HomeMy WebLinkAboutPD 28-04PICKERING
REPORT TO
COUNCIL
Report Number: PD 28-04
Date: June 15, 2004
Nell Carroll
Director, Planning & Development
Subject:
Toward a Go/den Horseshoe Greenbelt:
Greenbelt Task Force Discussion Paper; A Framework for Consultation;
May 2004
Recommendation:
That Pickering Council RECEIVE, and ENDORSE as its comments
Report PD 28-04 on the Discussion Paper entitled Toward a Golden Horseshoe
Greenbelt prepared by the Greenbelt Task Force, dated May 2004,
EBR Registry Number: PF04E0002;
That Pickering Council ADVISE the Chair and members of the Greenbelt Task
Force, that:
(a)
(b)
(c)
Pickering Council supports the concept of a permanent greenbelt in the
Golden Horseshoe;
the Task Force incorporate the results of Phase 2 of the City of
Pickering's Growth Management Study and the comments provided in this
Report in completing its final recommendations; and
the Task Force coordinate its work with the Province's work on a
Growth Management Study for the Golden Horseshoe as well as other
pertinent provincial initiatives such as the Planning Act reform work prior to
making its final recommendations to the Province.
That the City Clerk FORWARD a copy of Report PD 28-04 to the Chair and
members of the Greenbelt Task Force; the Minister of Municipal Affairs and
Housing; the Minister of Public Infrastructure Renewal; the Manager-Planning
Policy, Ministry of Municipal Affairs and Housing; the Region of Durham; and
Wayne Arthurs, MPP, Pickering-Ajax-Uxbridge.
Executive Summary: The Provincially-appointed Greenbelt Task Force has
released its discussion paper Toward a Golden Horseshoe Greenbelt for consultation.
The greenbelt study area includes lands under the jurisdiction of: the Greater Toronto
Area regions of Durham, York, Halton and Peel; the cities of Hamilton and Toronto; the
tender fruit and grape lands as designated in the Region of Niagara Official Plan; the
Niagara Escarpment Plan; and the Oak Ridges Moraine Conservation Plan.
Report PD 28-04
Subject: Discussion Paper- Greenbelt Task Force
June 15,2004
Page 2
The City supports the concept of a permanent greenbelt for the Golden Horseshoe.
Despite this support, Council should advise the Task Force not to determine the precise
boundary and extent of a greenbelt without first considering the results of growth
management strategies that are being prepared for the Golden Horseshoe, or portions
of this area.
Accordingly, before finalizing its report to the Minister, it is recommended that the Task
Force consider and where appropriate incorporate the results of municipal planning
studies, including the City of Pickering's recently completed Growth Management Study.
This Report contains various other comments, concerns and suggestions made by staff
with respect to the Task Force's discussion paper, which Council should also endorse
and forward to the Task Force as input to the greenbelt study.
Financial Implications: Not Applicable.
Background:
1.0
The Greenbelt Task Force is consultinq on a tiqht timetable by requestin.o
comments on the Discussion Paper by July 13, 2004.
In February 2004, John Gerretsen, Minister of Municipal Affairs and Housing,
appointed a 13-member Greenbelt Task Force (Task Force) chaired by
Rob Maclsaac to recommend how the Province can most effectively establish a
permanent Golden Horseshoe Greenbelt.
This initiative follows the Province's introduction of Bill 27, the proposed
Greenbelt Protection Act, 2004. The Act, if passed, would create a proposed
Greenbelt Study Area. Inside the study area, a one-year moratorium would
prevent changes from rural to urban uses. The moratorium would expire in
December 2004. At the time of writing this Report, the Bill had received second
reading and is under review by the Standing Committee on General
Government, which had also heard delegations on the matter. The
Division Head, Corporate Projects & Policy made a presentation before the
Committee. The Division Head proposed that the Committee consider an
amendment, which would allow municipalities that have initiated comprehensive
growth management studies prior to the introduction of the Bill the ability to
complete and implement the results of such studies.
Between February and May, the Task Force held pre-consultation sessions with
municipal and other stakeholders. The Mayor and senior City staff made several
presentations to the Task Force focusing on support for the concept of a
greenbelt, the importance of growth management studies to assist in determining
the location of a greenbelt, and the regional greenspace network identified in the
City's Growth Management Study.
Report PD 28-04
Subject: Discussion Paper- Greenbelt Task Force
June 15, 2004
Page 3
2.0
2.1
In mid May 2004, the Task Force released its discussion paper entitled
Toward a Golden Horseshoe Greenbelt (see Attachment #1 - Task Force
Discussion Paper). The Discussion Paper articulates a vision and goals for the
greenbelt. The Task Force established a framework for stakeholder and public
consultation that considered five "layers". The layers are:
· environmental protection;
· agricultural protection, including tender fruit and
Holland Marsh;
· transportation and infrastructure;
· natural resources, particularly mineral resources; and
· culture, tourism and recreation opportunities.
grape lands, and the
In addition, two overarching themes include:
· Ontario's growth management and other related initiatives as the context for
development of a permanent Golden Horseshoe Greenbelt; and
· implementation and administration approaches, models and tools for
establishing and administering a greenbelt.
During May and June, the Task Force has been holding stakeholder and public
sessions in the Golden Horseshoe area. City staff has attended the various
stakeholder sessions. The Culture, Tourism and Recreation stakeholder session
was held at the Pickering Recreation Complex on June 15, 2004.
This Report to Council is the City's formal opportunity to express its comments
on the Discussion Paper. The Province requests comments by July 13, 2004.
Discussion Paper Commentary
The commentary in the Task Force's Discussion Paper misrepresents the
status of the Rouge Duffins Agricultural Assembly.
We understand that staff from the Ministry of Municipal Affairs and Housing
prepared the commentary in the Discussion Paper. The commentary references
the 'Rouge Duffins Agricultural Preserve' on two occasions (on Pages 11 and 14)
in a manner that improperly implies the lands are publicly owned, and that they
currently hold similar Provincial status as the Niagara Escarpment and the
Oak Ridges Moraine. This is incorrect. The majority of these lands are now
privately owned, having been sold by the Province within the last few years. The
lands are not provincially significant.
Report PD 28-04
Subject: Discussion Paper- Greenbelt Task Force
June 15, 2004
Page 4
3.0
Pickering, through its Growth Management Study, has concluded that the
southerly portion of these lands (abutting the City of Toronto) warrants designation
as an urban area, and that the northerly portion of these lands (abutting the
Town of Markham) warrants a countryside designation. The countryside portion
could be considered as a local enhancement to the Golden Horseshoe Greenbelt.
The Task Force should ensure future documents correct this error.
Discussion
3.1
A permanent greenbelt in the Golden Horseshoe is supported as one part of
an implementation strategy for the related Provincial growth management
initiative.
3.2
The concept of a permanent greenbelt for the Golden Horseshoe is supported.
However, the establishment of a greenbelt, on its own, is not an appropriate way
to manage growth.
A permanent greenbelt for the Golden Horseshoe should be viewed as one part
of an implementation strategy to assist with growth management in the
Golden Horseshoe. In this regard, the Province is developing both a
growth management plan and transportation strategy for the Golden Horseshoe.
The completion of these initiatives is expected after the Task Force has reported
back to the Minister of Municipal Affairs and Housing on establishing a
permanent Golden Horseshoe Greenbelt.
The proposed boundaries of the greenbelt should be reconciled with the results
of the Provincial growth management review. Therefore, the Task Force should
have access to the results of the growth management study for the
Golden Horseshoe, and other provincial initiatives, prior to making its final
recommendations to the Province. It is recommended that the Task Force
request access to, and the Province make available, the results of the
growth management and related initiatives ahead of the Task Force delivering its
final recommendations to the Minister.
The permanent greenbelt should include Provincially-significant lands, and
regional and local planning initiatives should identify local enhancements.
The Task Force is proposing a systems approach for environmental protection in
the greenbelt. Staff agrees that such a system should include
Provincially-significant and/or major natural heritage and hydrological features
and functions. Connections between these major features are appropriate
provided such connections are provincially significant. For example, in this area,
the Oak Ridges Moraine is connected to Lake Ontario through the Rouge Park.
Staff also supports augmenting these connections through publicly owned parks
and publicly owned open space lands where appropriate.
Report PD 28-04
Subject: Discussion Paper- Greenbelt Task Force
June 15,2004
Page 5
3,3
Regional and local planning initiatives could identify enhancements to the
greenbelt through their local initiatives. To this end, Phase 2 of the City's
Growth Management Study identifies a regional greenspace system that can
contribute significantly to a greenbelt linkage between the Moraine and
Lake Ontario (see Attachment #2 - Figure 41: Regional Greenspace Map, from
Pickering's Growth Management Study, Phase 2 Report).
This greenspace linkage would connect the Rouge River and Duffins Creek
watersheds and be at least 4 kilometres wide north of Finch Avenue.
It is recommended that the Task Force only identify provincially-significant lands,
features or functions as part of the Golden Horseshoe Greenbelt, and allow local
municipalities the opportunity to enhance and augment the greenbelt through
local growth management and other planning initiatives.
The Task Force's approach to 'agriculture' may be inconsistent with its
approach to 'culture, tourism and recreational' opportunities. This could be
improved by distinguishing Countryside lands from Agricultural lands.
Before considering land for development, the Task Force is proposing that a
comprehensive review would be required to demonstrate that existing
urban-designated areas lack a sufficient supply of available land through
intensification and redevelopment. Staff supports this approach. It is exactly the
approach used by the City in undertaking its Growth Management Study.
However, the Task Force's approach to the range of uses permitted within
agricultural areas requires clarification. Under the Agricultural Protection section,
agriculture-related uses would be restricted to 'settlement areas or designated
areas'. Yet, under the Culture, Recreation and Tourism section, a wide range of
amenities and activities including agri-tourism and culinary tourism would be
permitted in the greenbelt.
The Task Force should allow for a distinction between "agricultural areas" and
"countryside" areas. The City made a similar suggestion when commenting on
the Review of the Durham Regional Official Plan. In that comment, it was
suggested that the non-urban lands south of the Oak Ridges Moraine (at least in
western Durham) be considered as countryside, and lands north of the Moraine
be retained as the agricultural areas.
This would be consistent with the City's Growth Management Study, which
identified a countryside area around the Hamlet of Whitevale, extending west to
Markham's countrySide area. In the City's Study, a broader range of seasonal
and year-round countryside uses, beyond traditional agriculture, have been
recommended including: retail agricultural operations; farm markets;
agri-tourism; and other similar uses that can enhance the profitability of small
farming operations. The Task Force should consider a broader range of uses
including wind and solar farms, and forestry.
Report PD 28-04
Subject: Discussion Paper- Greenbelt Task Force
June 15, 2004
Page 6
3.4
3.5
It is recommended that the Task Force establish separate agricultural and
countryside areas. It is also recommended that a broad range of cultural,
tourism, recreational, and other agriculturally-related secondary and accessory
uses be permitted within the countryside. Local planning controls should then be
used to determine if further restrictions are required in light of the local context.
The Task Force's proposal for a legislated Greenbelt Protection Plan is
unnecessary, usurps local and regional planning responsibilities, and
could be established and defined in the Provincial Policy Statement.
The Task Force proposes an approach to administering and implementing the
greenbelt through legislation. A Greenbelt Protection Plan would incorporate the
Niagara Escarpment Plan, the Oak Ridges Moraine Conservation Plan, and
other lands deemed necessary to fulfill the objectives of the greenbelt.
Municipalities would implement this Plan through their respective planning
documents.
Although the City understands the Province's desire to protect provincially
significant greenbelt areas, a Provincial Greenbelt Plan for the Golden Horseshoe
would usurp local and regional planning responsibilities for land use matters.
City staff has already commented to the Task Force that 'one-size does not fit
all', and that the diversity of the suggested greenbelt features differs substantially
across the Golden Horseshoe and the potential variety of lands serve different
purposes (primarily recreational in some areas, agricultural in others).
Strengthening the Provincial Policy Statement (and the Planning Act if
necessary) would suffice. Local and regional Official Plans would then also
implement the greenbelt. There is no need for a Provincial Greenbelt Plan, or a
Commission to implement this Plan.
It is recommended the Task Force propose an appropriate revision to the
Provincial Policy Statement as the Provincial mechanism for implementing a
greenbelt for the Golden Horseshoe.
Staff also has a number of other comments for consideration by the Task
Force before it finalizes its recommendations to the Minster of Municipal
Affairs and Housing.
These comments are provided in Appendix I. It is recommended that Council
request the Greenbelt Task Force to consider and incorporate all of the
comments raised in Report PD 28-04, prior to finalizing its recommendations to
the Minister of Municipal Affairs and Housing.
Report PD 28-04
Subject: Discussion Paper- Greenbelt Task Force
June 15, 2004
Page 7
4.0 Next Steps
The Province has advised that a subsequent consultation session will be held in
the fall. However, at this time there are no details available on the content,
format, or timing of that consultation.
Staff will continue to monitor the work of the Task Force and keep Council
advised.
APPENDIX:
I Staff Comments on "Proposed Approaches" in Greenbelt Discussion Paper
ATTACH MENTS:
1. Greenbelt Discussion Paper
2. Regional Greenspace Map
Prepared By:
Grant McGregor, MCIP, I~PP
Principal Planner-Policy
Approved / Endorsed By:
Ne~l Carr~~Sp
Director, Plahl'th'Kg & Development
Manager, Policy
GM:Id
Copy: Chief Administrative Officer
Division Head, Corporate Projects & Policy
Recommended for the consideration of
Pickering City Council
Thor~l~s J. Qui~, Chi~fJAdmini~ Officer
APPENDIX I TO
REPORT NUMBER PD 28-04
COMMENTS ON "PROPOSED APPROACHES"
IN THE
GREENBELT DISCUSSION PAPER
Greenbelt Task Force
Discussion Paper
Environmental
Protection
Scale of The province, in
Environmental consultation with key
Protection stakeholders, should define
within the a system of natural and
Greenbelt hydrological features and
functions.
This system should include:
· provincially significant Agree. Protection of provincially
and/or major natural significant natural heritage and
heritage and hydrological hydrological features in a permanent
features and functions greenbelt appropriate.
(e.g., Oak Ridges Moraine,
Niagara Escarpment,
Rouge Valley); and
· connections between Agree in part. Connections between
these major features and major features appropriate provided
functions, including public such connections are provincially
park/open space lands significant (e.g. Oak Ridges
and stream/river valley Moraine). Municipalities may
linkages to major water augment connections through public
bodies such as the Great parks/open space lands where
Lakes and Lake Simcoe. appropriate.
And this system could
include:
· regionally significant Disagree. Protection of regionally
features and functions significant features and functions
(e.g., portions of the more appropriate in local and
Iroquois shoreline.) regional official plans.
Priority of The system of natural
Environmental heritage and hydrological
Protection features and functions within
the greenbelt will have a
hierarchy of environmental
~rotection:
· sensitive areas, as Agree with proposed approach.
defined by the province in However, the types of permitted
consultation with key uses within the sensitive areas more
stakeholders, where only appropriately detailed in local official
very limited uses (e.g., 9lans.
conservation, existing
agriculture) would be
permitted; and
Page 1
· less sensitive areas where Same comment as above.
a variety of compatible
uses, consistent with the
objectives of the greenbelt,
would be permitted.
Protection of
Agricultural
Lands
Economic Land-use planning alone is
Viability insufficient to ensure that
agricultural lands within the
greenbelt will be farmed.
There is an array of issues
adversely affecting
agriculture across the
province that need to be
addressed in a holistic way.
The task force recommends Agree with provincial task force on
that a provincial task force agriculture.
on agriculture be created
immediately to develop
agricultural policies that will
ensure a viable agricultural
industry across the
greenbelt and the rest of
Ontario.
This task force should Municipal representation on a
comprise a broadly based ~rovincia/ task force on agriculture
group of stakeholders and would also be appropriate.
be led by the Ministry of
Agriculture and Food, with
membership from the
Ministries of Finance,
Municipal Affairs and
Housing, Natural Resources,
Environment, Consumer and
Business Services, federal
departments and others as
required.
This task force should provide Report date of October 2004 overly
an intedm report to address optimistic. Greenbelt Task Force
greenbelt issues by October should consider delaying its
2004. recommendations on agricultural
issues until the interim report has
been released.
Page 2
Context for Agricultural lands should be Agree with proposed approach.
Protection protected within the context However, the Task Force does not
of a provincial growth have the Provincial growth
management plan to reduce management plan yet; a/so, it should
the pressure on prime be noted that the Pickering Official
agricultural lands. Plan a/ready has policies promoting
· Growth should be focused compact urban form and maximizing
around centres and along efficient use of infrastructure, /and
corridors to intensify and services.
development.
· Infill, intensification and
redevelopment, including
brownfields, should be
supported within urban
boundaries.
Land-use Before prime agricultural Agree with this approach. The City's
Polices lands may be considered for Growth Management Study is
development, a consistent with this approach.
comprehensive review
should be required to
demonstrate that existing
urban designated areas lack
sufficient supply of land
available through
intensification and
redevelopment.
Lot creation should be Disagree. There is no need to
eliminated for residential establish such a restrictive policy
infill on agricultural lands, across the entire Golden Horseshoe
Clearer direction or refined as it fails to recognize local
definitions should further circumstances. Through greenbelt
restrict lot creation for all orplan, continue to permit one
some uses (e.g., retirement, retirement lot from a farmer's total
agricultural-related, surplus farm-related land holdings.
farm dwellings, and Regional and local plans can be
severances for a farm parcel more restrictive where appropriate.
or farm-splits).
Land-use policies should be Agree with protecting agricultural
supportive of agriculture and land in the greenbelt provided
should be consistent across regional differences are addressed.
the greenbelt, including Unique specialty crop areas such as
areas within Oak Ridges the Holland Marsh warrant special
Moraine Conservation Plan :)rotection.
and the Niagara Another approach is to harmonize
Escarpment Plan.
the agricultural policies in upper and
single tier Official Plans within the
Golden Horseshoe area. Local
municipalities would refine these
policies into more detailed official
plan policies and designations to
reflect local circumstances.
Page 3
Secondary agricultural uses Agree with clarifying secondary
and agriculture-related uses agricultural uses and agricultural-
should be clarified to ensure related uses. However, the types of
that they meet the needs of uses are more appropriately detailed
agriculture but do not erode in local official plans and zoning
the viability of the prime by-laws.
agricultural areas.
A range of approaches Disagree. City staff has indicated
should strengthen that 'one-size does not fit all'. The
protections for prime proposed approaches appear too
agricultural lands by: restrictive and do not provide
· tightening the definition, flexibility in its implementation at the
scale and range of local level. For example, the
secondary and approaches to protecting tender fruit
agricultural-related land and grape /ands differ significantly
uses for good tender fruit from protecting parcels of lower
and good grape lands; agricultural potential adjacent to
· directing selected Urban Areas. Further, the City's
agricultural-related uses Growth Management Study has
to settlement areas and proposed countryside uses beyond
designated areas; and traditional agriculture. These uses
· exploring innovative include retail agricultural operations,
support mechanisms and agri-tourism and non-agricultural
incentives for limiting countryside uses.
secondary uses of prime
agricultural lands.
The type and location (or Agree with clarifying the type and
both) of nonresidential uses location of nonresidential uses in
for which prime agricultural agricultural areas. However, these
areas could be redesignated types of policies are more
or converted will be limited to appropriate in local official plans in
ensure that the uses meet recognition of local circumstances.
the needs of the agricultural
community and do not erode
the viability of the prime
agricultural areas. Where
possible, these uses should
be directed to settlement
areas.
Other Other agricultural lands that Agree with proposed approach.
Agricultural should be permanently However, before other agricultural
Lands protected in the greenbelt lands are permanentlyprotected, the
are prime agricultural lands province must consider municipal
(Class 1, 2, 3) having growth management studies
continuous area sufficiently currently underway in the Golden
large to support the integrity Horseshoe. The City's Growth
of the agricultural economy Management Study establishes a
and rural landscape. Countryside area in the north-west
Dart of the study area including lands
surrounding the Hamlet of Whitevale.
Page 4
In making this determination, Suggest the Task Force identify the
the province should have Countryside separate from the
regard for: Agricultural areas.
· fragmentation;
· urban/suburban
encroachments;
· loss of agricultural support
mechanisms;
· the province's growth
management initiative; and
· rural economic development.
Complementary A permanent greenbelt Agree with proposed approach.
Initiatives should support the However, adequate provincial and
protection of the agricultural federal funding is needed to support
land base through land-use these programs.
policy mechanisms and
complementary infrastructure
and economic development
initiatives such as:
· research and education
programs;
· promotion and marketing
initiatives; and
· supporting infrastructure
necessary for agriculture
(e.g., roads, water, power,
gas, drainage).
Taxation and The province should assess Agree provided the impact of
Financial Tools potential changes to assessment changes is not borne
taxation policies and other only at the municipal leveh federal
financial tools to support and provincial rebates are preferred.
agriculture, such as:
· reviewing the property
assessment system as it
applies to the valuing of
farmland; and
· easements and land
trusts.
Transportation If it is consistent with the Agree.
and Greenbelt Task Force vision
Infrastructure and goals, the province's
growth management plan and
the coordination of provincial,
regional and municipal
infrastructure planning, then
infrastructure (including
highways, water, sewer,
power, alternative energy
facilities,
telecommunications/cell
towers, waste/recycling
facilities, etc.) would be
permitted in the greenbelt.
Page 5
Topic ; ;;;
Locate infrastructure only in
areas where there is a
demonstrated need.
The province should review
the way in which need for
infrastructure is assessed,
to ensure proposed
infrastructure reinforces
growth management and
greenbelt objectives.
The province should also Need is typically demonstrated
review the environmental through the EA process.
assessment process to
ensure that the The EA process usually considers
consideration of alternatives relevant po/icy documents.
reflects emerging
technologies, innovative Agree with proposed approach to
designs, and an appropriate ensure that emerging technologies
balance of roads and transit, are considered through the EA
process.
Natural Given the importance of the Agree.
Resources availability of aggregates
close to market, as identified
in the Provincial Policy
Statement, high potential
aggregate areas should be
a consideration for inclusion
in the greenbelt and should
(be) protected from
incompatible land use.
Aggregate extraction in the Agree.
greenbelt should be
subjected to a more rigorous
approach to rehabilitation.
Depleted mineral aggregate
operations should more
aggressively be brought into
uses that would support or
enhance the objectives of
greenbelt protection.
The Province should clarify Agree.
appropriate provincial and
official plan policies
surrounding new licenses
for aggregate extraction.
Page 6
The Province should review Agree. It should be noted that
the licensing process to Official Plan Amendment applications
facilitate new supply and for new aggregate operations are
ensure the integrity of currently circulated to the Ministry of
hydrogeological and Municipal Affairs and Housing for
ecological systems, provincial review.
features and functions,
taking into account the
requirement to rehabilitate.
Culture, The greenbelt should be a Agree. However, responsibility for
Recreation and publicly valued and implementing and funding marketing
Tourism important venue for cultural initiatives need to be clarified.
heritage and related
activities, recreation and
tourism in the Golden
Horseshoe. This should be
accomplished through
promotion and marketing
initiatives to support
community economic
development.
Culture, recreation and
tourism opportunities
should respect and be
compatible with other
greenbelt priorities (e.g.,
agriculture, natural
resources and ecosystem
protection) and should
strengthen the vitality,
integrity and profile of the
greenbelt with:
· recognized and promoted
cultural sites, districts
and landscapes Agree.
important for community
identity, history and
character;
· a network of protected
public open spaces
where people can enjoy Agree.
recreational and leisurely
pursuits. This network
includes:
· provincial parks (e.g.
Bronte Creek);
· conservation areas;
· navigable waterways;
and
· municipal parks and
forests;
Page 7
· private lands with Agree.
recreation, tourism and
conservation uses;
· a system of trails on Disagree. Provincial regulations
public and private lands unnecessary as it would impede/oca/
supported by a provincial implementation. A/so, enforcement
regulatory framework to issues need to be addressed.
address issues such as
location and design, user
conflicts, public safety
and liability; and
· tourism destinations that
support and depend on
farms, natural areas and
rural communities.
Administration
and
Implementation
The greenbelt should be Agree with proposed approach.
implemented so as to ensure However, po/icy application must
permanence, integrity and also respect local circumstances.
consistency in policy
application while having
regard to regional
differences.
Implementation should be
coordinated with the
provincial growth
management initiative and:
· be initiated through Disagree. Strengthening the
legislation that creates a Provincial Po/icy Statement,
Greenbelt Protection Planning Act and local and regional
Plan that knits together: Official Plans would provide a more
· the Niagara effective way of addressing the
Escarpment Plan; protection of greenspace lands than
· the Oak Ridges creating a new Provincial Plan.
Moraine Conservation
Plan; and
· other lands necessary
to fulfill the objectives
and goals of the
greenbelt;
· be administered by Agree with administrating the
municipalities outside of greenbelt at the local level and
the Niagara Escarpment incorporating greenbelt lands for
Commission jurisdiction protection into local Official Plans.
and incorporated into
municipal official plans in
a consistent manner
across the greenbelt;
Page 8
· take advantage of Agree.
existing administrative
structures and tools
where possible;
· have an appellate Disagree with establishing another
tribunal that has the appellate tribunal to deal with land
expertise to uphold the use planning issues. These issues
integrity of the plan; are more appropriately dealt with at
the Ontario Municipal Board.
· assist municipalities with Agree. However, clarification is
implementation work; required as to whether the task force
is proposing that provincial staff
assist municipalities with
implementation.
· include fiscal measures Agree provided the federal and
which fulfill the objectives provincial governments are
of the greenbelt, responsible for primary fiscal
particularly concerning measures.
conservation and
agricultural viability;
· involve a working group to Agree with involving municipal staff
process Greenbelt Task in a working group.
Force . recommendations
through to the creation of
the greenbelt. This
working group would
include municipal staff
and other expert
stakeholders from across
the greenbelt; and
· be subject to monitoring Clarification is required as to who
performance standards will be responsible for monitoring
and a 10-year review, uerformance standards and
conducting a 10-year review.
Non-regulatory
programs and
tax incentives:
Where appropriate, Agree provided local municipalities
landowners in the are not responsible for providing
designated greenbelt area special incentives. Provincial and
should be eligible for federal programs are already in
special incentives for place for this purpose.
restoration, protection and
stewardship of their
properties.
J:\Reports\Plan~2004\GM - Greenbelt Task Force Discussion Paper Char~ Appendix I,doc
Page 9
ATTACHMENT I,. , I TO
REPORT # PD_ 'Z.~ '0~
Greenbelt Task Force
Discussion Paper
A FrameWork for Consultation
May 2004
Ontario
Building Strong Communities
ATTACHMENT ~ I TO
R£;'OR't' # PD Z~.-O~
Table of Contents
Introduction
The Greenbelt Protection Act, 2004 .......... 2
The Proposed Greenbelt Study Area .......2
The Greenbelt Task Force
Members ....................................................... 3
Vision and Goals .......................................... 4
Stakeholder and Public Consultations ....5
Background and Context
Central Ontario and a Golden Horseshoe
Greenbelt ......................................................
Regional Planning- An Ontario
Tradition ........................................................ 7
Greenbelt Case Studies ............................. 7
Related Provincial Initiatives .................... 8
The "Layers" of a Greenbelt ..................... 9
Environmental Protection
Environmental Features ........................... 10
Studies on the Environment .................... 10
A Systems Approach to Natural
Heritage and Water Resources .............. 10
Management Tools for Environmental
Protection ................................................... 12
Proposed Approaches to Environmental
Protection ................................................... 13
Agricultural Protection
Prime Agricultural Lands ......................... 14
Specialty Crop Areas and the Niagara
Tender Fruit and Grape Lands ................. 14
The Viability of Agriculture ...................... 15
Proposed Approaches to the Protection
of Agricultural Lands ................................ 15
Transportation and Infrastructure
The Regulatory Environment ................... 18
Transportation-Related Initiatives .......... 19
Principles .................................................... 19
Proposed Approaches to Transportation
and Infrastructure ..................................... 20
Natural Resources
Mineral Resources .................................... 21
The Regulatory Environment ................... 21
Site Rehabilitation ..................................... 22
Proposed Approaches to Future
Resource Needs ........................................ 22
Culture, Recreation and Tourism
Features, Attractions and
Opportunities .............................................. 23
Culture ......................................................... 23
Recreation .................................................. 23
Tourism ........................................................ 24
Proposed Approaches to Culture,
Recreation and Tourism ........................... 24
Administration and Implementation
The Parkway Belt West Plan .................. 25
The Niagara Escarpment Plan ................ 25
The Oak Ridges Moraine
Conservation Plan ..................................... 26
Other Jurisdictions .................................... 26
General Elements of Greenbelt
Protection ................................................... 27
Tools for Implementation ......................... 27
Proposed Approaches to Administration
and Implementation .................................. 28
Next Steps
Contact Information .................................. 30
Public Meeting Information ..................... 30
Freedom of Information ............................ 31
Glossary ..................................................... 32
May 2004 · 1
ATTACHMEI~T #, I , 1'0
REPORT f PD. Z~,-o~
Introduction
The Greenbelt
Protection Act,
2OO4
In December 2003, the Government of
Ontario introduced Bill 27, the proposed
Greenbelt Protection Act, 2004, as the first
step toward establishing a permanent
greenbelt in southern Ontario. The greenbelt
would protect environmentally sensitive
lands and farmlands, and help manage and
contain urban growth.
Good planning for environmental and
agricultural protection, and sustainable
development, would result in economic
benefits to the residents of the Golden
Horseshoe. The Government of Ontario has
recognized this with the introduction of this
legislation.
If passed by the Legislature, the act would
create a proposed Greenbelt Study Area.
Inside the study area, a moratorium on
changes from rural to urban uses would allow
time for consultation with stakeholders and
the public on what the greenbelt should
entail, while protecting rural areas from
further urbanization. The moratorium will
expire in December 2004. The proposed
legislation recognizes:
· the environmental and agricultural
significance of the proposed Greenbelt
Study Area to the people of Ontario;
the proposed Greenbelt Study Area's
importance as a source of food, water,
natural heritage systems, greenspace,
recreation and natural resources,
which enhance quality of life; and
· the importance of continuing to protect
the Niagara Escarpment and the Oak
Ridges Moraine.
The Proposed
Greenbelt Study
Area
The proposed Greenbelt Study Area is a
smaller area located within the central
Ontario growth management area. The study
area includes lands under the jurisdiction of
the Greater Toronto Area regions of
Durham, York, Halton and Peel; the cities of
Toronto and Hamilton; the tender fruit and
grape lands as designated in the Region of
Niagara's official plan; the Niagara
Escarpment Plan and the Oak Ridges
Moraine Conservation Plan.
The Golden Horseshoe's major urban areas,
as well as its hamlets, villages and towns,
are all a part ofthe study area. In countryside
areas, it includes farmlands and rural areas,
cultural and natural heritage features,
provincial and regional parks, and rivers
and river valleys. It also includes highways
and railways, transmission lines and fibre
optic cables, as well as the many other
activities and landscapes that contribute to
a vital countryside.
Ultimately, the provincial government will
decide what to propose for the greenbelt,
within the proposed Greenbelt Study Area.
The task force, however, will provide
recommendations to the government, and
welcomes your comments on what lands
should be included, or not included, in the
greenbelt.
2, Toward a Golden Horseshoe Greenbelt, Greenbelt Task Force Discussion Paper
,~ r~rACHMENT #/-~TO
The Greenbelt Task Force
In February 2004, John Gerretsen, Minister
of Municipal Affairs and Housing,
established the 13-member Greenbelt Task
Force. The task force, whose members
represent a diverse group of stakeholders,
will develop recommendations on how the
province could most effectively establish a
permanent Golden Horseshoe Greenbelt.
The task force met 13 times, and consulted
with municipal leaders, in March and
April 2004. It considered many approaches
to greenbelt protection, and has outlined a
number of proposed approaches for a Golden
Horseshoe Greenbelt in this discussion
paper.
Members
Robert Maclsaac, Chair, Mayor of the City of Burlington
Michael Bunce, Associate Professor of Geography, University of Toronto
at Scarborough
Jim Faught, Executive Director, Ontario Nature
Mary Leu Gatt, Regional Director, Ontario Federation of Agriculture
Natalie Helferty, Ecologist. Natural Heritage Consulting
Carol Hochu, President, Aggregate Producers Association of Ontario
Fraser Nelson, General Manager, Metrus Development Inc.
Rod Northey, Partner, Birchall Northey
Russ Powell, Chief Administrative Office r, Central Lake Ontario Conservation
Deborah Schuite, Humber Watershed Alliance
David J. Stewart, President, Mattamy Homes
Alan C. Veale, former Director (Commissioner) Planning and Development,
Regional Municipality of Niagara
May 2004,3
The Greenbelt Task Force developed the following vision and goals statements in
its initial meetings. These statements were used as a guide during the task force's
pre-consultation discussions, and to test proposed recommendat ons
VISION
The: Golden Horseshoe Greenbelt will be a permanent and sustainable:legacy for
current and future generations. The greenbelt will enhance our urban and rural areas
with a continuous and connected system of open spaces that:
· protects and enhances environmentally sensitive lands and natural heritage systems;
~-~recognizes the region's social, natural and economic needs; -
· sustains and nurtures the region's agricultural sector;
· conserves for sustainable use the region's significant natural resources; and
· continues to provide high-quality and compatib e recreat ona and tourism
The greenbet wi enhance quality of life by serving an array of functions across
growing urban areas;
natural environment;
· preserving viable agricultural land as a continuing commercial source of food
and employment by recognizing the critical impo~ance of the agriculture sector's
prosperity to the regional economy;
· sustaining the region's countryside and rural communitieS;
· conserving and making available natural resources critical for a thriving econom~"~nd
· ensuring that infrastructure investment achieves the environmental, social and
economic aims of the greenbe t
4, Toward a Golden Horseshoe Greenbelt- Greenbelt Task Force Discussion Paper
ATTACHMENT# .... I TO
Stakeholder
and Public
Consultations
Befo~ ~eli~eri~ it~ fi~al recom~e~a-
tions, the task force wants to hear a
broad range of views on the issues and
proposed approaches in this discussion
paper.
In May and June 2004, the task force will
host public meetings and stakeholder work-
shops across the Golden Horseshoe. A
meeting schedule and more information on
how you can participate is outlined in "Next
Steps," the last section of this discussion
paper.
The task force will consider views and
ideas expressed at these meetings, as well
as written submissions, in crafting its final
recommendations. The government expects
to propose a definitive approach to a green-
belt based on task force recommendations
this fall. The public will have a chance to
comment on the proposed approach before
the government takes action.
May 2004 * 5
Back§round and Context
Central Ontario
and the Golden
Horseshoe
Greenbelt
Central Ontario is experiencing strong
population growth that is expected to
continue into the future. The population,
estimated at 7.5 million in 2001, is forecast
to grow to 11 million by 2031 (Ministry of
Finance). Central Ontario's population growth
will likely be 80 per cent of the province's
overall population growth during this period.
Population growth and economic growth
provide more choices about where to live
and work. They also generate investment,
income, tax revenue and innovation.
Property values rise. Growth also provides
opportunities to revitalize underused lands
and achieve social objectives.
But when rapid growth is not accompanied
by long-term planning on a regional scale,
inefficient development patterns can result.
These patterns include increased air and
water pollution, loss of greenspace and
agricultural land, inefficient infrastructure
investment, and fewer transportation
options and an over-reliance on the private
automobile resulting in traffic congestion.
Studies have shown that if current trends
persist in central Ontario, in the next
30 years, travelling in rush hour will take
45 per cent longer than it does now. In
addition, development will consume another
1,069 square kilometers of mainly prime
agricultural land, an area nearly twice the
size of the City of Toronto.
6- Toward a Golden Horseshoe Greenbelt* Greenbelt Task Force Discussion Paper
Regional
Planning - An
Ontario Tradition
Tl~nere is a solid tradition of land-use plan-
ing in Ontario. In central Ontario, growth
management and the concept of a regional
structure and land-use plan to guide growth
for the region date back to the late 1960s.
Some of the major exercises for the Greater
Toronto Area include: Toronto Centred Region
Plan / Central Ontario Lakeshore Urban
Complex (Design for Development), 1970 &
1974; Shaping Growth in the GTA/GTA Vision,
1992; and Report of the GTA Task Force
(Golden Report), 1996.
This history has resulted in growth and
development that some would argue has
been quite well-managed. Compared to
many American jurisdictions, this region
has achieved higher densities, greater transit
usage, and more vibrant downtowns. It has
also maintained healthier environmental
and social conditions.
However, residents of central Ontario are
experiencing increased traffic congestion
and longer commutes, increasinglythreatened
water quality, escalating costs to maintain
infrastructure, and loss of agricultural
lands, greenspace, and natural heritage
features. These challenges undermining
quality of life also threaten the region's
economic competitiveness and its ability to
attract wealth-generating industries.
Ontario also has some of the world's most
sophisticated greenbelt models in the
Niagara Escarpment Plan, the Parkway Belt
West Plan, the Oak Ridges Moraine
Conservation Plan and the Ottawa National
Capital Commission greenbelt.
We must make critical decisions about land
use in Ontario. As our province continues to
grow, steps must be taken to protect
natural systems, heritage features and
greenspace; the environmental quality of
our air, water and soil; agricultural lands and
viable rural communities; and recreational
opportunities to ensure that our communities
remain strong, healthy, prosperous and livable.
Greenbelt Case
Studies
Many growing metropolitan areas have
established greenbelts to protect
greenspace, agricultural lands, recreational
opportunities, cultural and natural heritage
features, and resources.
6reenbelts are composed of land located
around urban centres or along urban growth
corridors that is protected by various
restrictions on development. Most green-
belts have been established to preserve
environmentally sensitive areas, valuable
resources such as farmland, forests and
mineral resources, and the unique charac-
ter of rural areas.
A greenbelt can be a tool in curtailing urban
encroachment and protecting the environ-
merit, productive agricultural areas and
greenspace; and improving quality of life for
urban and rural populations. A greenbelt can
be a key component of a growth management
strategy that directs urban development
into existing or designated urban areas,
increasing the efficiency of the region's
existing infrastructure and services.
In addition to growth management consid-
erations, the protection of a greenbelt can
provide other significant benefits. A green-
belt may include agricultural lands and natural
May 2004 · 7
~TTACHMENT # / TO
REPORT # PD~'_L ..........
resources, environmentally sensitive lands,
areas of natural and scientific interest,
habitats of vulnerable, threatened and
endangered species, valley and stream
corridors, and woodlands. Preserving these
lands can maintain or enhance the biodi-
versity, health, resiliency and connectivity
of the natural environment, improving the
overall health of human communities.
A greenbelt can contribute to local and
regional economic vitality by improving
environmental quality, protecting agricul-
tural lands, attracting potential employees,
providing recreational opportunities and
encouraging reinvestment. It can enhance
the quality of life of a metropolitan area and
its global competitiveness.
Related Provincial
Initiatives
There are a number of ongoing and
emerging provincial government initiatives
involving the proposed Greenbelt Study
Area that require coordination and
integration.
STRONG COMMUNITIES
The government is committed to building
strong communities across Ontario. A
number of initiatives are under way to
support strong communities, including a
rural development program, amendments to
the Planning Act, rent reform and federal-
provincial negotiations on a "new deal" for
municipalities.
GROVVTH MANAGEMENT PLAN
The Ministry of Public Infrastructure
Renewal (PIR)is developing a growth
management plan that includes a network
of regional nodes and corridors as areas to
target for intensification and transit
investment in an effort to reduce the
demand for new land.
The growth management plan will also
outline the long-term infrastructure and
service needs of our communities, which
can be costly. Some communities in central
Ontario are currently experiencing degraded
infrastructure systems, and volume-related
constraints on, for example, water and
wastewater services. These communities
cannot accommodate future growth without
major capital upgrades. Transportation
investments are also required to service
growth needs.
TRANSPORTATION
In addition to the growth management
initiative, the government is developing a
transportation strategy for the Golden
Horseshoe.
As with the growth management plan, the
transportation strategy will support improved
public transit and will identify critical invest-
ments required to support the region's long-
range infrastructure requirements to ensure
the efficient movement of people, goods and
services throughout the Golden Horseshoe.
As with other linear features, the routing of
transportation corridors is a complicated
process of attempting to link communities
while protecting sensitive areas.
8, Toward a Golden Horseshoe Greenbelt* Greenbelt Task Force Discussion Paper
SOURCE WATER PROTECTION
In mid-February 2004, the Ministry of the
Environment began consultations on how
best to deliver watershed-based source
protection as a way of securing the long-
term quality and quantity of water resources
throughout the province. Although this
initiative extends beyond the Golden
Horseshoe and the proposed Greenbelt
Study Area, it may result in policy, proce-
dures and legislative changes that could
affect the greenbelt.
HERITAGE
In April 2004, the government introduced
Bill 60, the proposed Ontario Heritage
Amendment Act, 2004, which, if passed,
would in addition to other matters give the
province and municipalities new powers to
stop demolition of heritage sites, subject to
an appeal to the Ontario Municipal Board.
PLANNING REFORM
The government will be consulting on its
proposed Planning Reform initiative in the
late spring. The components of this review
include Bill 26, the proposed Strong
Communities (Planning Amendment) Act,
2004, any additional planning reforms that
may be necessary, the five-year review of
the Provincial Policy Statement, Ontario
Municipal Board Reform and implementation
tools that may be needed to achieve the
government's strong communities objectives.
The "Layers"
of a Greenbelt
T!e Greenbelt Task Force considered five
layers" for the proposed greenbelt that
will provide a framework for stakeholder
and public consultations. These are:
· environmental protection;
· agricultural protection, including
tender fruit and grape lands and
the Holland Marsh;
· transportation and infrastructure;
· natural resources, particularly mineral
resources; and
· culture, tourism and recreation
opportunities.
In addition, two overarching themes include:
· Ontario's growth management and
other related initiatives as the context
for development of a permanent
Golden Horseshoe Greenbelt; and
· implementation and administration
approaches, models and tools for
establishing and administering a
greenbelt.
While each "layer" has its own section in
this discussion paper, no priority should be
implied by the order or content of the
sections. Different functions are likely to
be more or less important or relevant in
different areas of the proposed greenbelt.
May 2004 · 9
Environmental Protection
Enuironmental
Features
The task force recognizes that the
proposed Greenbelt Study Area contains
significant natural heritage features including
wetlands, kettle lakes, rare and threatened
animals, and plants and habitat. It also
features river and valley systems connecting
the Oak Ridges Moraine and the Niagara
Escarpment, an internationally recognized
area of ecological importance, to the Great
Lakes and Lake Simcoe.
Protecting greenspace helps to ensure the
maintenance or enhancement of a number
of important environmental benefits that
contribute to healthy communities and an
enhanced quality of life, including:
· biodiversitythrough protection and
restoration of representative natural
areas, wildlife habitat, species at risk,
and connectivity;
· clean air and clean, abundant water;
· varied and scenic landscapes; and
· outdoor recreation opportunities,
including places to enjoy and learn
about nature and the outdoors.
Studies on the
Environment
Over the last few decades, many have
advocated for a more comprehensive,
systemic approach to protecting the
environmental health of landscapes in
southern Ontario (e.g. Toronto Centred
Region; Crombie Commission; Greater
Toronto Coordinating Committee's Kanter
Report, Greenspace for AII).
10 ,, Toward a Golden Horseshoe Greenbelt- Greenbelt Task Force Discussion Paper
More recently, various groups have articu-
lated a natural systems approach to envi-
ronmental protection for southern Ontario,
proposing the protection of significant envi-
ronmental areas through an ecological or
greenspace system (e.g., Environmental
Commissioner of Ontario's Report 2003;
Nature Conservancy of Canada's
Conservation Blueprint project; Federation
of Ontario Naturalists' paper Southern
Ontario Greenway Strategy, 2004; the
Neptis Foundation paper Greenlands
in the Central Ontario Zone, 2003). The
system would recognize the importance of
protecting and enhancing core water and
land areas and the connections or linkages
between them, including linkages to Lake
Ontario.
A Systems
Approach to
Natural Heritage
and Water
Resources
The proposed greenbelt provides an
opportunity to enhance environmental
protection in southern Ontario through a
natural systems approach.
· Natural heritage system- protecting
and enhancing the health, diversity,
abundance and connectivity of natural
heritage features and functions. This
includes:
- the consideration of a continuous
natural heritage system which involves
identifying, protecting and enhancing
core natural areas, or areas containing
the greatest concentrations of
significant natural heritage features,
and providing connections and
linkages between them, such as
those reflected in the Oak Ridges
Moraine Conservation Plan (0RMCP),
Niagara Escarpment Plan (NEP) and
major river and valley systems; and,
- the identification and protection of
individually significant natural heritage
features and functions, such as wet-
lands, Areas of Natural and Scientific
Interest (ANSls), and significant
woodlands, throughout the study area.
Water resources system - protecting
and, where necessary, improving and
restoring a clean and abundant water
supply, including healthy functioning
aquatic ecosystems. This includes:
- a water resources system to protect
and improve the health and sustain-
ability of hydrological integrity. This
could include the identification and
protection of source areas, sensitive
headwaters, riparian corridors, etc. It
would also require integration between
the greenbelt and the broader water
resource systems being developed
through source water protection and
watershed management, such as the
0RMCP;
the identification and protection of
significant hydrological features, such
as wetlands, streams, lakes, aquifers,
recharge areas and springs, and their
associated hydrological functions; and,
a coordinated approach to assessing
impacts of land-use change on
water quality, water quantity and
related hydrological functions,
such as watershed management and
lake-basin management, throughout
the study area.
Landform conservation - protecting
the diversity and character of the natural
and open rural landscape, including
the unique and sensitive landforms of
the area. This includes:
- the development of a landform
conservation strategy to identify and
protect areas of unique, distinctive
and complex natural systems within
the proposed Greenbelt Study Area,
such as the NEP and 0RMCP; and
the identification, protection and
enhancement of some of the more
unique and sensitive landform features,
such as earth science ANSIs,
distinctive geological and geomorphic
features, vistas and panoramas.
Network of open space - identifying
existing and potential public parks and
open spaces, such as Bronte Creek
Provincial Park, Rouge Park, the
Duffins-Rouge Agricultural Preserve
and conservation authority lands, that
can be maintained and secured to
support a natural system for future
generations. This could include:
- a system of public parks, open space
and trails across the proposed
Greenbelt Study Area that meet a
number of objectives, including
environmental protection, outdoor
recreation, recreational opportunities,
tourism benefits, public access and
cultural and natural heritage
appreciation within the proposed
Greenbelt Study Area; and/or
- a system of natural areas, other
open areas or depleted mineral
aggregate operations where there is
an opportunity to restore such areas
to a more natural condition.
May 2004 · 11
To ensure the long-term protection of both
the features and functions of a natural system,
compatible uses such as aggregate extrac-
tion, agriculture and recreation can co-exist
with environmental protection, provided they
do not hinder the integrity of the system.
0ver the years, farmers have been stewards
of many agricultural and natural features that
co-exist with their agricultural operations.
In developing a Golden Horseshoe
Greenbelt, the task force envisions that the
suggested approaches for environmental
protection will be integrated with the
proposed approaches for: mineral aggregates;
tender fruit and grape lands, and agricul-
ture; transportation and infrastructure; and
culture, recreation and tourism opportunities
to ensure a diversity of greenbelt functions
are achieved.
Management
Tools for
Environmental
Protection
The development and management of a
greenbelt for environmental protection
needs to be achieved through a range of
management tools used in combination
with one another.
PLANNING CONTROLS
The use of planning controls will be discussed
in greater detail in other parts of this paper.
NON-PLANNING TOOLS
Non-planning mechanisms can be used in
tandem with a land-use planning frame-
12 · Toward a Golden Horseshoe Greenbelt · Greenbelt Task Force Discussion Paper
work to achieve the overall objective of
environmental protection in the greenbelt
area. These could include:
· developing a greenbelt parks and trail
strategy to identify potential sites for
future parks, and opportunities to make
greenbelt lands accessible to the public.
Continued implementation efforts in
these areas will result in additional
environmental protection and socio-
economic benefits, such as nature and
tourism. Beyond these two areas, there
are other provincial, regional and local
park and trail systems, such as Rouge
Park, that could become the "backbone"
of a more extensive parks and open
space system across the proposed
Greenbelt Study Area. It should be
noted that not all areas of publicly
owned greenlands should be accessible
to the public, since there may be
conflicts between conservation and
recreational opportunities;
developing a greenbelt acquisition
and stewardship strategy to help
guide resource allocation and provide
consistent direction for stewardship
programs within the proposed
Greenbelt Study Area. The Neptis
Foundation's Greenlands paper (2002)
recommends that a central body be
responsible for coordinating acquisition
and land stewardship initiatives in
order to pool the financial resources
and expertise of government and non-
government organizations. However,
it is recognized that both the Niagara
Escarpment Plan and Oak Ridges
Moraine Plan have already established
coordinating bodies and have mecha-
nisms in place;
requiring municipalities to pass tree
conservation bylaws to prohibit or
regulate the harm, destruction or
removal of trees, particularly in areas
where urban forest cover is rapidly
diminishing and/or where woodlands
are not managed. The proposed
Greenbelt Protection Act, 2004 allows
for a Minister's regulation to prohibit
the cutting or removal of trees in the
proposed Greenbelt Study Area; and
requiring municipalities to pass site
alteration bylaws to prohibit or regulate
the placing or dumping of fill; the removal
of topsoil, including peat; and the
alteration of the grade of land, particu-
larly where land disturbance activities
negatively impacts environmental
features and functions. The proposed
Greenbelt Protection Act, 2004 allows
for a Minister's reg~Jation to prohibit
site alteration and the grading of land
in the proposed Greenbelt Study Area.
Proposed
Approaches to
Environmental
Protection
The task force is considering a systems
approach for environmental protection in
the greenbelt:
SCALE OF ENVIRONMENTAL PRO-
TECTION WITHIN THE GREENBELT
The Province, in consultation with key
stakeholders, should define a system of
natural and hydrological features and
functions.
This system should include:
provincially significant and/or major
natural heritage and hydrological
features and functions (e.g., Oak
Ridges Moraine, Niagara Escarpment,
Rouge Valley); and
· connections between these major
features and functions, including
public park/open space lands and
stream/river valley linkages to major
water bodies such as the Great Lakes
and Lake Simcoe.
And this system could include:
· regionally significant features and
functions (e.g., portions of the Iroquois
shoreline).
PRIORITY OF ENVIRONMENTAL
PROTECTION
The system of natural heritage and hydro-
logical features and functions within the
greenbelt will have a hierarchy of environ-
mental protection:
· sensitive areas, as defined by the
province in consultation with key
stakeholders, where only very limited
uses (e.g., conservation, existing
agriculture) would be permitted; and
less sensitive areas where a variety
of compatible uses, consistent with
the objectives of the greenbelt, would
be permitted.
May 2004 · 13
Agricultural Protection
Ontario enjoys many social, economic
and environmental benefits from the
agricultural sector, including exports and
employment from the agricultural economy,
environmental stewardship, connectivity for
wildlife species, locally-produced food and
specialty crops, and support for a strong
rural character in communities outside of
the urbanized core.
Protecting agricultural lands within a
greenbelt is an important part of ensuring a
healthy, working agricultural sector in the
Golden Horseshoe for future generations.
(e.g., Niagara Agricultural Task Force report
Securing A Legacy for Niagara's
Agricultural Land, 2003; Christian Farmers
Federation of Ontario report Closer to the
Heart, 2002; GTA Federations of Agriculture
in the GTA Agricultural Action Plan, 2004,
and Caldwell and Weirs Ontario's Countryside
report on severance activity). Urban bound-
ary encroachments, non-farm uses, land
speculation and lot-by-lot severances have,
over time, incrementally consumed prime
agricultural lands for non-agricultural uses.
Specialty Crop
Prime Agricultural Areas and the
Lands
Southern Ontario's prime agricultural
areas are composed of Class 1, 2 and
3 soils, and are considered to be some of
the best land in the world. They are a finite
resource. Prime agricultural lands make up
only 12 per cent of Ontario's land base, and
only five per cent of Canada's total land base.
Outside of the Oak Ridges Moraine
Conservation Plan (0RMCP)area, the Niagara
Escarpment Plan (NEP) area, and the
Duffins-Rouge Agricultural Preserve, the
majority of the non-urban lands in the
proposed Greenbelt Study Area are classified
as prime agricultural lands.
The proximity of farmland to existing urban
areas and the attractiveness of level farm-
land for new development have resulted in
competition for land uses. Many in the agri-
cultural sector have identified the pressures
of lot fragmentation and urban development
on agricultural lands, and have pressed for
clear action to address these challenges
Niagara Tender
Fruit and Grape
Lands
W'hile prime agricultural land is a finite
resource that should be protected
from development pressures, specialty
crop areas such as the tender fruit and
grape lands and the Holland Marsh are
unique, and represent a significantly small-
er portion of the land base.
The Niagara region supports a diverse and
strong agricultural community that includes
not only tender fruit and grape production,
but also greenhouse produce, field crops
and livestock. The tender fruit and grape
lands located in the Niagara region, and a
portion of Hamilton, however, have long
been regarded as a nationally unique agri-
cultural resource, and have become a
major tourist draw and a focal point for
local and regional economic development.
14, Toward a Golden Horseshoe Greenbelt, Greenbelt Task Force Discussion Paper
While the importance of these lands has
been recognized in local and regional land-
use planning, economic development
activities that have brought prosperity to
the region have also brought non-farm
development and other pressures associated
with urbanization.
The tender fruit and grape lands in the
proposed Greenbelt Study Area described
in Bill 27 are based on the Region of
Niagara's Official Plan designations for
"good tender fruit and good grape lands."
These regional official plan land-use desig-
nations were put in place in the 1980s. The
"good grape lands" designation to the
south of the Niagara Escarpment may need
to be reviewed and more closely defined.
The Viability of
Agriculture
preserving agricultural lands is only one
aspect of creating the conditions for
agricultural communities to thrive. The GTA
Agricultural Action Plan and the Niagara
Agricultural task force have identified that
many approaches and tools are necessary
to foster and support a strong, vibrant and
healthy agricultural economy. Examples of
the approaches and tools used in other
jurisdictions include land trusts, conservation
easements, financial incentives, supportive
infrastructure investment, education and
marketing, as well as land-use plans and
zoning.
The task force recognizes the importance
of ensuring the viability of agriculture, and
recognizes that land-use provisions alone
are not enough to ensure the long-term
viability of agriculture within the greenbelt.
Ensuring that prime agricultural areas are
sufficiently stable and protected is a key
part of providing more certainty to the
agricultural sector.
Proposed
Approaches to
the Protection of
Agricultural Lands
The task force is considering the following
approach to protecting agricultural lands
in the greenbelt:
ECONOMIC VIABILITY
Land-use planning alone is insufficient to
ensure that agricultural lands within the
greenbelt will be farmed. There is an array
of issues adversely affecting agriculture
across the province that need to be
addressed in a holistic way.
The task force recommends that a provincial
task force on agriculture be created imme-
diately to develop agricultural policies that
will ensure a viable agricultural industry
across the greenbelt and the rest of Ontario.
This task force should comprise a broadly
based group of stakeholders and be led by
the Ministry of Agriculture and Food, with
membership from the Ministries of Finance,
Municipal Affairs and Housing, Natural
Resources, Environment, Consumer and
Business Services, federal departments
and others as required.
This task force should provide an interim
report to address greenbelt issues by
October 2004.
May 2004 · 15
CONTEXT FOR PROTECTION
Agricultural lands should be protected
within the context of a provincial growth
management plan to reduce the pressure
on prime agricultural lands.
· Growth should be focused around
centres and along corridors to intensify
development.
Infill, intensification and redevelopment,
including brownfields, should be
supported within urban boundaries.
LAND-USE POLICIES
Before prime agricultural lands may be
considered for development, a comprehen-
sive review should be required to demon-
strate that existing urban-designated areas
lack sufficient supply of land available
through intensification and redevelopment.
Lot creation should be eliminated for
residential infill on agricultural lands.
Clearer direction or refined definitions
should further restrict lot creation for all or
some uses (e.g., retirement, agricultural-
related, surplus farm dwellings, and sever-
ances for a farm parcel or farm-splits).
Land-use poficies should be supportive of
agriculture and should be consistent
across the greenbelt, including areas with-
in Oak Ridges Moraine Conservation Plan
and the Niagara Escarpment Plan.
Secondary agricultural uses and agriculture-
related uses should be clarified to ensure
that they meet the needs of agriculture but
do not erode the viability of the prime agri-
cultural areas.
A range of approaches should strengthen
protections for prime agricultural lands by:
· tightening the definition, scale and
range of secondary and agricultural-
related land uses for good tender fruit
and good grape lands;
directing selected agricultural-related
uses to settlement areas and designated
areas; and
· exploring innovative supportmecha-
nisms and incentives for limiting
secondary uses of prime agricultural
lands.
The type and location (or both) of non-
residential uses for which prime agricultural
areas could be re-designated or converted
will be limited to ensure that the uses meet
the needs of the agricultural community
and do not erode the viability of the prime
agricultural areas. Where possible, these
uses should be directed to settlement
areas.
TENDER FRUIT AND GRAPE LANDS
AND HOLLAND MARSH
The entire Holland Marsh (including the
portion outside the proposed Greenbelt
Study Area) and the tender fruit and grape
lands should be permanently protected by
restricting settlement area boundary
expansions.
In these areas, the range of land uses and
location of "limited non-residential" uses
should be restricted to those that are
absolutely necessary to support agricultural
uses in specialty crop areas.
16. Toward a Golden Horseshoe Greenbelt · Greenbelt Task Force Discussion Paper
OTHER AGRICULTURAL [ANDS
Other agricultural lands that should be
permanently protected in the greenbelt are
prime agricultural lands (Class I, 2, 3)
having contiguous area sufficiently large to
support the integrity of the agricultural
economy and rural landscape.
In making this determination, the Province
should have regard for:
· fragmentation;
· urban/suburban encroachments;
· loss of agricultural support
mechanisms;
· the province's growth management
initiative; and
· rural economic development.
COMPLEMENTARY INITIATIVES
A permanent greenbelt should support the
protection of the agricultural land base
through land-use policy mechanisms and
complementary infrastructure and economic
development initiatives such as:
· research and education programs;
· promotion and marketing initiatives;
and
· supporting infrastructure necessary
for agriculture (e.g., roads, water,
power, gas, drainage).
TAXATION AND FINANCIAL TOOLS
The Province should assess potential
changes to taxation poficies and other
financial tools to support agriculture, such as:
· reviewing the property assessment
system as it applies to the valuing
of farmland; and
· easements and land trusts.
May 2004 ,, 17
Transportation and
Infrastructure
Major infrastructure facilities that have
influenced and supported past growth
are located within the proposed Greenbelt
Study Area. These facilities will continue to
influence future growth, as well as the
forms and locations of new, connecting
infrastructure facilities.
Major water and sewer systems that serve
millions of residents; the Pearson and
Hamilton international airports; transporta-
tion arteries such as the Queen Elizabeth
Way and highways 401,403, 404, 406, 407
and 427; major commuter and freight rail
lines; the Parkway Belt West utility corridor;
electrical generation plants and major
transmission corridors; and natural gas and
fibre-optic cable installations are located
within the Golden Horseshoe area.
The Breeze ferry, starting service from
Rochester to Toronto this spring, should
prompt discussion of an unexplored future
transportation route. In addition, the wind
turbine at Exhibition Place raises the possi-
bility of new wind farms and other alternative
energy technologies to supply the power
that new growth will demand.
The Regulatory
Environment
T here is currently a complex regulatory
environment for infrastructure.
The Provincial Policy Statement (PPS)
under the Planning Act provides policy
direction on matters of provincial interest
related to land-use planning and develop-
ment. These include policies intended to
ensure that:
natural heritage features and areas
are protected from incompatible
development;
· prime agricultural lands are protected;
· efficient, cost-effective development
and land-use patterns are employed
to develop strong communities and
provide for housing;
appropriate and adequate infrastructure
and transportation services provision
are provided across the province; and
· mineral aggregate resources are
available for extraction as close to
market as possible.
The Provincial Policy Statement is currently
undergoing a legislated five-year review.
Within the proposed Greenbelt Study Area
there are also three specific plans, the Oak
Ridges Moraine Conservation Plan (ORMCP),
the Niagara Escarpment Plan (NEP) and the
Parkway Belt West Plan (PBWP), that pro-
vide additional and specific provincial policy
direction.
The ORMCP and the NEP were designed
explicitly to protect and enhance significant
natural features and accordingly, they
establish high thresholds for infrastructure,
transportation and mineral aggregate
resources use. The ORMCP and the NEP
supersede other provincial legislation and
policies as well as municipal official plans
and zoning bylaws in the event of a conflict.
The PWBP provides, in part, for major infra-
structure facilities across the Greater
Toronto Area (GTA).
Municipal official plans articulate local
and/or regional interests and approaches
to managing future growth, protecting the
18, Toward a Golden Horseshoe Greenbelt · Greenbelt Task Force Discussion Paper
environment, and providing for infrastruc-
ture and mineral aggregate resource
extraction, in keeping with the provincial
framework.
In addition to the provincial land-use planning
framework, there are also other pieces of
legislation that apply to infrastructure,
including the Canadian Environmental
Assessment Act, Environmental Assessment
Act, Environmental Protection Act, National
Energy Board Act, Canadian Radio-television
and Telecommunications Commission Act,
Ontario Water Resources Act, Source Water
Protection Act, Drainage Act, and the
Aggregate Resources Act.
These acts provide detailed procedures
and processes to guide decision-making on
possible locations and the development of
infrastructure facilities, as well as the manner
in which resources are extracted, to mini-
mize potential impacts on the environment.
Transportation-
Related
Initiatives
In addition to the existing provincial leg-
islative framework, there are many key
ongoing and emerging initiatives that relate
to the greenbelt and the provision of infra-
structure and resources. These include a
transportation strategy and a growth man-
agement plan.
The transportation strategy will support
improved public transit and critical invest-
ments for the region's long-range infra-
structure requirements.
As well, the Province is currently consulting
on the delivery of source water protection
planning as a way of securing quality water
sources for the long term throughout
Ontario.
The Province is taking inventory ofthe Ioca-
tion and ownership of existing hydro trans-
mission corridors transferred to the
Province from Hydro One to explore options
for provincial and inter-regional secondary
uses such as linear transportation, transit
and infrastructure, as well as open spaces,
parks and trails, or other recreational uses.
The province has requested that municipal-
ities indicate their secondary use interests
to the province as part of this project.
Finally, it is important to note that the devel-
opment of a greenbelt should not weaken
the existing provisions of the Oak Ridges
Moraine Conservation Plan and the
Niagara Escarpment Plan.
Principles
The task force set the following principles
to guide its consideration of approaches
for infrastructure in the greenbelt.
1. Recognition that the greenbelt should
not be viewed as a land reserve for
future infrastructure needs;
Recognition that the proposed
Greenbelt Study Area is also the
fastest growing region in Canada
and a foundation for the provincial
and national economies, therefore,
infrastructure will be needed to
support this growth;
3. Look first to alternatives that maximize
the capacity of existing infrastructure;
May 2004 * 19
4. Where new infrastructure is deter-
mined to be necessary, minimize
social, economic and environmental
impacts, respect natural features,
preserve open space and seek
creative approaches to design; and
5. Control growth through planning tools.
Proposed
Approaches to
Transportation
and Infrastructure
The task force is considering the following
approach for transportation and infrastruc-
ture in the greenbelt:
If it is cons/stent with the Greenbelt Task
Force vision and goals, the Province's
growth management plan and the coordi-
nation of provincial, regional and municipal
infrastructure planning, then infrastructure
(including highways, water, sewer, power,
alternative energy facilities, telecommuni-
cations/cell towers, waste/recycling
facilities, etc.) would be permitted in the
greenbelt.
Locate infrastructure only in areas where
there is a demonstrated need.
The Province should review the way in
which need for infrastructure is assessed,
to ensure proposed infrastructure rein-
forces growth management and greenbelt
objectives.
The Province should also review the envi-
ronmental assessment process to ensure
that the consideration of alternatives
reflects emerging technologies, innovative
designs, and an appropriate balance of
roads and transit.
20, Toward a Golden Horseshoe Greenbelt · Greenbelt Task Force Discussion Paper
I
Natural Resources
The proposed Greenbelt Study Area is
abundant with a number of important natural
resources, including forestry, water and
wildlife. While the task force has concen-
trated its discussions primarily on mineral
resources, we welcome comments on
other natural resources as well.
Mineral Resources
The most significant non-renewable
resource in the proposed Greenbelt
Study Area is aggregates, including lime-
stone, sand, gravel, clay, shale and sand-
stone. Extraction of these minerals and
other related operations are licensed under
the Aggregate Resources Act. Aggregates
are identified in the Provincial Policy
Statement as a key provincial interest for
wise use and protection over the long term.
Mineral aggregates provide essential build-
ing materials for growth. According to the
Ministry of Natural Resources (MNR)
aggregate mapping and its 1992 State ofthe
Resource Report, there are significant
aggregate resource deposits in the Golden
Horseshoe region that directly supply the
housing and manufacturing industries.
More than 75 per cent of mineral aggregates
used in the greenbelt area come from the
Oak Ridges Moraine and Niagara
Escarpment areas. The region also contains
most of the province's shale resources, the
raw material for the brick industry.
The Regulatory
Environment
Over the past decade, the regulatory
environment for aggregate extraction
has become increasingly sophisticated,
resulting in fewer new licenses for quar-
ries. Most existing quarries were estab-
lished in the 1950s, and are reaching the
end of their deposits.
Mineral aggregate resources are non-
renewable resources. Their proximity to
market is one of the most significant factors
in their overall cost. Since more than 90 per
cent of mineral aggregate is moved by
truck, transportation is one ofthe main factors
in the cost of the resource not only in direct
cost to the consumer, but also in its impacts
on air quality. Shipping mineral aggregates
long distances increases energy consump-
tion and greenhouse gas emissions into the
atmosphere. Proper planning for near-
market extraction can reduce negative
environmental impacts.
In recognition of the value of mineral aggre-
gate resources for current and future uses,
Section 2.2.1 of the Provincial Policy
Statement states that "Mineral resources
will be protected for long term use" and
section 2.2.3.1 provides that "As much of
the mineral aggregate resource as is realis-
tically possible will be made available to
supply mineral resource needs, as close to
markets as possible."
In the Niagara Escarpment Plan (NEP),
Escarpment Rural Area, mineral resource
extraction may be permitted subject to an
amendmentto the NER The plan contains a
set of standards and criteria for evaluating
amendment applications to ensure that
such amendments are justified. They also
provide assurances that, if introduced, any
new mineral extractive operation or associ-
ated accessory use will have minimal
impact on the escarpment environment,
and the lands will ultimately be rehabilitat-
ed and used in a manner compatible with
the surrounding landscape.
May 2004,21
/
Within the Oak Ridges Moraine Conservation
Plan (ORMCP), mineral aggregate opera-
tions are permitted throughout the ORM
except in the Natural Core Areas designated
in the plan. Proposed mineral aggregate
operations in the other three land-use
designations must demonstrate:
· the maintenance, improvement or
enhancement of the quality and
quantity of ground/surface water;
· proper site rehabilitation to
agricultural or natural purposes;
the maintenance of the health, size
and diversity of key natural heritage
features; and
· proper rehabilitation of areas with
identified landform attributes.
Site Rehabilitation
As pits and quarries reach depletion, it is
important to ensure, through rehabilita-
tion, that future uses are compatible with,
or will contribute to, the objectives of any
greenbelt protection plan.
Examples of rehabilitation for different pur-
poses include the Lafarge Fonthill Pit, now
a tender fruit orchard; an experimental
vineyard at Vineland Quarries; the Royal
Botanical Gardens; and Kerncliff conservation
area in Halton Region.
As proposals for a permanent greenbelt are
developed from the layering of the environ-
mental, agricultural, cultural, recreation
and heritage functions described in this paper,
aggregate operations can be considered a
"temporary use." These key non-renewable
resources may be identified and protected
for future use, and sites can ultimately be
returned to natural, agricultural or recre-
ational purposes -- the use that best suits
the greenbelt area in which they are situated.
Proposed
Approaches to
Natural Resources
The task force is considering the following
approach to future resource needs:
Given the importance of the ava/lability of
aggregates close to market, as identified in
the Provincial Poficy Statement, high
potential aggregate areas should be a
consideration for inclusion in the greenbelt
and should be protected from incompatible
land use.
Aggregate extraction in the greenbelt
should be subjected to a more rigorous
approach to rehabilitation. Depleted mineral
aggregate operations should more aggres-
sively be brought into uses that would sup-
port or enhance the objectives of greenbelt
protection.
The Province should clarify appropriate
provincial and official plan poficies
surrounding new ficenses for aggregate
extraction.
The Province should review the ficensing
process to facilitate new supply and ensure
the integrity of hydrogeological and eco-
logical systems, features and functions,
taking into account the requirement to
rehabilitate.
22 ~ Toward a Golden Horseshoe Greenbelt- Greenbelt Task Force Discussion Paper
Culture, Recreation and Tourism
Features,
Attractions and
Opportunities
The proposed Greenbelt Study Area
contains important cultural heritage,
recreation and tourism features and
attractions.
· The area is home to the Bruce Trail,
the Oak Ridges Trail, the Royal Botanical
Gardens, internationally recognized
bird-watching areas, and the recon-
structed Iroquois Village at Crawford
Lake Conservation Area.
· The Niagara peninsula boasts Niagara
Falls, and a thriving food and wine
industry.
· The Niagara Escarpment, designated
as a World Biosphere Reserve by the
United Nations for its distinctive natural
landscape and internationally signifi-
cant ecosystem, provides opportunities
for numerous recreational activities.
· Large tracts of regional, county and
conservation authority forests have
been established on the Oak Ridges
Moraine that provide tremendous
opportunities for outdoor recreation
such as hiking and nature viewing.
The close proximity of these cultural, recre-
ational and tourism amenities contributes
to a high quality of life in the Golden
Horseshoe area. However, there are
pressures on these resources. If our urban
areas continue to expand outward, the
green spaces surrounding our urban
communities could be degraded, or could
disappear altogether. This would reduce
the available number of cultural, recreational
and tourism opportunities at a time when
more are needed to serve a rapidly growing
population.
Culture
Cultural heritage resources include build-
ings, structures, and archaeological
sites representing all periods of history and
human endeavour. In the proposed Golden
Horseshoe Greenbelt area, the people of
the First Nations farmed, hunted and traded
long before European settlers arrived. This
area was home to the early settlers, and
today, it attracts immigrants from around
the world. Establishing a greenbelt would
ensure the long-term preservation, use and
enjoyment of the Golden Horseshoe's var-
ied landscapes and diverse cultural and
heritage resources.
Recreation
W'ith its varied landscapes, a Golden
Horseshoe Greenbelt presents
opportunities to support healthy communi-
ties through year-round public access to
outdoor recreation resources. By protect-
lng and enhancing hiking trails, cycle paths,
canoe routes, skating rinks, parks and other
recreational resources, a greenbelt could
also promote a physically active lifestyle and
generate associated health benefits. It
would be a blueprint for healthy living in
Ontario.
A greenbelt also offers an opportunity to
secure and increase access to a range of
outdoor recreational activities that depend
on nature or natural settings such as fishing,
bird watching, sailing, nature appreciation,
cross-country skiing and camping.
May 2004 ,, 23
ATTACHMENT f, ,, / TO
REPOR'I' # Pi:) ,~-
Tourism
Existing cultural, recreation and tourism
features and attractions within the
proposed Greenbelt Study Area are impor-
tant to Ontario's tourism industry. Agri-tourism
and culinary tourism are growing niche
markets that would build on, reinforce, and
promote greenbelt strengths. The greenbelt
could play a vital role in promoting Ontario
as a premier four-season destination in
both the domestic and international
m a rkets.
An integrated, system-wide planning
approach to the greenbelt would limit
development pressures and encourage
sustainable growth and compatible land
uses. This would help protect the Golden
Horseshoe's irreplaceable cultural heritage
and natural aspects - its open spaces,
farms, woods, gardens, village streetscapes,
historic structures, local museums and
archaeological sites- so that they continue
to benefit the millions who live nearby and
those who visit Ontario.
Proposed
Approaches to
Culture, Recreation
and Tourism
The task force is considering the following
approach to culture, recreation and
tourism:
The greenbelt should be a pubficly valued
and important venue for cultural heritage
and related activities, recreation and
tourism in the Golden Horseshoe. This
should be accomplished through promotion
and marketing initiatives to support
community economic development.
Culture, recreation and tourism opportunities
should respect and be compatible with
other greenbelt priorities (e.g., agriculture,
natural resources and ecosystem protection)
and should strengthen the vitality, integrity
and profile of the greenbelt with:
· recognized and promoted cultural
sites, districts and landscapes
important for community identity,
history and character;
a network of protected public open
spaces where people can enjoy
recreational and leisurely pursuits.
This network includes:
- provincial parks (e.g. Bronte Creek);
- conservation areas;
- navigable waterways; and
- municipal parks and forests;
· private lands with recreation, tourism
and conservation uses;
· a system of trails on pubfic and private
lands, supported by a provincial regu-
latory framework to address issues
such as location and design, user con-
flicts, public safety and liability; and
tourism destinations that support and
depend on farms, natural areas and
rural communities.
24 · Toward a Golden Horseshoe Greenbelt · Greenbelt Task Force Discussion Paper
/ T
ATIACHMENI ~. 2 ~ .:O~)
REPORI ~' PD __
Administration and
Implementation
There are various examples of tools,
approaches and models in Ontario,
nationally and internationally on the imple-
mentation and administration of a Golden
Horseshoe Greenbelt that apply and layer the
preceding approaches for protecting envi-
ronmental, agricultural, specialty and unique
crop lands, key aggregate deposits, and cul-
tural, recreation and tourism opportunities.
The proposed greenbelt will set out where
growth should not occur for the purposes of
the growth management plan now in devel-
opment. The greenbelt will also be integrated
with the larger growth management plan
area to enhance the environment, rural
economy and quality of life for the region's
growing population.
Ontario has a long and successful history of
land-use planning initiatives on which to
build. Initiatives of regional or landscape
scale include:
The Parkway Belt
West Plan (PBWP)
Originally the Parkway Belt West Plan
Act (1978), but subsequently brought
under the Ontario Planning and
Development Act, 1994 (0PDA), this plan
created a multi-use utility corridor, urban
separator and open space system. It is
administered by staff of the Ministry of
Municipal Affairs and Housing.
The Niagara
Escarpment Plan
(NEP)
Act(1973) (NEPDA), the plan's purpose is to
protect the Niagara Escarpment and
maintain lands in its vicinity as a continuous
natural environment, and to ensure only
development compatible with the natural
environment occurs.
The Niagara Escarpment Plan is based on
mapped land-use designations and related
policies that balance environmental preser-
vation with limited forms of compatible
development. It also includes urban areas, but
defers to municipal official plans for detailed
land-use planning within the urban area.
The NEP also sets out an integrated Parks
and Open Space strategy for securing and
managing public lands, and includes much
more detailed development control and
performance standards. The development
permit system was initiated in 1975.
Implementation occurs at two levels. First,
municipalities are required to amend their
official plans and bylaws where applicable
to be in conformity with the NEP. Second, in
order to implement the detailed develop-
ment control and performance standards
contained in the NEP, a Development Permit
System is used. The system uses zoning
and site plan approvals related to a permitted
use granted at one time, as part of an inte-
grated site-specific application process.
The Niagara Escarpment Plan (NEP)is
administered directly by the 17-member
Niagara Escarpment Commission. The
commission is a special-purpose body
responsible to the Minister of Natural
Resources. A staff of up to 22 persons
supports the commission.
Established under the Niagara
Escarpment Planning and Development
May 2004 · 25
ATTACHMENT # ...... / TO
RE~:ORT ~ PD 2 ~ ~ ~ ~
The Oak Ridges
Moraine
Conservation
Plan (ORMCP)
Established under the Oak Ridges
Moraine Conservation Act, 2001, the
plan's objectives are protecting the ecologi-
cai and hydrological integrity of the moraine,
and ensuring that only land and resource uses
that maintain, improve or restore the ecolog-
ical and hydrological functions of the
moraine are permitted.
The plan is based on four land-use designa-
tions: Natural Core, Natural Linkage,
Countryside and Settlement. The Natural Core
and Natural Linkage designations focus on
maintaining and enhancing a major natural
heritage system across the moraine.
Of note, the act does not permit land to be
removed from the Natural Core orthe Natural
Linkage designated areas. Limits of settle-
ment areas can only be expanded in the
context of a change to the plan. They are
considered fixed for at least a lO-year period,
until the next scheduled plan review.
Municipalities are required to bring their
official plans and comprehensive zoning
bylaws into conformity with the Oak Ridges
Moraine Conservation Plan. Municipalities
then implement the provisions.
Other
Jurisdictions
The task force also reviewed greenbelt
examples from other jurisdictions,
including London, England; New York/New
26 - Toward a Golden Horseshoe Greenbelt · Greenbelt Task Force Discussion Paper
Jersey; Portland, Oregon; Napa County,
California; Ottawa; and Vancouver.
Differing social, political, economic and
environmental circumstances make it diffi-
cultto draw detailed comparisons to Ontario's
situation. However, several generalized
comments can be provided on these models.
· To varying degrees, all models focus
on protecting lands from urban growth
pressures.
· All models have an overall plan or
strategy as their basis.
The London, Oregon and Vancouver
examples all contain a component that
is directly tied into the municipal land-
use planning process. The Napa
County model is implemented through
the land-use planning system.
The New York/New Jersey focus is
more on land stewardship, technical
assistance and the provision of funding
for land securement, rather than land-
use planning.
The Ottawa greenbelt is a rare
example of a publicly-owned greenbelt;
most greenbelts do not involve govern-
ment acquisition of greenbelt lands.
· The Oregon and Vancouver models
also contain non-regulatory programs
such as land securement and habitat
enhancement works, in addition to
land-use controls.
Regardless of the model and options chosen,
the administration and implementation of a
permanent greenbelt must be coordinated
and integrated with other related provincial
initiatives, particularly growth manage-
ment, source-water protection, transporta-
tion planning and planning reform.
ArTACH[t,~ENI' #_, /
REPORT # PD---
General Elements
of Greenbelt
Protection
Greenbelt implementation includes a variety
of building blocks, which are sometimes
used independently, but more often in combi-
nation. These elements are:
· policy options to establish the legal
basis and a framework for greenbelt
protection, include legislation that is
greenbelt-specific or enabling; legisla-
tion-based plans to control and direct
and/or guide land use, such as the
Niagara Escarpment Act and plan (NEP),
Oak Ridges Moraine Conservation Act,
2001 and Oak Ridges Moraine
Conservation Plan (ORMCP), Parkway
Belt West Plan under the Ontario
Planning and Development Act, 1994
(OPDA); and legislation-based policies,
such as the Provincial Policy Statement
or an area-specific provincial policy
statement under the Planning Act,
implementation models to discuss
including:
- an entirely new greenbelt entity,
which would replace existing ORM
and NEC arrangements;
- an expansion of the NEC and ORM
areas and plans to cover adjacent
new areas;
- maintenance of the current NEC and
ORM arrangements as anchors, and
the addition of new elements and
connecting links under umbrella Golden
Horseshoe Greenbelt legislation;
- a Provincial Policy Model - a geo-
graphically specific provincial policy,
which would supersede the
Provincial Policy Statement;
administrative options determine who
should implement and administer a
greenbelt. These options could include
a designated commission or agency;
a provincial ministry; municipalities; a
coordinating body; or some combination
of these; and
implementation tools to achieve the
greenbelt's stated vision and goals,
including regulatory mechanisms and
performance standards to regulate
development and activities; provincial
guidelines; and non-regulatory programs
to secure, protect or enhance land, or
to provide for public use, where
deemed appropriate.
Tools for
Implementation
Avariety of regulatory and non-regulatory
tools may be useful to further the vision and
goals of greenbelt protection. These include:
Regulatory Tools:
· Planning Actand municipal land-use
planning mechanisms including official
plans and zoning, such as Napa Valley's
Agricultural Preserve and General Plan;
· Tree conservation, site alternation and
topsoil removal bylaws under the
Municipal A ct, 2001;
· the regulation of waterways by
conservation authorities;
· the Lakes and Rivers ImprovementAct,
· Niagara Escarpment Commission
development permits; and
May 2004,27
,A'~"IACHMENI # / TO
REPOR'I ~ PD 2 ~-o~
· Guidelines such as the Foodland
Guidelines, 1991 ORM Guidelines and
Ministry of the Environment compati-
bility guidelines.
Non-Regulatory Tools:
It is likely that more than 90 per cent of a
Golden Horseshoe greenbelt will be pri-
vately-owned lands where non-regulatory
programs will be an integral part of imple-
mentation. The programs must represent
greenbelt vision and goals while being
respectful of landowner rights and interests.
It is envisioned that greenbelt implementa-
tion may occur through a range of non-reg-
ulatory tools including:
· Public education and land stewardship
information, incentives and special
programs, possibly coordinated by a
proposed Greenbelt Trust Fund, and
conducted by:
- Ontario stewardship councils;
- conservation authorities;
- provincial and municipal
governments; and
- non-government organizations
such as the Ontario Soil and Crop
Improvement Association, Ontario
Federation of Agriculture, Ontario
Nature, Land Trusts, Nature
Conservancy of Canada and Ducks
Unlimited.
Land securement options of privately
owned lands in cooperation with
landowners include;
- conservation easements;
- donations of land;
- bequests of land; and
28 ~ Toward a Golden Horseshoe Greenbelt o Greenbelt Task Force Discussion Paper
- land acquisition on a "willing
buyer/willing seller" basis.
Most of the land securement options will be
eligible for the Ecological Gifts Program, a
federal income tax program.
· Provincial tax incentive programs
available now for landowners include:
- the Managed Forest Tax Incentive
Program;
- the Conservation Land Tax Incentive
Program; and
- the Farm Property Taxation Policy.
Proposed
Approaches to
Administration
and
Implementation
The task force is considering the following
approach to administration and implemen-
ration of the greenbelt:
The greenbelt should be implemented so as
to ensure permanence, integrity and con-
sistency in policy appfication while having
regard to regional differences.
Implementation should be coordinated with
the provincial growth management initia-
tive and:
° be initiated through legislation that
creates a Greenbelt Protection Plan
that knits together:
- the Niagara Escarpment Plan,
- the Oak Ridges Moraine
Conservation Plan, and
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- other lands necessary to fulfil/the
objectives and goals of the greenbelt;
be administered by municipalities out-
side of the Niagara Escarpment
Commission jurisdiction and incorpo-
rated into municipal official plans in a
consistent manner across the greenbelt;
· take advantage of existing administra- tive structures and tools where possible;
· have an appellate tribunal thathas the
expertise to uphold the integrity of the
plan;
· assist municipalities with implementa-
tion work;
· include fiscal measures which fulfill
the objectives of the greenbelt,
particularly concerning conservation
and agricultural viability;
· involve a working group to process
Greenbelt Task Force recommenda-
tions through to the creation of the
greenbelt. This working group would
include municipal staff and other
expert stakeholders from across the
greenbelt; and
· be subject to monitoring performance
standards and a 10-year review.
Non-regulatory programs and tax
incentives:
Where appropriate, landowners in the
designated greenbelt area should be
eligible for special incentives for restora-
tion, protection and stewardship of their
properties.
May 2004 ,, 29
rI
Next Steps
Contact
Information
The greenbelt will be an im,portant factor
shaping southern 0ntarios future. We
want to hear from you.
This consultation document is available on
the Environmental Bill of Rights (EBR) Registry
on the Ministry of the Environment's website
at www. ene.gov, on.ca, and on the Ministry
of Municipal Affairs and Housing's website
at www. greenbelt.ontario.ca. The discussion
paper will be posted on the EBR for 60 days
to provide the public with an opportunity to
comment in writing.
Please send written submissions to:
Greenbelt Task Force
Ministry of Municipal Affairs and Housing
14th floor, 777 Bay Street,
Toronto, Ontario, M5G 2E5
To send your comments directly, please
e-mail: greenbelt@mah.gov, on.ca
Public Meeting
Information
The Greenbelt Task Force invites you to
attend one of the upcoming public
meetings in 2004 to learn more and share
your views and ideas on a greenbelt.
Date Location
May 20 King City
King City Community Centre
25 Doctors Lane
May 25 Oshawa
Durham College
Cafb 71, GOrdon Willey
Building
2000 Simcoe Street North
May 26 Hamilton
Hamilton Convention Centre
The Wentworth Room
1 Summers Lane
May 31 Caledon East
Caledon Community Complex
6215 Old Church Road
June 10 St. Catharines
Canadian Auto Workers
Banquet Hall
124 Bunting Road
June 16 Burlington
Burlington Convention Centre
The Emerald and Queen
Victoria Halls
1120 Burloak Drive
All public meetings will begin at7 p.m. More
information on locations and times will be
posted on the Municipal Affairs and
Housing website.
30 · Toward a Golden Horseshoe Greenbelt · Greenbelt Task Force Discussion Paper
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Freedom of
Information
The 6overnment of Ontario is collecting this
information for the purpose of developing a
greenbelt plan. Any personal information
you provide is collected in compliance with
Section 38(2) of the Freedom of Information
and Protection of Privacy Act. The government
may use this information to contact you
regarding your comments. Please direct
any questions about the collection of
the information to the Provincial Planning
and Environmental Services Branch at
(416) 585-6014 or by mail to the following
address:
Ministry of Municipal Affairs and Housing
14th floor, 777 Bay Street,
Toronto, Ontario, M5G 2E5
May 2004 o 31
Glossary
Features: naturally occurring land, water
and biotic features that are important for
their environmental and social values.
For natural heritage features, these could
include wetlands, fish habitat, woodlands,
valleylands, habitat of endangered and
threatened species, wildlife habitat and
areas of natural and scientific interest.
For hydrological features, these could
include wetlands, kettle lakes, permanent
and intermittent streams, seepage areas
and springs.
Functions: the natural processes, products
or services that living and non-living environ-
ments provide or perform within or between
species, ecosystems and landscapes.
These include hydrological, biological,
physical and socio-economic interactions.
Hydrological Integrity: the conditions of
ecosystems in which hydrological features
and hydrological functions are unimpaired
by stresses from human activity.
Infill: development on vacant lots or under-
developed lots within a built-up area.
Open space: a more or less continuous
open tract of land largely free of buildings
and structures. These lands can be privately
or publicly owned.
Settlement area: an existing built-up area
and surrounding land which has been
designated for development in a municipal
official plan.
32, Toward a Golden Horseshoe Greenbelt* Greenbelt Task Force Discussion Paper
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REPORT # PD
Figure 41: Potential Eastern GTA Greenbelt
...... STOU~FV~!~'-L. OAK RIMES MORAINE