development activity within the BUA has remained steady, from 49% in 2011 to 2013 to 50% in 2017 to 2019. The Durham Region ROP, reflecting the 2006 Growth Plan, currently targets 40% of housing growth within the BUA (i.e. intensification) from 2006 to 2031. This equals a total of approximately 65,000 units to be accommodated
within the BUA over this period.
The Region appears to be on track to exceed the overall intensification target of 40% for all housing development accommodated over the 2006 to 2031 period, having achieved 46% intensification over the 2011 to 2019 period. It is important to note,
however, that over the 2011 to 2019 period, Durham Region accommodated a notable
amount of ground-oriented housing within the BUA through the buildout of plans of subdivision that were captured in the BUA as of 2006. As opportunities to accommodate ground-oriented housing within the BUA continue to diminish, there will
32
Growth Opportunities and Challenges – January 15th, 2021
be an increasing reliance on redevelopment and infill for high-density development, as well as gentle intensification in stable residential neighbourhoods, in order to achieve
the forecasted rate of residential intensification.
From a land supply perspective, significant residential intensification opportunities exist within Durham Region’s SGAs including Urban Growth Centres, Regional Centres, MTSAs and Regional Corridors. These areas offer opportunities to
accommodate a range of medium and high-density housing that is aligned with transit
infrastructure and amenity rich environments. However, not all Strategic Growth Areas have the same potential for accommodating growth. The intensification analysis will provide recommendations on which SGAs can best accommodate growth and complete communities, aligned with infrastructure and servicing.
Durham Region is served by a well-established GO rail commuter system with 4
existing and 4 future stations around which MTSAs will be centred. Provincial policy directs that development and/or redevelopment in MTSAs locations along Priority Transit Corridors is required to meet a minimum density target of 150 jobs and persons per ha. It is recognized that Durham Region’s Employment Areas within MTSA are
anticipated to undergo transformative change over the long-term. Efforts which
encourage transformative change in MTSAs should be supported where appropriate.
Durham’s MTSAs represents a significant opportunity to accommodate future employment growth in a more diversified capacity. The Region’s MTSAs and other Strategic Growth Areas offer strong market attributes to accommodate a large portion of the Region’s office and mixed-use development opportunities over the long-term.
33
Growth Opportunities and Challenges – January 15th, 2021
Figure 11 Durham Region
Share of Building Permits within Built Boundary by Housing Density (New Units Only), 2011-2019
As the Region’s population grows, providing affordable and appropriate housing for residents across all life stages will be an ongoing challenge. Between 2021 and 2051, approximately 219,600 new households are forecast across the Region, largely
within existing and future urban areas. As Durham continues to mature, new housing development activity is anticipated to densify, with a greater share of new housing development occurring through more compact medium - and high-density housing forms. To accommodate future residents in Durham, there is also a need to develop
new and innovative approaches to housing development that are pedestrian-oriented
and transit-supportive. This includes options which provide greater opportunities for mixed-use development planned within intensification nodes and corridors, including secondary units live/work units and a range of affordable housing opportunities.
To maintain well-balanced and healthy communities and ensure long-term
sustainability, it is vital that Durham Region continue to offer a wide range of housing
options to a broad range of income groups and life stages. This includes provision for rental and affordable housing. The availability of housing is a key factor in attracting and retaining people and businesses to a community. To support an emerging knowledge-based environment, the ability to attract, cultivate, and retain talented workers is increasingly important and dependant on a diverse house stock.
90%
97%97%95%
53%
19%
41%39%
31%
22%17%24%
49%
38%
50%46%
0%
20%
40%
60%
80%
100%
120%
2011-2013 2014-2016 2017-2019 2011-2019Share of BUilding Permit Acitivity (%)Period
High Density Medium Density Low Density Total
Source: Buildingpermit data provided by Durham Region. Derived by Watson & Associates Economists Ltd., 2020.Note: Secondary suites are captured as high density units.
34
Growth Opportunities and Challenges – January 15th, 2021
Addressing the interconnection between the Region’s competitive economic position and its longer-term housing needs by market segment is critical in realizing the
Region’s future forecast population and employment growth potential as well as the
Region’s ultimate goals related to prosperity, opportunity, and livability.22 This approach recognizes that the accommodation of skilled labour and the attraction of new businesses are inextricably linked and positively reinforce one another. To ensure that economic growth is not constrained by future labour shortages, effort will be required by
Durham Region and its area municipalities to continue to explore ways to attract and accommodate new skilled working residents to the Region across a diverse range of employment opportunities, including through a broad choice of housing options. Attraction efforts must also be linked to housing accommodation (both ownership and rental), infrastructure, municipal services, and amenities, as well as quality of life
attributes that appeal to the younger mobile population, while not detracting from the
Region’s attractiveness to older population segments.
Recommendation: Through the Housing Strategy and Employment Strategy, reflect
that the accommodation of skilled labour and the attraction of new businesses are inextricably linked and positively reinforce one another. As an outcome of the GMS,
provide recommendations on how to attract and accommodate new skilled working residents to the Region within a broad range of housing options by type, location, tenure
and affordability.
Recommendation: Through the Durham GMS and MCR, prioritize growth and further
infrastructure investment within SGAs and other priority intensification areas that align
with current and planned servicing and transit/transportation networks.
Recommendation: Through the Durham GMS and MCR, consider appropriate policies that prioritize and promote office and mixed-use development within SGAs, including MTSAs and UGCs, as well in other appropriate areas of the Region. This includes ensuring that planning policies and regulations are supportive of intensification
initiatives and the economic objectives of the Region. Where gaps exist between planning policy objectives and market demand regarding mixed-use and office development, the Region should also explore utilizing financial tools/incentives to facilitate development where fiscally sustainable.
22 Durham Region Strategic Plan. 2020-2024. Region of Durham.
Economic attraction efforts must be linked to
housing accommodation (both ownership and
rental), infrastructure, municipal services, and
amenities, as well as quality of life attributes
that appeal to the younger mobile population,
while not detracting from the Region’s
attractiveness to older population segments.
35
4.4 Planning for Existing and Future Generations
Planning for Millennials and Generation Z
The average age of the population base in Durham Region is getting older, due to the large concentration of Baby Boomers23 within the Region. The aging of the Regional population base further reinforces the need to attract younger age groups to
the Region, particularly those characterized as Millennials and Generation Z as well as
any subsequent generations.24
Millennials are typically defined as the segment of the population which reached adulthood during the 2000s. While there is no standard age group associated with the Millennial generation, persons born between 1980 and 1992 (currently 27 to 39 years of age) best fit the definition of this age group. Millennials represent a large cohort in
Canada, rivaling the Baby Boomer generation in terms of size and impacts on the real estate market and labour force base. As of 2016, Millennials comprise approximately
17% of the Region of Durham population. 25
Based on recent survey data, 62% of Millennials prefer to live in mixed-use environments that urban centres offer which includes proximity to amenities and
employment.26 Millennials also tend to have a higher preference to live in more compact environments which offer a short distance to work and place a higher preference for
walkability and access to public transit.27
Generation Z, the cohort which directly follows the Millennial Generation is now
entering the real estate and labour market. Demographers and researchers typically use
23 Baby Boomers are generally defined as those born between 1946 and 1964.
24 Millennials are generally defined as those born between 1980 and 1992. For the purposes of this
study, we have assumed that those born between 1993 and 2005 comprise Generation Z.
25 Statistics Canada, 2016 Census.
26 Millennials – Breaking the Myths, Nielsen, 2014 27 Emerging Trends in Real Estate, Canadian Edition, PwC and ULI, 2014.
Growth Opportunities and Challenges – January 15th, 2021
The average age of the population base in
Durham Region is getting older, due to
the large concentration of Baby Boomers
within the Region. The aging of the
Regional population base further
reinforces the need to attract younger age
groups to the Region, particularly those
characterized as Millennials and
Generation Z as well as other future
generations.
36
the mid-1990s to mid-2000s as starting birth years to describe the Generation Z cohort. As of 2016, the Generation Z population comprises approximately 14% of the Region of
Durham population base.28 Over the next several decades, Generation Z is anticipated
to place increased demand on medium and high-density ownership and rental housing.
Millennials and Generation Z will have an impact on the nature of future employment growth, which will be increasingly driven by the knowledge-based economy. From a planning and economic development perspective, both Millennials
and Generation Z will continue to serve as a catalyst for both growth and change related to future office, retail, institutional and industrial developments across Durham. The extent to which Durham can capitalize on potential demand from these demographic groups is subject to a number of economic and socio-economic variables (e.g. relative
housing costs/affordability, local and regional employment opportunities, fuel costs,
lifestyle preferences, local amenities, community services and perceived quality of life).
Continuing to Plan for Older Generations
As of 2016 Baby Boomers comprise 24% of the Region’s population base. As of
2020, this age group is between 56 and 74 years of age.29 As the Region’s Baby Boom
population continues to age, the percentage of seniors, particularly older seniors (i.e. seniors 75 years of age and older) is anticipated to steadily increase over the 2016 to 2051 forecast period. From 2001 to 2016, the Region’s 75+ population grew at an annual rate of 4.1%.30 Over the 2016 and 2051 period, the annual population growth rate for the 75+ age group is forecasted to remain strong at 3.7%. This demographic
trend is anticipated to be largely driven by the aging of the Region’s existing population,
as opposed to net-migration of older residents into the Region.31
Not only is the Baby Boom age group large in terms of its population share in Durham Region, it is also diverse with respect to age, income, health, mobility, and lifestyle/life stage. When planning for the needs of older adults, it is important to
consider these diverse physical and socio-economic characteristics relative to younger age groups. On average, seniors, particularly those in the 75+ age group, have less mobility, less disposable income, and typically require increased health care compared to younger seniors (65-74 age group) and other segments of the younger working-age
population. Typically, these characteristics associated with the 75+ age group drive the
demand for relatively higher density housing forms (e.g. apartments and seniors’ homes) that are in proximity to urban amenities (e.g. hospitals/health care facilities, amenities, and other community services geared towards older seniors).
Overwhelmingly, existing literature and commentary regarding the housing needs of older Canadians suggests that a large percentage of seniors will “age in place”; that
28 Statistics Canada, 2016 Census.
29 Statistics Canada, 2016 Census.
30 Ibid.
31 Watson & Associates Economists Ltd. 2020.
Growth Opportunities and Challenges – January 15th, 2021
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Growth Opportunities and Challenges – January 15th, 2021
is, to continue to live in their current home and/or community for as long as possible even if their health changes.32 While there is strong rationale to support “aging in place”
as a general concept, it is important to address the current characteristics of the Regional housing stock occupied by older adults (i.e. house size, built-form, location and amenities) against the socio-economic characteristics of older residents in the Region of Durham (i.e. household income, housing affordability, mobility, health, etc.)
The overarching message around “aging in place” is that seniors require choice
as well as access to services and amenities regarding their living arrangements.33 This could include creating new housing through infill or intensification in established areas which can facilitate “aging in place” by providing housing options which allow seniors to remain in their communities when responding to life changes.34
Recommendation: Through the Housing Strategy, reflect the continued need to
accommodate and plan for older generations while also attracting younger adults and new generations by increasing the market choice of housing available within Durham
Region by housing structure type.
Recommendation: Through the Durham GMS and MCR, consider policies, programs
and initiatives that support a broad range of new housing options for all ages and
income groups. This should include rental apartments, condominiums and entry-level townhome products (e.g. back-to-back townhomes and stacked-townhomes and apartments) for younger adults as well as a range of housing products, including seniors’ housing, to accommodate older adults.
Promoting Investment Readiness and Competitiveness
Notwithstanding the long-term economic growth potential that exist across the GGH, and more specifically Durham Region, domestic and international competition for business development and investment is increasing in today’s “new economy.” As previously mentioned, Durham Region faces a number of challenges regarding its
competitive position on a global and national scale, in which it has limited control. At
the more regional level, Durham Region faces stiff regional competition with its neighbouring municipalities for business attraction and investment.
In 2019, the Region of Durham completed a Competitiveness Study, which provided a comprehensive assessment of current industrial and office market conditions
and trends, market readiness and competitiveness, and relative competitiveness in key target industry sectors to its key competitors within the broader regional market area. The results of this study indicate that Durham ranks as one of the more competitive upper/single-tier municipalities in the GGH with respect to investment in the five industry sectors profiled – agri-business, health industries, digital media, EN3 and advanced
manufacturing. Its competitive advantages are well suited for increased investment in
32 Canadian Housing Observer 2011. CMCH. 2011. 33 The Meaning of “Aging in Place” to Older People. The Gerontologist, Vol. 52, No. 3, 2012. 34 Housing for Older Canadians: The Definitive Guide to the Over-55 Market. CMCH. Canada. 2012. Pg. 18.
38
the agricultural/agri-food sector (food processing), digital media sector, and the EN3 industry. Its competitive disadvantages do limit its investment opportunities in health
industries and advanced manufacturing when compared to other GTHA municipalities that tend to have larger established clusters and supply chains in these sectors.
Durham competes directly for business attraction and investment with other communities within the regional market area and beyond. This is particularly true for
“export-based” industrial sectors which are typically accommodated within Employment
Areas.35 A major factor influencing the future competitiveness of the Region’s economic base is the structure and quality of its Employment Areas. Employment Areas typically include a broad range of light, medium and heavy industrial lands, business parks and rural industrial lands. Employment Areas accommodate primarily export-based employment sectors, including a wide range of industrial uses (e.g. manufacturing,
distribution/logistics, transportation services), as well as specific commercial e.g. office, service, ancillary/accessory retail) which are generally secondary and support the industrial/business function.
In order for the Region of Durham to continue to be competitive and attractive to
a broad range of industrial and commercial sectors, the Region will need to ensure that
it offers a sufficient supply and market choice of municipally serviced lands in Employment Areas. Most notably, this should include a diverse supply of sites in terms of location and size (e.g. ranging from 1 hectare to up to 25+ hectares) with good transportation access and proximity to major highway interchanges as well as other local/regional transportation infrastructure.
In September 2020, Regional Council approved Durrham’s Emloyment Land Servicing Strategy. The Region is working to accelerate employment land development by prioritizing sewer and water planning and capital works projects for employment areas. Annual reports will be prepared to update Council on progress of the
recommended work elements, including new recommendations for next steps as
detailed design and development proceeds for the projects identified, and report on the outcomes of Regional investment and supporting efforts to encourage economic development in designated employment areas.
4.5 Planning for Employment Areas
Lands designated as Employment Areas in the Durham Region Official Plan are
intended to be used for clusters of business and economic activities, including, but not limited to, manufacturing, warehousing, offices and associated retail and ancillary facilities.36 As previously mentioned, structural changes in the broader economy are altering the nature of economic activities in Employment Areas and impacting the built
35 Export-based employment sectors represent industries that produce goods and services to markets primarily outside Durham Region’s retail trade area.
36 A Place to Grow. Growth Plan for the Greater Golden Horseshoe Office Consolidation 2020. Pg. 70. Provincial Policy Statement, 2020. Pg. 43.
Growth Opportunities and Challenges – January 15th, 2021
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Final Draft: Growth Opportunities and Challenges – January 11th, 2021
form and composition of these lands. Recently, market demand and real estate development in Employment Areas has been driven by growth in the knowledge-based
or “creative class” economies, including employment sectors such as advanced manufacturing, professional, scientific and technical services, cleantech, biotech, digital entertainment, robotics, information and culture, health care and education. The nature of traditional industrial processes is also rapidly shifting, becoming more
capital/technology intensive and automated, often with lower labour requirements.
Driven by an increasing emphasis on innovation and technology these evolving and emerging export-based sectors have siting, space and built-form requirements that are significantly different from traditional industrial sectors which have occupied Employment Areas across Durham Region in the past. This may include requirements related to telecommunications infrastructure, transit access, energy efficiency, building
and urban design standards, eco-industrial design principles and labour force access. Site configuration and integration of uses is also evolving particularly in prestige Employment Areas which often integrate operations combining office, research and development, warehousing and logistics, and on-site manufacturing in a “campus-style”
setting.
With the recent structural changes in the regional economy, there has been a shift in how Employment Areas are planned and developed. “Place-making” is increasingly recognized as an important planning component in creating diverse and vibrant communities, which in turn can help attract local population and job growth providing that other necessary infrastructure requirements are met.37 For Employment
Areas, this is particularly relevant for light industrial and office commercial environments which integrate ancillary retail uses and other supportive amenities, with public open space and other civic infrastructure.
Recognizing that structural changes in the global economy will continue to be
accelerated by technological advancements and innovation, municipalities must be
increasingly responsive and adaptive to changing industry needs and disruptive forces. Looking forward over the next several decades, Durham Region’s land-use planning and economic development policies must monitor, anticipate and reflect the evolving needs of businesses across a diverse range industry sectors and sizes. These policies must also offer a degree of flexibility and nimbleness that allows for relatively rapid
responses to unforeseen changes, which can be a critical competitive advantage relative to competitive markets.
Recommendation: Through the Employment Strategy, assess the current composition of Employment Areas, including size, distribution and servicing status, and determine
future employment land need.
37 Place-making is a process of creating unique, quality locations, places or spaces that possess a strong
sense of place. With respect to places of work, the concept of placemaking is often encompasses the
attraction knowledge-based workers and businesses with an emphasis on collaboration, connection, and
innovation.
40
Recommendation: Through the Durham GMS and MCR, ensure that Durham
continues to offer a competitive array of land within Employment Areas, by designating
an appropriate quantum of land and including ROP policies to regularly monitor and maintain a sufficient supply of shovel-ready vacant lands across a diverse range parcel sizes and locations within Employment Areas (equivalent to a minimum five-years of forecast Regional demand).38
Recommendation: Through the Employment Strategy, consider the importance of place-making for Employment Areas, including implementing appropriate policies.
4.6 Promoting the Rural Economy
The majority of Durham’s regional land base is rural (84%), which supports a significant and productive agricultural, tourism, resource and growing creative sector. In 2019, the population of the rural area was 54,000 largely located in the northern two
thirds of Durham Region. These rural areas are comprised of small communities,
protected landscapes, resource assets, and agricultural lands. Some of the traditional
key economic sectors in rural areas include: agricultural inputs and services, environmental services, hospitality and tourism, aggregate extraction, and paper and packaging. Emerging sectors which may be concentrated in rural areas include food processing and manufacturing, livestock processing, and transportation and logistics.
Agricultural activities are significant to the Durham Region economy. Further development and investment in the agri-business and food processing industry provides an opportunity to deepen agricultural activity and increase productivity by providing value-added products and services. Rural areas also provide opportunities for strengthening Durham’s tourism economy through agri-tourism, which includes on-farm
uses which can include such uses as wineries and breweries. Other rural tourism opportunities include recreation and outdoor facilities such as golf courses, parks, conservation areas, and major trail systems. Specialty retail in rural communities like Uxbridge and Port Perry, and accommodations concentrated in rural areas such as inns, B&Bs and campgrounds, also contribute to the tourism economy.
Durham offers a balance between urban and rural communities, with urban development concentrated in the southern portion of the Region along the Lake Ontario shoreline. Given the rural context and built-form of Durham’s northern Urban Areas, there is less opportunity for medium and high-density development. However,
population and employment growth is anticipated to occur, at a context appropriate
scale.
The agri-food sector in Durham varies by geographic area, and economic trends must be considered by local municipality. Innovative solutions are required to prevent urban development from negatively impacting agriculture in the south and to spread prosperity to the north.
38 “Shovel ready” lands reflect designated and zoned developable vacant employment lands that have necessary municipal servicing (i.e. water/sewer (where applicable) to the property line and would be
available for development by an end user immediately or within 6 months.
Growth Opportunities and Challenges – January 15th, 2021
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Growth Opportunities and Challenges – January 15th, 2021
The key challenges which need to be taken into consideration for the future growth of Durham’s rural and tourism economy include:
•Loss of vital land and the increasing price of farmland being driven by thepurchase of large holdings for non-farm residential dwellings;
•Trends in locating farm processing plants further away from urban areas asurban development begins to expand to the north;
•Addressing Surplus farm dwellings;
•Challenges in transporting goods to market due to Durham’s location on the eastside of the GGH, with an increased distance to international airports and the USBorder;
•A lack of access to highspeed broadband poses a significant challenge forbusinesses in rural areas;
•Conflict between urban and agricultural trucks on shared roads; and,
•The relationship between agri-tourism supporting job growth in rural areas.
Providing farmers with the opportunity to open on-farm agri-tourism and/or culinary
tourism experiences is a strong potential tourism opportunity for Durham’s rural areas. Maintaining a policy framework for which lands may be utilized for agriculture, agri-tourism, and other aspects of the rural economy such as extracting resources and aggregates, will serve to guide long-term population and employment growth to
Durham’s rural areas.
As previously mentioned, the COVID-19 pandemic has resulted in a growing dependence on digital communication and staying connected via video conferencing and social media. Growth in online activity and reliance on digital communication may be utilized as an opportunity to invest in the expansion of high-speed internet and
reliable broadband connectivity to Durham’s rural areas in order to assist farmers and
local businessowners. An improvement in the speed and reliability of broadband may
also provide farmers and residents living in rural areas with a greater sense of connectivity to the urban areas of Durham on a digital platform.
Recommendation: Through the Employment Strategy, reflect the maintenance and
growth of a strong rural economy in Durham Region.
Recommendation: Through the MCR, continue to emphasize through ROP policies the importance of growth in the rural economy, including the agriculture, resources, and, agri-tourism sectors. Maintain a policy framework identifying which lands are part
of the rural system and may be appropriate for agriculture, agri-tourism, and aggregate extraction, as well as other uses. These policy directions should also build on strengthening the already present tourism industry in Durham’s rural economy, by promoting opportunities for farmers to operate agri-tourism uses on agricultural lands.
4.7 Aligning Growth with Significant Infrastructure Investment
Durham Region is responsible for planning and maintaining major infrastructure systems, including water and wastewater, transit, and regional roads. Regional infrastructure provision serves existing residents and businesses and must be
42
Growth Opportunities and Challenges – January 15th, 2021
expanded and upgraded over time in order to enable new population and employment growth in accordance with the Durham ROP. To accommodate the Region’s long-term
population and employment forecasts, significant investments in water, wastewater, and transit infrastructure will be required across the Region in both greenfield and intensification areas.
Given the level of infrastructure investment required to accommodate anticipated
long-term residential and non-residential development, Durham Region will need to
ensure that the prioritization and staging of capital is well aligned with anticipated real estate market trends, the anticipated level of demand, regional structure, and policy goals. It is recognized that if major capital projects are not well-aligned with market demand, the Region will be at increased financial risk. This potential for risk could increase with a prolonged economic downturn and/or slow economic recovery resulting
from COVID-19. As experienced through the economic downturn of 2008/2009, this would result in reduced revenue associated with slower growth and lower revenues required to pay for growth-related capital. In turn, delays to major infrastructure investment would potentially reduce the Region’s competitive position relative to the
broader regional market area by further limiting new opportunities for new business
development and housing choice. To minimize these financial risks, there is a need to align near-term development priorities with locations that offer development capacity within existing infrastructure.
Recommendation: Through the GMS and MCR, incorporate an integrated approach to
land-use planning, servicing, and financial management within the broader context of
Regional growth management. Prioritize growth in areas that make efficient use of existing and planned regional infrastructure.
Recommendation: Growth strategies and related ROP policies should be crafted in a
manner that is less prescriptive and more outcome focused in order to be more
adaptative, and resilient to rapid changes in technology and continued structural shifts
in the regional economy. This is of particular importance when planning for Employment Areas within MTSAs.
4.8 Measuring Performance Against Broader Growth Management Objectives
While achieving a strong long-term population and employment growth rate is an important indicator of overall performance for Durham Region, it is also necessary to
weigh this quantitative measure against other broader community building goals related to housing, neighbourhood design, transportation, environment, health, social engagement, financial sustainability, and opportunity. Achieving these goals requires a long-term vision with respect to the management of the Region’s urban and rural
communities, places of work, rural lands, and protected countryside.
Recommendation: Durham Region should continue to plan growth in a manner that builds on the guiding principles of the Growth Plan 2019 and recognizes the importance of enhanced livability, mobility and economic opportunity in the region to successfully achieve sustainable growth.
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Growth Opportunities and Challenges – January 15th, 2021
5.0 Conclusions
A broad range of factors related to macro-economics as well as federal and provincial policy will continue to have a strong influence on the Region’s performance with respect to population and employment growth. Travel restrictions due to COVID-19
are also anticipated to keep near-term (i.e. 2020 and 2021) immigration levels across
Canada, including Durham Region, below recent historical averages.
While it is important to understand the implications of these macro-economic factors and policy trends, it is also important to recognize that the Region has limited control to influence many of these inputs when planning for its future growth. In contrast, Durham Region does have considerable control to influence its competitive position by
focusing on the interconnection between local job creation, housing choice, and liveability. This is becoming increasingly relevant during the current pandemic and will be particularly pertinent in the post-pandemic period, as continued structural changes in the economy and technological disruption increasingly enable work from home
employment opportunities and remote learning.
A key objective of both the Provincial Growth Plan and the Durham Region Official Plan is to build healthy and complete communities in a manner that enhances livability and economic prosperity, while protecting what is important to residents and local businesses. These long-term objectives emphasize the importance of measuring performance against quantitative metrics such as population and employment growth,
as well as broader city-building objectives related to housing choice, mobility, environment, health, equity and financial sustainability.
With these broad Regional building objectives in mind, “place-making” is increasingly recognized as an important planning component in creating diverse and
vibrant communities with emphasis on quality of life, which in turn can help attract local
population and job growth.
Looking forward, the key opportunity - but also challenge - for Durham Region will be to plan for accommodating growth in a manner which preserves the Region’s livability and is sustainable from a triple-bottom line perspective. To do so, the Region must be proactive in anticipating and responding to change by continually monitoring
and measuring how evolving real estate market trends, consumer behavior, and technological disruption is anticipated to influence development patterns and infrastructure investment priorities across the Region.
“Place-making” is increasingly
recognized as an important planning
component in creating diverse and
vibrant communities while
increasing the competitiveness and
ability of the Region to attract and
accommodate growth.
44
Growth Opportunities and Challenges – January 15th, 2021
Given the level of infrastructure investment required to accommodate anticipated long-term residential and non-residential development across Durham Region, the
Region will need to ensure that the prioritization and staging of Regional infrastructure investment is well-aligned with identified planning priorities, which are informed by anticipated real estate market trends. It is recognized that if major capital projects are not well-aligned with identified planning priorities, the Region will be at risk from a
resiliency and financial perspective. This potential risk could increase with a prolonged
economic downturn and/or slow economic recovery resulting from COVID-19, reduced revenue associated with slower growth, and lower revenues required to pay for growth-related capital. In turn, delays to major infrastructure investment would reduce the Region’s competitive position relative to the broader Regional market area by limiting new business development and housing choice.
In reviewing and considering the overall regional structure, it will be important to identify the areas which have the greatest potential to accommodate growth along with their potential for place making (in existing and new planned communities) and,
enhanced mobility and infrastructure investment. This includes a review of Urban
Growth Centres, MTSAs, Regional Centres, and Regional Corridors to identify and plan in an integrated way for development and infrastructure requirements in Strategic Growth Areas.
Finally, through a balanced approach that incorporates economic and real estate market
demand factors against broad Provincial and Regional planning interests, the Region will be best equipped to identify where investment priorities are highest. The Region will also need to identify where financial incentives and planning tools are potentially needed to stimulate residential and non-residential development activity, especially
where market forces alone are not delivering a desired outcome.
6.0 Next Steps
The Growth Opportunities and Challenges Report should be regarded as a summary of initial analysis to set the stage for the Growth Management Study’s
Technical Briefing Papers and supporting documentation to the Final Land Needs Assessment Recommendation Report. The content and recommendations provided in this report may also inform the Envision Durham process and emerging policy directions. The next steps for the Durham Growth Management Study are as follows:
Complete the following LNA related analysis:
•Region-wide Growth Analysis and Forecast to 2051
•Intensification Analysis
•Employment Land Analysis, including Employment Conversion Analysis
•Designated Greenfield Density Analysis
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Final Draft: Growth Opportunities and Challenges – January 11th, 2021
•Land Needs Assessment
These concurrent streams of analysis will be summarized and reported in the following Technical Briefs, anticipated to be completed between January and March 2021:
•Region-wide Growth Analysis
•Housing Strategy
•Employment Strategy
•Community Land Needs Assessment
The Durham Growth Management Study outcomes will be synthesized in a Final Land Needs Assessment and Recommendations Report, expected to be completed in mid-2021.