HomeMy WebLinkAboutPD 42-08
Citlf iJ~
REPORT TO
PLANNING & DEVELOPMENT
COMMITTEE
Report Number: PD 42-08
Date: November 3, 200;8
From:
Neil Carroll .
Director, Planning & Development
Subject:
Region of Durham's Growth Plan Implementation Study: Growing Durham
Draft Recommended Growth Scenario and Policy Directions Report,
prepared by Urban Strategies Inc. et ai, dated September 23, 2008
Phase 5
Recommendation:
1. That Report PD 42-08 of the Director, Planning & Development, regarding the
Draft Recommended Growth Scenario and Policy Directions Report, dated
September 23, 2008, presenting the draft recommendations for Phase 5 of the
Region of Durham's Growth Plan Implementation Study, be received;
2. That the comments contained in Report PD 42-08 on the Draft Recommended
Growth Scenario and Policy Directions Report for the Region of Durham Growth
Plan Implementation Study be endorsed, and further that the Region of Durham
and its consultants be requested to make the following changes:
a) Expand the extent of land identified for future living area around Kinsale,
extending both to the west and to the east to Lake Ridge Road, so as to
create a threshold of growth for a complete neighbourhood;
b) Revise the policy restricting major office development from employment
areas, such that it permits major office development at selected freeway
interchanges, thereby taking advantage of transit and increasing employment
densities;
c) Reconsider the timing of the lands in the centre of northeast Pickering
identified for future employment in the post-2031 period, so as to maximize
the logical and orderly extension of services and infrastructure; and
d) Implement the timing changes recommended by Regional Planning
Committee on October 14, 2008, to bring lands for future living area at the
north limit of northeast Pickering from post-2031 to pre-2031, and to change
the lands in northeast Pickering adjacent to Lake Ridge Road from pre-2031
to post-2031; and
3. Further, that a copy of Report PD 42-08 and Pickering Council's resolution on
the matter be forwarded to the Region of Durham, Urban Strategies Inc. et ai,
other Durham Area Municipalities, the Ministry of Energy and Infrastructure, and
the Ministry of Municipal Affairs and Housing.
Report PD 42-08
November 3, 2008
Subject: Draft Recommended Growth Scenario and Policy Directions
J)
,-
Page 2
i .
Executive Summary: On September 23, 2008, the Region of Durham released for
comment a report entitled Draft Recommended Growth Scenario and Policy Directions.
The report is the preliminary recommendations from Phase 5 of Region's Growth Plan
Implementation Study, entitled Growing Durham. The Study is being undertaken for the
Region by Urban Strategies Inc., Watson & Associates and TSH. The Region of
Durham is undertaking public and stakeholder consultation for this study.
The consultants should be congratulated on completing a significant amount of work
refining the Draft Recommended Growth Scenario and policy directions in a short
period of time. A copy of the Recommended Growth Scenario is provided as
Attachment #1 to this Report to Council. The Region requests comments on the Draft
Report by October 24, 2008. A Final Report is to be released on November 25, 2008.
Pickering Council commented on the Phase 3 & 4 Report, Scenario Evaluation and
Recommended Preferred Growth Scenario Working Paper dated June 10, 2008. Many
of Council's comments have been addressed in the latest Report (see discussion in
section 3.6 of this Report to Council).
Staff's review of the Draft Recommended Growth Scenario and Policy Directions Report
concludes with four main findings:
(a) the overall density and housing mix assuniption~ to achieve the intensification and
density targets are supportable;
(b) the arrangement of future living area and future employment area is logical with
the exception of the inadequate extent of living area around the existing Hamlet of
Kinsale (see Item 1 on Appendix I to Report PO 42-08);
(c) the policy direction focusing major office development (being greater than 10,000
square metres or 500 or more employees) to "centres" and "corridors" and
restricting them from employment areas should be revised to permit major office
development at selected freeway interchanges to take advantage of transit and to
increase the number of jobs per hectare; and
(d) the creation of a 'hole' within the 2031 urban area for northeast Pickering should
be reexamined to take advantage of logical and orderly servicing (see Item 2 on
Appendix I to Report PD 42-08).
A revision to the timing of certain future living area lands in northeast Pickering
recommended by Regional Planning Committee on October 14, 2008, is also of no
concern to staff (see items 3 and 4 on Appendix I to Report PD 42-08).
The time frame for commenting on the Study Report is extremely limited, and
insufficient to accommodate Council's meeting schedule. The November 3, 2008
Planning & Development Committee is the earliest possible time frame in which to
provide comment. Accordingly, the recommendations of the Planning & Development
Committee will be forwarded to the consultants as well as the follow-up
recommendation of Council.
Report PD 42-08
November 3, 2008
Subject: Draft Recommended Growth Scenario and Policy Directions
Page 3
3
Financial Implications: No direct implications from providing comments on this
phase of the Growing Durham Study.
Sustainability Implications: Responsible Development, one of the five objectives in
Pickering's framework for sustainability, is central to the purpose of the Growing
Durham Study. The comments and recommendations contained in this Report to
Council are intended to support the importance of achieving intensification in existing
built up areas and meeting minimum density targets in new Greenfield areas, planning
new Greenfield areas as complete communities and strengthening existing settlements,
creating opportunities for major office jobs in employment areas; and extending urban
areas in a logical and orderly fashion.
Background:
1.0 The Growina Durham Study
1.1 Section 1, the Introduction, of the Draft Recommended Growth Scenario and
Policy Directions Report summarizes the Growing Durham Study to date.
The introductory chapter of the Draft Recommended Growth Scenario and Policy
Directions Report is provided as Attachment #2 to Report to Council PD 42-08 as
it gives a synopsis of the following relevant background material: the scope and
objectives of the Growing Durham Study; the work completed to date on the
initial growth assessment, the scenario evaluation and the preferred growth
scenario; the directions of Regional Planning Committee, the Consultation
Process; and the purpose and structure of the Draft Recommended Growth
Scenario and Policy Directions Report.
A copy of the full Report is available for viewing at the Pickering Planning &
Development counter, and may be downloaded from the Region of Durham's
website at www.reoion.durham.on.ca .
1.2 Pickering Council commented on the Scenario Evaluation and Preferred
Recommended Growth Scenario Working Paper that was released on
June 13, 2008.
On July 17, 2008, Council considered the recommendations of Report to Council
PD 32-08 on the Recommended Preferred Growth Scenario (see text of Report
PD 32-08, Attachment #3). While Council generally supported the land use
structure set out in the Preferred Growth Scenario, a number of revisions were
recommended to the land use structure and a number of clarifications were
requested. A copy of Council's resolution on the matter is provided as
Attachment #4.
Report PD 42-08
November 3, 2008
Subject: Draft Recommended Growth Scenario and Policy Directions
44
Page 4
2.0 The Draft Recommended Growth Scenario and Policv Directions Report
2.1 The Draft Report presents a growth scenario for Durham Region
comprising a map, related policy directions, and characteristics of
development to achieve that growth.
The Recommended Growth Scenario is based on a market-influenced but
policy-driven approach. The map showing the location, type and timing of
development must be read in the context of key policy directions, and with an
understanding of the assumptions on density and housing mix for the different
types and locations for growth.
2.1.1 The map showinQ the Draft Recommended Growth Scenario shows existinQ and
proposed development areas and time frames for development.
A copy of the map showing the Draft Recommended Growth Scenario is
provided as Attachment #1 to this Report to Council. For existing urban and
designated Greenfield urban areas, the map shows a number of structural
elements where growth is to be accommodated. These structural elements
include existing and proposed centres, mobility hubs, regional and local
corridors, and waterfront villages. Employment and living areas, existing and
proposed GO Station are also identified.
For proposed new urban areas, the map shows the future employment and living
areas, with an additional indication of whether the land is required prior to 2031
or between 2031 and 2056. The urban structure elements of future centres, and
future regional and local corridors are also identified.
2.1.2 The Report provides draft policv directions for a number of key topics.
The topics and selected policy directions are listed below. The full list of policy
directions (except for those pertaining to the Northern Communities) is provided
in Attachment #5:
1) Guiding principles and objectives;
2) Regional urban structure;
3) Intensification;
4) Designated Greenfield lands;
5) Employment;
6) Infrastructure planning, transit and servicing;
7) Environment;
8) Phasing growth;
9) Urban boundary expansion; and
10) Monitoring and ongoing review.
Report PD 42-08
November 3, 2008
Subject: Draft Recommended Growth Scenario and Policy Directions
Page 5
r
:)
The Report also identifies some implementation tools to assist in achieving the
objectives of the study. Most of the tools are not new, or were identified in the
latest changes to the Planning Act. Some of tools are not yet available for use in
Ontario. However, the consultant's intent in identifying them is to ensure the
Regional Plan enables their use should the necessary legislation or regulations
come into effect.
2.1.3 Appendix D of the Draft Recommended Growth Scenario and Policy Directions
Report describes the characteristics of the urban structure elements necessary
to meet the intent of the policy directions.
The Growing Durham Study proposes a number of "urban structure elements" to
build the urban fabric. Some examples of these structural elements include
urban growth centres, mobility hubs, regional corridors, waterfront villages,
nodes and living areas.
For each of these structural elements,. the consultants have assigned a specific
set of assumptions on the mix of housing forms, the average and minimum
density ranges, and examples of existing developments that represent the type
of structural element. These assumptions, as well as photographs of
representative developments are detailed in Appendix D to the Draft
Recommended Growth Scenario Report. It is anticipated that some but not all of
this detail would be incorporated in the policies for new development.
2.2 The Draft Recommended Growth Scenario is the result of the consultants
review of comments, revised assumptions and analysis, and assessment
of growth against the Study's objectives.
Many changes were made by the consultants in moving from the Preferred
Growth Scenario of June 2008 to the Recommended Scenario of September 2008.
Many of the changes are interrelated.
Attachment #6 to this Report to Council identifies key changes made by the
consultants that are particularly relevant to Pickering. The changes include
modifying assumptions for the housing demand and supply forecasts, revising
the employment demand and supply forecasts, reexamining growth from both a
Regional perspective (top down) and from the local perspective (bottom up),
adjusting the arrangement of lands for future employment and living area,
differentiating between lands required to 2031 and lands need to 2056, and
checking the resulting land use structure against the principles and objectives of
the Growing Durham Study.
Report PD 42-08
November 3, 2008
Subject: Draft Recommended Growth Scenario and Policy Directions
, i, ,I b
Page 6
3.0 Discussion
3.1 Based on review to date, staff supports the revisions to the housing mix,
densities, and assignment of growth to future corridors and centres to
achieve the requirements of the Provincial Growth Plan.
The Recommended Growth Scenario Report does not yet include details of all of
the modeling for each municipality yet. It is anticipated that these details will
appear in the Final Report. Based on the aggregate information that is available
to date, the consultants appear to have reached a housing density and
employment mix that will achieve the Provincial Growth Plan targets for existing
built up areas and new Greenfield development. The average densities will be
higher than those experienced in Pickering in recent years, and the proportion of
low density housing will be less. Pickering will supply a significant amount of the
medium and high density development in the Region. Higher intensities of
development are consistent with a more sustainable, transit-supportive
community.
3.2 The future living area around the existing Hamlet of Kinsale should be
expanded to create a sufficient threshold for a complete neighbourhood.
Staff generally agrees with the location of future employment lands and future
living area lands in northeast Pickering, with the exception of the small extent of
living area around Kinsale. For employment lands in northeast Pickering, the
consultants have reflected Council's request to increase the depth of
employment lands along Highway 407 in Pickering. Compared to the Preferred
Growth Scenario of June 2008, Pickering has nearly twice as much future
employment land identified in this area.
In northeast Pickering, most but not all of the future living area lies north of the
Seventh Concession Road. One area to the south is around the existing Hamlet
of Kinsale. Although specific numbers are not provided, very limited amount of
new living area is identified. Staff recommends a larger extent of future living
area be established around Kinsale so that it may achieve a threshold for a
complete neighbourhood. Staff suggests a minor expansion to the west and
expansion to the east to Lake Ridge Road (see the lands identified as Item 1 on
Appendix I). Strengthening an existing hamlet is also consistent with one of the
Study's principles, reinforcing and building on existing regional settlement and
i nfrastructu re patterns.
3.3 The policy direction focusing major office development to "centres" and
"corridors" in living areas should be relaxed to allow selected locations for
major office at freeway interchanges in employment areas.
Staff supports the concept that a primary location for major office development
(defined as offices over 10,000 square metres or having 500 or more employees)
are "centres" and "corridors" in the living area.
Report PD 42-08
November 3, 2008
Subject: Draft Recommended Growth Scenario and Policy Directions
Page 7
l
However, policy direction restricting major development from employment areas
is missing opportunities to maximize intense development around freeway
interchanges, particularly where a transit system is in place.
To illustrate this point, the recently completed Highway 407 (Seaton)
Employment Lands Study commissioned by the Province of Ontario as part of
the implementation of the Central Pickering Development Plan recommended a
designation of "Office-Oriented Centres" at Highway 407 interchanges. The
rationale for this designation included taking advantage of future transit stations
and helping increase the jobs per hectare ratio in the employment area.
It may be appropriate to establish criteria for the introduction of major office
subject to conditions such as the transit being in place and other design
performance criteria such as underground parking to minimize the footprint of the
office in the employment lands.
The consultants are requested to exempt Seaton from this proposed policy
direction.
3.4 Staff recommends the consultants re-examine the 'hole' in the 2031 urban
fabric for northeast Pickering that would leave significant, serviced future
employment area in the post 2031 urban area.
In developing the Draft Preferred Growth Scenari~, the consultants added lands
for future employment area required for 2031 along Highway 407 in Whitby, in
the vicinity of the 401-407 connectors. There were two reasons for this. The first
was to address this area's highly accessible location. The second was to add
future employment area to the future living area in north Whitby to allow the
creation of complete communities. Staff has no concern with the identification of
employment land along Highway 407 in the vicinity of the Whitby 401-407
connector and concurs that it is a strategic location for employment.
However, based on the latest information about servicing for northeast Pickering
and northwest Whitby, it appears the lands in the vicinity of the connector will be
at the very end of the proposed sanitary sewer. The sewer is expected to be
extended from the west to the east (that is, from Pickering to Whitby). Yet, the
Draft Report identifies the lands a~ound the connector as required within the
2031 horizon. Significant upfront funding is likely to be required (by the Region,
or by landowners) to extend servicing to this strategic location within.
There is only a finite amount of employment land required to 2031. Therefore,
the addition of land in Whitby required a decrease in future employment land
elsewhere in the Region, more specifically in Pickering. As a result, future
employment lands in northeast Pickering located along Highway 407 are delayed
to the 2032-2056 period.
Report PD 42-08
November 3, 2008
Subject: Draft Recommended Growth Scenario and Policy Directions
Page 8
I l' ) d
It is staff's opinion that these lands will be serviced sooner than the lands near
the connector, because servicing will be extended north in Pickering to living
area lands required to 2031. This will leave a 'hole' in the 2031 urban fabric.
With these lands in a different time frame, important planning and other studies
such as development charges are unable to include these lands.
The consultants are requested to re-examine the timing of the central block of
future employment area in northeast Pickering, (see the lands identified as Item
2 on Appendix I) One option would be to reconsider the timing of lands for future
employment area adjacent to the airport to the post 2031 time frame.
3.5 Staff has no objection to the changes recommended by Regional Planning
Committee on October 14, 2008, to the timing of certain Future Living Area
lands in Pickering.
During the consultation period on the Draft Recommended Growth Scenario and
Policy Directions Report, a meeting of Regional Planning Committee was held.
Committee passed a motion to advance the timing of the future living area at the
north-central edge of northeast Pickering to the 2031 time frame, and to delay
the timing of a block near Lake Ridge Road to 2032-2056 time frame. Items 3
and 4 on the map provided on Appendix I illustrate this change.
Both blocks of land are at the end of their respective servicing lines and both
blocks of land are within Pickering. Staff has no objection to this change.
3.6 Most but not all of Council's comments on the Preferred Growth Scenario
of June 13, 2008 were included in the Draft Recommended Scenario.
Pickering Council requested numerous changes to the Preferred Growth
Scenario (see Council Resolution, Attachment, #4, and a copy of the
Recommended Preferred Growth Scenario from June 13, 2008, Attachment #7).
Some of the key changes that appear to have been addressed in the Draft
Recommended Scenario are as follows: expanding the width of the employment
land designation near Westney Road and Lake Ridge Road; reserving
employment and living area lands needed beyond 2031; supporting watershed
plans as prerequisites to secondary planning; clarifying and simplifying the
characteristics of nodes, centres and transit villages; identifying policy directions
to prohibit major retailing in employment areas; and identifying strong policy
directions for phasing. In addition, the Region of Durham Council has supported
the preparation of a fiscal impact and infrastructure study for the final growth
scenario, as Pickering Council requested.
Report PD 42-08
November 3, 2008
Subject: Draft Recommended Growth Scenario and Policy Directions
Page 9
Specific employment figures are not identified in the Draft Recommended Growth
Scenario and Policy Directions Report, so it is not clear what assumptions were
made about the Central Pickering Development Plan's provision for 35,000 jobs
in Seaton. The Recommended Growth Scenario does not expand the future
centres in northeast Pickering to t,he Highway 407 transitway, nor did the Region
hold a public meeting in Pickering, as requested by City Council.
4.0 Next Steps
Comments on the Report are requested by October 24, 2008. Urban Strategies
has been advised that Pickering will be submitting its comments following the
Planning Committee of November 3, 2008. There is an extremely short time
frame for commenting as the Final Recommended Growth Scenario and Policy
Directions Report will be released on November 25, 2008.
Following a comment period on the Final Report, Regional Planning staff will
draft an amendment to the Durham Regional Official Plan to implement the
Growing Durham Study. The amendment will then be processed according to
normal procedures including public meeting,
Appendix:
I: Extract of Figure 3B: Recommended Growth Scenario: Balanced Growth
Attachments:
1. Draft Recommended Growth Scenario, September 23, 2008
2. Introductory Chapter to Draft Recommended Growth Scenario and Directions
Report, Growing Durham Study, September 23, 2008
3. Text of Report to Council PD 32-08
4. Council Resolution #140108, July 14, 2008 for Report PD 32-08
5. Summary of Key Policy Directions by Topic
6. Summary of Main Revisions to the Assumptions, Methodology or Analysis
Having Reference to or Impacting Pickering
7. Recommended Preferred Growth Scenario, June 13, 2008
Report PD 42-08
November 3, 2008
Subject: Draft Recommended Growth Scenario and Policy Directions
Page 10
It'
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Prepared By:
Approved/Endorsed By:
(?~
Catherine Rose, MCIP, RP
Manager, Policy
Neil Carroll, PP
Director, Planning & Development
CR:cs
Copy: Chief Administrative Officer
Recommended for the consideration
of Pickering CitY"Councit'
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APPENDIX I TO REPORT TO CO UNCI L PO 42-08
1 0 1
D
~'lem 3: Regional Planning
Gommitee changed to
"New Living Area Required
to 2031"
Item 4: Regional
Planning Commitee
changed to "New living
Area Required to 2056"
Item 2: Change to IINew
Employment Lands
required to 2031"
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RECOMMENDED GROWTH SCENARIO: BALANCED GROWTH
LAKE ONTARIO SHORELINE MUNICIPALITIES
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TH S MAP WAS PROCUCED fJ( THE OTY OF P1O<ER1NG.
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In 2006 HiE:: Province of Ontario rcic~ased Fie Growth Pian
for' the Greater Golden Horseshoe, In accordance 'vvith
Hie policies of Fie Growth Pian, the of Durhan1 is
required to pian for 960.000 peopie and 350,000
vvcrk:ng, Uv:~ LiY thc: yedr 2031. The' of
Durharn ha:::; recenty undertaken conipreheriS!V'e ~:::;tuc1ie:,s
as part of HH:::
Officiai Pian (nOP) rCVlf>N prOCC:3s
(wh:cl1 concludecJ Ofh~lai Pi;,Hi !\n)endnlE~nt 1J,4;,
()n tile Officldl PiEH"1 ReView process :3rH1
In resoonsc tel trH; Growth Pi;:H1 (frection. t.he of
Durharn inl1!(:rtec.! the Durt18!rl in 200T
TIllS study \lVIII prepare recornrncndcd policy responses th;::~t
vyi li the Ofhci2 i PIa n into \vith the
Growth Piarl policies, In panicular, the mdm objectives of
Hie Durllanl study are to:
,. /\llocate the populatlon and 2:nployrrlen1 forecasts
in Schecluie :3 of U"")c Growth Pi:Jn to the
iJrCa
n'1U(liClpalr\:iCS for
penoci 203.1.. With <.~ n extended
()utloo~~ t.o 2056 to ;]ssist iongpfange :nfrastnlctufc
11 Dcvc~iop a strategy and poi:cles to ph21s(~ in and ach:cvc
a 40';~: annual rate of resll::1enba! Intensification \vithin trv:;
Bulitl,lp Area by 2015:
· Plan for Gesignateci Greenfield areas to achieve a
rnirwrwrn denSIty of 50 peopie and Jobs per hectar(;;
· Plan tor a cOlrhined densit.y of 200 people and johs. per
ihiocta re in
Urban Gi'owth Centres;
is> Assess the aciequ3cy of the supply emDiov!ilent lands
to (:1ccornnlcdate the Grovvtri Pian forecasts and key
principies trle
OffiCial Pian; and
$1 Assess the need kit iJrlJan bouncJary expanS!Yi and new
urban Janet
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The Durham StuCy (esuiL~ l(l a r-ccornrnencled
Cro\<vth Scenario for Durhanl to 203.1.. and
rccornrnendations to tnanage
in the
in
a manner that conforms to the Gro\vth Plan policles,
lniplementation of the GnJwtr~ Plan will have n-np!lcations
on the pattenis. economic c18vs!opnlent,
tr;::jnsportation and infrastructure networks, anC natura!
systerns, ;\ rnaJor component of thiS stuCjy riDS
the sceue of the~3e Ifr pi icatlons, hcwv' they
~)c:c~ t]
urr);:Hl patH::rn that dppr'()pnatJ,: fc)r
l)Y policy rccnrnmendat;ons an(j tools to
~ ill plernent Hie desl (C;'C] pattern of growUi,
L2
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The
2007 and has
DtnllcWl
:n
been lmderta~\en !1l five phases, as jilustrated in
.1. The report of Uie hrst t\VO p1'!aS2S, tiUe{j "Phase .1. & 2:
Surnrnary of Understanding cHid initial GrowU1 J\sses:;:;rncnt"
"!na,ial Growth I\sse'ssrne'nt."), was re!ea:.::;ed in
cHaft form in Decernber 2007, Hnd in final fonn in May
;?008, Tli;:)t tepof"t outlined a basel!;'H;:: ()f
ell (rer':t
tJf'()jectcd patterns in the F(c'!!i(Y) The report of
third (",H"H.1 fourU"i pha~)esi titlecj "SCS!)C;lrlO E\/aluation and
ReconHiK:ncied Preferred Growt1'J Scendno Paoer
(the "Growth Scenano Vvod<,ing Paper") was r(;!cased jn
lJl'aft fO(nl In May 2008. and in hnal fonr, With reVISions as
per duccton frOlll Planning Committee, HI June 2008, An
overview eaCfl of Uiese reports is pnwided !)elow,
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Reconnaisance
Base C=ase Scenario
(Market-driven)
Rehnetnents to Base Case
Scenario
ltegional C;ro\vth Plan ()utlook
Alternative Growth Scenarios
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FIC;UREI
Preferred C;ro\vth Scenario
~
rtecornlncndcd C;ro\vth Scenario
1. C:ontinuing a [)o111inant
Western Anchor
2. Focusing on a C=entral
Hub for Durhan1
3. Iteinforcinba Existina
b
C:0111111Unities
Principles! Goals
()bjectives
Measures
High, Mediu111, Lovv
F~ine tuning the preferred
gro\vth scenario
Irnplelnentation irnplications
& strategies
Policy reconllnendations
9
,1
rhe Initial Growth .Assessrnent 2'7,
20(8) an overvie\v of the (ec()n na iSSd nee
and irdtial growth assessrncnt cornponetlts of tin:::
Durharn The report thecl cstah!isfl(:d
2) rnarket-.drjven Base Case Growth Scenario ("Base
assessed recent and anticipated rnarhc~l
conditions, as well as the population forecast
in the Provincial Growth PiEHl, The Base
Case was esta blished to assess whether the rnarket.
d nven sccna r~o 'NOU ld rcsu 1t in the; aclj ievcrncnt of
the intensification and designated Greetlfield !anc!s
and whether the Regior'J has a sufficic:nt
supply of It.Hld withm the current urban boundary to
accornrnoda1.e the planned growth, 'rhe Inlt.ia! Growth
Assessment concluded U1Dt between 2006 and 2031
on the basis of rnarket forecast the Region would not
deh ievc: the C; rowth Pia n mtcnsi-rication or the
Greenfield cornbined and that Futu(e
Crowth Areas would be t.o accornrnodate the
forecast levels of growtho
1 .:2
l\
)
The Growth Scena ria Working (June 13.
provided t.he out.conlf; of the t.hird and fourtli
of the Durharn in (r Uk:
report:
I Growth Plan Outlook rrlo(k~,j
to address Growth Plan
Outlook budt on the: Base'
Case Scenario and reflned it to how, at a
regional Durhanl Gould conforrn to the Growth
10
~)
Plan
Dnd
of aCC0t11rrlodating the forecasts
the Growth Plan
Hlree Alternative Growth Scenanos and
initialloca! a!iocatlons, [)ased on a
Influenced Crowth F)!an Outlook !nfluencc.:d
Out 100!\"): d neJ
~ Provided an assessrnent of throe A!ternativ(~ (:)rovvth
Scenarios and on this basis recornnlended a
Preferred Growth Scenario, The f)ret'erred Growth
Scenaric) (Scenario 3) was HUed REINFORCING
EXISTING COiVl/\:1UNITfES, arKl involved the
for !ancis for future growtl1 in a rnanner
that reinforced the urban structure <H1(j
distrihuted gr()wth across the The Scenario
ba!a need futu re growth across the La ke
Ontario slJoreline and rneasurcd
growth in the Northern cornrnunitles.
l~.
f\ [j P
N
The Growth Sc'enrH"IO Working
to Durhanl
(Planning on June 3.2008. Planning
Ccnnnlitt.ee directed the consult.ant to consider
the follovving reflnernents to H)e influenced
to nIt-: PrefE:rrecJ Scena rio:
east o"f tl'lC <Jirport
lands;
{f An
a long the
of the ern ployn~lerlt IfJ ncJs
407 extension in i\Jortheast
i I
h
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south to Higrlway 7;
$ As a r(;sult of any additional terrn ernp!oyrnerlt
!<Hle! need in future urban jandsl the extension of
future living Area lands m North \Nhitby to
Road:anci
., The identification of
Mobility Hub candidcHe,
Planning CornrniUee direction was incorporat'ed into
a revised Growth Scenario \/Vorhing which \vas
re..re!eased June 2008,
Town Centre as a
A consultation period was initiated
the JUlIe :J3, 2008 rcrc:iease of the
Pa peL t.,s of the consu !t;Jtion process, a pu b! Ie
open !')ouse was held on June 25, 2008 where the
alternative scenario evaluation and preferred
growth scenario were ltl addition,
wod\ing sessions were: hEdd with a rea rnunicipaj
staff to discuss Hie finclings in the report and collect
feedbacl\"
At the end of the consultation aH
fonnaJ subnl1sslons and cornrnent.s received at the
public open house and working sessions with area
rnunicipa1 staff were collected, synthesized and
considered as pa rt of the ren ned and lJO! icy
rccornrnendations included In thIs report A surnrnary
of the subrnissions will be subrnittecl t.o Planning
COrlHnrttee under separate report
\V
,nr S
The rnain purpose of this final of the Growi!jg
Durharn is to utilize detailed analys!s to create
'(1 necornrnended Growth Scenario for Durhan!. This
report, the "Recornn1cncJed Gtowth Scenario and
"
~:-)
i-I ,~ -
Policy Directions "Growth Scenario and
Policy Directlorjs a Recorn rnendec1
Growth Scenario for Cornrnittee
consideration, The report is structured around thc~
process of developing a Recornrnetldcd Growth
Scerla rIO,
The
the
rna nagerncnt that have beetl cons!c1erc'cJ
the r1ecornrnended Groi/v'th Scenario
It then descrlbes the retincrnents
that were uncl(:'.rtahen to the
and
Hie toea! iy ! nf! uencecl !\na for the F'refcned
REINFOr1CfNG EXISTiNG COt,AtVIUNfTfES
SectIon 3 a ISO provides the outcorne of
the ref! nod at the level a nd the
LaCEd!y I nf! uenced to 2031, a nc! to 2056,
Section 4 reviews the allocations arHj lJrban structure
H18 G rO\rvth PIa n OfJjectives and
of REINFORCING EXISTING COtvll\:1UNrr!ES and
identifies final adjusttnents
Recornrnendcci Growth Scenano,
to finalize the
Section 5 of the rc:port outlmes
for Dudlarn in conforrnity with the Growth
Plan and accornrnodating growth in rpore conlpact
forms in tl and rnanner. Section
C conc:!udes with recornmended policy
directions in support of Hie f~ecornmended Growth
ScenarIo, the Recornrnended Growth
Scenario, inlplernentation and policy direcUons
the foundation and direction for long terr))
patterns that wi!! create sustainable
and corn cornrnuniUes as envisioned in DurhEHn's
OfficiE11 PLan and Province1s Growth Plan.
11
eil,! iJ~
REPORT TO
COUNCIL
']
.I
PICKERING
Report Number: PD 32-08
Date: July 14, 2008
From:
Neil Carroll
Director, Planning & Development
Subject:
Region of Durham's Growth Plan Implementation Study: Growing Durham
Phases 3 & 4
Revised Scenario Evaluation and Recommended Preferred Growth
Scenario Working Paper, prepared by Urban Strategies Inc. et ai,
dated June 13, 2008
Recommendations:
1. That Report PD 32-08 of the Director, Planning & Development, regarding the
Revised Growth Scenario Working Paper presenting the outcomes of
Phases 3 & 4 of the Region of Durham's Growth Plan Implementation Study be
received;
2. That the comments contained in Report PO 32-08 on the Recommended
Preferred Growth Scenario for the Region of Durham Growth Plan
Implementation Study be endorsed, and that the Region of Durham be
requested to:
a) support the land use structure with Planning Committee directions noted,
shown on Figure 13 B and provided as Attachment #2 to Report PO 32-08
with the following further refinements:
· increase the depth of the future Employment Areas in Pickering along
Highway 407, east of Westney Road, to a minimum 600 metres, and
where appropriate, increase the depth on selected blocks up to
1,000 metres;
· support the designation to future Employment Areas of the remnant parcel
of "whitebelt" lands located east of the airport and north of large block
Planning Committee directed be designated as future Employment Areas;
and
· expand to the south the Future Centres designation, currently shown at
the two intersections of the Seventh Concession Road with Salem and
Lakeridge Roads, to incorporate the Highway 407 transitway stations and
adjacent lands, thereby allowing mixed residential, commercial and high
intensity office uses, and consider designation of a future transit village on
the south side of the Highway 407 transitway;
Report PO 32-08
July 14, 2008
Subject:
d
Growing Durham - Revised Scenario Evaluation and Recommended
Preferred Growth Scenario Working Paper Page 2
b) in updating the tables and charts respecting population and employment for
Pickering corresponding to the revisions to the Recommended Preferred
Growth Scenario, increase the employment figures for Pickering to include
the 35,000 jobs identified by the Provincial Central Pickering Development
Plan for Seaton, and allocate jobs arising from the future Employment Areas,
future Living Areas and intensification in South Pickering, at a ratio of no less
than one job for each three new residents as is applied across the rest of the
Region;
c) in detailing the policies for the Recommended Preferred Growth Scenario,
· establish strong phasing policies respecting the timing and process for
local municipalities to bring new "whitebelt" lands into the urban area in
order to address the logical and orderly phasing of growth with municipal
fiscal priorities;
· establish new policies prohibiting large format retailing from future
Employment Areas;
· establish strong phasing policies respecting future Living Areas that may
be affected by incompatible noise from a possible future Pickering airport
so as to prevent major residential or other noise sensitive uses from being
established until a decision is made on a possible future Pickering airport;
and
· better clarify the different characteristics of Transit Villages, Urban Nodes,
Future Centres and Waterfront Villages;
d) with respect to strategic future Employment Areas addressing the need
beyond the 2031, work with the Ministry of Public Infrastructure Renewal to
establish policies permitting the Region to acknowledge as part of current
Regional Plan conformity amendment, the long term intended use for these
lands as future Employment Area;
e) support the City of Pickering in its request to the Ministry of Transportation in
commenting on the Highway 407 Environmental Assessment, to relocate the
proposed Highway 407 maintenance yard from the south side of the
proposed interchange with Salem Road to allow maximum intensification
around the Highway 407 transitway;
f) obtain from Urban Strategies and forward to area municipalities the detailed
information on the amount, types and locations of intensification used in the
background work not contained in the Working Paper; and
3. Lastly, that a copy of Report PO 32-08 and Pickering Council's resolution on the
matter be forwarded to the Region of Durham, Urban Strategies Inc. et ai, other
Durham Area Municipalities, the Ministry of Public Infrastructure Renewal, the
Ministry of Municipal Affairs and Housing, and the Ministry of Transportation.
CORP0227-07/01 revised
Report PD 32-08
July 14, 2008
Subject: Growing Durham - Revised Scenario Evaluation and Recommended
Preferred Growth Scenario Working Paper Page 3
~)
/
Executive Summary: On June 13, 2008, the Region of Durham released for
comment a report entitled Revised Scenario Evaluation and Recommended Preferred
Growth Scenario Working Paper, incorporating the Directions of Regional Planning
Committee on June 3, 2008. The report is the outcome of Phases 3 & 4 of the
Region's Growth Plan Implementation Study, entitled Growing Durham. The Study is
being undertaken for the Region by Urban Strategies Inc., Watson & Associates and
TSH. The Region requests comments by July 14, 2008.
Phases I & 2 of the Study examined issues related to growth in each municipality, plus
an analysis of how growth would occur if current trends continued. Phases 3 & 4
analyzed alternative growth scenarios for the Region and resulted in a Recommended
Rreferred Growth Scenario. Phase 5 will be the refinement of the Preferred Growth
Scenario, and will be the basis for the preparation and processing of an amendment to
the Durham Regional Official Plan in late 2008 and early.2009.
For Pickering, the Recommended Preferred Growth Scenario as revised by Planning
Committee, identifies the need to designate lands beyond the current urban area
(South Pickering and Seaton) to accommodate future employment and residential land
needs to 2031. The Scenario is shown on Firgure 13B and is provided as
Attachment #2 to this Report to Council. In essence, all lands in north-east Pickering,
commonly referred to as the "whitebelt" lands in the Provincial Places to Grow Plan, are
proposed for future urban uses.
Also for Pickering, the Scenario includes the identification of a Mobility Hub at South
Pickering's GO Station, a Waterfront Village around Frenchman's Bay, and includes
intensification in Pickering's Urban Growth Centre and other corridors and centres.
Staff supports the Revised Recommended Growth Scenario, subject to a number of
further revisions. These revisions include the following:
. increasing the depth of the future Employment Area lands adjacent to Highway 407;
. updating the employment tables to reflect the 35,000 jobs set out for Seaton in the
Central Pickering Development Plan while maintaining Pickering's jobs to residents
ratio at no less than 1:3 elsewhere in Pickering;
. expanding the Future Centres in north-east Pickering at Salem and Lake Ridge
Roads to pick up intensification and mixed use opportunities associated with the
Highway 407 transitway;
. identifying a remnant of whitebelt lands as future Employment Areas; and
. providing detailed background work on intensification.
CORP0227-07/01 revised
Report PD 32-08
.....'")
....~
'\
July 14, 2008
Subject:
,\
'".J
Growing Durham - Revised Scenario Evaluation and Recommended
Preferred Growth Scenario Working Paper Page 4
Building on this last point, the Region is also requested to support the City in its
comments on the Highway 407 Environmental Assessment to eliminate the proposed
works yard on the south side of the Highway 407/Salem Road interchange. The
purpose is to allow maximum intensification around the Transitway.
In moving forward to Phase 5 the Region and its consultants need to establish a strong
policy framework addressing the following:
· phasing on the timing and process to bring new lands into the urban boundary;
· phasing to reflect the uncertainty of an airport being constructed and the resulting
potential for some Living Area lands to experience noise if an airport is developed;
· protecting for strategic, long term Employment Areas beyond 2031; and
· clarifying the distinguishing characteristics of the Urban Nodes, Waterfront Villages,
Future Centres and Transit Villages.
Financial Implications: No direct implications from providing comments on the
Phases 3 & 4 Working Paper of the Growing Durham Study
Sustainability Implications: The recommendations contained in this Report to
Council respecting increasing the employment assigned to Pickering, increasing the
depth of the future Employment Areas, and requiring the timely phasing of new urban
areas are aimed at increasing the economic sustainability of the City.
Recommendations to establish expanded Urban Centres and 1 or Transit Villages
around the Highway 4071 Salem and Lake Rridge interchanges is intended to enable
responsible development to occur around a transit station.
1.0 Background
1.1 The Region is implementing the Province's Growth Plan for the Greater
Golden Horseshoe through a Growth Plan Implementation Study entitled
"Growing Durham".
In August, 2007, the Region of Durham commenced a 5-Phase Growth Plan
Study. The Growth Plan Implementation Study has three fundamental purposes:
to provide a policy framework that meets the Growth Plan requirements; to
develop a growth strategy that will guide the Region's development until 2031;
and to allocate that growth to the individual local municipalities. The study is
being undertaken for the Region by Urban Strategies Inc., Watson & Associates
and TSH.
CORP0227-07/01 revised
"'-1
Report PD 32-08
i,.~ _
(.I
July 14, 2008
Subject: Growing Durham - Revised Scenario Evaluation and Recommended
Preferred Growth Scenario Working Paper Page 5
'I
,
In February 2008, Pickering City Council commented to the Region on the
Growth Plan Implementation Study Draft Phase 1 & 2 Report: Summary of
Understanding and Initial Analysis (see Report PD 08-08, Attachment #1).
Phase 1 & 2 of the Study examined growth issues in each municipality and
analyzed growth patterns if current development trends did not change.
Phase 3 & 4 of the Study examined alterative scenarios for growth within
Durham, evaluated those scenarios, and recommended a preferred growth
scenario. In late May and early June, 2008, the following reports were released
by the consultants:
· Scenario Evaluation and Consultant Recommended Preferred Growth
Scenario Working Paper, dated May 27, 2008;
. Addendum Report, dated June 2, 2008 (issued to correct mapping errors
following meeting with area municipal staff); and,
. Revised Scenario Evaluation and Recommended Preferred Growth Scenario
Working Paper, dated June 13, 2008 (incorporating the directions of Regional
Planning Committee on June 3, 2008).
Regional Planning Committee has now invited public and agency comment by
July 14, 2008 on the Preferred Growth Scenario with direction certain revisions
appear in the June 13th Revised Working Paper. Refinement of the Preferred
Growth Scenario is continuing in cooperation with regional and local municipal
staff.
Phase 5 of the Study will be the refinement of the Preferred Growth Scenario
and development of a Durham policy framework to achieve the intensification
targets, greenfield density targets, and related policies and provisions of the
Places to Grow Plan. That work is anticipated in September, with an
amendment to the Durham Regional Official Plan following in early 2009.
The City is also required to bring its Official Plan into conformity with the Places
to Grow Plan. The City's work requires details arising from the next Phase and
the final amendment.
1.2 The Revised Growth Scenario Working Paper continues to identify a
shortfall in urban land to accommodate both residential and employment
uses.
The Working Paper shows that the population and employment allocated to
Durham Region by the Province using the intensification and density targets set
out in Places to Grow, requires land beyond lands currently designated for urban
uses in the Regional Plan. These lands are commonly referred to as the
"whitebelt" lands in the Places to Grow Plan. .
CORP0227-07/01 revised
-)
Report PD 32-08
July 14, 2008
Subject:
.2
Growing Durham - Revised Scenario Evaluation and Recommended
Preferred Growth Scenario Working Paper Page 6
In Phases 1 & 2, the consultant's report showed that, without policy chanoes,
accommodating the Growth Plan targets of 960,000 residents and 350,000 jobs
for Durham by 2031 would require lands for additional low and medium-density
residential units with shortfalls of 3,122 hectares of living area land and 505
hectares of employment lands. The market "base case" assumed 350/0
intensification in existing built areas (below the Growth Plan requirement of
400/0); and a greenfield density of 44 persons and jobs per hectare in greenfield
urban areas (below the Growth Plan requirement of 50 people and jobs per
hecta re).
In Phase 3 & 4, the consultant's working paper showed that with policy chanoes
to increase densities for low density housing from 25 units per net hectare to
28 uph, achieve the 400/0 intensification target within the built-up areas, and
achieving 47 persons and jobs per hectare in the greenfield areas, additional
urban land is required, but it is only two-thirds of that required under the base
case assumptions..
1.3 The consultants evaluated several Alternative Growth Scenarios for
Durham Region, and ultimately recommended Scenario 3: Reinforcing
Existing Communities.
The growth scenarios proposed differing amounts OT and locations for
intensification and new urban living and employment areas. The three scenarios
evaluated were:
1. Continuing a Dominant Western Anchor - directing most new growth to
Pickering and Whitby;
2. Focusing on a Central Hub for Durham - directing most new growth to the
current central core of the Region in Whitby/Oshawa/Courtice; and,
3. Reinforcing Existing Communities - balancing the forecasted growth across
the Lake Ontario shoreline municipalities with enhanced growth in northeast
Pickering and a strategic reserve of employment lands along the future
Highway 407 alignment.
The consultants recommended Scenario 3. It proposes balanced growth across
the Lake Ontario shoreline municipalities and measured growth in the Northern
communities. Further, it reinforces all key drivers important to the economic
prosperity of the Region.
1.4 Regional Planning Committee directed revisions be made to Scenario 3 to
enhance opportunities for growth in northeast Pickering prior to accepting
it as the Recommended Preferred Scenario and circulating it for
consultation.
CORP0227 -07 /01 revised
Report PD 32-08
-")
-~
'~}
July 14, 2008
Subject: Growing Durham - Revised Scenario Evaluation and Recommended
Preferred Growth Scenario Working Paper Page 7
I
,)
Figure 13B from the consultant's Revised Growth Scenario Working Paper is
included as Attachment #2 to this Report to Council. This Figure is titled
Scenario 3 - Reinforcing Existing Communities: Lands Beyond the Urban Area
Boundary and Urban Structure (showing directions from June 3rd Planning
Committee). Regional Planning Committee is seeking comments on this
Recommended Preferred Growth Scenario by July 14, 2008. Further detailing of
Scenario 3 is still continuing as further meetings occur between study
consultants and regional and local municipal staff.
For Pickering, the revised Preferred Growth Scenario proposes designation of
another block of land east of the Pickering Airport site as future Employment
Areas. It also proposes increasing the depth of the future Employment Areas
along Highway 407 stretching from approximately Highway 7 to north of
Highway 407 and northwards towards the Seventh Concession Road. Future
Living Area designations are proposed east of Greenwood, around Kinsale and
north of the Highway 407 Employment Areas,. Future Centres are proposed at
the intersection of the Seventh Concession and Salem Road and the Seventh
Concession Road and Lake Ridge Road. A Mobility Hub 'has been reinstated at
downtown Pickering's Urban Growth Centre. Staff support these changes.
The forecasts in the Revised Working Paper suggest that the revised scenario
would attract 40,595 new jobs to Pickering by 2031 out of a total of 142,805 new
jobs for Durham as a whole and 132,875 additional residents out of a Durham
total of 411,304. However, since the consultants have not yet revised the job or
residential population forecast to reflect Planning Committee directions for more
employment lands in northeast Pickering, further adjustments to these numbers
are anticipated.
2.0 Discussion:
2.1.1 Most of staff's earlier concerns with Scenario 3 were addressed by the
directions of Planning Committee on July 3rd, although a number of further
refinements are recommended.
Many of staff's concerns with the May 27 Working Paper conclusions have been
addressed in the recent changes made to the Preferred Scenario Three - the
'Reinforcing Existing Communities' scenario, including:
. location of a mobility hub in downtown Pickering;
. designation of more employment lands both east of the Pickering Airport
lands and along Highway 407;
. designation of more Living Area lands in north-east Pickering.
A number of concerns remain.
CORP0227-07/01 revised
Report PD 32-08
......
:)
'f
July 14, 2008
Subject:
4
Growing Durham - Revised Scenario Evaluation and Recommended
Preferred Growth Scenario Working Paper Page 8
2.2 The depth of the future Employment Areas adjacent to Highway 407 should
be increased to between 600 and 1000 metres.
Whereas the May 27th Working Paper included 400 metre wide bands of
employment lands along both sides of Highway 407 east of Westney Road in
Pickering, the June 13th revision, responding to Planning Committee directions,
indicated that the long-term employment land need should be reviewed in this
location. In order to accommodate larger parcel sizes and better realize the
locational advantages of a 400 level highway, the width of the employment
bands should be widened to 600 metres generally and up to 1,000 metres in
depth in selected locations. Staff support the suggestions of the study
consultants made at a recent meeting with staff to extend the employment
designation north to the Seventh Concession from Westney to Salem, and south.
to Highway 7 for the lands between Living Area designations proposed around
Kinsale and Greenwood.
2.3 The remnant piece of "whitebelt" lands east of the Pickering Airport site
should be designated as future Employment Areas.
The Revised Preferred Scenario proposes designating the large area of whitebelt
land east of the airport lands as employment area, leaving three small remnant
parcels as continued whitebelt lands. The remnant whitebelt parcels should
also be designated either as Living Area or Employment Area at this time.
2.4 The two proposed Future Centres along the Seventh Concession Road
should be expanded to the south to include lands adjacent to the
Highway 407 Transitway and or considered for Transit Village
designations.
Future Centres proposed for the Seventh Concession Road at both Salem and
Lake Ridge Roads have the potential to serve as transit villages with a range of
transit supportive land uses and densities if expanded southwards to incorporate
the transit stations proposed on the south side of Highway 407. It is
recommended that the two proposed Future Centres be expanded southwards to
incorporate the transitway stations and a broad range of transit supportive land
uses and densities be permitted.
2.5 Characteristics of several designation, including Transit Villages, Urban
Nodes, Future Centres and Waterfront Villages should be clarified
In order to understand the roles in the new urban structure of Pickering and the
Region of Durham of the new proposed features, clarification of proposed
functions, land uses and densities should be provided.
CORP0227-07/01 revised
Report PD 32-08
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-i!-J
July 14, 2008
Subject: Growing Durham - Revised Scenario Evaluation and Recommended
Preferred Growth Scenario Working Paper Page 9
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2.6 The jobs allocated to Pickering should assign the 35,000 jobs identified by
the Central Pickering Development Plan to Seaton, while maintaining at
least a 1:3 jobs per resident ratio for the rest of Pickering's growth.
The consultants are requested to provide detailed background work on
intensification. This information is required to enable staff to determine where
and to what extent residential growth is being assigned to the Urban Growth
Centre and other intensification corridors and centres. Also, staff requires
information on the amount of jobs assigned related to intensification. This
information is requested at the consultant's earliest convenience.
Staff recognizes the tables in the Working Paper on population and employment
have not been revised to reflect the changes directed by Planning Committee.
These revised tables should be also be forwarded as soon as possible to staff.
In revising the tables for Pickering, the Region and the consultants must address
the current under-allocation of jobs in Seaton.
The total allocation of 40,595 jobs to Pickering in the Recommended Preferred
Scenario to 2031 appears to disregard the jobs 35,000 jobs identified for Seaton
in the Provincial Central Pickering Development Plan. If the 35,000 jobs are part
of the figure of 40,595 jobs, the remaining jobs to be created in the rest of
Pickering to 2031 is only about 5,600 jobs. Yet our population (outside of
Seaton) is expected to increase by????
The consultants have indicated that if a Federal airport is developed, 10,000 jobs
will be added to the Pickering jobs allocation as a bonus but is not allocated in
the scenario at this time.
In revising the tables for the Revised Recommended Preferred Growth Scenario,
it is recommended that 35,000 jobs for Seaton be included as a baseline, and
the remaining jobs allocations for the rest of Pickering by 2031 be at a ratio of no
less than 1:3 jobs per resident. This ratio is realistic in light of the City's strategic
2.7 Phasing policies should be included in the Regional Plan addressing the
timing for area municipalities to bring new urban areas on stream so as to
minimize the City and Regional fiscal impacts.
While it is appropriate to designate lands in north-east Pickering for future Living
Areas and future Employment Areas at this time, policies should be introduced to
phase the timing of actual development.
For Pickering, new development areas should not be to compete with the build-
out of Seaton, for employment or residential uses. Similarly, intensification is a
key element of achieving the City's vision of its Downtown Urban Growth Centre.
CORP0227-07/01 revised
Report PD 32-08
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II ,~;r C I
July 14, 2008
Subject: Growing Durham - Revised Scenario Evaluation and Recommended
() Preferred Growth Scenario Working Paper Page 10
The City and the Region should not be burdened with the costs of providing
several sets of services and facilities for the new residents and employment area
at the same time.
In addition, new development areas immediately east of the potential future
airport may be impacted by noise should an airport be constructed. Phasing
policies should restrict the timing of these lands being developed for urban uses
until a decision on the development and timing of the possible airport are
reached.
A decision has not been reached on how piped services will be provided to
north-east Pickering yet. However, the Regional Master Water and Sanitary
Services Plan is underway to address this matter. There are two different
options for sanitary that would result in different phasing of development. Thus,
phasing policies should coordinate the timing of development with the Region's
servicing strategy and completion of related fiscal impact and financing studies.
Municipal fiscal impact and financing studies will also be required.
Accordingly, it is recommended that policies be introduced in the official plan
amendment to appropriately phase the future growth of Durham Region to
ensure o'rderly and efficient provision of municipal services.
2.8 The Durham Regional Official Plan, and the Places to Grow Plan should
prohibit large format retailing in strategic employment areas.
The current policy for Employment Areas in the Durham Regional Official Plan
permits, by amendment, the introduction of "retail warehousing". This type of
development is now widely known as the large format retailing, or power centres.
Large format retailing is usually a low intensity use that primarily serves the
residential areas (Living Areas). Yet, when located in Employment Areas, there
is usually infrequent transit service and little or no ability for walk-to customers.
Large format retailing (or retail warehouses) should be expressly prohibited in the
future Employment Areas along Highway 407 and other strategic and locations
such as the freeway links, through both amendments to the Durham Regional
Official Plan, and addition of new provisions in the Places to Grow Plan. City
staff is making similar comments in responding to the recently released
Provincial Discussion Paper on Planning for Employment.
The Central Pickering Development Plan contains a policy prohibiting large
format retailing in the lands designated Employment Areas.
3.0 Other Information
CORP0227-07/01 revised
Report PD 32-08
".......
-~
i-/.:.)
July 14, 2008
Subject: Growing Durham - Revised Scenario Evaluation and Recommended
Preferred Growth Scenario Working Paper Page 11
7
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3.1 The Region of Durham is considering a financial impact study of the
Preferred Growth Scenario.
Area municipal staff had recommended that the Growing Durham Study add a
component that analyses the financial impact of the alternative growth scenarios.
This information was to provide input to the scenario evaluation process.
However, Regional staff opted to recommend a subsequent financial impact
study of the Preferred Growth Scenario.
Regional staff have indicated that a financial impact study could be completed in
approximately 18 months at significant cost with consultants conducting the
study. The fiscal impact of the Preferred Scenario will not be available when
final decisions are reached on a growth strategy or on the official plan
amendment. Further, no data will be provided on the financial impacts of the
growth strate~~ on local municipalities. Regional Tri-Committee, at its meeting
held June 10 , 2008, requested that Regional staff report back with a more
detailed outline of a financial impact study including a work program, the timing
and costs.
3.2 The Study is moving into Phase 5: refinement of Durham's Preferred
Growth Scenario and development of the related policy framework.
Following receipt of comments from area municipalities, other stakeholders and
the public including the comments made at the June 25th public meeting, the
consultants will continue to refine the Preferred Growth Scenario and develop
the policy framework. Area municipalities can request meetings if required with
the consultants. In addition, a meeting with area municipalities is scheduled for
late July or early August to provide an additional opportunity for input from area
municipal staff into the development of the Phase 5 work.
Attachments:
1. Text from Report Number PD 08-08
2. Figure 138 - Scenario 3 - Reinforcing Existing Communities, from Growing
Durham - Revised Scenario Evaluation and Recommended Preferred Growth
Scenario Working Paper, as revised June 3, 2008 by Planning Committee;
prepared by Urban Strategies Inc. et ai, dated June 13, 2008..
Prepared By:
Approved/Endorsed By:
CORP0227-07/01 revised
Report PD 32-08
July 14, 2008
Subject: Growing Durham - Revised Scenario Evaluation and Recommended
?) Preferred Growth Scenario Working Paper Page 12
',)
ORIGINAL SIGNED BY
ORIGINAL SIGNED BY
Steve Gaunt, MCIP, RPP
Senior Planner
Neil Carroll, MCIP, RPP
Director, P & D
ORIGINAL SIGNED BY
Catherine Rose, MCIP, RPP
Manager, Policy
SG:??
Copy: Chief Administrative Officer
Director, Corporate Services & Treasures
Director, Office of Sustainability
Director, Operations & Emergency Services
Division Head, Municipal Property & Engineering
Recommended for the consideration
of Pickering City Council
Thomas J. Quinn, RDMR, CMM III
Chief Administrative Officer
CORP0227-07/01 revised
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CORPORATE SERVrCES DEPARTMENT
CLERKS DIVISION
DIRECTIVE MEMORANDUM
July 24, 2008
To:
Neil Carroll
Directorl Planning & Development
From:
Debi A. Wilcox
City Clerk
Subject
Direction as per Minutes of the Meeting of City Council
held on July 14, 2008
Director, Planning & Development, Report PO 32-08
Region of Durham's Growth Plan Imprementation Study: Growing Durham
- Phases 3 & 4
- Scenario Evaluation and Recommended Preferred Growth
Scenario Working Paper, prepared by Urban Strategies Inc. et aI, dated
June 13, 2008, as revised to show Regional Planning Directions
COUNCIL DECISION
RESOLUTION # 140/08
1. That Report PO 32-08 of the Director, Planning & Development, regarding
the Growth Scenario Working Paper, dated June 13, 2008, presenting the
outcomes of Phases 3 & 4 of the Region of Durham's Growth Plan
Implementation Study be received;
2. That the comments contained in Report PO 32-08 on the Recommended
Preferred Growth Scenario for the Region of Durham Growth Pfan
Implementation Study be endorsed, and that the Region of Durham be
requested to:
a) support the land use structure with Planning Committee directions
noted, shown on Figure 13 B and provided as Attachment #2 to Report
PO 32-08 with the following further refinements:
· Increase the depth of the future Employment Areas in Pickering
along Highway 407, east of Westney Road, to 1,000 metres south of
Highway 407 between the Greenwood and Kinsale areas and in the
vicinity of Lakeridge Road and the connector to Highway 401;
· support the designation to future Employment Areas of the remnant
parcel of liwhitebelt" lands located east of the future potential airport
site; and ,. ,
· expand to the south the Future Centres designations I currently
shown at the two intersections of the Seventh Concession Road with
Salem and Lakeridge Roads, to incorporate the Highway 407
Subject: Directive Memorandum
Report PO 32-08
Page 2
July 24, 2008
transitway stations and adjacent lands, thereby allowing mixed
residential, commercial and high intensity office uses, and consider
designation of a future transit village on the south side of the
Highway 407 transitway;
b) in updating the population and employment tables for Pickering to
reflect Planning Committee's revisions to the Recommended Preferred
Growth Scenario, increase the employment figures for Pickering to
include the 35,000 jobs identified by the Provincial Central Pickering
Development Plan for Seaton, and allocate jobs arising from the future
Employment Areas, future Living Areas and intensification in South
Pickeringl at a ratio of no less than one job for each three new residents
as is applied across the rest of the Region, as further clarified in Section
2.6 to Report PO 32-08;
c) in detailing the policies for the Recommended Preferred Growth
Scenariol
· establish strong phasing policies respecting the timing and process
for local municipalities to bring new "whitebelt" lands into the urban
area in order to address the logical and orderly provision of
infrastructure and phasing of growth with municipal fiscal priorities;
· establish new policies prohibiting large format retailing within future
Employment Areas;
· establish strong phasing policies respecting future Living Areas that
may be, affected by incompatible noise from a possible future
Pickering airport so as to prevent residential or other noise sensitive
uses from being established until resolution of the appropriate noise
protection standard and a decision on the development and timing of
the possible airport are reached; and
· better clarify the different characteristics of Transit Villages} Urban
Nodes} Future Centres and Waterfront VI'fIages}'
d) with respect to strategic future Employment Areas needed beyond
20311 work with the Ministry of Public Infrastructure Renewal to
establish policies permitting the Region to acknowledge as part of
current Regional Plan conformity amendment, the long term intended
use for these lands as future Employment Areas;
e) support the City of Pickering in its request to the Ministry of
Transportation in commenting on the Highway 407 Environmental
Assessment, to relocate the proposed Highway 407 maintenance yard
from the south side of the proposed interchange with Salem Road to
allow maximum intensification around the Highway 407 transitway;
f) obtain from Urban Strategies Inc. and forward to area municipalities the
detailed information on the amount, types and locations of
intensification projected for the existing urban areas used in the
background work not contained in the Working Paper;
Subject: Directive Memorandum Page 3 'I
Report PO 32-08 July 241 2008
g) Support the production of a financial impact study of the Preferred
Gro\Nth scenario;
h) Support the updating of the watershed plans with the Toronto Region
Conservation Area as appropriate; and
i) That the City of Pickering request the Regional Municipality of Durham
to hold a public open house in Pickering prior to the next phase of the
study.
3. Further, that a copy of Report PO 32-08 and Pickering Council's resolutjon on
the matter be forwarded to the Region of Durham, Urban Strategies Inc.,
other Durham Area Municipalities, the Ministry of Energy & Infrastructure, the
Ministry of Municipal Affairs and Housing, and the Ministry of Transportation.
Please take any action deemed necessary.
.---"-...
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Debi Wilcox
fir
Copy: Chief Administrative Officer
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Summary of Key Policy Directions by Topic
(from Draft Recommended Growth Scenario and Directions Report
Growing Durham Study)
The topics and main policy directions identified for consideration are listed below:
(1) Guiding principles and objectives: The five principles and objectives are:
maximize Durham's competitive advantage; strengthen mobility within and beyond
the Region; encourage healthy and sustainable communities; reinforce and build
on existing regional settlement and infrastructure patterns; protect and enhance
the Region's existing legacies; and live in harmony with the environment;
(2) Regional urban structure: Regional and local official plans should generally
reflect the proposed urban structure; establish density and housing unit mix targets
to achieved desired densities; establish site plan control by-laws for the purpose of
achieving complete communities; provide for compact forms of development to
evolve over time;
(3) Intensification: Regional policies to allow for direct access onto regional
corridors in order to facilitate medium and higher density development which fronts
onto these roads; local plans to designate areas appropriate for intensification, to
encourage intensification, and to demonstrate how the municipality will meet the
minimum intensification target established in the Growing Durham Study; include
design and site plan policies; stable residential neighbourhoods are not considered
appropriate for major residential;
(4) Designated Greenfield lands: Designate Greenfield lands with an urban
structure that supports complete communities; establish minimum densities,
heights and tailored density ranges to meet the intent of both regional and local
urban structure elements; establish targets that will contribute to the Greenfield
density target of 50 jobs and persons per hectare; include policy and community
design direction that promotes development which accommodates growth in a
positive urban form; require a minimum 300/0 of new residential areas within living
areas but outside centres and corridors to be other than detached dwellings;
Regional policies to provide direct access on to Regional corridors specifically for
medium and high density development;
(5) Employment: Bring employment lands to meet 2031 regional employment land
needs into the new urban boundary; monitor and review employment land needs
every five years; protect strategically located employment lands sufficient to meet
the long term regional employment land need to 2056; do not allow the 2056
employment land supply to be used for other purposes ahead of 2031 unless a
corresponding decrease in the 2031 living area is made; provide for a range of
employment uses, including employment lands, employment corridors, prestige
employment and offices under 10,000 square metres or 500 employees;
, ,)
(5) Employment (con't); DecIsions of Regional Council to refuse conversion of
employment lands shall not be subject to appeal to the Ontario Municipal Board;
major retail or any retail greater than 300 square metres and that is not ancillary to
the employment is not permitted on employment lands; provision and servicing of
employment lands should provide for a range of market choice, with a minimum
five-year supply of. serviced and developable land at all times at the local level;
development applications for large sites should be required to submit phasing
plans to show compliance with density targets will be achieved over time;
(6) Infrastructure planning, transit and servicing: Phase development in an
orderly and sequential pattern linked to regional and local transportation and
infrastructure capital investment plans; identify infrastructure priority areas in the
built up area to support intensification; review recommended growth scenario
against Regional water and wastewater master plan; Region to explore innovative
and sustainable infrastructure technologies; Transit infrastructure to be
incorporated in infrastructure capital planning with a Transit First Priority; explore
feasibility of new GO Transit service; integrate new Transit stations and corridors
into Durham Transit Master Plan; create a 25 and 50 year capital planning
strategy;
(7) Environment: Require watershed planning in advance of secondary plans and
plans of subdivision; protect natural heritage features in accordance with the
Provincial Policy Statement; encourage sustainable design practices;
(8) Phasing growth: Undertake five-year growth management reviews; require
secondary plans for any development on lands greater than 20 hectares in size;
require master plans for redevelopment of smaller parcels of land that need to be
considered comprehensively; consider use of holding provisions; develop growth
infrastructure capital plans in accordance with long servicing plans, growth
management reviews and phasing;
(9) Urban boundary expansion: Include in the 2031 urban boundary land that is
needed to provide for the forecasted growth of both residential and jobs that
responsibly utilizes land and structures urban growth to create complete and
healthy communities; protect long term employment land needs; area
municipalities to provide for a 10 year local housing and employment needs
through logical and sequential development patterns within each phase; urban
boundary expansions beyond 2031 will require a comprehensive Regional review
process, except for the use of long term employment land for a Provincially or
Regionally significant employer; 400/0 Region-wide intensification target in existing
urban area to be met; size of urban boundary expansions to be consistent with
creating complete new communities at the secondary plan level;
(10) Monitoring and ongoing review: Monitor development patterns across the
Region related to annual intensification targets, Greenfield densities and urban
growth centre densities; Regions and area municipalities to undertake five-year
growth management reviews; Region and area municipalities to work
collaboratively to overcome challenges, and find and advocate for creative
solutions for achieving objectives of the Growing Durham Study.
4
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Summary of Main Revisions1 to the Assumptions, Methodology or Analysis
Having Reference to or Impacting Pickering
C Between the Scenario Evaluation and Recommended Preferred Growth Scenario
Working Paper and the Draft Recommended Growth Scenario and Policy
Directions Report, Growing Durham Study)
Staff has identified the following main revisions for Pickering:
(1) Increasing the amount of high density in the housing demand forecast to meet
the Greenfield density target of 50 jobs and persons per hectare;
(2) Refining the housing supply needs, recognizing the specific provisions of the
Seaton lands (to be planned for up to 70,000 persons);
(3) Detailing the targets for the Urban Growth Centres as 100 jobs per hectare and
100 persons per hectare to achieve the required 200 jobs and persons per
hectare;
(4) Detailing the housing mixing Urban Growth Centres as 200/0 medium density
units and 800/0 high density units;
(5) Increasing the employment forecast for Durham Region to 375,000 (from the
350,000 allocated by the Provincial Growth Plan), to recognize Durham Region's
objective of providing jobs and population at a ratio of one to two;
(6) Assuming a Pickering Airport would generate a total of 10,000 jobs, both direct
(on-site) and indirect (spin-off jobs, located off the Federal lands); 4,500 indirect
jobs are included within the 375,000 employment forecast; the 5,500 direct jobs
would be in addition to the 375,000 jobs forecast;
(7) Increasing the employment land density from 26 jobs per gross hectare to 27
jobs per gross hectare (for comparison, the employment area at Whites
Road/Granite Boulevard achieves a density of about 23 jobs per gross hectare);
(8) Assuming 580/0 of Durham's employment growth will be on employment lands
(the remaining 420/0 occurs primarily within the living areas, such as office, retail,
personal services, and institutional);
(9) Increasing the width of the employment band along Highway 407 extension
northeast Pickering: south to Highway 7, and north to the Seventh Concession
Road on the western side of northeast Pickering;
(10) Identifying a Mobility Hub in Pickering consistent with the Metrolinx draft Report;
(11) Meeting the minimum 400/0 intensification target for the Region commencing in
2015 and each year thereafter; individual municipalities have different
intensification rates: Pickering's is a minimum 380/0 since Pickering has a high
proportion of the new development outside the build-up area;
(12) Adding future centres and corridors to the new urban areas and assigning a
more intense development mix than surrounding living area;
(13) Distinguishing the land for future living area required prior to 2031 and post
2031, and similarly distinguishing the lands for employment area required pre
and post 2031;
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(14) Re-allocating 5,000 units of the low density residential demand for the 2031 time
frame from Pickering, Ajax and Whitby to Oshawa as it has a supply of existing
designated urban land; Pickering and Whitby would have required new urban to
be designated; the effect of the re-allocation for Pickering is that some future
living area would now be identified in the post-2031 time frame; and
(15) Identifying additional future employment land along the Highway 407 corridor in
the vicinity of the Highway 401-407 connector in northwest Whitby, for the 2031
time frame; the rationale was because of the area's strategic location with
respect to future accessibility; and complement the future living area identified
for Whitby; the effect of this identification for Pickering is that some of the future
employment area is in the post 2031 time frame.
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SCENARIO 3 - REINFORCING EXISTING C()MMUNITIES
LAND BEY()ND URBAN AREA BOUNDARY AND URBAN STRUCTURE
NOTE: DnliCTION FROl'.'l Pl!\NNING CO~IMITTEE ON JUNE 3.2008 IS INDICATED IN RED BOXES. THE CONSULT.'\NTTEA:-'IIS REVIEWING THE
LONG TERM FUTUIU Ef\'lPLOY~lENT LAND NEED AND HvlPLICATIONS FOR FUTURE LIVING AIZEA LAND NEED.
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I INCLUDE AS LONG TERM [' REVIEW lONG-TERM I INCLUDE AS FUTURE J REVIEW LONG-TERM' :
EMPlOYMENT lAND EMPlOYMENT LAND NEED l LMNG AREA lAND EMPLOYMENT lAND NEED I,
ALONG 407 CORRIDOR ALONG .0407 CORRIDOR I_
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REFLECT PICKERING AS A """'G',;: ~._
MOBILITY HUB CANDIDATE ........~:
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future E.mployment Ares
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transit village: ex/sUng/future
emc(llln~ W8(onront '1ll1ago
UOIT/DUrhi;lm College
mObility 'lull
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Osrllngfon/Pfckerlng generation
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FIGURE 13B
N01E:THE ILLUSTRATED t\RE.'\ IS BASED ON FUTURE GROWTH LANDS IDENTlFIEDTHROUGHTHE LOCALLY INFLUENCED OtJ'TLOOK FOR RESlDENTIALAND EMPLOYMENT USES AND FUTURE CENTRES.
THE ILLUSTR,ATED AREA ALSO REFLECTS STRATEGICALLY LOCATED EMPLOYMENT LANDSAND LANDS RESERVED TO PROVIDE CONTIGUOUS RESIDENTlAL DEVELOPMENTS. DUE TOTHE SCALE OF
[\.1APPING.THE TOTAL FUTURE GROWTH AREAS ILLUSTRATED FOR EACH SCENARIO INCLUDE ALL NATURAL HERIT.'\GE AND HYDROLOGIC FEATURES. HIGHWAY -W7 RIGHT OF WAY .~ND MAJOR
HYDRO CORRIDORS, ONCE THESE FE:\TURES1\RE REMOVED.THE REMAINING LAND AREAS APPROXIMATELY REPRESENT THE GROWTH PLAN GROSS LAND NEED FOR LAKE ONTARIO SHORELINE
MUNICIPALITIES FOR THE SCEN,'\RIo.
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