HomeMy WebLinkAboutPLN 40-22Report to
Planning & Development Committee
Report Number: PLN 40-22
Date: September 6, 2022
From: Kyle Bentley
Director, City Development & CBO
Subject: Envision Durham – Implementing the Provincial Agricultural System
- The Region of Durham Municipal Comprehensive Review
- File: A-2100-020
Recommendation:
1. That Council endorse the Staff comments contained in Appendix I to Report PLN 40-22
as the City’s formal comments on the draft Regional Agricultural System mapping, in
relation to the lands in the City of Pickering, reflected in Attachments #5 and #7 to the
Commissioner of Planning & Economic Development’s Report 2022-P-16, and that the
Region investigate the following matters as part of finalizing the mapping and
associated policies for the new Regional Official Plan:
a. Whether the proposed Prime Agricultural Areas designation with a proposed
Natural Heritage System Overlay, on the Agricultural Preserve lands, conforms
with the Central Pickering Development Plan Natural Heritage System – Primary
Designation along the West Duffins Creek Valley;
b. Whether the proposed Prime Agricultural Areas overlay designation provides
appropriate protection for Natural Core Areas on the Oak Ridges Moraine;
c. Whether there is an appropriate level of protection for key hydrologic features,
such as wetlands, against unwanted farm practices, on lands that are proposed to
be re-designated Prime Agricultural Area;
d. That the proposed re-designation of lands, from Major Open Space to Prime
Agricultural Areas, that have significant natural heritage and hydrologic features
(e.g., wetlands complexes), and are located between Greenwood and Lake Ridge
Road, be reconsidered;
2. That the Region acknowledge the exception for a cemetery use on lands located
northeast of the Hamlet of Greenwood, between Highway 407 and Highway 7, reflected
as “E3” on Schedule I of the Land Use Structure in the Pickering Official Plan, by
including a policy exception in the Regional Official Plan;
3. That a copy of Council’s Resolution and Report PLN 40-22 be forwarded to the Region
for consideration; and
4. That the appropriate City of Pickering officials be authorized to take the necessary
actions as indicated in this report.
PLN 40-22 September 6, 2022
Subject: Envision Durham – Implementing the Provincial Agricultural System Page 2
Executive Summary: On June 7, 2022, the Regional Municipality of Durham released the
Commissioner of Planning and Economic Development’s Report 2022-P-16 (Report 2022-P-16).
This Report identified a draft Regional Agricultural System (RAS) to be added to the new
Regional Official Plan (ROP). The draft RAS implements the Provincial Agricultural System as
part of Envision Durham, the Region’s comprehensive review of its Official Plan. A copy of
Report 2022-P-16 and accompanying attachments are provided as Attachment #1 to this
report. The Region is requesting comments on the draft RAS mapping by September 9, 2022.
City staff recommend that the recommendations, and comments contained in Appendix I and
in Section 2 of this report, be endorsed as the City comments on the draft Regional Agricultural
System mapping in relation to lands within the City of Pickering, and that a copy of Council’s
Resolution and Report PLN 40-22 be forwarded to the Region for consideration. Since the
deadline for comments is September 9, 2022, staff will also be providing a copy of Report
PLN 40-22, and the draft minutes of the Planning & Development Committee meeting of
September 6, 2022, to the Region, ahead of Council’s consideration of the matter.
Financial Implications: This report has no financial implications for the City.
Discussion:
1. Background
The current Regional Official Plan (ROP) designates rural areas in the Region, where
agricultural lands and uses are predominant, as Prime Agricultural Areas. Consistent
with Provincial policies and Provincial Plans, the ROP also contains policies that permit
a wide range of agricultural, agricultural-related, and secondary uses in Major Open
Space Area designations.
In 2018, the Province released a map identifying a Provincial Agricultural System (PAS)
across the Greater Golden Horseshoe, based on a Land Evaluation Area Review by the
Ontario Ministry of Agriculture, Food and Rural Affairs. The PAS includes an agricultural
land base that consists of prime agricultural areas, specialty crop areas and rural lands,
and an agri-food network.
A Place to Grow: Growth Plan for the Greater Golden Horseshoe, the Greenbelt Plan,
and the Oak Ridges Moraine Conservation Plan, require the implementation of the PAS
through updates to upper and single tier official plans. The implementation of the PAS in
the new ROP stems from the Provincial Policy Statement that: requires prime
agricultural areas to be protected for long-term agricultural use and to be designated in
accordance with provincial guidelines; and encourages planning authorities to use a
system approach to maintain and enhance the geographic continuity of the agricultural
land base, and functional and economic connections of the agri-food network 1.
1 Agri-food network includes infrastructure, services and assets important to the viability of the agri-food sector
PLN 40-22 September 6, 2022
Subject: Envision Durham – Implementing the Provincial Agricultural System Page 3
In March 2020, the Province released implementation procedures for the PAS to assist
municipalities, farmers, and other stakeholders with interpreting and implementing the
PAS. According to the implementation procedures, upper-tier municipalities may refine
the PAS mapping of the agricultural land base at the time of the initial implementation of
the PAS in their official plans. Any subsequent refinements may only occur through a
municipal comprehensive review.
In February 2021, the Region retained consultants to assist with the implementation of
the PAS into the ROP. Regional staff, and the consultant team, reached out to the
Envision Durham Municipal Working Group, Conservation Authorities, and Agricultural
Advisory Committees, regarding the preferred approach to refine the PAS mapping in
Durham. This was followed up with a review process, consisting of a combination of a
desktop exercise, and on-the-ground assessment of the Region’s rural area. The
Commissioner of Planning and Economic Development’s Report 2022-P-16 (Report
2022-P-16), released in association with the draft Regional Agricultural System (RAS)
mapping (see Attachment #1), provides a comprehensive explanation of the
methodology that was used by the Region and the consultant team to refine the PAS
mapping and delineate the draft RAS for the new ROP. The draft RAS mapping is
shown in Attachments #2 to #8 to Report 2022-P-16.
Attachments #5 and #7 to Report 2022-P-16 identify 11 assessment units in Pickering
for potential inclusion in the draft RAS. These assessment units are the lands in
Pickering the Region is proposing for inclusion in the Prime Agricultural Areas
designation of the new ROP. The Region is seeking the City’s feedback on those
assessment units. Section 2 of this report contains staff’s comments in that regard.
Report 2022-P-16 also contains a short discussion on the significance of the current
Major Open Space Areas designation in the ROP, which, in addition to the designated
Prime Agricultural Areas in the ROP, applies to certain lands within the Region’s rural
area. The designated Major Open Space Areas in Durham comprise significant natural
heritage and hydrologic features, and rural lands, where agricultural uses as well as
non-agricultural uses, such as commercial kennels, and major recreational uses, are
permitted. Report 2022-P-16 points out that re-designating these Major Open Space
Areas as Prime Agricultural Areas would limit the rural economic development potential
of those lands to agricultural practices.
Report 2022-P-16 also refers to the feedback received, through the Envision Durham
consultation, which stressed the importance of ensuring Major Open Space Areas are
retained for parks, major recreational uses (e.g., golf courses), and non-agricultural
uses, such as cemeteries. Accordingly, the Region resolved to only change lands with a
current designation of Major Open Space Areas to a designation of Prime Agricultural
Areas, if no natural heritage features were present, and if the lands were under active
cultivation. Staff does not concur with the proposed mapping re-designating the south
part of Lot 9, and the southern third of Lot 10, Concession 5 (north of the Fifth
Concession Road, between Westney Road and Sideline 8), from Major Open Space
Areas to Prime Agricultural Areas, because it is covered by significant woodlands,
wetlands, and is uncultivated.
PLN 40-22 September 6, 2022
Subject: Envision Durham – Implementing the Provincial Agricultural System Page 4
A number of other key aspects to point out, in relation to the implementation of the PAS
in the new ROP, are the following:
•On lands outside the Oak Ridges Moraine, the refined Provincial Agricultural System
mapping will be depicted as a “Prime Agricultural Area or System” designation in the
ROP, whereas on lands inside the Oak Ridges Moraine, it will remain as an overlay.
Furthermore, the new Regional Natural Heritage System will be depicted as an
overlay across Durham. The primary difference between a “designation” and an
“overlay” is that the policies associated with a “designation” have primacy over
policies associated with an “overlay”.
•The Region is not proposing a Prime Agricultural Areas or System on lands that are
federally owned, or within Seaton, which forms part of Pickering’s Urban System.
•Lands designated as Prime Agricultural Areas/System in the ROP will be outside of
any future urban boundaries, and the final proposed changes to the draft RAS will
reflect the future urban boundary that will come forward in Phase 2 of the Region’s
Growth Management Study.
•Although the implementation of the Provincial Agricultural System through the new
ROP would go hand in hand with the implementation of associated new or revised
land use policies, the Region is, at this time, only seeking feedback on the draft RAS
mapping.
•Although there are a number of proposed additions to the Prime Agricultural Areas in
Pickering, the majority of the draft RAS lands are already included in the Prime
Agricultural Areas designation in the City’s Official Plan. This was achieved through
work undertaken through Official Plan Amendment (OPA) 27 (The Greenbelt and
Countryside Amendment approved in December 2017).
2.Staff Comments
City staff, through a number of consultation periods during 2017 and 2018, provided
preliminary comments to the Ontario Growth Secretariat in response to the proposed
Provincial Agricultural System Map. Those comments were repeated in the City’s
comments on the Region’s Envision Durham – Agricultural and Rural System
Discussion Paper, through Report PLN 13-19. In the first quarter of 2022, City Planning
staff, as part of the Envision Durham Municipal Working Group engagement, undertook
a review of the Region’s draft RAS comparing it to the Prime Agricultural Areas mapping
in the POP, aerial photography, and available development data and approvals, and
provided preliminary comments to Regional staff. At that time, the mapping revisions
identified by City staff pertained mainly to assessment units where the draft RAS
mapping layer protruded into developed properties in rural settlements (where the
development limits had been established through previous planning approvals), or
undeveloped properties, for which the development limits were also established through
recent studies and planning approvals.
Based on the comments that were previously submitted by the City staff to the
Region, City staff conducted a final review of the latest draft RAS mapping (contained
in Attachments #5 and #7 to the Report 2022-P-16), with specific attention to the
PLN 40-22 September 6, 2022
Subject: Envision Durham – Implementing the Provincial Agricultural System Page 5
11 assessment units identified in rural Pickering. As noted before, these assessment
units are the areas in Pickering the Region are proposing for inclusion in the Prime
Agricultural Areas designation of the new ROP. Staff’s detailed comments with respect
to the 11 assessments units in Pickering are contained in Appendix I to this report (see
the last column of the comment table).
As noted in the comment table, City staff identified a number of concerns (see bold
text) that should be investigated and clarified by the Region as part of developing the
associated policies framework that will inform the mapping in the new ROP.
Additionally, staff are recommending that the following comments, previously provided
to the Region through Report PLN 13-19 as the City’s formal comments on the Region’s
Agricultural and Rural Discussion Paper, back in May, 2019, be reiterated:
The Pickering Official Plan identifies an Exception (E3) Area for a future
cemetery use on lands north-east of the Hamlet of Greenwood, between
Highway 407 and Highway 7. The lands are located, for the most part, in the
“Prime Agricultural Areas” designation in both the Pickering and Regional
Official Plans. Through initial discussions with Regional Planning staff and
staff from the Ministry of Municipal Affairs and Housing, it was determined
that the exception for a cemetery use on the subject lands could be
grandfathered, given its exception status.
These lands are strategically situated in relation to Seaton and North East Pickering,
and given that the population of Pickering is expected to more than double in the next
30 years, these lands may prove very useful in meeting the future need for burial space.
Therefore, staff recommends that the Region recognize the exception for a
cemetery use on the lands located northeast of the Hamlet of Greenwood,
between Highway 407 and Highway 7, reflected as “E3” on Schedule I of the Land
Use Structure in the Pickering Official Plan, by including a policy exception in the
new ROP.
3. Conclusion
This report and the accompanying appendix provides a synopsis of the Region’s
process to implement the Provincial Agricultural System through Envision Durham, the
Municipal Comprehensive Review process, and includes staff comments that should be
investigated and clarified by the Region as part of finalizing the mapping and associated
policies for the new Regional Official Plan.
Appendix:
Appendix I City Development Staff Comments on the Draft Regional Agricultural System
Mapping
Attachment:
1. Report 2022-P-16 of the Commissioner of Planning and Economic Development
PLN 40-22 September 6, 2022
Subject: Envision Durham – Provincial Agricultural System Page 6
Prepared By: Approved/Endorsed By:
Original Signed By Original Signed By
Déan Jacobs, MCIP, RPP Catherine Rose, MCIP, RPP
Manager, Policy & Geomatics Chief Planner
Original Signed By
Kyle Bentley, P. Eng.
Director, City Development & CBO
DJ:ld
Recommended for the consideration
of Pickering City Council
Original Signed By
Marisa Carpino, M.A.
Chief Administrative Officer
Appendix I to
Report PLN 40-22
City Development Staff Comments on the
Draft Regional Agricultural System Mapping
Page 1
City Development Staff Comments on the Draft Regional Agricultural System Mapping
Assessment
Unit #
Current ROP
Designation
Proposed New
ROP Designation
or Overlay
Current Pickering
Official Plan
Designation/Overlay
Staff Comments
92-P (northwest
of the Hamlet of
Green River)
Specific Policy
Area A
Prime Agricultural
Area Designation
Natural Areas
(Note: Natural Areas
include uses such a
conservation,
environmental
protection, existing
lawful agricultural
uses and agricultural
uses that assist in the
function of natural
linkage corridors, and
small scale
landscape industries,
subject to certain
criteria)
The lands are located within the
Duffins Rouge Agricultural
Preserve. The Central Pickering
Development Plan (CPDP)
designates the lands, in part, as
“Reserve” and “Natural Heritage
System (NHS) – Primary
Designation”. The CPDP
distinguishes between a “NHS –
Primary Designation” (generally on
publicly owned lands), and a “NHS
– Overlay Designation” (generally
on privately owned lands) within
the CPDP area. The Region is
proposing to designate the entire
Preserve as Prime Agricultural
Area with the new Regional NHS
as an Overlay on top of the Prime
Agricultural Area designation.
Staff question whether replacing
the CPDP land use designation
of “NHS – Primary Designation”
with a “Prime Agricultural Area”
designation and an NHS Overlay
maintains conformity with the
CPDP?
Page 2
Assessment
Unit #
Current ROP
Designation
Proposed New
ROP Designation
or Overlay
Current Pickering
Official Plan
Designation/Overlay
Staff Comments
97-P (south and
southwest of the
Hamlet of Green
River)
Specific Policy
Area A
Prime Agricultural
Area Designation
Prime Agricultural
Area & Natural Area
The lands are located within the
Duffins Rouge Agricultural
Preserve. The Central Pickering
Development Plan (CPDP)
designates the lands, in part, as
“Reserve”, Natural Heritage
System (NHS) – Overlay
Designation” and “NHS – Primary
Designation.
The same question posed in
relation to the assessment
parcel (# 92-P) above, applies to
this parcel.
100-P and 101-P
(south and
southwest of the
Hamlet of
Whitevale,
between
Whitevale Road
and Third
Concession
Road)
Specific Policy
Area A
Prime Agricultural
Area Designation
Prime Agricultural
Area & Natural Area
in part
The lands are located within the
Duffins Rouge Agricultural
Preserve. The CPDP designates
the lands, in part, as “Reserve”,
“Natural Heritage System (NHS) –
Overlay Designation” and “NHS –
Primary Designation”.
The same question posed in
relation to the assessment
parcel (# 92-P) above, applies to
this parcel.
Page 3
Assessment
Unit #
Current ROP
Designation
Proposed New
ROP Designation
or Overlay
Current Pickering
Official Plan
Designation/Overlay
Staff Comments
102-P (between
Third Concession
Road and CP
Railway line)
Specific Policy
Area A
Prime Agricultural
Area Designation
Prime Agricultural
Area, Natural Area,
Potential Multi-Use
Area (Hydro
Corridor), and the
Cherrywood Rural
Cluster.
Furthermore, the Pickering Official
Plan identifies a number of small
wetland features on the lands in
assessment unit 100-P, and more
significant wetland complexes on
the lands within assessment units
101-P and 102-P.
There is no planning mechanism
currently in place to trigger an
environmental impact study in
response to an undesirable farm
practice. The results of an
environmental impact assessment
may recommend protection,
mitigation, or compensation
measures for these wetlands.
Although the Conservation
Authorities (CAs) offer education
and informational programs to the
agricultural community, adding
policy language in the ROP that
may trigger an environmental
impact study, could result in better
outcomes in cases where farmers
wish to remove wetlands on their
lands.
Page 4
Assessment
Unit #
Current ROP
Designation
Proposed New
ROP Designation
or Overlay
Current Pickering
Official Plan
Designation/Overlay
Staff Comments
Staff recommend that the Region
consider the inclusion of policy
language in the new ROP in
relation to significant hydrologic
features on Prime Agricultural
lands, that require farmers to
consult the relevant
Conservation Authority (CA)
regarding the implications of
potentially removing any
wetland features on their lands
(e.g., possible downstream
impacts), and to implement best
practices and participate in
education programs offered by
the Ontario Ministry of
Agriculture, Forestry and Rural
Affairs (OMAFRA).
98-P-b (east and
southeast of the
Hamlet of
Greenwood)
Major Open
Space
Prime Agricultural
Area Designation
Prime Agricultural
Area & Natural Area,
with a Rural Study
Area on parts east of
Greenwood
Staff agrees in principle with the
proposed re-designation from
Major Open Space Areas to Prime
Agricultural Area in the new ROP,
with the exception that the
southern part of this assessment
unit, located north of Fifth
Concession Road (between
Westney Road and the Sideline 8)
and within the Greenbelt Plan
NHS, be retained as Major Open
Page 5
Assessment
Unit #
Current ROP
Designation
Proposed New
ROP Designation
or Overlay
Current Pickering
Official Plan
Designation/Overlay
Staff Comments
Space, because it is uncultivated
and covered by natural heritage
features and wetlands, which
makes it highly unlikely to be
used for agricultural purposes.
The proposed re-designation to
Prime Agricultural Area does not
have any implications for the Rural
Study Area east of Greenwood,
reflected in the Pickering Official
Plan, since the Growth Plan
stipulates that hamlets are not
locations to which growth should
be directed to.
96-P-b (between
Hwy 7 & Sixth
Concession)
Major Open
Space
Prime Agricultural
Area Designation
Prime Agricultural
Area with a Rural
Study Area north of
Greenwood
Staff agrees in principle with the
proposed re-designation from
Major Open Space Areas to Prime
Agricultural Area in the new ROP.
The proposed re-designation to
Prime Agricultural Area does not
have any implications for the Rural
Study Area east of Greenwood,
reflected in the Pickering Official
Plan, since the Growth Plan
stipulates that hamlets are not
locations to which growth should
be directed to.
Page 6
Assessment
Unit #
Current ROP
Designation
Proposed New
ROP Designation
or Overlay
Current Pickering
Official Plan
Designation/Overlay
Staff Comments
99-P-a (south of
Highway 7 and
west of Lake
Ridge Road
Major Open
Space
Prime Agricultural
Area Designation
Natural Areas
(approximately 90%
of area), Active
Recreational Areas
(Hawthorne Valley
golf course), and
Prime Agricultural
Areas.
The majority of these lands fall
within the Protected Countryside –
Natural Heritage System of the
Greenbelt Plan. These lands are
covered by significant woodlands
and wetland complexes, forming
part of an east/west wildlife corridor
(linking to the Greenwood
Conservation Area) along the East
Duffins Creek. These features
make the central and southern
parts of this area highly unlikely for
agricultural purposes. Staff
recommend that the Region
reconsider the re-designation of
the lands within this assessment
unit from Major Open Space
Area to Prime Agricultural Area.
Furthermore, as in the case of
assessment units 100-P, 101-P
and 102-P, Staff is concerned that
there is no planning mechanism
currently in place to trigger an
environmental impact study (that
may result in a recommendation to
protect, mitigate, or compensate for
the loss of wetlands on these
lands). If the Region decides to
Page 7
Assessment
Unit #
Current ROP
Designation
Proposed New
ROP Designation
or Overlay
Current Pickering
Official Plan
Designation/Overlay
Staff Comments
proceed with re-designating
these lands to Prime Agricultural
Areas, Staff recommend that the
Region consider including policy
language in the new ROP, that
require farmers to consult with
the relevant CA and municipality
regarding the implications of
potentially removing wetlands
(e.g., possible downstream
impacts), and to implement best
practices and participate in
education programs offered by
OMAFRA.
78-P-a Oak Ridges
Moraine (ORM)
Countryside Area
and ORM Natural
Linkage Area in
part
Prime Agricultural
Area Overlay
ORM Countryside
Areas and ORM
Natural Linkage
Areas in part
Staff has no concerns with the
proposed Prime Agricultural Area
Overlay. There are already lands
with the same underlying land use
designations in the ORM in both
the ROP and the POP with a Prime
Agricultural Area overlay – this
proposal represent a minor
expansion thereof.
Page 8
Assessment
Unit #
Current ROP
Designation
Proposed New
ROP Designation
or Overlay
Current Pickering
Official Plan
Designation/Overlay
Staff Comments
79-P-b (ORM)
Countryside Area
and ORM Natural
Linkage Area in
part
Prime Agricultural
Area Overlay
ORM Countryside
Areas and ORM
Natural Linkage
Areas in part
Staff has no concerns with the
proposed Prime Agricultural Area
Overlay. There are already lands
with the same underlying land use
designations in the ORM in both
the ROP and the POP with a Prime
Agricultural Area overlay – this
proposal represent a minor
expansion thereof.
83-P-a (ORM)
Countryside Area,
ORM Natural
Core Area, and
ORM Natural
Linkage Area in
part
Prime Agricultural
Area Overlay
ORM Countryside
Areas, ORM Natural
Core Area, and ORM
Natural Linkage
Areas in part
Staff question the appropriateness
of the proposed overlay on top of
the ORM Natural Core Area
designation, as these areas consist
of valley lands, significant
woodlands and a wetland complex,
(reflected in Schedules IIIB and IIIC
of the POP), intended to provide
permanent protection to the natural
heritage system. Although the
Region’s report points out that the
proposed Prime Agricultural Area
Overlay on the Oak Ridges
Moraine allows for additional
flexibility for agricultural sector
uses, staff is of the opinion that
adding policy language in the ROP
that may trigger an environmental
impact study, could result in better
Page 9
Assessment
Unit #
Current ROP
Designation
Proposed New
ROP Designation
or Overlay
Current Pickering
Official Plan
Designation/Overlay
Staff Comments
outcomes in cases where farmers
wish to remove significant natural
heritage or hydrologic features
within the ORM Natural Core Area.
Accordingly, Staff recommend
that, if the Region decides to re-
designate these lands with a
Prime Agricultural Area Overlay,
that the Region consider
including policy language in the
new ROP that discourages
farmers from extending farming
operations onto lands within the
Natural Core of the ORM, and to
implement best practices and
participate in education
programs offered by OMAFRA.
Attachment #1 to Report PLN 40-22
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:#2022-P-16
Date:June 7, 2022
Subject:
Envision Durham – Implementation of the Provincial Agricultural System, File D12-01
Recommendation:
Receive for information
Report:
1.Purpose
1.1 The purpose of this report is to advise Committee that draft proposed changes to
implement the Provincial Agricultural System mapping in the Regional Official Plan
(ROP) are being released for public and agency comment. This map is a key
component of Envision Durham, the Municipal Comprehensive Review (MCR) of the
ROP.
1.2 The inclusion of the Provincial Agricultural System is required for the new ROP to be
consistent with the Provincial Policy Statement (PPS), and to conform with
provincial plans (the Growth Plan, the Greenbelt Plan and the Oak Ridges Moraine
Conservation Plan). It should be noted that the Agriculture System will apply outside
of any future urban boundaries and that the final proposed changes will reflect the
urban area boundary that will come forward in Phase 2 of the Growth Management
Study.
Report #2022-P-16 Page 2 of 9
1.3 Following Regional Planning and Economic Development Committee on June 7,
2022, the draft mapping for the Provincial Agricultural System will be posted to the
Envision Durham project webpage in the format of an interactive map viewer and
are also provided as Attachment #1 to this report. Those wishing to provide input
may do so by commenting directly into the online map viewer, emailing
EnvisionDurham@durham.ca or mailing the Planning and Economic Development
Department. Comments are requested by September 9, 2022.
2. Background
2.1 Durham is implementing the provincial agricultural system through Envision
Durham, the Region’s Municipal Comprehensive Review (MCR) of the Regional
Official Plan (ROP).
2.2 The ROP currently designates Prime Agricultural Areas, reflecting rural areas in the
Region where agricultural lands and agricultural uses predominate.
2.3 The ROP also includes policies that permit a full range of agricultural, agricultural-
related and secondary uses within both the Prime Agricultural Area and Major Open
Space Area designations, consistent with the PPS, Greenbelt Plan and Oak Ridges
Moraine Conservation Plan.
3. Existing Provincial Policy Requirements
3.1 Provincial planning policy, plans and legislation requires the implementation of an
agricultural system approach that achieves a continuous and connected agricultural
system across the Greater Golden Horseshoe.
3.2 The PPS requires that prime agricultural areas be protected for long-term use for
agriculture. In addition, the PPS requires planning authorities designate prime
agricultural areas in accordance with provincial guidelines and municipalities are
encouraged to use an agricultural system approach to maintain and enhance the
geographic continuity of the agricultural land base and the functional and economic
connections of the agri-food network.
3.3 The PPS encourages planning authorities to use an agricultural system approach to
maintain and enhance geographic continuity of the agricultural land base and the
functional and economic connections to the agri-food network. The Greenbelt Plan,
Growth Plan and Oak Ridges Moraine Conservation Plan all go further by requiring
municipal official plan conformity with the Provincial Agricultural System, released
by the Province in 2018.
Report #2022-P-16 Page 3 of 9
3.4 To develop the Provincial Agricultural System, the Ontario Ministry of Agriculture,
Food and Rural Affairs (OMAFRA) undertook a Land Evaluation Area Review
(LEAR) and identified the following:
• areas already designated as Prime Agricultural Areas in approved official
plans;
• additional areas identified as meeting the definition of Prime Agricultural
Areas, subject to municipal review; and
• candidate areas that could be Prime Agricultural Areas, also subject to
municipal review.
3.5 The Growth Plan for the Greater Golden Horseshoe, 2020 provides for the
identification and protection of an Agricultural System including a continuous and
productive land base, and that Prime Agricultural Areas be designated and
protected for long term use for agriculture.
3.6 OMAFRA identified a Provincial Agricultural System across the Greater Golden
Horseshoe and released mapping in 2018 that includes the following components:
• an agricultural land base, consisting of prime agricultural areas, including
speciality crop areas and rural lands that together create a continuous,
productive land base for agriculture; and
• an agri-food network that includes infrastructure, services and assets,
important to the viability of the agri-food network.
3.7 As a supplementary direction, the Growth Plan commits the province to identifying,
establishing or updating the Agricultural system. Accordingly, in March 2020 the
province released its “Implementation Procedures for the Agricultural System in
Ontario’s Greater Golden Horseshoe”, which are intended to help municipalities,
farmers and others interpret the agricultural system references in provincial plans for
the GGH.
3.8 Upper-tier municipalities may refine provincial mapping of the agricultural land base
at the time of initial implementation in their official plans, based on the
Implementation Procedures issued by the province. After provincial mapping of the
agricultural land base has been implemented in official plans, further refinements
may only occur through a municipal comprehensive review.
3.9 The Growth Plan also directs municipalities to ensure that the geographic continuity
of the agricultural land base and the functional and economic connections to the
agri-food network will be maintained and enhanced.
Report #2022-P-16 Page 4 of 9
3.10 The Greenbelt Plan directs municipalities to update mapping within the Protected
Countryside and upper-tier municipalities to refine and augment official plan
mapping to bring prime agricultural areas, including specialty crop areas, and rural
lands into conformity with provincial mapping and implementation procedures.
4. Implementing the Provincial Agricultural System
Provincial Agricultural System Land Base Mapping
4.1 Durham’s Rural System in the ROP includes all lands outside of the region’s
designated Urban Areas. The Rural Area is primarily made up of Prime Agricultural
Areas and Major Open Space Areas designations. Prime Agricultural Areas are
intended to be used for agriculture and farm-related uses while Major Open Space
Areas are intended for environmental conservation and a full range of agricultural
uses and subject to specific criteria, major recreational and non-agricultural uses.
4.2 There are differences between the Provincial Agricultural System and the Prime
Agricultural Areas designation in the current ROP. Areas currently designated as
Major Open Space Areas in the ROP have been identified by the Province as Prime
Agricultural Areas, or as Candidate Areas that could either become Prime
Agricultural Areas or remain as Major Open Space Areas, depending on the
outcome of municipal review.
4.3 According to the Implementation Procedures for the Agricultural System in Ontario’s
Greater Golden Horseshoe, municipalities must assess whether to include
Candidate Areas as Prime Agricultural Areas.
4.4 In February 2021, the Region retained Planscape Inc. to assist in the review,
assessment and approaches to implementing the Provincial Agricultural System into
the ROP and to provide input into how the agri-food network should be addressed.
4.5 Regional staff and the consultant team connected with the Envision Durham Area
Municipal and Conservation Authority Working Groups, Durham Agricultural
Advisory Committee, Clarington Agricultural Advisory Committee and Durham
Federation of Agriculture regarding the Region’s initial approach to refine the
Provincial Agricultural System.
4.6 The review was a combination of a desktop exercise and on-the-ground assessment
of the region’s Rural Area. This work included:
• validating Provincial determinations of additional Prime Agricultural Areas;
Report #2022-P-16 Page 5 of 9
• categorizing candidate areas as either those that should become Prime
Agricultural Areas or remain Major Open Space Areas in the ROP;
• excluding sites that have the majority of the area occupied by significant
woodlands;
• prioritizing the existing Major Open Space system by maintaining integrity
and connectivity of Major Open Space Areas;
• excluding national park sites, the Pickering airport lands, and special policy
areas because they are federally regulated or intended for a non-agricultural
use; and
• excluding sites identified by the area municipalities, where information was
provided to justify exclusion from the Prime Agriculture System.
4.7 Portions of the Major Open Space area between Ajax and Whitby has been
proposed for redesignation to Prime Agricultural Areas as these larger parcels are
contained within the Greenbelt Plan Area.
4.8 Proposed refinements to the Provincial Agricultural System would increase the area
of land within the Prime Agricultural Areas designation by 278 hectares,
representing an increase of 2.7 per cent.
4.9 The Oak Ridges Moraine Prime Agriculture “overlay” would be increased by 7,753
hectares (an increase of 89.7 per cent). Taken together, the total area of Prime
Agricultural System (designation and overlay) would be 121,582 hectares.
4.10 Within the Oak Ridges Moraine Countryside designation, identification of lands as
Prime Agriculture, results in some ability for establishing new non-agricultural uses,
but would not allow small-scale commercial, industrial, institutional and major
recreational uses in keeping with the ORMCP. The identification of the Prime
Agriculture overlay on lands designated Natural Core Areas and Natural Linkage
Areas on the Moraine allows for some additional flexibility for agricultural sector
uses, including agriculture-related uses and on-farm diversified uses.
4.11 Attachments 2 through 6 identify proposed changes to the ROP for inclusion into the
Prime Agricultural Areas designation, while Attachments 6 and 7 illustrate the
assessment units that are proposed to be included in the Prime Agricultural overlay
in the Oak Ridges Moraine.
4.12 Agri-food network policies will be released at a later date for consultation through
the draft new ROP. Agri-food assets are not proposed to be mapped in the ROP.
The agri-food network asset mapping that is maintained by the Economic
Report #2022-P-16 Page 6 of 9
Development Division is also available through the provincial ConnectON system.
This mapping is updated regularly and is more nimble than through a schedule in
the official plan.
5. Major Open Space Areas Designation
5.1 The Region’s existing Major Open Space Areas designation constitutes an
important element of the Regional Structure, serving a dual function. Not only does
it comprise significant natural heritage and hydrologic features, where the intent is
conservation and environmental protection, but also includes rural-type lands where
a full range of agricultural uses, non-agricultural and major recreational uses may be
permitted, subject to site specific evaluation and criteria.
5.2 The Major Open Space designation provides flexibility for some non-farming uses
compared to the Prime Agriculture designation. It allows for a greater variety of rural
economic uses, including agri-business, commercial kennels and landscaping
industrial uses, as well as major recreational uses. When lands are designated
Prime Agriculture, the rural economic development potential is limited to agricultural
practices.
5.3 Critical feedback heard in response to the Environment and Greenlands and
Agricultural and Rural Discussion Papers was the importance of ensuring sufficient
Major Open Space Areas are retained for parks, major recreational and non-
agricultural uses, such as cemeteries.
5.4 Regional staff’s approach to implementing the Provincial Agricultural System, was to
only make a change from Major Open Space Area to the Prime Agriculture
designation if no natural heritage features were present, and if the lands were under
active cultivation.
6. Public Consultation Process
6.1 This report, the draft Regional Agricultural System mapping, including instructions
on how to use the map viewer, as well as a series of Frequently Asked Questions
(FAQ) regarding Natural Heritage Systems, will be posted to the project webpage at
www.durham.ca/EnvisionDurham for public and agency review.
6.2 Interested parties are encouraged to provide input directly within the online map
viewer. Comments may also be submitted to EnvisionDurham@durham.ca or by
mail and are requested by September 9, 2022. Information on the release of the
draft Regional Agricultural System will be announced by way of:
Report #2022-P-16 Page 7 of 9
a. News release and public service announcement;
b. Social media platforms, including Facebook, Twitter and LinkedIn;
c. Email notifications and report circulation, as detailed below.
6.3 A copy of this report and an invitation to provide input through the online map viewer
will be forwarded to all Envision Durham Interested Parties, Durham’s area
municipalities, conservation authorities, Indigenous communities, BILD – Durham
Chapter, and the Ministry of Municipal Affairs and Housing and the Ontario Ministry
of Agriculture, Food and Rural Affairs. Circulation will also be provided to Regional
Advisory Committees (Durham Environmental Advisory Committee, Durham
Agricultural Advisory Committee and Durham Region Roundtable on Climate
Change) that may have interest in where and how the Region intends to protect and
enhance the Regional Agricultural System.
7. Relationship to Strategic Plan
7.1 This report aligns with/addresses the following strategic goals and priorities in the
Durham Region Strategic Plan:
• Priority 1.3 under the goal of environmental sustainability, protect
preserve and restore the natural environment, including greenspaces,
waterways, parks, trails and farmlands; and
• Priority 3.5 under the goal of economic prosperity, provide a supportive
environment for agriculture and agri-food industries.
8. Previous Reports and Decisions
8.1 The following Regional staff reports related to the Provincial Agricultural System
have been provided to Council since the launch of Envision Durham:
• Report #2018-INFO-57 - Provincial Decisions on the Regional Natural
Heritage System and Agricultural System for the Growth Plan for the
Greater Golden Horseshoe
• Report #2019-P-12 Envision Durham – Agricultural and Rural System
Discussion Paper.
• Report #2021-P-7 Envision Durham – Proposed Policy Directions
9. Conclusion
9.1 Implementation of the Provincial Agricultural System is required to achieve
conformity with provincial planning legislation.
Report #2022-P-16 Page 8 of 9
9.2 The approach that is being proposed for the Region’s new official plan is to
implement provincial planning legislation on appropriate sites based on detailed
research and criteria.
9.3 Input on the draft Regional Agricultural System is requested by September 9, 2022.
Feedback received will be reviewed and will inform the preparation of the draft ROP.
10. Attachments
Attachment #1: Glossary
Attachment #2-6: Draft ROP Agricultural System Mapping
Attachment #7-8: Draft ROP Agricultural System Mapping on the Oak Ridges
Moraine
Respectfully submitted,
Original signed by Gary Muller for
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
Report #2022-P-16 Page 9 of 9
Attachment #1 – Glossary
Agricultural System: is the system mapped and issued by the province in accordance,
comprised of a group of inter-connected elements that collectively create a viable, thriving
agricultural sector. It has two 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;
• An agri-food network which includes infrastructure, services, and assets
important to the viability of the agri-food sector.
Agri-Food System: is defined within provincial plans as “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
Candidate Areas: areas that are equal to or larger than 250 hectares which received
medium LEAR scores and are in agricultural production
Land Evaluation Area Review (LEAR): is a commonly used tool in Ontario, developed
by OMAFRA to quantitatively evaluate the relative importance of lands for agriculture
based on the land’s inherent characteristics and other factors affecting agricultural
potential
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12-P
13-P-e
8-P-d
5-P
48
12
7
127
12
Draft Prime Agriculture System 0 2 4
Kilometres
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, 2022.
All rights reserved.
May not be reproduced without permission.
Attachment #2
Lake Simcoe
Special Study Area
Shoreline Residential
Specific Policy Area
Regional Centre
Prime Agricultural Area
Oak Ridges Moraine
Nuclear Power Plant
Municipal Service
Major Open Space
Living Area
Hamlet
Employment Area
Airport
Land Use Designation
Urban Area Boundary
Assessment Unit
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