Made in Muskoka District of Muskoka Official Plan Draft October 5, 2017 A land use and community development plan based on the principles of sustainability and recognizing the unique context of the District of Muskoka.
TABLE OF CONTENTS PART 1... 2 WELCOME TO MUSKOKA: PLANNING CONTEXT... 2 PART 2... 6 PLAN BASICS: APPLICABILITY, PURPOSE AND ORGANIZATION OF THE OFFICIAL PLAN... 6 PART 3... 12 MUSKOKA OFFICIAL PLAN... 12 A FUTURE OF MUSKOKA: LONG TERM VISION... 12 B SUSTAINABLE MUSKOKA: GROWTH MANAGEMENT, SERVICING AND HEALTHY COMMUNITIES.... 16 C HOME IN MUSKOKA: HOUSING POLICIES... 38 D VIBRANT MUSKOKA: ECONOMIC DEVELOPMENT POLICIES... 43 E TRADITIONS OF MUSKOKA: CULTURAL HERITAGE RESOURCES... 57 F ECOSYSTEMS OF MUSKOKA: NATURAL HERITAGE AND WATER RESOURCES... 62 G MUSKOKA S OTHER RESOURCES: MINERALS, AGGREGATES AND FORESTRY... 81 H PROTECTING MUSKOKA: NATURAL HAZARDS AND OTHER CONSTRAINTS... 86 I MUSKOKA SETTLEMENT PATTERN: LAND USE DESIGNATIONS... 92 J CONNECTING MUSKOKA: TRANSPORTATION... 109 L IMPLEMENTATION AND ADMINISTRATION... 122 i
PART 1 WELCOME TO MUSKOKA: PLANNING CONTEXT (This is not an Operative Part of the Official Plan) The District of Muskoka is geographically large (~4,700 sq. km.), extending from the shores of Georgian Bay in the west to Algonquin Park in the east, north past the Town of Huntsville and south to the Trent-Severn inland waterway. Within this expanse, there are over 650 lakes, 28 urban centres and communities, two Indigenous communities, three watersheds and 19 sub watersheds within the boundaries of six Area Municipalities. Today, the District of Muskoka lies between the fast-growing urbanized areas surrounded by farmland found in the south and the rugged landscape and smaller resource-based communities to the north. Historically, Muskoka has been home to two major indigenous groups: the Anishinabe (Ojibwa) and the Wahta Mohawks (Mohawks of Gibson River). Muskoka is the traditional territory of the Anishinabe who hunted, fished, farmed and trapped extensively throughout the area. Wahta Mohawk use of the area began after 1880 when they were displaced from their traditional lands and became concentrated in a smaller area. The name Muskoka is derived from the Anishinabe name of Chief William Yellowhead or Musquakie, who succeeded his father as the leader of the Anishinabe peoples in Muskoka, Simcoe and Haliburton regions. The Wahta Mohawk, Moose Deer Point First Nation and Metis peoples continue to be located in Muskoka at the present time. In the preparation of this Plan, indigenous communities with both a historical and present interest in Muskoka were engaged, including the Chippewas of Georgina Island First Nation, Chippewas of Mnjikaning (Rama) First Nation, Beausoleil First Nation (Christian Island), Wasauksing First Nation (Parry Island), Moose Deer Point First Nation, Wahta Mohawks (Mohawks of Gibson), Huron-Wendat Nation, Métis Nation of Ontario, Georgian Bay Métis Council, and Moon River Métis Council. The District of Muskoka s landscape consists of a mosaic of rural and waterfront areas, with moderately sized urban centres and smaller communities within a natural setting of forests and lakes. The District contains three larger and six smaller serviced urban centres. Significant permanent residential and major commercial, industrial and institutional developments are generally directed to these areas. The District also includes a number of smaller unserviced communities, which function as service centres for the rural and waterfront areas. The urban centres and communities offer a wide variety of choices for living, working and enjoying Muskoka s culture and the natural environment. Approximately five million people live within a two-hour driving time from the District of Muskoka. Therefore, the economy of the area is strongly influenced by trends in the Greater Golden Horseshoe (GGH) and the many seasonal residents and visitors who come to the area annually. There are 61,000 permanent residents who live year-round and 84,000 residents who 2
live seasonally in the District as of 2016. Muskoka is also a tourist destination and 57% of Muskoka s economic base is supported by the tourism, retiree and second home industries. However, there has also been expansion into different economic sectors including a growing public service sector, a strong construction and real estate industry, and a number of manufacturing firms. While Muskoka s two populations have many shared interests in land use planning, there are substantial gaps from an income, employment, education, food security, health, and vulnerability perspective. When the District Municipality of Muskoka was first formed, the most important longterm planning challenge facing the area was considered to be the conservation of natural assets (Patterson Report, 1969). Additional challenges that have emerged since that report include accommodating growth in a sustainable manner, supporting a prosperous economy, and ensuring that the health, well-being and culture of the people living in the area is promoted. In addition, Muskoka s weather is changing. Within the life of this Official Plan, climate change modeling predicts that Muskoka will experience hotter, drier summers with more heat waves and more intense rainfall events, and warmer and milder winters with more freeze-thaw episodes. These climatic changes will likely result in significant changes to our natural environment, may harm built-up areas and may disrupt delivery of services. How the District and Area Municipalities plan for development/redevelopment, infrastructure and the public realm in the duration of this Official Plan will determine whether the area remains resilient to changing weather from economic, health, social, emergency services and environmental perspectives. In order to address these challenges effectively and comprehensively, there is a need for a long range Official Plan that is based on an intimate knowledge and understanding of the conditions in Muskoka. The Paterson Report, 1969, specifically noted the need to undertake a comprehensive planning program for the District In particular, the report noted the following: The need to closely integrate planning, development control and pollution control activities into an effective program capable of preserving Muskoka s natural assets, [was] the most pressing need facing the District. The first District of Muskoka Official Plan ('MOP') was adopted in 1978 and the community has confirmed that the principle remains valid today. The MOP adopted in 1978 was a strategic document that addressed issues of a broad nature and between 1991 and 2009, the MOP was updated on an incremental basis by way of Official Plan Amendment ('OPA') to deal with the issues of the day, and these included the following: o Technical OPA's (OPA's 1, 2, 5, 24, 27, 34); o Resource policies (OPA 13); o Settlement patterns (OPA 22); o Services and utilities (OPA 23); o Affordable housing (OPA 29); o Private communal servicing (OPA 30); o o Lake system health (OPA 32); and Transportation, review of Schedule H and active transportation (OPA's 33 and 37). The review of the MOP (MOPR) was initiated in 2011. Prior to formally initiating the 3
MOPR process, the District completed a number of background studies that were designed to ultimately inform the MOPR, ensure consistency with Provincial policy and conformity with other relevant legislation, or to address emerging issues of District significance. Each of these initiatives involved consultation with the Province, Area Municipalities, stakeholder groups, and/or the public. These projects included: o Growth Strategy (2009 and 2013); o Economic Strategy (2009); o Species at Risk: Potentially Suitable Habitat Mapping (2009); o Active Transportation Strategy and OPA (2010); o Moving Toward Attainable Housing in Muskoka (2011); o Muskoka Moving Forward Visioning Exercise (2011) and OPA (2013); o Building Strong Communities: Integrating Residential Condominiums into Urban Centres (2011); and o Urban Centres Natural Heritage Review (2011). Consideration was also given to best management practices including but not limited to review of other regional plans, Ontario Professional Planners Institute and Muskoka Watershed Council position papers, Provincial guidelines, and previous studies undertaken by the District of Muskoka. An update on the status of the work program was endorsed in 2012. This report also came after the required special meeting of District Council was held in 2012 pursuant to Section 26 of the Planning Act, and which was well attended by members of the public. A number of additional studies and reports were completed between 2012 and 2013 as set out below: o Muskoka's Foodshed: A Strategy for Sustainable Local Food in a Creative Rural Economy (2012); o Agriculture in Muskoka: Tools for a Sustainable Future - Local Food Solutions (2012); o Aboriginal Engagement Program for the Visioning Initiative (2012); o Resorts and Tourism Official Plan Policy Review (2013); o Second Home Study (2013); o Growth Strategy Update (2013); o Official Plan Amendment No. 41 Secondary Dwelling Units (2012); and o Official Plan Amendment No. 42 Vision (2013). OPA 42 was the culmination of a comprehensive visioning initiative that involved the participation of over 2,700 permanent and seasonal residents from across Muskoka. The vision and guiding principles now included within the MOP by OPA 42 functions as the framework for further policy updates through the endorsed work plan for the MOPR. This Plan has been informed by the preparation of the report entitled Towards Establishing Planning Policy Directions that was finalized on March 6, 2017. This report provided an overview of the many updates made to the Muskoka Official Plan (referred to as the 'MOP' in this report) between 1991 and 2009 and provided an overview of the current review of the MOP that was initiated in 2011. The report then provided an overview of the work completed on the current MOPR and the process to be followed. 4
The balance of the report then reviewed a number of factors that needed to be considered in preparing Official Plan policies, including the Planning Act, the Provincial Policy Statement that was updated in 2014 and the comprehensive visioning initiative undertaken by the District in 2013. Using that framework, a number of policy directions were developed for discussion purposes. These policy directions were informed by: o The significant amount of background work already completed by the District; o The District priorities that have already been identified; o The comments made by the PED Committee; o The comments of planning staff at the District and the area municipalities; and, o The PPS (2014). Throughout the above, it became clear that there is a need for the District to be more strategic in its approach to planning policy and that the area municipalities should be more responsible for the preparation of the more detailed and prescriptive policies that reflect local perspectives. There was also general agreement that the MOP should allow for the establishment of flexible approaches and responses to changes in the economy and changing trends in general to stimulate economic development and renewal while recognizing the intrinsic connection between the economy and the natural environment of Muskoka. On the basis of the above and after significant consultation with the Province, Area Municipalities, agencies and stakeholders, Policy Directions were prepared and they provided the basis for the preparation of this Plan. In addition to the above, there are a variety of emerging local, provincial, national and international issues that will impact the land, ecosystems and people of Muskoka in both positive and negative ways. Examples include a changing climate, increasing globalization, transforming tourism trends, spread of invasive species, aging populations, shifts away from a resource-based economy, the rise of the sharing economy, and many more. The policies of this Plan are intended to be one step toward addressing, embracing, or mitigating these changes where possible by creating resilient communities from a land use perspective. 5
PART 2 PLAN BASICS: APPLICABILITY, PURPOSE AND ORGANIZATION OF THE OFFICIAL PLAN (This is an Operative Part of the Official Plan) 1. INTRODUCTION This document comprises the Official Plan for the District of Muskoka. The Plan is prepared under the authority of the Planning Act and is required by regulations to that Act. In accordance with the Planning Act, the District of Muskoka Official Plan must contain goals, objectives and policies established primarily to manage and direct physical change and its effects on the social, economic, built and natural environment of the District. The Official Plan must also provide a description of the measure and procedures for informing and obtaining the view of the public respecting applications made under the Planning Act. The Province also requires that Official Plans have regard for matters of Provincial interest as outlined in the Planning Act and be consistent with the Provincial Policy Statement (PPS). The PPS states that Official Plans are the most important vehicle for implementing provincial policy and that comprehensive, integrated and long-term planning are best achieved through Official Plans. 2. APPLICABILITY This Official Plan affects all lands within the boundary of the District of Muskoka, save and except for lands that are owned by the Government of Canada and the Province of Ontario and First Nations Territories. 3. PURPOSE OF THE PLAN The purpose of the Muskoka Official Plan is to provide direction and a policy framework for managing growth and land use decisions over the planning period to 2036. The Official Plan is one of a series of policies, guidelines and regulations that direct the actions of the District and shapes growth and development. The Plan is intended to: a) Establish a broad, upper tier policy framework that provides guidance to Area Municipalities in the preparation of updated Area Municipal Official Plans, Official Plan Amendments, zoning by-laws and other applicable regulations and guidelines; b) Implement the Provincial Policy Statement at the District level in a manner that is intended to reflect the District of Muskoka context to the greatest extent 6
possible while being consistent with the Provincial Policy Statement (2014) in a manner which ensures that the implementation of provincial policies is outcome oriented and evidence based; and, c) Establish a framework for coordination and cooperation amongst the Area Municipalities and the District on planning, including watershed planning and development issues that cross municipal boundaries. This Plan recognizes the importance of the land use planning responsibilities that are vested with the Area Municipalities. Given that the Muskoka Official Plan is intended to establish an overall land use planning framework for the District and its Area Municipalities, this Plan is not intended to duplicate the policies of the Area Municipal Official Plans. Instead, this Plan is intended to provide the guidance necessary for the establishment of detailed strategies, policies and land use designations at the Area Municipal level. 4. PLANNING PERIOD a) The planning period for this Official Plan is to 2036. b) Notwithstanding the above, nothing limits the planning for infrastructure and public service facilities beyond the 20-year planning period. In addition, the District and the Area Municipalities may plan beyond 20 years for the long-term protection of employment areas provided new lands are not designated for this purpose beyond the planning period. 5. MINIMUM STANDARDS The policies of this Plan represent minimum standards. This Plan does not prevent Council and the approval authority responsible for planning applications from going beyond the minimum standards established by this Plan unless doing so would directly conflict with a policy in this Plan. While the Planning Act addresses conflicts between upper tier and lower tier official plans by providing that the upper tier plan shall prevail over the lower tier plan to the extent of any conflict, this Plan represents minimum standards and nothing shall prevent the Area Municipalities from adopting more restrictive policies or standards than those outlined in this Plan, provided such policies conform to the general intent of this Plan, are consistent with any Provincial Policy Statement, and do not conflict with any Provincial Plan or Provincial legislation. 6. ORGANIZATION OF THE PLAN This document consists of four components: Part 1 - PLANNING CONTEXT includes some of the background on what led to the preparation of the Official Plan. Because this section serves as background, it does not constitute an operative part of the Official Plan. Part 2 - APPLICABILITY, PURPOSE AND ORGANIZATION OF THE OFFICIAL PLAN establishes where the Official Plan applies, its purpose and how it is organized. This part is an operative part of the Official Plan. 7
Part 3 - THE DISTRICT OF MUSKOKA OFFICIAL PLAN comprised of text and attached Schedules inclusive and is also an operative part of the Official Plan. Part 4 - THE APPENDICES do not constitute part of the Official Plan. However, they provide additional information to assist in implementing this Official Plan. 7. THE STRUCTURE OF PART 3 OF THE PLAN Part 3 of the Official Plan is divided into the following sections, each of which is described below. Section A (Long-Term Vision) establishes an aspirational and long-term vision for the District of Muskoka from a land use perspective. The vision focuses on the opportunities and attributes of the District that exist now or will in the future. A set of policy directions and guiding principles that articulate what the District is intending to achieve over the long-term and which form the basis of the Plan flow from the longterm vision. A series of policy objectives then identify the specific actions that are intended to be achieved by the policies of this Official Plan over the planning period and beyond. Section B (Growth Management and Servicing Policies) identifies where growth and development is to be focussed in the District. This section also identifies the permanent and seasonal population projections to 2036 and establishes household projections, household projections by urban centre and employment projections also to 2036. Policies on settlement area boundary expansions, residential intensification, and comprehensive development planning and planning for sewer and water services are also contained within this section. Policies on phasing and asset management are also located in this section. Section C (Housing Policies) contains a number of goals that are intended to meet the District s current and future housing needs. This section also contains a number of general policies that support residential intensification and redevelopment and other enhancements to the supply of housing in the District. This section also established the minimum designated growth area density target for new development areas and identifies what the required housing mix should be, also in designated growth areas. Policies on secondary residential units, garden suites, affordable housing and special needs housing are also contained within this section. Section D (Economic Development Policies) starts off with a number of goals that are intended to improve the economic well-being and quality of life in the District. It is recognized in this section that there are many forms of economic development in the District and on this basis, this section of the Plan contains objectives and policies on: a) Urban Centres and Community Areas, including downtowns and main streets; b) The employment areas in the larger Urban Centres; c) Commercial development in general; d) Resort development; 8
e) Other forms of accommodation and tourism supportive uses; f) Other forms of economic development in rural areas; and g) The Muskoka Airport. Section E (Cultural Heritage Resources) contains objectives and policies on built heritage resources, cultural heritage landscapes, archaeological resources and marine archaeological resources. Section F (Natural Heritage and Water Resources) establishes several goals that support the long-term ecological function and biodiversity of natural heritage features and areas in the District. Policies on development and site alteration within and adjacent to natural heritage features in areas are contained in this section. In addition, there are specific policies on significant wetlands and coastal wetlands, the habitat of endangered species and threatened species, significant wildlife habitat, significant areas of natural and scientific interest and Lake Trout lakes. Policies on environmental impact studies are also included within this section. There are also policies in this section on watercourses and surface water features, development and site alteration near surface water features and groundwater features and source protection planning and storm water management. Section G (Other Resources) deals with the wise and proper management of renewable and non-renewable resources including mineral, aggregate, and forestry resources. Section H (Natural and Human-made Hazards) seeks to minimize the potential costs, social disruption, and risks to public health and safety by directing development away from natural and human-made hazards. Section I (Land Use Designations) contains policies on the following mutually exclusive land use designations: a) Urban Centre; b) Community Area; c) Rural Area; and d) Waterfront Area. Section J (Transportation) establishes a number of objectives with respect to facilitating a safe and efficient movement of people and goods within the District s communities on District Roads and to and from adjacent municipalities. A road classification system is established in this section along with a description of the function of District Roads. Section K (General Development Policies) contains policies on the subdivision of land by Plan of Subdivision/Condominium Description or consent. Policies on land use compatibility, permitted uses on hydro corridor lands and on gas pipelines in the District are also included within this section. Section L (Implementation and Administration) contains a number of policies related to the administration and implementation of the Official Plan and identifies the tools under the Planning Act that are intended to be used by municipalities to 9
administer and implement the Official Plan. In this regard, this section contains policies on when Official Plan Amendments are required and on Area Municipal Official Plan conformity with the District Plan. Policies on Area Municipal zoning bylaws, Community Planning Permits, and Community Improvement Plans are also included in this section. This section also contains policies on public participation and consultation and on what is required to determine when application can be deemed complete in accordance with the Planning Act. This section of the Plan also contains a number of policies on how the Official Plan should be interpreted and how the boundaries of the land use designations should be interpreted as well. Lastly, this section of the Plan indicates that all of the terms that are bolded are defined in the Provincial Policy Statement. 8. SCHEDULES TO THE PLAN The following schedules, which are to be read in conjunction with the text of this document, constitute an operative part of this Official Plan: a) Schedule A - Land Use Designations; b) Schedule B - Urban Service Areas; c) Schedule C1 - Natural Heritage Features and Areas: Wetlands, Muskoka Heritage Areas, and Areas of natural and scientific interest; d) Schedule C2 Natural Heritage Features and Areas: Significant Wildlife and Regulated Habitats; e) Schedule D - Water Resources; f) Schedule E - Resource Areas and Other Constraints; and g) Schedule F - Transportation. 9. HOW TO READ THIS OFFICIAL PLAN a) This Official Plan is to be read in its entirety. All relevant goals and objectives are to be considered when decisions are made, and all relevant policies shall be applied as appropriate. While specific policies sometimes refer to other policies, these cross-references do not take away from the need to read the Official Plan as a whole. b) Since land use decisions have long-term impacts, these decisions must be future oriented and connected to the overall vision. The vision, guiding principles, objectives and policy directions presented in Sections A1 to A3 articulate the future of the District and is the foundation upon which the Official Plan has been developed. c) The vision, guiding principles, objectives and policy directions are not tests that need to be met or applied to individual properties or applications necessarily, rather they should be considered when making policy decisions. d) Sections B to L of this Plan contain a number of objectives and policies. Objectives are intended to be specific, quantifiable and realistic targets. These objectives are also not policies and are not intended to be a conformity test. 10
e) Policies are to be applied when making land use planning decisions. Some policies set out positive directives such as settlement areas shall be the focus of permanent residential and employment growth and development. Other policies set out limitations and prohibitions, such as development and site alteration shall not be permitted. Other policies use enabling or supportive language, such as should, promote and encourage. f) All development is required to conform to the policies in this Official Plan. g) This Plan does not apply to land owned by the Federal or Provincial governments and First Nations Territories. Areas of Crown Land and First Nation Territories are shown on Schedule for information purposes. 11
A PART 3 MUSKOKA OFFICIAL PLAN (This is an Operative Part of the Official Plan) FUTURE OF MUSKOKA: LONG TERM VISION This section of the Plan firstly establishes an aspirational and long-term vision for the District of Muskoka from a land use perspective. The vision focuses on the opportunities and attributes of the District that exist now or will in the future, is designed to overcome current known challenges and constraints and generally incorporate aspirations for a better future. A set of policy directions and guiding principles that articulate what the District is intending to achieve over the long term and which form the basis of the Plan flow from the vision. A series of policy objectives then identify the specific actions that are intended to be achieved by the policies of this Official Plan over the planning period and beyond. A1 VISION The Official Plan for the District of Muskoka establishes a framework for the continued growth and development of a number of existing Urban Centres and several smaller Community Areas along with appropriate development in Rural and Waterfront Areas. Its primary purpose is to provide the basis for the strategic management of growth and change in a sustainable manner. In the context of this Plan, sustainability is defined as integrating environmental, economic and social needs of the present, without compromising the ability of future generations to meet their needs. Its purpose is also to assist in achieving common goals and objectives, such as: the need to enhance quality of life; to support existing community structure; and to create a highly desirable, healthy, and attractive place to live, work, and visit, for a range of people and lifestyles. In addition, it is the goal of this Plan to: Protect the quality of the cultural and natural environments of the District of Muskoka and accommodate sustainable growth by facilitating development that supports healthy communities and recognizes the character of Muskoka. While the Vision for the District embraces the past and the present, it also considers and plans for the future. On this basis, this Plan is intended to support managed growth and respond to opportunities and constraints, which are specific to the Muskoka context. The District of Muskoka also acknowledges that Muskoka is the traditional homeland of indigenous people and now includes Wahta Mohawk and Moose Deer Point First Nation communities. Indigenous peoples have cared for this territory for the benefit of future generations and their stewardship throughout the ages is recognized. Given the vast size of the District of Muskoka, the Vision must also take into consideration how to coordinate and collaborate with respect to important 12
components of the District that extend beyond Area Municipal boundaries. This includes physical connections between communities, such as natural heritage features, an integrated transportation network, and open space linkages and of course, water quality. On the basis of the above, the vision is below: Muskoka will be a place where people can live, work, and play. The overall prosperity of Muskoka will rely on the integration of a vibrant economy and a healthy natural environment along with a caring community that fosters a sense of belonging and supports those in need. Sustainable development will allow for desirable growth and change that respects the smalltown, rural and waterfront character of Muskoka. All residents will be valued and community wellbeing will be promoted. A2 GUIDING PRINCIPLES The Districts long-term prosperity, environmental health and social well - being depends on wisely managing and directing physical change and its impacts on social, environmental, economic, and built environments while promoting efficient land use and development patterns through the establishment of goals, objectives and policies. The series of guiding principles below establish the basis for future land use planning decisions and should be read in conjunction with the objectives at the beginning of each Section: a) The natural environment, especially water, is Muskoka s key asset and it will be protected for the values it provides including support for diverse ecosystems and a vibrant economy; b) A diverse economy will provide for a range of year-round, full-time and livingwage employment opportunities in a variety of sectors. Growth in a broad range of sectors will be supported, including the traditionally important tourism and recreation industries and emerging creative, arts and knowledge-based sectors; c) Growth and settlement patterns in all land use designations will be sustainable by making efficient use of land, energy and infrastructure, minimizing waste and providing for climate change mitigation, adaptation and resiliency; d) The small-town, waterfront and rural character of the area will be maintained and Muskoka s cultural heritage will be valued and preserved; e) Renewable and non-renewable natural resources will be managed in a way that maximizes economic benefits while minimizing social and environmental impacts; 13
f) Healthy communities will be promoted by ensuring that development patterns contribute positively to public health and safety. Safe, healthy and active lifestyles will also be encouraged through the delivery of or support for quality human services (e.g. employment assistance, childcare, healthcare, housing supplements/grants and other community support services); g) A range of housing options will be available and attainable for all demographic groups and income levels; h) Transportation options that are efficient, cost effective and provide alternatives to the personal vehicle will be promoted; i) While planning for the needs of all residents including seniors, people with disabilities, and vulnerable groups, young people and families will be encouraged to stay in, return, or come to Muskoka; and j) Continuing partnerships and building relationships with indigenous peoples to advance reconciliation, including the fostering of an open, respectful, trusting, transparent, and accountable dialogue related to land use planning will be supported. A3 POLICY DIRECTIONS Through the planning process leading up to the preparation of the District Official Plan, the following two primary Policy Directions were established. POLICY DIRECTION A: The MOP is intended to be one of a series of policies, guidelines and regulations that direct the actions of the District and shapes land use planning, growth and development. It is the intent of the District to: a) Establish a broad, upper tier policy framework that provides guidance to Area Municipalities in the preparation of updated Area Municipal Official Plans, Official Plan Amendments and zoning by-laws; b) Implement the Provincial Policy Statement at the District level using a made in Muskoka approach that recognizes the unique opportunities and challenges in the District provided the results are outcome oriented and evidence based; c) Establish a framework for coordination and cooperation amongst the Area Municipalities and the District on planning and development issues that cross municipal boundaries; d) Recognizes the diversity that exists amongst the Area Municipalities and builds on the strengths of the District as a whole and each of its component parts; e) Provide the strategic direction required to realize common goals and objectives; and, f) Recognize the importance of the land use planning responsibilities that are vested with the Area Municipalities. POLICY DIRECTION B: A clean and healthy environment and a strong economy are inextricably linked in Muskoka. The environment is made up of more than 650 lakes with a vast rural area made up of large forested areas. 14
These elements combine to create the sense of place that is unique to Muskoka and is known around the world. On the economic side, Muskoka is a premier destination for vacationers that generates millions of dollars annually and it is one of the choice locations in Ontario for permanent and seasonal residents that are attracted to the natural environment. With this in mind, the MOP shall establish as a first principle that development activity be undertaken in a manner that conserves and enhances the features, functions, and interconnections of the natural environment that sustains what is Muskoka for future generations. 15
B B1 SUSTAINABLE MUSKOKA: GROWTH MANAGEMENT, SERVICING AND HEALTHY COMMUNITIES OBJECTIVES It is the objective of this Plan to: a) Recognize that the District is made up of a number of communities of different sizes and characteristics as well as rural and waterfront areas that all combine to establish Muskoka's identity as a desirable place to live, establish roots, learn and create diverse economic opportunities; b) Manage growth in a sustainable way that will make the most efficient use of land, infrastructure, public services and facilities; c) Provide the infrastructure and District services necessary to support growth in a fiscally responsible manner; d) Focus permanent residential and employment development in Urban Centres where full services are available and to support the efficient use of land and infrastructure to meet the needs of present and future residents and businesses; e) Permit a limited amount of permanent residential development in rural areas; f) Focus resource-based recreational and seasonal residential development in the waterfront areas. g) Encourage the further intensification and use of the lands within the Urban Centres and the efficient use of lands in designated growth areas, as appropriate; h) Ensure that an adequate supply of land and housing choices are available for present and future residents; i) Ensure that all infrastructure, including sanitary sewers, water distribution and stormwater management facilities and roads meet the needs of present and future residents and businesses in an efficient, environmentally-sensitive, cost effective and timely manner; j) Ensure that the construction of all infrastructure, or expansions to existing infrastructure, occurs in a manner that is fiscally responsible and minimizes social and environmental impacts, with consideration given to the long term maintenance, operational and financial consequences of the decision; k) Ensure that consideration is given to the economics of providing services to the people of the District as part of the review of any development proposal to ensure that the development pattern is orderly, efficient and does not lead to inefficiencies or a decline in the level of municipal services; l) Ensure that all urban development is appropriately phased and in conjunction with required infrastructure improvements where appropriate; 16
m) Ensure that hard and soft service needs are identified early in the planning process and then appropriately prioritized and delivered either before or at the same time as new development; n) Ensure that appropriate financial plans and infrastructure strategies are in place before development occurs; o) Recognize the District s waterfront areas as both a significant natural asset and as the location for the majority of the resource-based recreational development in Muskoka and ensure policies appropriately balance economic development and environmental protection; p) Protect and support the District's rural areas, so that they are sustained for future generations, protect large tracts of undeveloped lands and serve as a legacy to all residents of the District and remain a benefit to the overall natural environment of the area; q) Encourage the establishment of an optimum balance between residential and non-residential uses in the District, including the promotion of mixed uses on individual parcels of land and within settlement areas overall; r) Work with the adjacent communities and applicable public agencies on matters of common interest, which includes growth management, economic development, transportation, infrastructure, natural heritage features and areas, water resources and source water protection; s) Require the implementation of sustainable development practices and support resiliency and innovation in order to maximize resource and energy conservation; t) Promote land use and development patterns that support the health and wellbeing of the people of Muskoka and contribute to a higher quality of life; and u) Foster connectivity in all forms including the creation and maintenance of social networks, transportation systems, new and inclusive technologies, enhanced access to services and amenities, the creation and maintenance of a sense of place, and the preservation of cultural heritage resources. B2 FOCUS OF GROWTH a) The settlement areas in the District are the focus of permanent population and dwelling growth in the District and their vitality and regeneration shall be promoted. b) There are two types of settlement areas in the District - Urban Centres where municipal sewage services and municipal water services are provided and Community Areas, where municipal sewage services and municipal water services are not provided. c) The limits of the Urban Centres and Community Areas are shown on Schedule to this Plan. A boundary expansion or adjustment undertaken as part of a comprehensive review will require an amendment to this Plan. In undertaking a comprehensive review, the level of detail of the assessment should correspond with the complexity and scale of the settlement boundary expansion or adjustment. 17
d) It is recognized that the vast majority of seasonal population and dwelling growth will occur outside of settlement areas as resource-based recreational uses primarily located in the Waterfront Area Designation. e) The population, employment and dwelling projections contained within this Section of the Plan are considered to be estimates based on current information and shall be used for growth and asset management including infrastructure and public service facilities. These planning estimates shall be updated as required when new information becomes available and should not be considered as growth targets. f) Where this Plan includes targets related to growth management and housing, progress toward such targets is intended to be achieved incrementally over a long-term time horizon (i.e. 20+ years). Growth trends and patterns will be monitored periodically by the District of Muskoka and policies in this Plan will be adjusted accordingly to ensure the targets are attainable and coordinated between the Area Municipalities. B3 PERMANENT POPULATION PROJECTIONS TO 2036 The District's permanent population is projected to increase by 16,600 between 2016 and 2036 and is expected to occur in the six Area Municipalities as shown on Table 1. Source: 2013 District of Muskoka Growth Strategy Phase 2 report dated January 10, 2014 18
B4 SEASONAL POPULATION PROJECTIONS TO 2036 The District's seasonal population is projected to increase by 9,100 between 2016 and 2036 and is expected to occur in the six Area Municipalities as shown on Table 2. Source: 2013 District of Muskoka Growth Strategy Phase 2 report dated January 10, 2014 B5 PERMANENT AND SEASONAL POPULATION PROJECTIONS TO 2036 Table 3 below is a summary of Tables 1 and 2 in Sections B3 and B4 of this Plan. 19
B6 PERMANENT DWELLING PROJECTIONS TO 2036 The number of permanent dwellings is projected to increase by 7,695 between 2016 and 2036 and is expected is to occur in the six Area Municipalities as shown on Table 4. Source: 2013 District of Muskoka Growth Strategy Phase 2 report dated January 10, 2014 B7 PERMANENT DWELLING GROWTH TARGETS BY URBAN CENTRE TO 2036 It is a policy of this Plan that a target of 70% of new residential dwellings occupied on a permanent basis be directed to the Urban Centres in the six Area Municipalities as shown on Table 5. Source: 2013 District of Muskoka Growth Strategy Phase 2 report dated January 10, 2014 20
B8 SEASONAL DWELLING PROJECTIONS TO 2036 The number of seasonal dwellings is projected to increase by approximately 2,400 between 2016 and 2036 (net of conversions of seasonal dwellings to permanent use) and is expected is to occur in the six Area Municipalities as shown on Table 6. Source: 2013 District of Muskoka Growth Strategy Phase 2 report dated January 10, 2014 B9 EMPLOYMENT PROJECTIONS TO 2036 The number of jobs is projected to increase by 7,420 between 2016 and 2036 and is expected to occur in the six Area Municipalities as shown on Table 7. Source: 2013 District of Muskoka Growth Strategy Phase 2 report dated January 10, 2014 B10 EFFECT OF POPULATION AND EMPLOYMENT GROWTH ON EXISTING PLANNING APPROVALS The population, employment and housing projections set out in Tables 1 to 7 of this Plan do not have an impact on the ability of the District and the Area Municipalities to consider applications to develop lands that are within an Urban Centre or Community Area that existed on the date this Plan came into effect. 21
B11 B12 B13 SETTLEMENT AREA BOUNDARY EXPANSIONS Although no settlement area boundary expansions are anticipated during the life cycle of this Plan, should an expansion to an Urban Centre or Community Area be proposed, it can only occur as part of a comprehensive review as set out in the Provincial Policy Statement in effect. An Amendment to this Plan will be required for an expansion to an Urban Centre or a Community Area. RESIDENTIAL INTENSIFICATION a) The minimum District-wide intensification target is 25% of new permanent residential development to be accommodated within the built-up area of Urban Centres. This target is intended to apply on aggregate across all Urban Centres in the District, but not necessarily to each individual development proposal. b) The built-up area will be defined by the Area Municipalities in consultation with the District and will be included on Schedules to the Area Municipal Official Plans. c) In order to achieve the District target above, each Area Municipality shall prepare an intensification plan to establish an appropriate Area Municipal target, identify appropriate locations within each Urban Centre and promote opportunities for intensification and redevelopment where this can be accommodated taking into account existing building stock or areas, including brownfield sites and/or other underutilized properties, character and the availability of suitable existing or planned infrastructure and public service facilities required to accommodate projected needs, among other matters as identified by the Area Municipality. d) The intensification plan shall include specific targets for each Urban Centre in consideration of the District-wide target and the local context. Other considerations may include the identification of nodes and corridors and densities that could facilitate the provision or expansion of limited public transit. Intensification plans will be implemented through the Area Municipal Official Plans. NEW DEVELOPMENT IN DESIGNATED GROWTH AREAS IN URBAN CENTRES In cases where any major development is proposed in a designated growth area within an Urban Centre, it should be demonstrated that: a) The proposed development will generally serve as a logical extension to the existing built up area, is compact and makes efficient use of land; b) The scale and location of the proposed development will be in conformity with Section B15.6 of this Plan, as applicable; c) The proposal will contribute to the availability of a range of housing choices (e.g. density, form, and price) in the designated growth area as a whole, subject to servicing constraints; d) The amount of growth is in accordance with the District of Muskoka s growth management strategy, with respect to the amount of growth occurring in 22
designated growth areas and as intensification; and, e) All of the other infrastructure and public service facilities required to service the development is available or to be provided, with such infrastructure and public service facilities being used as efficiently as possible. B14.1 NEED FOR A COMPREHENSIVE DEVELOPMENT PLAN Where major development is proposed in a designated growth area, development and redevelopment shall only be permitted subject to the preparation of a Comprehensive Development Plan. Comprehensive Development Plans are not intended to replace the requirement for Secondary Plans in Area Municipal Official Plans, but rather may be used in conjunction with Secondary Plans or in areas where Secondary Plans are not required but large scale or multi-phased development is proposed. Comprehensive Development Plans are required because the following matters should be assessed in a comprehensive manner: a) Protection of Natural heritage features and areas that may be present; b) Planning for new roads, stormwater management, other infrastructure and public service facilities; c) Phasing of the proposal to ensure the orderly progress of development and installation of infrastructure occurs; d) The relationship of development on separate parcels or phases from a land use and density perspective; e) Provision of parkland and other public amenities in a logical manner; and/or f) Provision of both residential and non-residential uses, if proposed, is developed in a logical and timely manner. In cases where major development may be permitted within the context of infill and minor rounding out of a Community Area and where individual on-site sewage services and individual on-site water services are proposed, a further purpose of the Comprehensive Development Plan would be to demonstrate that site conditions are suitable for the long-term provision of such services with no negative impacts. B14.2 MATTERS TO BE DEALT WITH IN A COMPREHENSIVE DEVELOPMENT PLAN Where a Comprehensive Development Plan is required, the following matters shall be dealt with, as appropriate and depending on the context and location of the affected lands, in a Comprehensive Development Plan: a) A detailed overall land use plan, identifying the location of all of the proposed uses including the distribution of density and the proposed scale of all uses; b) The proposed pattern of streets, developable blocks and pedestrian and active transportation routes; c) The location of appropriate access points onto the abutting road network; d) A plan showing the location of any future public lands that may be dedicated to the Area Municipality as part of the approval process; 23
e) A detailed phasing plan that describes the sequencing of development and the timing of any infrastructure improvements; f) The nature and location of natural heritage features and functions that will be protected from development; g) A Functional Servicing Study that addresses servicing needs, identifies design and construction requirements, including construction mitigation plans, identifies monitoring requirements, reviews hydrogeological impacts and physical constraints, all of which is intended to minimize impacts to the natural environment; and, h) Any other studies or assessments identified as part of a complete application and/or during pre-consultation. B15 SERVICING B15.1 GENERAL POLICIES a) Planning for sewage and water services shall: i) Direct and accommodate expected growth or development in a manner that promotes the efficient use and optimization of existing: 1. Municipal sewage services and municipal water services; and 2. Private individual on-site services where municipal sewage services and municipal water services are not available. ii) Ensure that these systems are provided in a manner that: 1. Can be sustained by the water resources upon which such services rely; 2. Is feasible, financially viable and complies with all regulatory requirements; 3. Protects human health and the natural environment and; 4. Considers the impacts of climate change in the design of infrastructure. iii) Promote water conservation and water use efficiency; iv) Integrate servicing and land use considerations at all stages of the planning process; v) Encourage development which optimizes the use of existing services before infrastructure is extended; and vi) Be in accordance with the servicing hierarchy outlined through Sections B15.2 and B15.3. b) Infrastructure corridors (existing and proposed) that have been or will be identified through an Environmental Assessment process shall be protected to support growth. 24