2 Where and How to Grow

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2.1 Context

The GGH is a dynamic and diverse area, and one of the fastest growing regions in North America. By 2051, this area is forecast to grow to, at a minimum, 14.8 million people and 7.0 million jobs. The magnitude and pace of this growth necessitates a plan for building healthy and balanced communities and maintaining and improving our quality of life while adapting to the demographic shift underway.

To better co-ordinate planning for growth across the region, this Plan provides population and employment forecasts for all upper- and single-tier municipalities in the GGH. These growth forecasts are a foundational component of this Plan. They are to be reviewed in consultation with municipalities at least every five years.

This Plan is about accommodating forecasted growth in complete communities. These are communities that are well designed to meet people’s needs for daily living throughout an entire lifetime by providing convenient access to an appropriate mix of jobs, local services, public service facilities, and a full range of housing to accommodate a range of incomes and household sizes. Complete communities support quality of life and human health by encouraging the use of active transportation and providing high quality public open space, adequate parkland, opportunities for recreation, and access to local and healthy food. They provide for a balance of jobs and housing in communities across the GGH to reduce the need for long distance commuting. They also support climate change mitigation by increasing the modal share for transit and active transportation and by minimizing land consumption through compact built form.

To support the achievement of complete communities, this Plan establishes minimum intensification and density targets that recognize the diversity of communities across the GGH. Some larger urban centres, such as Toronto, have already met some of the minimum targets established in this Plan, while other communities are growing and intensifying at a different pace that reflects their local context.

Building compact and complete communities, and protecting agricultural lands, water resources and natural areas will help reduce greenhouse gas emissions and ensure communities are more resilient to the impacts of a changing climate. Ontario has recently affirmed its commitment to reduce greenhouse gas emissions by 30 per cent below 2005 levels by 2030 in Preserving and Protecting our Environment for Future Generations: A Made-in-Ontario Environment Plan. This target aligns Ontario with Canada’s 2030 target under the Paris Agreement.

To support the achievement of complete communities that are healthier, safer, and more equitable, choices about where and how growth occurs in the GGH need to be made carefully. Better use of land and infrastructure can be made by directing growth to settlement areas and prioritizing intensification, with a focus on strategic growth areas, including urban growth centres and major transit station areas, as well as brownfield sites and greyfields. Concentrating new development in these areas provides a focus for investments in transit as well as other types of infrastructure and public service facilities to support forecasted growth, while also supporting a more diverse range and mix of housing options. However, to protect public safety and prevent future flood risks, growth should generally be directed away from hazardous areas, including those that have been identified as Special Policy Areas in accordance with the PPS.

The Growth Plan, 2006 identified 25 urban growth centres and this Plan continues to recognize those urban growth centres as regional focal points for accommodating population and employment growth. The continued revitalization of urban growth centres as meeting places, locations for cultural facilities, public institutions, and major services and transit hubs with the potential to become more vibrant, mixed-use, transit-supportive communities is particularly important.

This Plan recognizes transit as a first priority for major transportation investments. It sets out a regional vision for transit, and seeks to align transit with growth by directing growth to major transit station areas and other strategic growth areas, including urban growth centres, and promoting transit investments in these areas. To optimize provincial investments in higher order transit, this Plan also identifies priority transit corridors and the Province expects municipalities to complete detailed planning for major transit station areas on these corridors to support planned service levels.

The region is experiencing a dramatic economic change. Traditional industries, such as manufacturing and agri-food businesses, continue to play an important role, but globalization and technology are also transforming the GGH’s economy. There has been a shift towards knowledge-intensive, high value-added activities that is increasing the significance of the service and knowledge-based sectors and spurring innovation in other segments of the economy. This change is providing opportunities for a variety of types of businesses to locate and grow in the GGH, which is fundamental to ensuring a more prosperous economic future. Therefore, it is important to ensure an adequate supply of land within employment areas – both for traditional industries and for service sector and knowledge-based businesses that warrant such locations – and sites for a broad range of other employment uses.

It is important that we maximize the benefits of land use planning as well as existing and future investments in infrastructure so that our communities are well-positioned to leverage economic change. It is also critical that we understand the importance of provincially significant employment zones and consider opportunities to better co-ordinate our collective efforts across municipalities to support their contribution to economic growth and improve access to transit.

As in many thriving metropolitan regions, many communities in the GGH are facing issues of housing affordability, which are being driven primarily by sustained population growth and factors such as a lack of housing supply with record low vacancy rates. This Plan helps to address this challenge by providing direction to plan for a range and mix of housing options, including additional residential units and affordable housing and, in particular, higher density housing options that can accommodate a range of household sizes in locations that can provide access to transit and other amenities. There is also a need for stakeholders to work collaboratively to find opportunities to redevelop sites using more age-friendly community design.

Building more compact greenfield communities reduces the rate at which land is consumed. Communities in larger urban centres need to grow at transit-supportive densities, with walkable street configurations. Compact built form and intensification efforts go together with more effective transit and active transportation networks and are fundamental to where and how we grow. They are necessary to ensure the viability of transit; connect people to homes, jobs and other aspects of daily living for people of all ages; and meet climate change mitigation and adaptation objectives. Moreover, an increased modal share for active transportation and transit, including convenient, multimodal options for intra- and inter-municipal travel, supports reduced air pollution and improved public health outcomes.

It is important to optimize the use of the existing urban land supply as well as the existing building and housing stock to avoid over-designating land for future urban development while also providing flexibility for local decision-makers to respond to housing need and market demand. This Plan's emphasis on optimizing the use of the existing urban land supply represents an intensification first approach to development and city-building, one which focuses on making better use of our existing infrastructure and public service facilities, and less on continuously expanding the urban area.

Strong, healthy and prosperous rural communities are also vital to the economic success of the GGH and contribute to our quality of life. This Plan recognizes and promotes the important role of rural towns and villages as a focus of economic, cultural and social activities that support surrounding rural and agricultural areas across the GGH. Opportunities to support a diversified rural economy should be promoted by protecting farmland and the viability of the agri-food sector in rural areas. Healthy rural communities are important to the vitality and well-being of the larger region.

2.1 Policies for Where and How to Grow

2.2.1 Managing growth

Population and employment forecasts contained in Schedule 3 or such higher forecasts as established by the applicable upper- or single-tier municipality through its municipal comprehensive review will be used for planning and managing growth in the GGH to the horizon of this Plan in accordance with the policies in subsection 5.2.4.
Forecasted growth to the horizon of this Plan will be allocated based on the following:
1. the vast majority of growth will be directed to settlement areas that:
  1. have a delineated built boundary;
  2. have existing or planned municipal water and wastewater systems; and
  3. can support the achievement of complete communities;
2. growth will be limited in settlement areas that:
  1. are rural settlements;
  2. are not serviced by existing or planned municipal water and wastewater systems; or
  3. are in the Greenbelt Area;
3. within settlement areas, growth will be focused in:
  1. delineated built-up areas;
  2. strategic growth areas;
  3. locations with existing or planned transit, with a priority on higher order transit where it exists or is planned; and
  4. areas with existing or planned public service facilities;
4. development will be directed to settlement areas, except where the policies of this Plan permit otherwise;
5. development will be generally directed away from hazardous lands; and
6. the establishment of new settlement areas is prohibited.

Upper- and single-tier municipalities will undertake integrated planning to manage forecasted growth to the horizon of this Plan, which will:
1. establish a hierarchy of settlement areas, and of areas within settlement areas, in accordance with policy 2.2.1.2;
2. be supported by planning for infrastructure and public service facilities by considering the full life cycle costs of these assets and developing options to pay for these costs over the long-term;
3. provide direction for an urban form that will optimize infrastructure, particularly along transit and transportation corridors, to support the achievement of complete communities through a more compact built form;
4. support the environmental and agricultural protection and conservation objectives of this Plan; and
5. be implemented through a municipal comprehensive review and, where applicable, include direction to lower-tier municipalities.
Applying the policies of this Plan will support the achievement of complete communities that:
1. feature a diverse mix of land uses, including residential and employment uses, and convenient access to local stores, services, and public service facilities;
2. improve social equity and overall quality of life, including human health, for people of all ages, abilities, and incomes;
3. provide a diverse range and mix of housing options, including additional residential units and affordable housing, to accommodate people at all stages of life, and to accommodate the needs of all household sizes and incomes;
4. expand convenient access to:
  1. a range of transportation options, including options for the safe, comfortable and convenient use of active transportation;
  2. public service facilities, co-located and integrated in community hubs;
  3. an appropriate supply of safe, publicly-accessible open spaces, parks, trails, and other recreational facilities; and
  4. healthy, local, and affordable food options, including through urban agriculture;
5. provide for a more compact built form and a vibrant public realm, including public open spaces;
6. mitigate and adapt to the impacts of a changing climate, improve resilience and reduce greenhouse gas emissions, and contribute to environmental sustainability; and
7. integrate green infrastructure and appropriate low impact development.

The Minister will establish a methodology for assessing land needs to implement this Plan, including relevant assumptions and other direction as required. This methodology will be used by upper- and single-tier municipalities to assess the quantity of land required to accommodate forecasted growth to the horizon of this Plan.
Based on a land needs assessment undertaken in accordance with policy 2.2.1.5, some upper- and single-tier municipalities in the outer ring will determine that they have excess lands. These municipalities will:
1. determine which lands will be identified as excess lands based on the hierarchy of settlement areas established in accordance with policy 2.2.1.3;
2. prohibit development on all excess lands to the horizon of this Plan; and
3. where appropriate, use additional tools to reduce the land that is available for development, such as those set out in policies 5.2.8.3 and 5.2.8.4.

2.2.2 Delineated built-up areas

By the time the next municipal comprehensive review is approved and in effect, and for each year thereafter, the applicable minimum intensification target is as follows:
1. A minimum of 50 per cent of all residential development occurring annually within each of the Cities of Barrie, Brantford, Guelph, Hamilton, Orillia and Peterborough and the Regions of Durham, Halton, Niagara, Peel, Waterloo and York will be within the delineated built-up area; and
2. The City of Kawartha Lakes and the Counties of Brant, Dufferin, Haldimand, Northumberland, Peterborough, Simcoe and Wellington will, through the next municipal comprehensive review, each establish the minimum percentage of all residential development occurring annually that will be within the delineated built-up area, based on maintaining or improving upon the minimum intensification target contained in the applicable upper- or single-tier official plan.
Until the next municipal comprehensive review is approved and in effect, the annual minimum intensification target contained in the applicable upper- or single-tier official plan that is approved and in effect as of July 1, 2017 will continue to apply.
All municipalities will develop a strategy to achieve the minimum intensification target and intensification throughout delineated built-up areas, which will:
1. identify strategic growth areas to support achievement of the intensification target and recognize them as a key focus for development;
2. identify the appropriate type and scale of development in strategic growth areas and transition of built form to adjacent areas;
3. encourage intensification generally throughout the delineated built-up area;
4. ensure lands are zoned and development is designed in a manner that supports the achievement of complete communities;
5. prioritize planning and investment in infrastructure and public service facilities that will support intensification; and
6. be implemented through official plan policies and designations, updated zoning and other supporting documents.
Councils of upper- and single-tier municipalities may request an alternative to the target established in policy 2.2.2.1 where it is demonstrated that this target cannot be achieved and that the alternative target will be appropriate given the size, location and capacity of the delineated built-up area.
The Minister may permit an alternative to the target established in policy 2.2.2.1. If council does not make a request or the Minister does not permit an alternative target, the target established in policy 2.2.2.1 will apply.

2.2.3 Urban growth centres

Urban growth centres will be planned:
1. as focal areas for investment in regional public service facilities, as well as commercial, recreational, cultural, and entertainment uses;
2. to accommodate and support the transit network at the regional scale and provide connection points for inter- and intra-regional transit;
3. to serve as high-density major employment centres that will attract provincially, nationally, or internationally significant employment uses; and
4. to accommodate significant population and employment growth.
Urban growth centres will be planned to achieve, by 2031 or earlier, a minimum density target of:
1. 400 residents and jobs combined per hectare for each of the urban growth centres in the City of Toronto;
2. 200 residents and jobs combined per hectare for each of the Downtown Brampton, Downtown Burlington, Downtown Hamilton, Downtown Milton, Markham Centre, Downtown Mississauga, Newmarket Centre, Midtown Oakville, Downtown Oshawa, Downtown Pickering, Richmond Hill Centre/Langstaff Gateway, Vaughan Metropolitan Centre, Downtown Kitchener, and Uptown Waterloo urban growth centres; and
3. 150 residents and jobs combined per hectare for each of the Downtown Barrie, Downtown Brantford, Downtown Cambridge, Downtown Guelph, Downtown Peterborough and Downtown St. Catharines urban growth centres.

2.2.4 Transit corridors and station areas

The priority transit corridors shown in Schedule 5 will be identified in official plans. Planning will be prioritized for major transit station areas on priority transit corridors, including zoning in a manner that implements the policies of this Plan.
For major transit station areas on priority transit corridors or subway lines, upper- and single-tier municipalities, in consultation with lower-tier municipalities, will delineate the boundaries of major transit station areas in a transit-supportive manner that maximizes the size of the area and the number of potential transit users that are within walking distance of the station.
Major transit station areas on priority transit corridors or subway lines will be planned for a minimum density target of:
1. 200 residents and jobs combined per hectare for those that are served by subways;
2. 160 residents and jobs combined per hectare for those that are served by light rail transit or bus rapid transit; or
3. 150 residents and jobs combined per hectare for those that are served by the GO Transit rail network.
For a particular major transit station area, the Minister may approve a target that is lower than the applicable target established in policy 2.2.4.3, where it has been demonstrated that this target cannot be achieved because:
1. development is prohibited by provincial policy or severely restricted on a significant portion of the lands within the delineated area; or
2. there are a limited number of residents and jobs associated with the built form, but a major trip generator or feeder service will sustain high ridership at the station or stop.
Notwithstanding policies 5.2.3.2 b) and 5.2.5.3 c), upper- and single-tier municipalities may delineate the boundaries of major transit station areas and identify minimum density targets for major transit station areas in advance of the next municipal comprehensive review, provided it is done in accordance with subsections 16(15) or (16) of the Planning Act, as the case may be.
Within major transit station areas on priority transit corridors or subway lines, land uses and built form that would adversely affect the achievement of the minimum density targets in this Plan will be prohibited.
The Province may identify additional priority transit corridors and planning requirements for major transit station areas on priority transit corridors or subway lines, to support the optimization of transit investments across the GGH, which may specify:
1. the timeframes for implementation of the planning requirements;
2. the boundaries of the area that will be subject to the planning requirements; and
3. any additional requirements that may apply in relation to these areas.
All major transit station areas will be planned and designed to be transit-supportive and to achieve multimodal access to stations and connections to nearby major trip generators by providing, where appropriate:
1. connections to local and regional transit services to support transit service integration;
2. infrastructure to support active transportation, including sidewalks, bicycle lanes, and secure bicycle parking; and
3. commuter pick-up/drop-off areas.
Within all major transit station areas, development will be supported, where appropriate, by:
1. planning for a diverse mix of uses, including additional residential units and affordable housing, to support existing and planned transit service levels;
2. fostering collaboration between public and private sectors, such as joint development projects;
3. providing alternative development standards, such as reduced parking standards; and
4. prohibiting land uses and built form that would adversely affect the achievement of transit-supportive densities.
Lands adjacent to or near to existing and planned frequent transit should be planned to be transit-supportive and supportive of active transportation and a range and mix of uses and activities.
In planning lands adjacent to or near higher order transit corridors and facilities, municipalities will identify and protect lands that may be needed for future enhancement or expansion of transit infrastructure, in consultation with Metrolinx, as appropriate.

2.2.5 Employment

To learn more about provincially significant employment zones click here.

Economic development and competitiveness in the GGH will be promoted by:
1. making more efficient use of existing employment areas and vacant and underutilized employment lands and increasing employment densities;
2. ensuring the availability of sufficient land, in appropriate locations, for a variety of employment to accommodate forecasted employment growth to the horizon of this Plan;
3. planning to better connect areas with high employment densities to transit; and
4. integrating and aligning land use planning and economic development goals and strategies to retain and attract investment and employment.
Major office and appropriate major institutional development will be directed to urban growth centres, major transit station areas or other strategic growth areas with existing or planned frequent transit service.
Retail and office uses will be directed to locations that support active transportation and have existing or planned transit.
In planning for employment, surface parking will be minimized and the development of active transportation networks and transit-supportive built form will be facilitated.
Municipalities should designate and preserve lands within settlement areas located adjacent to or near major goods movement facilities and corridors, including major highway interchanges, as areas for manufacturing, warehousing and logistics, and appropriate associated uses and ancillary facilities.
Upper- and single-tier municipalities, in consultation with lower-tier municipalities, will designate all employment areas in official plans and protect them for appropriate employment uses over the long-term. For greater certainty, employment area designations may be incorporated into upper- and single-tier official plans by amendment at any time in advance of the next municipal comprehensive review.
Municipalities will plan for all employment areas within settlement areas by:
1. prohibiting residential uses and prohibiting or limiting other sensitive land uses that are not ancillary to the primary employment use;
2. prohibiting major retail uses or establishing a size or scale threshold for any major retail uses that are permitted and prohibiting any major retail uses that would exceed that threshold; and
3. providing an appropriate interface between employment areas and adjacent non-employment areas to maintain land use compatibility.
The development of sensitive land uses, major retail uses or major office uses will, in accordance with provincial guidelines, avoid, or where avoidance is not possible, minimize and mitigate adverse impacts on industrial, manufacturing or other uses that are particularly vulnerable to encroachment.
The conversion of lands within employment areas to non-employment uses may be permitted only through a municipal comprehensive review where it is demonstrated that:
1. there is a need for the conversion;
2. the lands are not required over the horizon of this Plan for the employment purposes for which they are designated;
3. the municipality will maintain sufficient employment lands to accommodate forecasted employment growth to the horizon of this Plan;
4. the proposed uses would not adversely affect the overall viability of the employment area or the achievement of the minimum intensification and density targets in this Plan, as well as the other policies of this Plan; and
5. there are existing or planned infrastructure and public service facilities to accommodate the proposed uses.
Notwithstanding policy 2.2.5.9, until the next municipal comprehensive review, lands within existing employment areas may be converted to a designation that permits non-employment uses, provided the conversion would:
1. satisfy the requirements of policy 2.2.5.9 a), d) and e);
2. maintain a significant number of jobs on those lands through the establishment of development criteria; and
3. not include any part of an employment area identified as a provincially significant employment zone unless the part of the employment area is located within a major transit station area as delineated in accordance with the policies in subsection 2.2.4.
Any change to an official plan to permit new or expanded opportunities for major retail in an employment area may only occur in accordance with policy 2.2.5.9 or 2.2.5.10.
The Minister may identify provincially significant employment zones and may provide specific direction for planning in those areas to be implemented through appropriate official plan policies and designations and economic development strategies.
Upper- and single-tier municipalities, in consultation with lower-tier municipalities, will establish minimum density targets for all employment areas within settlement areas that:
1. are measured in jobs per hectare;
2. reflect the current and anticipated type and scale of employment that characterizes the employment area to which the target applies;
3. reflects opportunities for the intensification of employment areas on sites that support active transportation and are served by existing or planned transit; and
4. will be implemented through official plan policies and designations and zoning by-laws.
Outside of employment areas, development criteria should be established to ensure that the redevelopment of any employment lands will retain space for a similar number of jobs to remain accommodated on site.
The retail sector will be supported by promoting compact built form and intensification of retail and service uses and areas and encouraging the integration of those uses with other land uses to support the achievement of complete communities.
Existing office parks will be supported by:
1. improving connectivity with transit and active transportation networks;
2. providing for an appropriate mix of amenities and open space to serve the workforce;
3. planning for intensification of employment uses;
4. ensuring that the introduction of any non-employment uses, if appropriate, would be limited and would not negatively impact the primary function of the area; and
5. approaches to transportation demand management that reduce reliance on single-occupancy vehicle use.
Upper- and single-tier municipalities, in consultation with lower-tier municipalities, the Province, and other appropriate stakeholders, are encouraged to undertake a co-ordinated approach to planning for large areas with high concentrations of employment that cross municipal boundaries and are major trip generators, on matters such as transportation demand management and economic development. If necessary, the Minister may identify certain areas that meet these criteria and provide direction for a co-ordinated approach to planning.
In recognition of the importance of cross-border trade with the United States, this Plan recognizes a Gateway Economic Zone and Gateway Economic Centre near the Niagara-United States border. Planning and economic development in these areas will support economic diversity and promote increased opportunities for cross-border trade, movement of goods, and tourism.

2.2.6 Housing

Upper- and single-tier municipalities, in consultation with lower-tier municipalities, the Province, and other appropriate stakeholders, will:
1. support housing choice through the achievement of the minimum intensification and density targets in this Plan, as well as the other policies of this Plan by:
  1. identifying a diverse range and mix of housing options and densities, including additional residential units and affordable housing to meet projected needs of current and future residents; and
  2. establishing targets for affordable ownership housing and rental housing;
2. identify mechanisms, including the use of land use planning and financial tools, to support the implementation of policy 2.2.6.1 a);
3. align land use planning with applicable housing and homelessness plans required under the Housing Services Act, 2011;
4. address housing needs in accordance with provincial policy statements such as the Policy Statement: “Service Manager Housing and Homelessness Plans”; and
5. implement policy 2.2.6.1 a), b), c) and d) through official plan policies and designations and zoning by-laws.
Notwithstanding policy 1.4.1 of the PPS, 2020, in implementing policy 2.2.6.1, municipalities will support the achievement of complete communities by:
1. planning to accommodate forecasted growth to the horizon of this Plan;
2. planning to achieve the minimum intensification and density targets in this Plan;
3. considering the range and mix of housing options and densities of the existing housing stock; and
4. planning to diversify their overall housing stock across the municipality.
To support the achievement of complete communities, municipalities will consider the use of available tools to require that multi-unit residential developments incorporate a mix of unit sizes to accommodate a diverse range of household sizes and incomes.
Municipalities will maintain at all times where development is to occur, land with servicing capacity sufficient to provide at least a three-year supply of residential units. This supply will include, and may exclusively consist of, lands suitably zoned for intensification and redevelopment.
When a settlement area boundary has been expanded in accordance with the policies in subsection 2.2.8, the new designated greenfield area will be planned in accordance with policies 2.2.6.1 and 2.2.6.2.

2.2.7 Designated greenfield areas

New development taking place in designated greenfield areas will be planned, designated, zoned and designed in a manner that:
1. supports the achievement of complete communities;
2. supports active transportation; and
3. encourages the integration and sustained viability of transit services.
The minimum density target applicable to the designated greenfield area of each upper- and single-tier municipality is as follows:
1. The Cities of Barrie, Brantford, Guelph, Hamilton, Orillia and Peterborough and the Regions of Durham, Halton, Niagara, Peel, Waterloo and York will plan to achieve within the horizon of this Plan a minimum density target that is not less than 50 residents and jobs combined per hectare; and
2. The City of Kawartha Lakes and the Counties of Brant, Dufferin, Haldimand, Northumberland, Peterborough, Simcoe and Wellington will plan to achieve within the horizon of this Plan a minimum density target that is not less than 40 residents and jobs combined per hectare.
The minimum density target will be measured over the entire designated greenfield area of each upper- or single-tier municipality, excluding the following:
1. natural heritage features and areas, natural heritage systems and floodplains, provided development is prohibited in these areas;
2. rights-of-way for:
  1. electricity transmission lines;
  2. energy transmission pipelines;
  3. freeways, as defined by and mapped as part of the Ontario Road Network; and
  4. railways;
3. employment areas; and
4. cemeteries.
Councils of upper- and single-tier municipalities may request an alternative to the target established in policy 2.2.7.2 where it is demonstrated that the target cannot be achieved and that the alternative target will support the diversification of the total range and mix of housing options and the achievement of a more compact built form in designated greenfield areas to the horizon of this Plan in a manner that is appropriate given the characteristics of the municipality and adjacent communities.
The Minister may permit an alternative to the target established in policy 2.2.7.2. If council does not make a request or the Minister does not permit an alternative target, the target established in policy 2.2.7.2 will apply.

2.2.8 Settlement area boundary expansions

Settlement area boundaries will be delineated in official plans.
A settlement area boundary expansion may only occur through a municipal comprehensive review where it is demonstrated that:
1. based on the minimum intensification and density targets in this Plan and a land needs assessment undertaken in accordance with policy 2.2.1.5, sufficient opportunities to accommodate forecasted growth to the horizon of this Plan are not available through intensification and in the designated greenfield area:
  1. within the upper- or single-tier municipality, and
  2. within the applicable lower-tier municipality;
2. the proposed expansion will make available sufficient lands not exceeding the horizon of this Plan, based on the analysis provided for in policy 2.2.8.2 a), while minimizing land consumption; and
3. the timing of the proposed expansion and the phasing of development within the designated greenfield area will not adversely affect the achievement of the minimum intensification and density targets in this Plan, as well as the other policies of this Plan.
Where the need for a settlement area boundary expansion has been justified in accordance with policy 2.2.8.2, the feasibility of the proposed expansion will be determined and the most appropriate location for the proposed expansion will be identified based on the comprehensive application of all of the policies in this Plan, including the following:
1. there is sufficient capacity in existing or planned infrastructure and public service facilities;
2. the infrastructure and public service facilities needed would be financially viable over the full life cycle of these assets;
3. the proposed expansion would be informed by applicable water and wastewater master plans or equivalent and stormwater master plans or equivalent, as appropriate;
4. the proposed expansion, including the associated water, wastewater and stormwater servicing, would be planned and demonstrated to avoid, or if avoidance is not possible, minimize and mitigate any potential negative impacts on watershed conditions and the water resource system, including the quality and quantity of water;
5. key hydrologic areas and the Natural Heritage System for the Growth Plan should be avoided where possible;
6. prime agricultural areas should be avoided where possible. To support the Agricultural System, alternative locations across the upper- or single-tier municipality will be evaluated, prioritized and determined based on avoiding, minimizing and mitigating the impact on the Agricultural System and in accordance with the following:
  1. expansion into specialty crop areas is prohibited;
  2. reasonable alternatives that avoid prime agricultural areas are evaluated; and
  3. where prime agricultural areas cannot be avoided, lower priority agricultural lands are used;
7. the settlement area to be expanded is in compliance with the minimum distance separation formulae;
8. any adverse impacts on the agri-food network, including agricultural operations, from expanding settlement areas would be avoided, or if avoidance is not possible, minimized and mitigated as determined through an agricultural impact assessment;
9. the policies of Sections 2 (Wise Use and Management of Resources) and 3 (Protecting Public Health and Safety) of the PPS are applied;
10. the proposed expansion would meet any applicable requirements of the Greenbelt, Oak Ridges Moraine Conservation, Niagara Escarpment, and Lake Simcoe Protection Plans and any applicable source protection plan; and
11. within the Protected Countryside in the Greenbelt Area:
  1. the settlement area to be expanded is identified in the Greenbelt Plan as a Town/Village;
  2. the proposed expansion would be modest in size, representing no more than a 5 per cent increase in the geographic size of the settlement area based on the settlement area boundary delineated in the applicable official plan as of July 1, 2017, up to a maximum size of 10 hectares, and residential development would not be permitted on more than 50 per cent of the lands that would be added to the settlement area;
  3. the proposed expansion would support the achievement of complete communities or the local agricultural economy;
  4. the proposed uses cannot be reasonably accommodated within the existing settlement area boundary;
  5. the proposed expansion would be serviced by existing municipal water and wastewater systems without impacting future intensification opportunities in the existing settlement area; and
  6. expansion into the Natural Heritage System that has been identified in the Greenbelt Plan is prohibited.
Notwithstanding policy 2.2.8.2, municipalities may adjust settlement area boundaries outside of a municipal comprehensive review, provided:
1. there would be no net increase in land within settlement areas;
2. the adjustment would support the municipality’s ability to meet the intensification and density targets established pursuant to this Plan;
3. the location of any lands added to a settlement area will satisfy the applicable requirements of policy 2.2.8.3;
4. the affected settlement areas are not rural settlements or in the Greenbelt Area; and
5. the settlement area to which lands would be added is serviced by municipal water and wastewater systems and there is sufficient reserve infrastructure capacity to service the lands.
Notwithstanding policies 2.2.8.2 and 5.2.4.3, a settlement area boundary expansion may occur in advance of a municipal comprehensive review, provided:
1. the lands that are added will be planned to achieve at least the minimum density target in policy 2.2.7.2 or 2.2.5.13, as appropriate;
2. the location of any lands added to a settlement area will satisfy the applicable requirements of policy 2.2.8.3;
3. the affected settlement area is not a rural settlement or in the Greenbelt Area;
4. the settlement area is serviced by municipal water and wastewater systems and there is sufficient reserve infrastructure capacity to service the lands; and
5. the additional lands and associated forecasted growth will be fully accounted for in the land needs assessment associated with the next municipal comprehensive review.
For a settlement area boundary expansion undertaken in accordance with policy 2.2.8.5, the amount of land to be added to the settlement area will be no larger than 40 hectares.

2.2.9 Rural areas

Municipalities are encouraged to plan for a variety of cultural and economic opportunities within rural settlements to serve the needs of rural residents and area businesses.
Public service facilities in rural settlements should be co-located and integrated in community hubs, and priority should be given to maintaining and adapting existing public service facilities in community hubs to meet the needs of the community, where feasible.
Subject to the policies in Section 4, development outside of settlement areas may be permitted on rural lands for:
1. the management or use of resources;
2. resource-based recreational uses; and
3. other rural land uses that are not appropriate in settlement areas provided they:
  1. are compatible with the rural landscape and surrounding local land uses;
  2. will be sustained by rural service levels; and
  3. will not adversely affect the protection of agricultural uses and other resource-based uses such as mineral aggregate operations.
Where permitted on rural lands, resource-based recreational uses should be limited to tourism-related and recreational uses that are compatible with the scale, character, and capacity of the resource and the surrounding rural landscape, and may include:
1. commercial uses to serve the needs of visitors; and
2. where appropriate, resource-based recreational dwellings for seasonal accommodation.
Existing employment areas outside of settlement areas on rural lands that were designated for employment uses in an official plan that was approved and in effect as of June 16, 2006 may continue to be permitted. Expansions to these existing employment areas may be permitted only if necessary to support the immediate needs of existing businesses and if compatible with the surrounding uses.
New multiple lots or units for residential development will be directed to settlement areas, but may be allowed on rural lands in site-specific locations with approved zoning or designation in an official plan that permitted this type of development as of June 16, 2006.
Notwithstanding policy 2.2.8.2, minor adjustments may be made to the boundaries of rural settlements outside of a municipal comprehensive review, subject to the following:
1. the affected settlement area is not in the Greenbelt Area;
2. the change would constitute minor rounding out of existing development, in keeping with the rural character of the area;
3. confirmation that water and wastewater servicing can be provided in an appropriate manner that is suitable for the long-term with no negative impacts on water; and
4. Sections 2 (Wise Use and Management of Resources) and 3 (Protecting Public Health and Safety) of the PPS are applied.

Updated: May 18, 2022

Published: April 16, 2019