healthy + complete communities the District of Muskoka
BOW + STERN david cooper, marika franko, jacky li, brandon kashin, kelsey prentice, graham procter, claire ricker april 20 2016 Ryerson Graduate Studio Final Report Table of Conents
1.0 INTRODUCTION 4.0 CASE STUDIES 1.1 Project Overview 4.1 Climate Change Adaptability and 1.2 Project Rationale Resiliency 1.3 District of Muskoka Context 4.2 Diverse Economy 4.3 Age-Friendly Planning 2.0 METHODOLOGY 4.4. Mobility Options Phase 1: Determining the Indicators of a Healthy Community 5.0 NEXT STEPS Phase 2: Refining the Indicators 5.1 Climate Change Phase 3: Official Plan Review 5.2 Diverse Economy Phase 4 & 5: Project Priorities and Case 5.3 Age-Friendly Planning Studies 5.4 Mobility
3.0 PROJECT PRIORITIES REFERENCES 3.1 Healthy Community Priorities Overview 3.2 Age Friendly Planning 3.3 Diverse Economy 3.4 Climate Change Adaptability and Resiliency 3.5 Mobility
Executive Summary
INTRODUCTION This project provides foundational research for how the District can support the goals of a healthy and complete rural The District of Muskoka is commencing a review of the community through land-use policy. Land-use policies in Muskoka Official Plan in the Spring of 2016. The District Official Plans guide the development of our communities and has approached the Ryerson School of Urban and Regional the built environment. An Official Plan Review provides the Planning to conduct a review of the existing District Official opportunity to ensure that these land use policies will address plan, compile a collection of best practices review of healthy the needs of current residents, as well as the anticipated communities’ policies from comparable jurisdictions, and needs of the community in twenty years. However, it should provide policy suggestions that relate to the creation of healthy be noted that land-use policy is only one tool that can be used and complete rural communities. to achieve the goal of healthy and complete communities. Healthy land-use policies must be considered concurrently
2 with service provision policies and strategies. [1] AGE FRIENDLY PLANNING A healthy and complete rural community for the District of Aging retirees move to the District to enjoy its natural Muskoka constitutes as a choice for resources, balanced environment, while young people migrate elsewhere for policy and efficiencies with resources. A healthy and complete educational and employment opportunities. Without proactive community: planning, these demographic trends could stunt economic development and strain municipal resources. As we have Provides choices and opportunities for all residents, previously mentioned, the design of the built environment can by providing a diverse range of housing types, have an even greater impact on vulnerable populations such transportation modes, employment options, and as the aging and youth. Currently, age friendly planning is not recreation or leisure activities. explicitly addressed in District Official Plan. By considering the housing, mobility and service needs of all ages, we can Balances the defining characteristics of the identity address these challenges. such as rural character and natural environment, with economic development and growth. GOALS: Encourage and promote affordable housing options Efficientlymanages the natural and social resources for all stages of life. of the community to achieve the optimal benefits for all residents. Encourage mixed land uses to increase access to public and institutional services and amenities that This definition of a healthy and complete rural community augment the livability and success of growing should act as a lens for all land-use policy decisions. communities.
PROJECT PRIORITIES Promote physical and mental health through the creation of public spaces. Project priorities were identified in order to focus research on challenges facing the District, that are not currently being [2] ECONOMIC DIVERSIFICATION addressed. Additionally, goals were created for each priority. Currently, the District has an economy that is based on These goals are intended to be read like instructions; detailed tourism and related industries. A tourism-based economy is and targeted statements for how the District could address susceptible to economic downturns, and this makes many the identified policy gaps. of the District’s permanent residents vulnerable. A diverse 3 economy can address a number of the challenges faced by affect air and water quality, community infrastructure and the District, including income disparity, youth out-migration and the tourism-based economy. Along with these substantial access to safe and affordable housing. Income, employment concerns, the District’s identity is deeply connected to its status and working conditions are key factors influencing natural heritage features and these features could be altered health outcomes. from climate change.
The current Official Plan contains policies that seek to provide Currently, the District Official Plan contains policies providing a broad range of employment opportunities for the community. protection of the natural environment, particularly the District’s However, many of the challenges facing the District are tied water bodies. Additionally, the Muskoka Watershed Council to economic development. Emerging best practices in other has provided foundational research on how climate change municipalities could provide an opportunity to build upon will impact Muskoka’s watersheds. However, there are these policies. currently no Official Plan policies that address how the district can adapt to the impacts of climate change. GOALS: Encourage and accommodate activities that diversify GOALS: the District’s economic base. Build infrastructure that prepares both serviced and under services Promote economic activities that provide employment year-round, full-time, living wage for residents. Coordinate between land use planning and emergency response planning. Build upon the District’s existing strengths in the tourism industry, the creative sector and Muskoka’s Improve District energy efficiency and reduce carbon identity. footprint.
[3] CLIMATE CHANGE Diversify the availability of seasonal recreational Climate change will have a significant impact on the District’s and sport activities that support the District’s tourism natural environment over the next century. Some of the economy. environmental impacts include rising lake temperatures, an increase in extreme weather events and the fall of average lake levels. These environmental impacts could negatively 4 [4] MOBILITY FINDINGS Due to the low density built environment and rural character of the District, residents of Muskoka have limited transportation Research and analysis of case studies revealed important options outside of driving a car. The District has done extensive considerations for addressing each priority in the District of work on the development of an active transportation strategy, Muskoka’s rural context. In regards to age friendly planning, it and has also recently introduced Muskoka Extended Transit is important to consider the following: (MET) a pilot project funded by the Ministry of Transportation. • Affordable dense and compact developments attract While the importance of an active transportation network individuals across all age groups is recognized by the current Official Plan, policy regarding • Community centres and health hubs can make local mobility could be strengthened, especially considering the services and amenities more accessible for those challenges that the District will face in the future. Mobility living in rural communities; and touches upon many elements for of a healthy community, • Different and complementary housing units for including access to employment, economic development, different age demographics living in close and options for vulnerable populations such as seniors, youth proximity will provide community social benefits. and residents with disabilities. Similarly, in terms of building a diverse economy, the District GOALS: should consider: Improve the physical networks that exist between and • Quality of place is foundational to local economic within major centers, natural parks and systems, development; employment and educational areas to promote • It is essential to have shared visions and goals connectivity. among all stakeholders; • In rural communities, the key to cultivating and Prioritizes the mobility needs of vulnerable growing the creative economy stems from populations to gain access to services, employment, supporting small to medium-sized businesses; and and education. • Flexible and inclusive spaces should be made readily available for both business and public use.
5 In a rural environment, the District should consider the following NEXT STEPS in regards to climate change adaptability and resiliency: • The incorporation of built form characteristics such In order to incorporate these findings in the District Official as mixed use and compact development Plan, policy recommendations and complementary actions can be utilized to secure emergency response and are provided the Section 5. The key recommendation for the preparedness for all communities; District in their Official Plan review is to focus on the efficiencies • Policy documents should recognize the impacts that exist between different goals. As the project priorities climate change has on health (human), are encompassed under the topic of healthy and complete personal property, the economy, and the natural communities, the case studies illustrated that in pursuit of one environment; and action or policy intervention, inherently the goals of another • Direction for interventions such as improving energy priority will be met. efficiency should be identified in policy and/or guidelines.
Finally, with regards to mobility, consideration should be taken for the following based on the research conducted in this report: • Offering alternative modes of transportation would recognize the challenges faced by those without access to a private vehicle; • Explore the opportunities of regional public transit services along the Highway 11 corridor; and • A subsidy program for taxi services would provide a low cost mobility option for low-income residents, seniors and individuals with disabilities.
6 1.0 Introduction
1.1 Project Overview
The purpose of this project is to assist the District of Muskoka in defining ‘healthy communities’ for rural municipalities ` To develop an understanding of what healthy and and subsequently, applying this understanding towards a 1. complete communities in rural contexts look like; set of draft policy recommendations for the District Official Plan. Recommended policies are intended to encourage To develop a framework of healthy and complete the creation and development of complete and connected community priorities that is considerate of the physical communities by prioritizing climate change adaptability and 2. and socio-economic challenges and opportunities that resiliency measures, age friendly planning, enhanced mobility exist within the District of Muskoka; and to options and a diversified economy. The objectives for this project included: Create attainable goals for the District that reflect the 3. fundamental intentions of the project priorities. 7 1.2 Project Rationale
This project provides foundational research for how the poses a challenge to rural communities as this pattern of District can support the goals of a healthy and complete rural development is currently the norm. community through land use policy. Land use policies in Official Plans guide the development of our communities and The built environment and cultural lifestyle of rural communities the built environment. An Official Plan Review provides the differs greatly from that of urban communities and as such, opportunity to ensure that these land use policies will address rural communities have unique issues and challenges due to the needs of current residents, as well as the anticipated their distinct land use patterns, built environment, and smaller needs of the community in twenty years. However, it should dispersed population. The smaller property tax base, and be noted that land use policy is only one tool that can be used predominantly low-density development impact the wellbeing to achieve the goal of healthy and complete communities. of both social and environmental health, which includes: higher Healthy land use policies must be considered concurrently rates of illness and disease (e.g. obesity and heart disease), with service provision. mental health, social isolation, nutrition, and air quality.
The built environment has a direct impact on the health of the In recent years, the conversation around the District’s health people who live and work in an area. Studies have identified came to the forefront of community discussions and reports common aspects of built form that contribute to healthy, and from public health agencies. The health outcomes recorded unhealthy, environments. The Heart and Stroke Foundation, in the 2011 census for the Simcoe Muskoka District Health Simcoe Muskoka Health Unit, and the Government of Ontario unit reflect a need to place greater emphasis on community have linked poor health outcomes to more dispersed, single health in land use planning decisions. When compared to use, and low-density built form. This includes higher rates of Ontario as a whole, the District has a higher percentage of illness and disease (e.g. obesity and heart disease), mental its population that is overweight or obese, a higher rate of health issues, social isolation, inadequate nutrition, and unintentional injuries and related deaths, a greater mortality poorer air quality. The built environment can have an even rate from preventable diseases, and a higher rate of cancers greater impact on vulnerable populations, including people and related deaths. The residents of the District are also more with a lower socioeconomic status, children, youth, the elderly likely to develop respiratory and cardiovascular diseases. and people with disabilities. Land-use planning can therefore These trends could be exacerbated by an aging population have a substantial impact on the health of a community. This whose health is more vulnerable to environmental impacts. 8 Poor health not only lowers the quality of life in the District but also increases the financial burden on the healthcare system that must treat diseases that are symptomatic of a dispersed and low-density built environment.
In order to ensure that the District will remain a prosperous and vibrant in the future, healthy and complete community priorities and goals should be adopted as a lens for land use policy decisions. A healthy and complete rural community for the District of Muskoka constitutes as a choice for resources, balanced policy and efficiencies with resources. A healthy and complete community:
Provides choices and opportunities for all 1. residents, by providing a diverse range of housing types, transportation modes and employment options.
Balances the defining characteristics of the identity, 2. such as rural character and natural environment, with economic development and growth.
Efficiently manages the natural and social resources 3. of the community to achieve the optimal benefits for all residents.
9 1.3 District of Muskoka Context 1.3.1 Overview The District Municipality of Muskoka is a regional municipality in the province of Ontario, Canada. Extending from Georgian Bay to Algonquin Provincial Park and Haliburton County, the District has a geographical area of 3,816 km2 and is home to a permanent population of 61,010 residents (2014). FIGURE 1: DISTRICT MAP
The District of Muskoka is made up of six area municipalities: Town of Bracebridge, Township of Georgian Bay, Town of Gravenhurst, Town of Huntsville, Township of Lake of Bays, and Township of Muskoka Lakes, as well as two First Nations; the Wahta Mohawk Territory and the Moose Deer Point First Nation Reserve 79. The region contains 9 Urban Centres and 19 Communities, including waterfront communities and special character areas (Figure 1). The District’s lake system and watersheds are a significant contributor to the unique geography, ecology, and natural heritage that make up the identity of the District.
The District of Muskoka is located north of the County of Simcoe, and just outside the boundaries of the Growth Plan of the Greater Golden Horseshoe (2006) and south of the 10 Growth Plan for Northern Ontario (2011). The District is connected to the Greater Toronto Area by regional highways, Highway 11, 400, and 69. The District of Muskoka also operates the Muskoka Airport located in Gravenhurst, Ontario. This airport serves businesses in the District through transporting products, provides a point of entry for tourists and seasonal residents, and provides community services like air ambulances.
The District is unique from other rural communities in that it has a significant seasonal population, an economy based primarily on tourism, a significant second home population and a natural environment with little agricultural land. The District’s identity and culture is tied to its natural environment and rural character. Key tourist draws include; Algonquin Provincial Park, Arrowhead Provincial Park, Georgian Bay, Lake Muskoka and Lake of Bays.
The District is comprised of 28 Urban Centres and Communities within its six area municipalities. Development outside of these areas is generally low-density, with single-detached homes. Public services, institutions and facilities are generally found within the urban centers, and the current Official Plan directs new growth and development to the already established and built-up areas.
11 1.3.2 Demographics The permanent population in the District of Muskoka was estimated to be 61,010 in 2014 and the seasonal population is estimated to be 84,040. During the peak seasons, an influx of seasonal residents results in a population increase of 138%. There are several notable demographic characteristics of the District which have informed the priorities and goals of this project.
Age distribution: According to the 2011 census FIGURE 2: DISTRICT AGE DISTRIBUTION the District’s largest age cohort is permanent residents aged 55 years and older, and the smallest age cohort is residents aged between 20 to 34 years old. These age demographics are consistent across all six area municipalities (see Figure 2). Additionally, the population distribution of the District indicates that the District is experiencing youth out-migration. The current built form patterns that promote the use of a personal vehicle and the seasonal nature of the job market impact the District’s ability to attract and retain youth and young professionals to the area.
Generation status: Three-quarters of the District (75%) identified as a third generation 12 Canadians or more. From this, it can be inferred that a majority of those residing in the District have deep cultural and social connections to Canada and the region.
Local Economy: The District’s economy is based primarily on its tourism industry. Major employment sectors in the District include retail trade (14%), construction (14%), health care/ social assistance (11%), accommodation and food services (10%), and public administration (7%). The employment rate in the District is lower than Ontario’s average, 7.4% and 8.3% respectively. However, the District’s average household income is 15% lower than the provincial average (2011). The average household in the District earns approximately $72,942 according to 2011 census data.
The District’s socio-economic characteristics and geographic location bring forth a number of challenges that would make planning for the District’s future difficult. First, the presence of both a permanent and seasonal population may result in challenges with identifying needs and providing specific supports and services. Second, with a local economy that is grounded in one industry, the District is more susceptible to negative global economic forces. Third, current development patterns have increased the reliance on cars, which may create significant limitations on public service accessibility for young and older residents.
13 1.3.3 Political Framework and Planning Challenges 1.3.4 Report Structure The District is not subject to any provincial growth plans as it The report will begin with an introduction and overview of is outside the boundaries of the Growth Plan for the Greater the methodology used to arrive at the project priorities; age Golden Horseshoe (2006) and the Growth Plan for Northern friendly planning, economic diversification, climate change Ontario (2011). This creates a unique planning environment and mobility. Next, each priority is discussed more in depth, as it provides the District with the opportunity to direct growth and is then followed by an explanation of the goals that are and development in such a way that is self-directed and proposed to accompany each priority. The goals are intended tailored to the District’s unique local community context. to be read like instructions; detailed and targeted statements The District’s Official Plan, developed under the authority for how the District could address the identified policy gaps. delegated to the District by Section 14.7 of the Planning Act, The report concludes with a collection of national and must be consistent with the Provincial Policy Statement (2014) international case studies which complement and illustrate that sets a direction for all planning activities within Ontario. how the goals and priorities could manifest in reality through planning policy interventions and a discussion on the type of The District’s Official Plan incorporates policies related to policy and action items the District could adopt. growth, development, land use, and design while promoting the protection of the District’s natural resources and rural identity. The District has a council of 23 elected representatives including a chair elected by sitting District Councilors. The council is made up of the local representatives and mayors of the six Area Municipalities. This two-tiered structure allows issues that affect the region at large to be dealt with at a regional scale with input from all jurisdictions while more local matters can be addressed by local councils. However, this also creates an added level of complexity as jurisdictional responsibilities vary between the District, Area Municipalities and the Provincial government. While some responsibilities are shared, those specifically governed at Area level would need to be supported by generalized District level policies. 14 2.0 Methodology
1.1 Project Overview A major component of this project was PROJECT PROCESS identifying priority issues related to healthy FIGURE 3: PROJECT PROCESS and complete rural communities that were Explore Understand relevant to the District. The project priorities Healthy District of Review of Establish Compile were the product of a 5 phase method which Community Muskoka Official Priorities Case involved secondary research and policy Definitions Context Plans and Goals Studies analysis. The District’s current Official Plan was reviewed using indicators of a healthy rural community that were determined 1 2 3 4 5 through research and site observations. This methodological approach helped establish the Case studies will Healthy Community Priority will be identified form basis of suggested policy directions, goals, and case Elements were based on gaps and policy established opportunities in the studies that exemplified the various ways recommendations small to medium sized communities have existing policy framework made the link between land use planning and Healthy Community Goals and Actions indicators of a healthy community. Figure 3 Elements were will provide direction refined based on for the best practice illustrates the reports 5 phased approach. local context research
15 PHASE 1: Determining the Indicators of a Healthy Background research consisting of public health and planning Community publications, reports and studies were used to create a generalized list of the key indicators of a healthy community. Numerous publications on healthy communities were In order to understand healthy rural communities within a consulted in conjunction with the local context of the District Canadian context, specifically Ontario, reports published by to produce a set of healthy rural community indicators. These provincial organizations or groups were favored. The ‘Healthy were then applied to the District’s Official Plan in the form of Rural Communities Toolkit: A Guide for Rural Municipalities’, a SWOG (strengths, weaknesses, opportunities and gap) a report produced by the University of Guelph, Public Health analysis. The purpose of this was to have a means of identifying Ontario, Elgin St. Thomas Public Health and the Ontario where in the District’s Official Plan healthy and complete Professional Planners Institute was particularly helpful as a communities were being referenced and what opportunities starting point. It was one of the few documents that had an existed for these elements to be incorporated. The process explicit focus on the topic of healthy communities through a of determining these indicators is illustrated below (Figure 4): rural lens. The Tool Kit outlined 13 indicators that defined a healthy rural community. As such, this list was used as a FIGURE 4: LITERATURE REVIEW FLOW CHART starting point to build the indicator list for the evaluation of the District Official Plan. The 13 items identified in the Toolkit included:
1. Community Design and Land Use Planning 2. Active Transportation 3. Community Engagement and Capacity Building 4. Water Quality 5. Air Quality 6. Tourism 7. Planning for Special Age Groups 8. Agriculture 9. Cultural Strategies and Revitalization 16 10. Access to Local Food Ontario Professional Planners Institute. 11. Nature 12. Safe and Affordable Housing Although some of these documents were written in an urban 13. Climate Change context, the purpose of analyzing these documents was to inform our understanding of the themes and concepts of Other supplementary reports and publications on healthy healthy communities. The findings from these documents communities were consulted to further modify and expand the were further refined with a rural lens as discussed in the next list since the topic of healthy communities is not only dynamic, section. but also contextual. A complete literature review would produce a holistic list of healthy rural community indicators. Phase 2: Refining the Indicators The other key documents reviewed included, An understanding of the current socio-economic and The World Health Organizations online page for their demographic context of the District of Muskoka was Healthy City Program and their 1986 report, ‘Promoting incorporated to ensure that the elements of healthy rural Health in the Urban Context’; communities were reflective of the District’s unique context. This comprehension was based on observations and ‘Shaping Active, Healthy Communities’ report produced by discussion from site visits, as well as reports and publications the Heart and Stroke Foundation with assistance from the on the demographics, economy and the natural environment Canadian Institute of Planners and the Canadian Urban of the District. This context-specific approach resulted in the Institute; elimination of such elements including ‘Agriculture’, which did not relate or exist within the District. Other elements that were ‘Planning by Design: a healthy communities handbook’ modified included ‘Active Transportation’ and ‘Water and produced by the Ministry of Municipal Affairs and Housing as Air Quality’, which based on the literature and the District’s well as the Ontario Professional Planners Institute; and context, were transformed into ‘Transportation & Mobility’ and ‘Environmental Quality’. ‘Healthy Communities and planning for sustainable City Regions in Ontario’ produced by the 17 The product of this research was a list of nine indicators that Tourism, which speaks to a strong, resilient, and adaptable would constitute a healthy rural community, within the context economic base that is rooted in the tourism industry. of the District of Muskoka. These indicators were used to review the District Official Plan to identify the strengths, Planning for special age groups which means to have weaknesses, opportunities and gaps present in the District’s appropriate community design and land uses for all ages so policies. This analysis would feed into the establishment of the that their particular needs at their different stages in life are project priorities and policy recommendations. The modified supported. list of Toolkit indicators includes; Culture strategies and revitalization refers to the existence Community design and land use planning, which refers of a strong narrative of the history of the community, to land uses and community design that emphasize mixed preservation efforts to promote such history and linkages use and compact development to promote interaction and made to character, place-making and revitalization efforts. connectivity between people, places and their community. Affordable housing refers to the existence of housing options Transportation and mobility, which speaks to the existence available that are safe, affordable and meet the needs of the of suitable and appropriate mobility linkages for all age groups. local community.
Community engagement and capacity building, which Climate change refers to the existence of communities that refers to the means of facilitating community participation and are proactively planning for future extreme weather events local empowerment so that goals and enhanced community and incorporating mitigation strategies in their land uses, built capacity can be achieved. form design, community linkages and local economy.
Environmental quality, which means to have excellent While research revealed nine indicators, given the intent water and air quality, as well as access to open and green and purpose of this investigation only eight indicators were spaces within communities via protection and stewardship used in the SWOG analysis of the Official Plan. ‘Community that contributes to a sense of place and local character. Engagement and Capacity Building’ was omitted because it is not a topic generally covered in land use planning documents. 18 Phase 3: Official Plan Review
The Muskoka District Official Plan was reviewed using the eight indicators sourced and modified by the Healthy Rural Communities Toolkit explained above. The results of this analysis are found in Table 1.
19 TABLE 1: SWOG ANALYSIS
District of Muskoka OP Strength(s) Weakness(es) Opportunity Gap(s) Policy Provision Overview
Community Design and Land Provisions are given that There are no land use There is an opportunity Use encourage municipalities provisions that speak to include Healthy C.4 a - c, K.25, H.1, H.2, H.3, to create area-appropriate specifically to Healthy Communities-related land H.4, H.6, H.33 Community Improvement Communities, or any of the 9 use policies. Plans, especially when they aforementioned indicators. provide benefits to more than one municipality.
Growth is encouraged in an efficient way.
Transportation and Mobility Active transportation is There is no particular An effective district-wide C.11, C.32 encouraged through the mention of the types of public transit system ensures development process. transportation that are that residents and visitors encouraged or where they within the District of Muskoka Communities are are to be located. can take advantage of a encouraged to be designed range of services, activities, to meet recreational needs and opportunities that are and services. essential to developing healthier Safe and efficient communities. transportation uses are encouraged. A public transportation system can be designed and Active transportation is incorporated into the next encouraged exclusively Official Plan to further meet through the development the needs of communities, process, and assigns depending on their responsibilities to the District established needs. or Area Municipalities that may not be included in the development process.
20 District of Muskoka OP Strength(s) Weakness(es) Opportunity Gap(s) Policy Provision Overview
Environmental Waterbodies in the District While there is mention of Further ways of reducing Quality are protected from harmful where land development stresses on the environment F.12, F.14, F.15, F.16, F.18, forms of development. should not take place, through development F.29 there is no use of further innovations should Proper stormwater environmentally-friendly land be considered and management features are to development strategies to be implemented. be provided. used.
Programs to care for natural heritage have been established.
Water quality is an important topic of conservancy.
Tourism Development should be There is no mention of how Investigate at how other C.14, C.23 completed to support the the tourism industry can economic sectors in the tourism industry. support other industries in District of Muskoka can the District so that other benefit from different aspects The tourism industry should economic sectors are of the tourism economy, and be expanded to grow the improved. determine how to build those economy. strategies into the Official Plan.
Planning for Special Age Age-appropriate housing is There is no mention of other Determine what other age Groups encouraged in denser areas age groups. groups have specific needs C.46 where seniors would thrive. that should be addressed There is no mention of age- through Official Plan policies. related services, programs, or amenities. Determine other ways to
21 District of Muskoka OP Strength(s) Weakness(es) Opportunity Gap(s) Policy Provision Overview
address specific needs of age groups other than housing.
Culture Strategies and N/A N/A Include Official Plan Revitalization provisions that address culture services and amenities in the District.
Determine which parts of the District culture can be improved on or protected to determine what should be included.
Affordable Housing Affordable housing is None; the affordable housing N/A C.38, C.40 encouraged to address the section appropriately needs of particular income- addresses the affordable levels of residents. housing needs at a District level. Different housing policies related to tenure and ownership are given.
Different housing forms and types are encouraged.
Climate Change N/A N/A See Section 5.3 for potential Official Plan policies
22 Upon completion of the review the following conclusions were policies related to these indicators were mainly land-use made; related and did not provide any vision or guiding principles. While the Official Plan did contain development and built form Strengths: The current Official Plan was found to have standards, these policies did not make reference to climate addressed a number of the indicators including, community change adaptation and mitigation or extensively promote design and land use planning, environmental quality of both mixed land uses. Similarly, the Official Plan was absent of water and air, active transportation, affordable housing, and any policies or encouragement of the needs and services tourism. The District’s Plan included specific provisions related pertaining to special age groups such as youth, young families to development standards and built form for special areas and or the elderly. areas near natural resources. Similarly, the District’s active transportation strategies proved to be sufficient in addressing Opportunity Gaps: The current Official Plan provides the the challenges faced by the District and new infrastructure foundational and supportive policies needed to create a healthy opportunities. The District also had strong policies related to and complete District. That being said, the opportunity exists affordable housing and the promotion and encouragement of to create more detailed and targeted policies that address tourism related needs and requirements. the aspects of a healthy and complete rural community not overtly stated in the Plan. Goals were clearly identified and contained policies that pertained to the jurisdiction of the District while also including Phases 4 & 5: Project Priorities and Case Studies policies that would support interventions and programs at the Based on the policy strengths and weaknesses identified, Area level. four project priorities were revealed; Age friendly planning, Economic diversification, Climate change adaptability and Weaknesses: The Official Plan was found to not extensively resiliency and Mobility. address or include policies related to transportation modes beyond those associated with active transportation, policies related to the needs of special age groups (i.e. youth and elderly residents), policies realted to climate change mitigation and adaptability, and the creation of a diverse economy. The 23 These priorities were found to be policy weaknesses within the Official Plan and as such became the focus of this report. Further research and case study analysis were conducted for each priority and accompanying goal. This will be discussed in the next sections of the report.
Age Friendly Planning Economic Diversification Climate Change Mobility
24 3.0 Project Priorities
3.1 Healthy Community Priorities Overview
Moving forward, The District of Muskoka should encourage will allow people to thrive and grow in the District. the creation and development of complete and connected communities by prioritizing age friendly planning, a diversified Local economic development is fundamental to creating economy, climate change adaptability and resiliency a healthy and complete community. Grounding the local measures and enhanced mobility options. The District should economy in tourism can result in employment and revenue further consider the housing, servicing and mobility needs for uncertainties that can be brought on by fluctuations in special age groups to ensure that Muskoka is a place that regional climate and the global economic market. Expanding can accommodate residents and guests at all stages of life. the District’s economic foundation to encompass emerging In doing so, the creation of a socially prosperous environment creative, health and wellness industries will aid in predictability
25 and employment availability for residents of all ages and abilities. Localized industry can help create a strong base for infrastructure investments, development and growth.
The District should address the anticipated impacts climate change may have on the physical and natural landscape and how these changes will manifest in the social and economic aspects of the community. Changes to the natural environment can also impact air and water quality and increase the frequency of severe weather events that affect mental and physical health of District residents and second home populations. Additionally, it is important for the District to prioritize climate change moving forward as the natural system that exists in the District contributes to the community’s sense of place and identity that separates Muskoka from other parts of Ontario.
Finally, the District should prioritize connectivity as it relates to creating more complete communities at the Area level and District level. Physical networks between areas within the District will link residents to employment, recreation and social opportunities. The District should consider mobility options beyond the use of a personal vehicle to accommodate for the needs of the aging population as well as for the District’s youth population. In the following section, the project priorities will be introduced, followed by the supporting goals.
26 3.2 Age Friendly Planning
The Ontario Seniors’ Secretariat Age-Friendly Community The Rural Ontario Municipalities Association (ROMA) also Planning Guide describes an age-friendly community as one speaks on this issue and claims that because the Province’s which creates “physical and social environments that support population in general is aging, it significantly increases the independent and active living and enable older people to need for “services to sustain quality of living and extending continue contributing to all aspects of community”. This concept the independence of seniors” in communities. Furthermore, is an important factor of healthy communities in the District as the population ages, more pressure will be added to of Muskoka as the population of permanent residents over municipal and regional resources: “With rural and northern the next couple of decades is projected to age substantially. municipalities facing fiscal capacity constraints, leadership will According to the District of Muskoka Demographic Profile, be required to address the issue of an aging population”. One by 2021, the 65-74 age group is predicted to be the second of the largest constraints that ROMA identifies as part of the largest age group population in the area, preceded only by 55- issue of growing elderly populations is the need for long term 64 age group population. These two age groups are expected care. It explains that in rural communities of Ontario, small to remain the largest population cohorts in the District into populations present unique issues of economies of scale, 2031. where private care cannot be properly offered at affordable rates like they are provided in denser areas. As elderly In order to ensure that the aging population of Muskoka is populations in rural communities of Ontario grow, this issue able to live in the community with the confidence that they will become exacerbated and will require solutions created will have their needs met, it is necessary to plan to support with their unique scale in mind. this demographic. The Ontario Human Rights Commission (OHRC) identifies a general growing need for elder care in These issues are reflected in the findings presented by the the province, which was used mostly by family members and Simcoe Muskoka District Health Unit report which state that the community-at-large. The necessary types of elder care the populations of seniors in Muskoka District is expected services may put large burdens on community stakeholders to rise at a very high rate (+200,000) by 2036 and that the involved, and the OHRC argues that creative solutions and elderly population in Muskoka District is not dispersed evenly responses are necessary by way of legislation, policy, and throughout the municipalities. Similarly, the North Simcoe programming. Muskoka LHIN Integrated Health Plan identifies seniors aged 65 and up as a larger proportion of the area’s population 27 demographic than the rest of Ontario. Also, almost one third This report will build upon the vision and direction that of North Simcoe Muskoka area residents live in rural areas, is currently laid out in the Muskoka District Official Plan. A which is significant due to “a significant urban-rural gap on a community well-suited for aging in place for seniors is a crucial number of health-related measures, including both risk factors part of healthy community planning in the District of Muskoka. like smoking and obesity, and outcomes, such as mortality By providing specific uses, services, and amenities focused from injury and certain chronic diseases”. on aging in Muskoka communities, residents will be offered a higher quality of life in the later stages of their lives. The District of Muskoka’s Official Plan specifically addresses seniors and the elderly in the Community Services section, While the concept of age-friendly planning traditionally focuses under Programs I.30: on issues related to seniors, the purpose of age-friendly The District shall encourage and maintain an effective level planning in this report is meant to address all stages of life of residential and extended care facilities including Homes for in the Muskoka District. Communities in the Muskoka District the Aged, and support programs and other alternatives which should be planned so that they provide for the essential needs reduce the need for seniors to enter care institutions. (I 4) of youth, adults, and seniors. Policies should allow for the needs of these individual age groups, as each demographic The elderly are also specifically addressed in Section B - requires different supports and accommodations related to Vision, Goal and Objective under B.14: their health and well-being. To promote improved accessibility for persons with disabilities and the elderly (for accessibility). This objective is in support of healthy communities in Muskoka District.
Lastly, the elderly are specifically addressed in Section I - Community Services under I.20 of Health and Social Services: The District shall encourage the inclusion of design concepts in building, planning, and other approvals that facilitate access by the physically handicapped and the elderly. (I 3)
28 3.2.1 Goals 1. Encourage and promote attainable housing • The emphasis on homeownership; options for all stages of life • The lack of construction; • High operating costs; Rural housing markets are fairly homogeneous with limited • The large proportion of the existing housing stock that is tenure options and housing types in comparison to their urban in poor condition, requiring ongoing or major repairs; and counterparts. The type of housing available in rural areas is • A lack of serviceable land and the high costs typically single-family homes with limited low-rise apartment associated with servicing rural dwellings. buildings, semi-detached homes, secondary suites and mobile homes. Often, there is greater emphasis placed on ownership The District’s Ten Year Housing and Homelessness Plan rather than rental in rural areas. Limited availability of rental (2013) cited that in 2012, 82% of all housing stock in the accommodation in rural Ontario creates the challenge for low- District was comprised of single detached dwellings. From income residents and families who do not have the sufficient 2009 to 2011, 63% of new construction was single detached, resources to obtain accommodations that meet their needs. 20% was condominium, and 17% was rental. The housing market in the District of Muskoka will be influenced by various As rural populations continue to age and seniors begin to emerging demographic and economic trends. Based on the relocate to rural municipalities for retirement, attention needs population projections found in the 2013 District of Muskoka to be placed on housing that meets the needs of this group. Growth Strategy, the permanent population of the District The aging population requires flexible and affordable housing of Muskoka is projected to increase from 62,000 in 2011 to arrangements that meet their advancing health and lifestyle 84,000 in 2041. When the seasonal population is taken into needs and takes into account lower incomes from savings account, the District’s total population more than doubles. As and pensions. Consequently, in Ontario, as rising home such, the number of permanent and seasonal units expected prices parallel the growing aging population, there will likely to be built per year between 2011 and 2041 to accommodate be an increased demand for affordable housing options such for the population increase is around 490 units per year. The as rental accommodations in rural areas. There are a number large seasonal population generates a widespread need for of challenges associated with the development of affordable seasonal accommodation for the workers serving cottagers housing in rural municipalities, which include, and resort residents.
29 Looking more specifically at population changes, the Growth Muskoka area has historically experienced a higher youth- Strategy projects that the number of seniors over 55 years of out migration rate than urban areas, the 2011 Demographic age will increase from 37% of the total permanent population Profile is projecting an increase in migration to the District, in 2011 to 47% in 2031. This further illustrates the need with a steady increase in all age cohorts. This anticipated and expected demand for affordable, flexible and compact population growth will not only require various housing types dwellings for young retirees and the elderly. The increasing for seniors, but also for more families and young adults. The number of seniors may be in part due to a shrinking youth current housing types in the District do include some limited population (ages 15-29) within the District; according to the apartments, which are appropriate for those transitioning District of Muskoka’s 2011 Demographic Profile, between into the workforce or those who are not looking to own and 2001 and 2006 the District had a 5.3% youth out-migration maintain a detached home. rate. As well, as more residents from surrounding urban centres migrate to the District, the price of homes may Encouraging and promoting housing options for all stages increase, pushing local residents out of the market. Among of life in the District stems from an increase in the older housing issues to be addressed, The District’s Housing and population, high demand for affordable housing units and Homelessness Plan calls for attention on providing affordable need for housing types that satisfy residents at all stages of housing to households earning less than $30,000 per year life. (57.1% of all permanent households in Muskoka) and for households earning less than $40,000 per year (70.7%), 2. Encourage mixed-use land uses to increase which reflect lower incomes than the Ontario data. access to public and institutional services and amenities that augment the livability and According to the District of Muskoka’s Services Review: Community and Affordable Housing, Homelessness and success of growing communities Emergency Assistance, between 2006 and 2012 the need for affordable housing increased by 95%. Additionally, the In rural Canada, geographic distances can create further Housing and Homelessness Plan cited that the waiting list difficulties for individuals to access necessary services, of social housing (rent-geared-to-income) increased by 146% leisure amenities, and care compared to those living in more or 370 households in between 2006 and 2013. While the urbanized centres. For example, according to the Rural Health 30 Information Hub based in the United States, older residents majority of elderly residents as of 2006 live in Bracebridge, who live in rural areas may face particular challenges related while Gravenhurst and Georgian Bay include the second to healthcare access. In some rural areas, the distance and third largest portions of these residents, respectively. As between someone’s home and their required service or public mentioned above, in a rural context such as the District of amenity may be quite great and require long distance travel. Muskoka, this necessity becomes even more apparent due Consequently, the need to travel to services, amenities or to the relatively long distances between where elders may institutions comes with logistical problems if users do not have live and the uses they may need as part of a healthy aging access to a form transportation. Community-based services, process. medical facilities, leisure activities and daily services are often clustered in and around populated and dense centres in rural The Federal/Provincial/Territorial Ministers Responsible communities, limiting the efficient access to these by residents for Seniors’ guide to Age-Friendly Rural and Remote in nearby communities. Communities found that close proximity to available services and amenities related to elderly care is a significant age- While clustering of complementary services achieves efficient friendly feature that rural communities can strive toward. land-use policies in the Provincial Policy Statement (2014), it This close proximity to necessities can be ensured through is also important to provide support services and amenities to mixed land uses that incorporate housing where elders can Muskoka District residents who may not have easy access to live and also have access to their specific needs. According these clusters. Therefore, community-based services should to the guide, if better access to elder necessities is provided also be strategically extended and placed in rural areas that through closer proximity, then seniors are able to be more are accessible to as many rural residents as possible, in independent and mobile, have access to support and addition to their usual positioning in urban centres. Inclement housing options, and will diffuse some of the accessibility and weather can also make travel risky for those outside urban transportations pressures that exist in aging communities. centres, which in turn would limit their ability to access such According to Muskoka Community Information statistics, as services and amenities. of 2009, over 13,000 of the District’s seniors live alone and in poverty. This poses significant challenges with accessing The need for mixed-used development becomes important services not in close proximity to them. Furthermore, because when speaking to the District’s growing aging population. The this same demographic lives alone, they also may not have 31 familial or community support to rely on for this transportation. Health, found that rural communities have more persons This issue may only become exacerbated as the District’s with health issues in comparison to urban areas in Canada. population ages. Particularly among seniors, a strong association has been found between physical disability and poor mental health Smaller communities ability to grow and expand is limited (depression, anxiety, substance abuse). by their proximity to the public and institutional services that constitute a complete community. It is important for the District The Canadian Community Health Survey found that men to consider diversifying land uses that allow for the integration and women living in rural and small towns have a lower life of local services into primarily residential communities. This expectancy than the average Canadian. Characteristics in turn will help satisfy the needs of all residents, especially attributed to this include elevated rates of obesity, smoking, the District’s aging population who require acute health and arthritis/rheumatism, diabetes and high blood pressure. well-being services. These health conditions have been linked to the lack of active transportation opportunities, car dependency, sprawled built 3. Promote physical and mental health through form that does not promote walkability and expensive food encouraging the creation of new public assets pricing. Looking at mental health, depression is often higher than average in rural and northern communities. In 2007, In rural communities, poor health status has been linked to a 72.5% of individuals aged 12 or older in Simcoe Muskoka broad range of personal, social, economic and environmental reported their mental health as excellent or very good (Ontario factors. External conditions such as income, employment average, 72.9%). However, suicide is considered a leading and working conditions, education, personal health practices cause of injury-related death in Simcoe Muskoka among and the built environment can also factor into the health and young adults aged 20 to 44. well-being of individuals. In building on the previous goal, the availability and access to primary health care, specialists, High stress rates in rural communities have been found to hospitals, and community services and supports is often be in large part attributed to rural employment sources that limited in rural areas. A report prepared by the Canadian are economically risky. Many rural employment sources are Psychological Association (2002) entitled Strengthening Rural seasonal, dependent upon weather conditions, or are subject to fluctuations in world commodity prices. As such, this may 32 contribute to high rates of stress in some rural areas due to resources. Based on the data collection completed by the volatility, for example, single-industry towns during strikes, off- Simcoe Muskoka District Health Unit, priority groups at a seasons or recessions. High stress affects both adults and higher risk of being physically inactive are people with low children and has been associated with increased risk for the socio-economic status, children, youth (aged 12 to 19) and development/exacerbation of both physical and mental health seniors. Consultations completed with stakeholders for the issues. Simcoe Muskoka District Health Unit identified three key perceived social and environmental factors contributing to Working with Provincial Government and Area Municipalities, physical inactivity: insufficient time, financial constraints and public spaces such as parks, community centres, and health lack of access to recreational resources. centres can provide facilities, amenities and services that support the physical and mental well-being of all community Poor socio-economic conditions can contribute to poor members. When free recreational facilities, such as parks mental health and mental illnesses including depression and and schools are located close to places of residence, low- anxiety, which in turn can perpetuate the cycle of poverty. income families are more likely to be active. Older adults in Providing facilities that house necessary supports, services particular need facilities to be located in a central manner that and programming can mitigate the negative impacts of is close to home because of mobility restrictions or physical challenging socio-economic conditions. limitations. As well, programming of these spaces needs to be accessible, particularly to children, youth and seniors.
In many rural settlements there tends to be a focus on high performance sport (e.g., competitive level hockey, baseball), leaving those looking for non-competitive recreational sport without programs in which to participate. Physical activity and mental health is a priority for people of all ages and socio-economic backgrounds, and this is no different in the District of Muskoka. However, residents with a lower socio- economic status may face obstacles to accessing recreational 33 3.3 Diverse Economy
A strong and diverse local economy is foundational for expansion of existing industries, a municipality, like the District supporting healthy and complete communities. The District of Muskoka, can increase permanent and stable employment of Muskoka has an economy that is currently based on for permanent residents. tourism and subsequent tourism-related industries. Within the District, tourism and related industries account for 57% The quality of life of local residents can be dramatically of the economic base and 20% of jobs. The tourism industry, impacted by local economic health. Key factors influencing however, provides mainly seasonal and part time employment health outcomes as noted by the Public Health Agency of to local residents. This is reflected in the District’s average Canada (PHAC) include income, social and employment household income, which is 15% lower than the Ontario status and working conditions. Income and employment average. It should be noted that these statistics account for status influence access to safe housing, healthy food and the permanent population and not the District’s seasonal other important resources. Research has shown that low- residents. This reliance on a tourism-based economy poses income Canadians are more likely to die earlier and suffer some notable challenges related to supporting and improving more illnesses than Canadians with higher incomes. In the social and physical environment of the District. conjunction, unemployment, underemployment or unsafe work conditions have been associated with poorer health and A single sector economy is more likely to be affected by those who are unemployed have a reduced life expectancy local, national or global economic fluctuations. As a result, and suffer more health problems than people who have jobs. these fluctuations may have a greater impact on the District However, individual health and wellbeing may improve as one permanent population’s job stability and sustainability. In order moves up the income and social hierarchy. Those who have to plan for a healthy and complete community, the District greater control of their work circumstances and have less must consider diversifying its economy and incorporating job-related stress tend to be healthier and live longer when and promoting complementary industries. Economic compared to those in stressful, risky occupations. Many of diversification speaks to the distribution of the local workforce the patterns reported in public health literature is evident in over a variety of sections which in turn would lessen the the District of Muskoka. According to the health statistics for community’s vulnerability to changes in the economy. Diverse low-income residents in the Simcoe-Muskoka health district; economies are more likely to sustain local community stability and growth. Through the introduction of new industries, or the 34 • Life expectancy is lower for lower income groups: Visioning for the Future Community Engagement Report, In Simcoe Muskoka, men in the highest income group a strong and diversified economy was one of the common on average live almost five years longer than males in the topics discussed by community participants. Members from lowest income group. Higher income women live two and the community expressed the need for full-time, year-round, a half years longer than the lowest income women. living-wage job opportunities, rather than relying heavily on • Self-perceived overall health is lower in lower income the jobs that stemmed from seasonal economic activities. groups: Seventy-two percent (72%) of the population in the highest income group rated their health as excellent Similarly, the District’s current Official Plan recognizes the or very good, and fifty-three percent (53%) of the importance of diversifying the Region’s economy. Embedded population in the lowest income group rated their health within the District’s Official Plan Guiding Principles, Objective in this category. and Economic Development Section are policies related to • Mental health status increases with higher levels of a diverse economy. Economic development policies within income: Eighty-two percent (82%) of the population in the plan focus on the tourism and recreation sectors, while the highest income group reported their mental health as also discussing the importance of maintaining the District’s excellent or very good, and sixty-two percent (62%) of character in support of these sectors. Additionally, there are the lowest income group rated their mental health in this policies related to the expansion and diversification of the category. economic base that speak to providing and upgrading services that support and encourage clean industry (Section C.15). Additionally, research on the District’s demographic context The expansion and diversification of the District’s economic indicates that youth-out migration may challenge the economic base is promoted in the Official Plan specifically in Section health of the District. By providing meaningful employment C.15 which includes; and leisure options for youth, a more diverse economy could retain young talent to live, learn, work, and play in the District. A. Supporting and building upon existing businesses and encouraging the establishment of new businesses; There are two instances where the District has brought attention to the importance of a diversified economy. First, B. Providing and upgrading services that support and according to the District of Muskoka’s Moving Forward, encourage clean industry to locate in Muskoka; and 35 C. Taking opportunities to strengthen transportation This report will build upon the economic vision that has been and communication links to major provincial, national, established in the District’s Official Plan (2014), Economic and international markets. Strategy (2009) and subsequent studies profiling the District’s creative and tourist economy. These foundational documents Additionally, the District has already identified opportunities provided direction for case study research, which explored to expand into other sectors that would enhance and the economic development opportunities provided by creative complement the existing tourism economy. These include industries and other government interventions. A strong and the emerging creative, arts and knowledge-based sectors diverse economy is a crucial part of a healthy and complete (Official Plan Section B.2b; The Creative Economy in Muskoka communities in the District of Muskoka. By diversifying the report; Economic Strategy, 2009) as well as the clean/”green” economic base in the District, communities will be future- industry (Official Plan Section C.15b, Economy Strategy, The proofed as they will be able to have a self-sustaining economic Creative Economy in Muskoka report). A report produced by system. the University of Toronto on the District’s creative economy identified opportunities within the creative sector for the District to pursue, as well as recommendations for how to support an emerging creative economy. Such opportunities included:
• Sectors related to environmental knowledge, such as green technologies, skilled wood manufacturing, and advanced construction expertise present an opportunity for growth; • Building upon the District’s emerging arts, culture and heritage sector; and • Promoting the District’s small but growing creative food economy.
36 3.3.1 Goals 1. Encourage and accommodate activities that growth by providing the framework and legal tools encourage diversify the District’s economic base this growth. Potential Official Plan policies that seek to address the concerns of how to attract and accommodate The objective of this goal is to create plans and land-use new industries must allow for a diversity of uses on land. policies that will encourage business development outside of the realm of tourism. These businesses, however, shall By accommodating diverse activities, issues in youth support the tourism industry. Businesses that support the employment and access to leisure and recreation will also tourism industry, or businesses that are products of the tourism be subsequently addressed. As a result of a more diverse industry shall be fostered in order to diversify the economic economy, young workers will be able to live and work in the base of the District. District in year-round, full-time positions. It is important for the District to create an environment for businesses to thrive off Jobs in the tourism and service-sector tend to be seasonal of one another. The District will have to provide for space and and low paying. Factors such as weather and cost of travel infrastructure as this is essential for business development. affect tourism-heavy industries, thus affecting the District’s Also, strategic clustering of industries that have synergy will economic base. Because of these vulnerabilities, an effort to result in innovation. diversify the economy will create a more resilient District. From the Community Engagement Report, participants recognized Tourism, second homes and retirees will be useful for the value of diversity and were open to attracting new jobs attracting new industries to the District that will help create a in manufacturing, green-collar jobs, and investments in more resilient economy. The Muskoka Futures organization is leveraging partnerships with the arts community. Green-collar a group of nonprofit business management consultants. They jobs are jobs that are related to the environmental aspect of the are federally funded to support business development in the economy. These jobs include: alternative energy generation, District of Muskoka by offering program funding assistance, environmental consultation, recycling, ecotourism, organic mentorship, and other services accompanied by consultation. farming, and more. Muskoka Futures’ operational mandate is focused more or less on diversifying the economy of Muskoka. In collaboration District-level policies can catalyze self-sustaining economic with the Area Municipalities, the District should identify key stakeholders in the economy and leverage creative 37 partnerships in order to accelerate the dialogue on a diversity identified in the District’s 2011 Community Engagement of economic development. Report. Residents expressed keen interest in the need for year-round, full-time, living wage employment opportunities. 2. Promote economic activities that provide Additionally, another finding that emerged from the 2011 report was the community’s recognition of the importance of employment year-round, full-time, living wage education, recreation and employment opportunities for youth. for residents In making these available, young families and individuals may be more enticed to stay or return to the District. By creating The focus of this goal is to support and grow businesses new opportunities that youth find meaningful, in turn, the outside of the tourism industry that provides year-round, full- District will have also addressed the challenges of youth out- time, living wage employment opportunities. A diversification migration. of activities can provide the District with a more stable and resilient economy. By promoting year-round, full-time, living By stimulating the development of sectors aside from tourism, wage employment opportunities, residents in the District are the District will be able to create a self-sustaining economic able to be more economically secure are less dependent on environment that is more resilient to outside factors and less the current seasonality of the District. dependent on the seasonality of the tourism sector. To support the creation of these jobs, the District could encourage and support small- to medium-sized businesses, 3. Build upon the District’s existing strengths foster the development of businesses that support tourism, in the tourism industry, the creative sector, and and support businesses that are by-products of the tourism Muskoka’s identity industry. With this, tourism is being used as a catalyst to stimulate development in other economic sectors. The District While it has been acknowledged that the District should explore can also provide assistance for entrepreneurs through the opportunities for economic diversification, it is important Muskoka Small Business Centre. to build upon the existing economic base by investing in complementary industries such as the creative sector. The This goal addresses a significant concern for residents pristine views, environment and culture that draw people to
38 the District as seasonal residents or tourists could be utilized • Creative Muskoka, a program intended to facilitate to attract creative businesses and professionals. collaboration between creative economy stakeholders, including Muskoka Tourism, Muskoka Futures, Muskoka Current discourse on local economic development suggests Community Network, OMAFRA and the Ministry of that economic growth in the twenty-first century is dependent Culture (2008); and on the “creative class”; a group of knowledge-based • The identification of the District as a ‘Designated Arts professionals who innovate and create things. This theory Community’ to promote and stimulate local arts and advocates for an economic development approach that culture (2008). involves cultivating the “creative economy” by emphasizing the importance of human capital and quality of place. The creative Similarly, existing District and Area Municipality documents economy encompasses creative industries, occupations, that speak to the importance of the creative economy include; arts, culture and heritage. In order for this economic sector to be successful, communities need to attract and retain new • The Muskoka Assessment Project (2007), Official Plan talent and knowledge-based workers. While existing research (2014), Economic Strategy (2009) and Growth Strategy has mainly focused on the creative economies of cities, rural (2009); and areas have many of the place-based amenities that attract • The Town of Bracebridge Convergence: Community creative workers. Based Strategic Plan (2008) and the Town of Huntsville Unity Plan (2010). As previously mentioned, the District has already recognized that the local creative economy as an opportunity for growth As identified in the University of Toronto’s report on the in its Official Plan and Economy Strategy. As such, it is District’s creative economy, it’s natural environment, strong important that with any new land use or development policies arts community, technology infrastructure, post-secondary that the District creates, they do not compromise the area’s network and emerging creative food sector gives the area natural features and rural character. These elements are what a distinct sense of place. These elements constitutes as a contribute to the District’s desirability and identity. Examples of suitable foundation for a creative economy. The District has a District and Area level initiatives that have identified Muskoka’s budding creative class as professional occupations in art and creative economy as an asset to build upon include; culture grew by 20% between 2001-2006. Moving forward, 39 it is important for the District to build upon its existing assets that make the area an attractive place to live, work and play.
40 3.4 Climate Change Adaptability and Resiliency
The changing global climate has had negative repercussions construction, and retail sectors of the economy. Unmitigated on weather patterns, seasonality, air quality and water climate change threatens to damage or alter the natural quality. As a result of increased greenhouse gas emissions, environment that is important to the health of communities in the effects of climate change will soon become irreversible the District. and cities and communities will have to learn to adapt and become resilient to the impacts of climate change. Impacts As climate change can bring about more extreme weather from climate change are inevitable as global temperatures events and disasters, this makes residents, physical have increased in the last 30 years. A continued rise in global infrastructure and assets and the delivery of community and temperatures is likely to increase the frequency and severity emergency services more vulnerable to negative impacts of extreme weather events which may result in property and damage. In order to respond to the challenges posed damage, community evacuations, challenges associated with by climate change, the District of Muskoka should progress emergency service delivery and community services, and a toward becoming more adaptable and resilient to the effects negative impact on human health, well-being, and safety. of climate change. Land use policy can be used to minimize In addition to the human impacts, extreme weather events the impact of the built environment on natural systems in order that may irreversibly alter the natural environment including promote healthy, resilient, and adaptable, and complete rural watersheds and ecosystems. communities. Subsequent health benefits from a sustainable and resilient community include, monetary savings, reduction Complete rural communities rely on the natural environment of pollution from automobiles, interest in active transportation as a source of recreation, tourism, employment, and identity. and walkability for exercise and the social and mental benefits In addition, access to nature is important for psychological associated with a safe and protected community. health and acts as a catalyst for physical activity. However, air pollution may hinder individual’s motivation to be active This priority was identified after a review of the current District outside and interact with the natural environment. Clean air Official Plan revealed opportunities for the District to make is important to preventing respiratory diseases that can be more explicit connections between healthy and complete caused or worsened by air pollution. Within the context of communities and the natural environment, specifically looking Muskoka, their natural and rural character attracts residents at marrying the concepts of climate change with built form and and tourists to the area and contributes largely to the hospitality, land use. Current research on climate change adaptability 41 and associated policy development includes encouraging new development to be environmentally sustainable and resilient to extreme weather occurrences. This can be accomplished through energy efficient building and community design and green infrastructure that mitigate environmental impacts.
Within the 2014 Official Plan, the District has included setback and land use requirements for areas and properties in special areas or near certain types of natural features. However, the Official Plan is absent of any explicit policy related to climate change, preventative measures to make the community and area more resilient to the impending consequences of a changing natural environment. Preventative action against climate change will allow the District to attain economic and monetary benefits, physical and mental health benefits and preparedness against extreme weather events. It should be noted that the District and Area Municipalities have ‘Emergency Response Plans’ in place which outline the current procedural framework for responding to an emergency or disaster. However, this framework is not linked or associated with the Official Plan. As such, a number of goals have been developed for the District to support their continued interest in climate change which relate to built form, emergency planning, sustainability and adaptability.
42 3.4.1 Goals 1. Build infrastructure that prepares all lands/ that manage development can be utilized so that community parts of the District for disasters, flooding, and vulnerability is reduced. Academic research identifies possible extreme environmental events tools, including; zoning regulations, development restrictions, building standards, design and development regulations, This first goal is exclusively focused on the built form and building codes acquisition of open green spaces and property, design of new developments and improvements within the and taxation. It was also recommended to integrate hazard District’s urban centers and surrounding communities. The mitigation plans into an existent comprehensive plan, like an explicit mention of all lands within the District of Muskoka was Official Plan, because these documents have an established done to stress the importance of this goal applying across policy standing and can enforce and encourage strategic the District and not just to the urban centers. In this context, hazard mitigation interventions in land use planning. community preparedness speaks to the reduction of disaster risk. The United Nations Office for Disaster Risk Reduction Looking to the District of Muskoka, the area appears to be defines this as, “… the concept and practice of reducing susceptible to a number hazards and potential disasters as disaster risks through systematic efforts to analyze and outlined in the District Municipality of Muskoka Emergency reduce the causal factors of disasters. Reducing exposure to Plan, hazards, lessening vulnerability of people and property, wise management of land and the environment, and improving • Severe Weather Event (Winter Blizzard, Flood, Ice, preparedness and early warning for adverse events are all Windstorms, etc.); examples of disaster risk reduction”. • Explosion and Fire; • Human Health Emergency; Academic literature suggests that the physical characteristics • Hazardous Material Incident (Transportation) of a city such as population density, land and vegetation Transportation Accidents; (Road/Rail/Marine/Air); coverage, organization and type of built infrastructure and • Energy Emergency (Winter and Summer); and the relationship between dwellings and topographic features • Extreme Heat and Cold. can influence hazard occurrence, area vulnerability and emergency response and recovery. Land use planning tools Extreme events have occurred in the District and it is anticipated that these will be amplified by climate change. 43 The Emergency Management Hazard Identification Risk that encompass emergency response elements will ensure Assessment produced by the Simcoe Muskoka District Health that future land uses, development and facility improvements Unit in 2016 found that there have been multiple severe will incorporate emergency preparation measures into weather, environmental, infrastructure failure and flooding built form decisions. Existing research indicated that their incidents in the last 5 years, some of which have occurred integration into high-level plans can ensure that both decision within the District. Having these risks identified will assist in makers and residents are aware of which lands should be evaluating which strategies and built form interventions are used and how they should be used and developed. the most necessary give the types of hazards most likely to impact the District. Furthermore, in knowing what to expect, Stepping back, it is important to understand the features of it will be easier to create more prescriptive land use policies rural communities that make them more vulnerable and impact and plans for future development in the District. In pursuit of emergency response and service delivery. The Rural Health creating a more resilient Muskoka, the District should explore Hub Advisory Committee’s 2015 framework report states that land use policies that specifically address resilient and efficient areas with low population densities and remote and isolated built forms, community designs and layouts in both serviced communities can experience long wait times for services and under serviced communities. not within the immediate vicinity, which may include hospital or emergency care centers or local ambulance stations. 2. Coordinate between land use planning and Additionally, the notion of economies of scale may affect less emergency response planning dense communities in that they may not be equipped with the services that would assist in efficient response to disasters The purpose of the goal is to promote the integration of or extreme events, unlike what would be found in densely emergency response planning into land use policies either populated or urban centers. within the official plan, zoning by-law or community-specific plans at the District and/or Area Municipality level. Emergency This goal is relevant to the District because there is an response can refer to not just to actions taken during an absence of land use policies at the District level that make emergency event, but before and after to protect people and the link between emergency response and management and properties. As a form of preventive planning, land use policies built form and land use. The District has made emergency planning and resident health and safety protection a priority 44 in their 2014, Strategic Priorities report which states that it 3. Improve energy efficiency and reduce will, “protect the health and safety of Muskoka residents and carbon footprint of existing and proposed visitors in times of emergency” in collaboration with other developments, structures and assets agencies. Through increased energy efficiency in the District of Muskoka, One strategy to protect the health and safety of residents greenhouse gas (GHG) emissions that contribute to climate would be through embedding the fundamental elements change can be directly and indirectly reduced. Climate change of emergency plans into land use planning documents. is anticipated to impact the quality of life in Muskoka through As of now, The District of Muskoka, along with the Area rising temperatures, more frequent and damaging extreme Municipalities have Emergency Plans in place which follow weather events, and declining water quality and volume in the Emergency Management and Civil Protection Act lakes. The initiatives the District can implement to minimize established by the Provincial Government. Upon review, they GHG emissions could reduce their contribution to climate are primarily reactive documents. At the District level, the change and improve the overall quality of life for residents. plan lays out the organizational framework for coordinated Climate change driven policies and interventions may result emergency response. There is an opportunity to combine in local health and economic benefits while also reducing the district responsibilities, plans and goals for emergency implications of climate change. management and response into the Official Plan and other land use planning documents. The District has the ability to The District has recognized the opportunities for improved encourage and promote strategic and preventive land use energy efficiency. Within the District’s Strategic Goals report, and design interventions at the Area level. In a review of Goal 5 articulates the improvement of internal and external the District’s current Official Plan, there is policy that speaks programs and partnerships that the District can undertake to this, “D.4(h) development is located and designed in a to improve energy efficiency. While these goals highlight the safe manner to facilitate an appropriate level of police and District’s interest in reducing greenhouse gas emissions, there emergency services”. are opportunities to further increase energy efficiency through adaptive and resilient land use and Official Plan policies.
45 The Ontario Ministry of Municipal Affairs and Housing points to 4. Creating a tourism economy that is resilient to Official Plans as a key implementation tool for climate change climate change policies for district and local municipalities. The current built form of the District is predominantly low-density, single family This goal speaks to the activities such as hiking, boating and housing that is dispersed across the District. Dispersed cross-country skiing, among others that are associated with development patterns present the greatest challenge for the tourism industry. Within the District of Muskoka, tourism, emergency services and energy efficiency through more second homes and services for retirees accounts for 57% of reliance on private automobiles and greater distances the economy. It is primarily nature and recreation based and between buildings and different land uses. major employers include resorts, hotels, construction firms, and retail services. Because nature is pivotal to the District’s Land use planning is one of the most effective tools for reducing identity and is a draw for tourists and visitors, it is important to greenhouse gas emissions by encourage more compact draw attention to the effects climate change and their potential development in less sensitive ecological areas that is energy impact on the nature-based tourist economy. efficient and supportive of active transportation. The current Official Plan does not adequately describe the benefits of land The impacts of climate change on the natural environment will use planning to improving energy efficiency and reducing lead to changes in the average temperatures. The summer greenhouse gas emissions. Similarly, there are opportunities season for tourists and residents may be longer, but the risk to formally recognize existing strategic plan goals and land for forest fires and drought increases. Similarly, lake level use policies that other municipalities shall conform to in order and quality may decline, impacting population recreational to increase energy efficiency and reduce the contribution to activities. More frequent extreme weather events that climate change. damage the natural environment and changing waterfront levels may discourage waterfront resort development. These impacts may have a short term benefit on the tourist economy but long-term considerations and risks must be recognized to ensure this industry remains prosperous and viable. The natural environment should also be protected for residents
46 and visitors alike.
Understanding and acknowledging the link between climate change and tourism can assist in evaluating new development within the tourism sector and also inform the creation of adaptable economic development plans for the District. Tourism has been recognized for its importance to the District and creating an adaptive tourism industry that is responsive to climate change is within the jurisdiction of the District of Muskoka Planning and Economic Development department. Establishing a link to climate change and developing a plan for adaptation will support the current tourist industry and allow for opportunities to increase the diversity and adaptability of tourist activities to reflect a changing climate.
47 3.5 Mobility
Healthy communities need to provide options for mobility A suite of transportation options to facilitate access for day beyond private automobile travel to facilitate enhanced access to day needs will be become increasingly important with an to employment opportunities, services, and recreation. Specific aging population. The varied seasonal population within the to rural communities with key urban centres, opportunities District also creates unique opportunities and considerations exist to increase mobility options for residents particularly for transportation choices. To attract and retain employees youth, seniors, persons with disabilities, employees in the to the tourism industry as well as cater to the region’s aging tourism and service sectors, and visitors to the District. population, the District should build upon and enhance the Potential transportation options that can be explored that mobility options available to employees of all ages and would enhance rural connectivity include the provision of abilities. Road networks in the District are extensive and there conventional transit services, partnerships within support is a well laid out approach to the implementation of an active agencies to provide specialized transportation services, and transportation network in the near future. However, there subsidies to access taxi service. are deficiencies in transportation options where there is no specialized transportation service for residents with mobility Within the District of Muskoka, 82% of residents use a limitations and there is very limited fixed-route public transit private vehicle as their primary mode of travel according to within the District. 2011 census data. This is indicative of the land use patterns found within the District, as key services and institutions This report will expand upon two goals that will be used to are generally located in the urban centers, surrounded by help the District achieve more connectivity and mobility low density communities. In turn, this may limit the type of options within the area. First, the District should improve social and employment opportunities individuals have access the transportation networks that exist between and within to if they are without a private vehicle or are not capable of major centers, natural parks and systems, employment and driving themselves. As well, the largest population cohort is educational areas to promote connectivity and secondly, the 50-59 years of age within the District, followed by residents District should prioritize the mobility needs of and vulnerable in the age cohort of 60-69 years of age. The concentration populations to gain access to services, employment, and of residents who are entering their retirement and beyond education. will having increasing need to have access to various social, medical and community programs. 48 The mobility goals take a policy approach that explores servicing and programming that is not presently offered in the District of Muskoka. Land use policies that complement the potential introduction of mobility services such as public transit could include the placement of key land uses such as institutional, mixed-use, commercial and high density residential along future transit routes, minimum walking distances from developments to transit stops and a compact urban form in the Downtowns of the Urban Centres to facilitate future transit service. Land use policies that support the future provision of transit are presently in place in the Town of Huntsville Official Plan. In the case of transit services, a District-wide transit feasibility study should be explored to identify future transit routes and corridors. Land use policies cannot be implemented until future transit routes are identified.
49 3.5.1 Goals 1. Improve transportation networks that exist Permanent and temporary residents who are employed in between and within major centers, natural parks the service and tourism sectors may not have the financial and systems, employment, and educational capacity to own and operate a vehicle. Having effective public transit system and designing transit-supportive communities areas to promote connectivity can better connect residents to jobs across the region and support economic development. This goal is focused on enhancing the transportation networks that unite important centres, communities and destinations within the District. Improved transportation 2. Prioritize the mobility needs of vulnerable networks will ensure that residents and visitors within the populations to gain access to services, District of Muskoka can take advantage of a range of services, employment, and education activities, and opportunities that are essential to developing healthier communities. The District has an extensive network Developing communities that support alternative transportation of Provincial highways and District roads connecting rural service delivery options and programs when fixed-route transit areas and urban centres. The District has substantively is not available is inextricably linked to other themes of healthy made efforts in addressing active transportation through the communities, such as aging in place. This goal encourages development of Muskoka Active Transportation Strategy with the District to consider the mobility needs of residents who the identification of key routes in a future active transportation may be restricted or challenged when accessing public network. Deficiencies in the transportation network primarily services and institutions. Alternative transportation service exist in the very limited public transit options within the delivery programs could support residents who want to District. In providing increased access to key destinations remain in their community while also accessing services in within the District such as employment areas, community other areas. Fiscal or physical barriers may limit resident’s facilities, health services, the District should consider the role ability to maintain their social connections, complete errands of a regional transit system. Connecting urban centres could or attend appointments across the District. Programs such facilitate economic growth, assist with aging in place and as discounted taxi services and specialization transportation enhance quality of life within the District. for persons with mobility limitations can play a vital role in enhancing quality of life by provided access to opportunity.
50 This goal is aligned with Priority 6.13 in the District of Muskoka Strategic Priorities which states: “Collaborate with a broad range of community stakeholders (including Area municipalities) to investigate and recommend an effective and sustainable plan to improve transportation services for low income and vulnerable persons”.
51 4.0 Case Studies
Case studies from jurisdictions across North America have a healthier and more complete community through their been examined that highlight valuable policy and programming Official Plan review. These recommendations and actions will that can be encouraged or implemented at the District or be presented in the ‘Next Steps’ chapter following the case County level. A description of each case study, including studies. the results and outcomes, will be presented alongside the relevance of each case to the District of Muskoka as well as the connections each case has to other goals and priorities. These case studies will inform policy recommendations and future actions that should be taken by the District to pursue
52 4.1 Age-Friendly Planning 4.1.1 Official Plan Policies, Leeds Grenville Description of case study Section 2.7.2(b)— “The Counties encourages local municipalities to establish and achieve a minimum affordable The Official Plan for the United Counties of Leeds Grenville in housing target for all new development in their Official Plans. Eastern Ontario addresses how the needs of elderly populations The Counties’ Housing and Homelessness Plan, 2014-2024 can be addressed and met through specific County-level Official establishes a 10-year plan for affordable housing to address Plan policies. Specifically, local municipalities are encouraged housing issues associated with accommodating an aging to promote mixed-use developments within settlement areas population and the need for increased diversity of housing that will provide affordable housing opportunities for its elderly types, particularly smaller bedroom units. The Counties will population. These housing opportunities are also linked to work with the local municipalities to establish policies in the providing housing in close proximity to services and needs of local municipal Official Plans which endeavor to achieve an an elder population. overall minimum affordable housing target of 25% for all new residential development”. These housing types and associated needs are described as follows through County Official Plan policies: Housing issues related to affordability for seniors was identified in the County Housing and Homelessness Plan, Section 2.3.g(i)— “Promote development within settlement and an associated affordable housing target ratio in new areas that is compact, mixed use, and supports transit and development is indicated as a solution to this issue. active transportation, with a broad range of housing types, services and amenities available for all residents, including Section 2.7.2(e)— “The Counties and local municipalities will higher density, apartment-style housing types to ensure long- encourage proponents of development, where appropriate, term housing affordability for the aging population.” to ensure that a portion of new housing is affordable, and available and accessible to a broader range of demographics Dense and compact development patterns that include in the population, including younger workers and families, appropriately-sized dwellings for the elderly. These densely- lower-income seniors, and renters, and that an adequate situated, smaller dwellings will provide better housing supply is maintained.” affordability, while also providing easy access to social interaction and efficient public transportation. 53 Affordable housing is encouraged in new development, so that living and skilled nursing is to be encouraged in residences for a mix of demographics may live among each other. Seniors seniors, such as in a continuing care retirement community.” are included in this targeted demographic mix. It is implied The County Official Plan identifies the benefit of aging with that there are benefits to come from this mix of demographics access to seniors-related services and amenities for the sake living in affordable housing. of aging-in-place in non-healthcare environments. However, further access to these services and amenities must be Section 2.7.2(k)— “The Counties will encourage the provided to residents who do not have the means of using development of affordable housing geared towards seniors, them by themselves; they must be provided directly to seniors which may include lower maintenance housing types such as who are not mobile beyond their own dwellings. condominiums and townhouses.” Results in case study Lower maintenance housing is encouraged as part of affordable housing for seniors, as it is implied that this demographic may The following themes have been identified in the Leeds- not necessarily be able to bear the responsibility of property Grenville County Official Plan that facilitate aging in place: maintenance. Different built forms such as townhouses and different layouts of condominium corporations would be able • Encourage dense and compact developments for seniors to achieve this lower level of required maintenance. so that age-specific dwellings can be made affordable to them. Section 2.7.3(e)— “The Counties and local municipalities • Encourage dense and compact development patterns will will encourage the provision of housing for aging-in-place for provide benefits for different types and abilities of mobility, seniors so that: and will make efficient use of public transportation. (i) individuals living in a non-healthcare environment, will • Determine the need for elderly affordable housing and have access to municipal services and amenities so that they implement a minimum percentage of affordable units in may carry out their daily life without having to relocate as their future developments. circumstances change; and • Encourage a mix of demographic groups to live amongst (ii) where the above is not suitable due to the physical or each other in affordable housing residential areas, to mental condition of the individual, independent living, assisted benefits associated with complementary living styles 54 • Encourage ffordable housing for seniors that allows for needs and priorities as little maintenance as possible so there is less physical • To offer funding for various housing options to address responsibility and strain on residents. affordable housing needs across the housing continuum • Develop housing for seniors in close proximity to their • To incorporate accessibility and energy efficiency associated uses, needs and amenities for easy access. requirements into affordable housing units and building This could also encourage active transportation as a design. way to get between these recurring uses. An even better solution would be to encourage mixed development of These objectives are universal to any community, and because associated elderly uses (i.e. residential, institutional, and housing affordability is relevant to the District of Muskoka in commercial), so that complementary seniors-related general, they apply to it. However, the Muskoka Affordable uses are not only in close proximity to one-another on Housing Initiatives Program identifies how Muskoka District different properties, but are located within the same needs to improve its housing affordability: site. • Increase the supply of affordable housing and rental Relevance to The District of Muskoka accommodation in the District of Muskoka by providing Leeds Grenville identifies affordable housing as a strategy funding to Developers, Builders, and Landlords to that addresses and provides for a variety of community needs, encourage them to build and provide affordable housing depending on the population demographic that receives its in the District benefits. Of course, the more affordable housing is available • Set clear ratios of affordable housing as part of all future to more demographics, the more community benefits it residential development applications in the District, in provides as a whole. Leeds Grenville implements the Ontario urban centres identified as suitable areas to implement Long-Term Affordable Housing Strategy, which lays out the such housing types following objectives: • Offer funding for an array of housing options that address affordable housing needs across the housing • To improve access to affordable housing that is safe, continuum sound, suitable and sustainable • Encourage and support project applications that include • To provide flexibility to Service Managers to meet local prioritized outcomes such as attractive design and 55 appearance, opportunities for tenant participation and engagement, and preferred locations • Support individuals and families who cannot afford current market rents by offering rent subsidies
There are clear overlaps and commonalities between these goals and the ways in which the Leeds Grenville Official Plan Affordable Housing strategies can meet them.
How does this align with our other priorities and goals?
• These policies promote attainable housing options for all stages of life. • Mixed use development to increase access to public and institutional services and amenities that augment the livability and success of growing communities and provide energy and resource efficient built form that is walkable and transit-supportive. • Creation of public spaces promotes physical and mental health
56 4.1.2 Whistler Employee Housing Service Charge By-law, Whistler British Columbia Description of case study required to contribute either a cash-in-lieu payment or provide new housing for employees. The number of units required n 1975, Whistler became Canada’s first resort municipality. from a developer is based on the concept of a “bed unit”, which While the community is a popular tourist destination, renowned combines both the number of bedrooms and the number of for its alpine skiing and outdoor attractions, few people are as persons per unit. familiar with its innovative housing policies, which have been instrumental in ensuring that more than 75% of employees at Commercial: 1 employee bed unit for every 50 square resorts live in the community. metres of the new development
In order to maintain the natural environment in the Whistler Industrial: 1 employee bed unit for every 250 square area, the 1993 Official Community Plan of the Resort metres of the new development Municipality of Whistler (RMOW) capped future development. This cap, combined with strong levels of high-end recreational Tourist Accommodation: employee bed unit for every 5 development, resulted in soaring land and housing prices. new hotel rooms These market conditions led to a serious shortage of affordable housing, especially for those employees of the Eligibility for the employee-assisted housing is determined resort industry earning only slightly more than the minimum using a point system. Those who have lived and worked wage. Subsequently, local residents own only 25% of Whistler in Whistler the longest are given priority. The other criteria properties, while Lower Mainland residents, from Vancouver applied are: being of a legal working age, having Canadian and the surrounding area, own more than 50%. citizenship or landed immigrant status, and having worked at least 20 hours per week for the past twelve months in a In 1990, the municipality implemented the Employee business located within Whistler municipal boundaries. Housing Service Charge By-law as a mandatory element of the development approval process. The service charge To ensure the long-term affordability of future employee/ links the construction of commercial, industrial and tourist resident-restricted properties, the RMOW implemented resale accommodation to the needs of employees in the resort price controls. Designed to ensure future affordability, resale industry for affordable housing. A developer of a property is price controls restrict the appreciation of affordable housing 57 units. The municipality uses a formula to help calculate the The Employee Housing Service Charge By-law is supported maximum resale price of a resident-restricted unit. It is based by policies within the Resort Municipality of Whistler’s Official on the Core Consumer Price Index (CCPI) that measures Community Plan (1993). In particular, s.4.2.2 Resident inflation to ensure affordability for subsequent purchasers. Housing states that “When there is a demonstrated need, Purchasers of employee-assisted housing cannot capitalize the Municipality will encourage the construction of affordable on significant gains in the resale of their housing maintaining housing to accommodate permanent residents and affordability for the next buyer. In addition, a covenant is employees. Criteria for the development of resident housing placed on the sale of the dwelling ensuring that the housing are set out in Section 4.13.7.” always remains employee restricted housing. Purchasers of the affordable housing units must resell their unit to the Section 4.13.7 Evaluating Proposals for Official Community municipality or a Whistler resident. Plan and Zoning Amendments lists a number of criteria that are used to evaluate housing proposals to ensure that The Whistler Housing Authority (WHA), a subsidiary of the affordability is a prime consideration. Criteria relevant to the Resort Municipality of Whistler, was created in 1997 to oversee Employee Housing By-law includes: the development and management of employee/resident- restricted housing. Using funds from the Employee Housing “employee use restrictions as required by the Municipality will Fund and bank loans, the WHA purchased and developed ensure that the housing is for resident use in perpetuity; close to $22 million worth of real estate over the next few years after its inception. These new properties were affordable any development which proposes resident housing targeted rental properties that ensured rent generated would finance at short term residents should comply with the following: the any debt or operating costs. By 2001, 326 new resident- site be within close proximity to Whistler Village or Whistler restricted rental beds had been built for the community. Creek; the development provide rental accommodation which is proven to be affordable to short term residents; WHA’s early inventory was fairly evenly split between rental that the rental units not be tied to an employment situation; and ownership units. With growing demand from locals for that development favor 2 bedroom apartment or townhouse permanent, owner-occupied homes, WHA has focused more units, with lesser 1, and 3 bedroom and studio apartment or efforts on developing ownership properties. townhouse units; be full apartments not dormitories; provide 58 suitable private storage and parking space; and Needs Assessment” survey. Since its establishment in 1998 by WHA, these annual surveys have proven instrumental any development which proposes employee housing which in identifying and highlighting key housing needs such as is targeted at semi-permanent or permanent residents should measuring the current cost of living, changing demographic comply with the following: be within close proximity to existing data and the most recent workforce employment statistics. open space, parks and community facilities; provide ownership Using this information, WHA and the municipality have been opportunities for first time home buyers; comprise a mix of able to project, prepare for, and guide resident housing townhouse, duplex and single family units; be neighbourhood projects in the community. developments which provide neighbourhood amenities; integrate into existing residential neighbourhoods with similar Relevance to The District of Muskoka building form; provide suitable private storage space and parking space; and be proven affordable to semi-permanent The tourism and tourism-related sectors comprise 57% of the and permanent residents”. District of Muskoka’s economic base, and provides 20% of all jobs. The resort sector alone generates $400 million annually Results in case study and is a significant source of direct and indirect employment in the District. The tourism industry mainly provides seasonal As of today, the Whistler has approximately 1,900 units and part time employment, which is reflected in an average of affordable rental and ownership housing. No affordable household income for permanent residents that is 15% lower employee rental units would have been possible without the than the Ontario average. $6 million contribution from development levies. In addition, WHA has created a separate ownership market at prices one- The District is expected to experience moderate employment quarter to one-third of the market price in the private market. growth over the short, medium and long term forecast periods. Employment growth will largely be concentrated Understanding the challenges and needs facing local within tourism, business/personal services, health care/social community members is an integral part to building a assistance and construction. Combined permanent and successful and affordable resident housing inventory. One seasonal housing construction is forecast to total 490 units tool providing that understanding is the “Employer Housing per year from 2011 to 2041. New seasonal housing demand 59 is anticipated for developments that have a mixed product offering and ownership tenures. While some of the large resorts within the District provide housing accommodations for their employees, there is no formal policy in place to support residents of the District who contribute to the tourism and tourism-related sectors by providing affordable housing options. Employee Housing Development Charges can provide the District with a tool to meet the increasing demands of affordable housing units (both rental and homeownership), and to ensure that local residents are supported in their contribution to the District’s major economic sector.
How does this align with our other priorities and goals?
• Providing employee housing allows for tourist developments to access labour markets and increases their viability that contributes to the economy of the District • Employees can live in the areas they work thus reducing reliance on personal automobiles for mobility
60 4.1.3 Mount Pleasant Community Centre Vancouver British Columbia Description of case study the Housing Centre under the management of the Director, Facility Design & Management was created. The process also The Mount Pleasant neighbourhood on is located on included an opportunity for stakeholder groups to participate Vancouver’s east side. This low- to middle-income in the design of the centre. Principles of sustainability guided neighbourhood was home to 26,400 people in 2011 and is the planning and design of this LEED Gold Certified project characterized by its many heritage buildings. In 2000, The to maximize energy efficiency. The joint development of this City of Vancouver’s Capital Plan allocated $4.75 million to project generated better value for the initial capital funding, rebuild the Mount Pleasant Community Centre. At the time, saved on design and project management costs and, in the it was a small, aging building poorly located at the periphery long term, created operating efficiencies. of the neighbourhood that was unable to meet the needs of the growing Mount Pleasant community. The Vancouver Park The new Mount Pleasant Community Centre was completed in Board (VPB), owners of the centre, sought a new site that January 2010 and is the first multi-service community centre in was more centrally located and large enough to provide more Vancouver. The 30,750 sq. ft. centre offers: a gym and climbing services to the community. The triangular site at 1 Kingsway wall, a fitness centre, dance studio, multi-purpose rooms and became available in the heart of the historic Uptown District outdoor space. It also houses a new and well-integrated and at the intersection of several transit routes. Vancouver Public Library Branch, Child Development Centre, an independent café, and 98 units of market value rental The property was zoned medium density, which meant that housing above the library. It has various programs for all ages it had the potential to be a much larger building than the including children’s classes, teen activities, adult and senior VPB itself could use. The VPB partnered with the Vancouver programs, and a Parent & Tot Gym. The Community Centre Public Library, the Corporate Services and Social planning is three stories high with a green daycare playground on the departments of the City of Vancouver, and an independent roof of the gym with the library located next door with nine retailer. The participating departments and boards shared stories of residential housing above it. in the land cost in proportion to areas of their respective facilities. During design and implementation, a working The addition of the housing component contributed to committee comprised of representatives from Parks, Library, the meeting of the City’s housing objectives and served to Facility Development, Real Estate Services, Childcare and provide mixed use development on the site. Staff analyzed 61 opportunities to create affordable housing in the development Councils; and encouraging retention of rental buildings” including market rate, seniors, and subsidized rental housing. Results in case study The part of Mount Pleasant where the centre is located was in transition and this civic project acted as a catalyst in the The building has been operating at capacity since it opened revitalization of the area. The project reflects Vancouver’s City and the centres library branch is now one of the busiest in plan vision for developing neighbourhood centres that bring Vancouver with spaces for students to study and a children’s together multiple civic services. The public greatly benefits area. The popularity of the building greatly exceeded the from innovative, diverse programming jointly offered by the City’s expectations. The centre functions as a successful hub three service providers all in one location. with multiple community services located in a single location.
Furthermore, the development of the Community Centre Relevance to The District of Muskoka helped establish the Mount Pleasant Community Plan (2010), which contains community-wide and sub-area policies to Although Vancouver is a large, urban municipality, the many address issues and guide development in the neighbourhood. benefits received from such a development can address a Current housing policies in s.4.1 of the Community Plan reflect number of challenges present within the District. Seniors the land use and built form of the centre. Some examples are: and families alike greatly benefit from having support services and amenities in close proximity to where they • “Seek opportunities to build a greater range of housing live. Such vulnerable populations are often unable to travel types in Mount Pleasant, from SRO’s to row housing, to independently particularly if they are reliant on automobile apartments, to house youth, large and extended families, transportation to access services or needs as is the case in and seniors (to age in place)” the District. Providing housing options within Close proximity • “Seek to reduce barriers to the construction of new to amenities and services can be ensured through mixed market rental housing, and provide more market land uses allowing the elderly and families to access such rental housing in Mount Pleasant, by: having the City services, all in one location. provide more land for rental housing; addressing rental
restrictions placed on some strata units by Strata 62 Access to public spaces that can provide supports and services How does this align with our other priorities and is also very important for rural residents for mental and physical goals? well-being. While residents in Simcoe Muskoka have reported their mental health as excellent or very good, mental health • Mixed use centres can provide an opportunity to access and well-being is still a priority for all residents. Suicide is the services without the need for a vehicle which reduces leading cause of injury related death in Simcoe Muskoka among greenhouse gas emissions young adults, which demonstrates a need for better access to • Opportunity to provide housing for all stages of life supports and services. For physical well-being, seniors were found to have the highest rates of inactivity in Simcoe Muskoka. Key perceived social and environmental factors contributing to physical inactivity were: insufficient time, financial constraints and lack of access to recreational resources. A mixed use community centre with housing incorporated could provide residents with access to a variety of supports and services in a single location, eliminating the need to travel large distances.
The residential units would also be affordable units, fully- subsidized non-market housing, seniors housing, or subsidized rental housing. There is a need within the District for more rental housing options and there is a growing demand for affordable, flexible and compact dwellings for older residents. A mixed use development could provide both housing options and community services that District residents require.
63 4.1.4 Rural Health Hubs Framework for ON Description of the Case Study The framework explains the vision of rural framework hubs, and how they can benefit the communities they are situated The Rural Health Hubs Framework for Ontario was written within. It goes on to break down the benefits into how patients’ by the Multi-Sector Rural Hub Advisory Committee in 2015 will be better served, how efficiencies and collaboration will and is offered as a guide to address the unique challenges be fostered, and has better accountability of health service to delivering high quality care in rural communities. The providers will be created. Particularly, it provides guidance on document provides processes and recommendations on how how to review the current state of affairs in the community and to influence communities to work together to establish these how to implement a community health hub. hubs and ultimately ensure that all community needs are met. Results of the Case Study According to the framework guide, it is difficult to meet the varying mix of health care needs of rural community members The report framework identifies community health hubs as especially when geographical constraints limit the effective centres that offer a wide variety of health-related services radius of available healthcare assets. Other problems that to residents depending on the local context and needs. In affect these rural communities are the attraction and retention primary care, health hubs can incorporate inter-professional of qualified staff and practitioners, which puts further stress care teams, chronic disease management, and health on existing healthcare assets. promotion and management programs. They may also include emergency, inpatient, and ambulatory care; home The report includes a framework of how to achieve and community long-term care; and community health and improvements to healthcare accessibility and proximity addictions services. in a rural context, how to improve patient navigation and processes within and across service providers, and how to According the report, the key factors to determining which foster improvements for rural health systems. Ultimately, the services would be best to include within a community health framework offers the rural health hub model as a solution that hub are to consider the following: can achieve these goals, and relies on inter-governmental cooperation and participation from different sectors involved in providing healthcare to communities. 64 • Size, density, and settlement patterns of stakeholder early years programs. The most recurring success of these communities hubs was positive feedback from patients and users, and • Identifications of health and social services needs of shared operational efficiencies due to the close proximity of community members services working within the same building. Lastly, the most • Identification of the current health and social care recurring barriers to these centres is funding, staff retention, providers in the community, and the types of services and limited technology sourcing, and salary differentials. they offer • Identification of gaps in services How is this case study relevant to Muskoka? • Identification of current partnerships, efficiencies, and The framework describes the types of rural communities that linkages among current health care service providers in would benefit from the implementation of health hubs. The the area following are some of the characteristics of these types of communities, which also describe some locations with the The report also includes examples of health hubs that have District of Muskoka: been established in other communities in the province of Ontario, and lists their respective size, the services available • Geographically remote and isolated in their respective hubs, ways they have been successful, and • Low population density barriers to their success. The most recurring type of health • Long travel times for services not locally available hub implemented in these communities is one campus that • Potential weather extremes and inadequate public offers integrated health and social services, with partnerships transportation impact access to care between these types of partnerships. Catchment populations • Limited health service options of these community health hubs range from 2,100 to 15,000 while the Ontario Health Association’s guideline recommends These attributes can be found in the District of Muskoka’s 10,000 to 40,000 for rural southern Ontario. Some of the geographic context, and considering that the framework services available at these community hubs are rehabilitation justifies rural health hubs in locations that fit these descriptions, services, long-term care facilities, family health and social it is clear that parts of the District would benefit from such an work, primary care services, prevention and wellness, asset. Alzheimer’s support, chronic disease support, hospice, and 65 How does this align to other priorities? • Rural community health hubs reduce the distance to access health and social services, and provide • Rural community health hubs increase access to public opportunities to connect to alternative transportation and institutional services, and amenities that augment modes. They act as nodes in rural areas where many the livability and success of growing communities. They types of land uses may be applied for mutual benefits offer spaces where rural District residents can have their and efficiencies. health and social needs looked after so they can live prosperously in the rural environment as they wish. • Rural community health hubs promote physical and mental health through encouraging the creation of public spaces. As they attract District residents to the site, they encourage and provide for community social interaction, depending on the volume of programming and happenstance social interactions.
SUMMARY
Encourage dense and compact developments so that they are affordable to different age demographics.
Community Centres and Health Hubs should be established to offer services and amenities to seniors in one location.
Different and complementary living situations for different age demographics living in close proximity will provide community social benefits.
66 4.2 Diverse Economy 4.2.1 Western Economic Diversification Program Description of case study users in Northern Alberta, WD supported the creation of Mobile Business Incubators (MBI). Western Economic Diversification Western Economic Diversification Canada (WEDC) is a along with industry partners collectively invested $1 million federal department that supports innovation initiatives in towards the creation of Mobile Business Incubators which Western Canada. Support is provided in the form of funding are mobile trailers that provide services such as business for businesses that align with the initiative’s current strategic development, business/consulting expertise, office space, priorities. The priorities of this program are: innovation, skills Internet access, meeting rooms, and a network of service development and training, trade and investment, building professionals. capacity for defence procurement opportunities, and economic growth acceleration opportunities for aboriginal peoples. The This project leveraged partnerships between the federal Western Economic Diversification initiative is a direct result government and two private companies, ConocoPhillips from federal policies. Canada and Statoil. ConocoPhillips went a step further with its commitment to hire locally for the MBI program. The Mobile This initiative was created to grow and diversify the economy Business Incubator project was created with the intention to in Western Canada, as the economies are heavily invested support and grow the competitiveness of small- and medium- in the oil and gas industries. WEDC was designed to reach sized businesses in Northern Alberta. underrepresented rural residents and to train the workforce on skills gaps in the economy. The initiative was intended Since the creation of the project in 2011, the MBI project has to diversify the economies in Western Canada through job provided on-the-spot training such as automotive servicing, training and business development. carpentry, electrical, machining, pipefitting, plumbing, and welding to over 100 students a year. Results in case study Relevance to The District of Muskoka Since rural areas consist generally of dispersed development, service delivery is a major challenge for providers due to From the results of the Western Economic Diversification distance between residents. As a way of bringing services to funding of the Mobile Business Incubator project, the creation of mobile business training centres illustrates that rather than 67 having rural residents go to service providers, service provide • Programming provided through business incubators can could go to the residents instead. As the District of Muskoka be tailored towards the needs of special age groups. is so large, creating business development centres in one location may be inaccessible to those who want to access the service as they either live too far away or do not have the means of accessing the services in person.
The MBI project is diversifying the economy in Western Canada by providing rural residents with job training and business development for industries outside of the oil and gas sector. For the District, this shows that rather than setting up bricks and mortar economic development centres, mobile business incubators can deliver on-the-spot job training and business development workshops in order to reach underrepresented residents; making service delivery and access more equitable.
Since the District has expressed interest in creative economies and green energy generation, programming similar to the efforts in Alberta can also take place in the District, but one that is contextually grounded to local skills and business needs.
How does this align with our other priorities and goals? • Access to mobile business incubators addresses mobility challenges of accessing training for residents who cannot easily access centralized training facilities
68 4.2.2 Creative Food Economy, Prince Edward County Ontario Description of case study Economy Strategy with investment policy and attraction tools and also to align these tools and policies with the creative Prince Edward County (PEC) is a rural community in Eastern investor target market’s needs. Ontario, which has been named Canada’s first “creative rural economy”. PEC has capitalized on its quality of place to attract Results in case study creative professionals and investment in an emerging “creative food market” in order to diversify its tourism economy. This Prince Edward County has seen a marked increase in creative success is the result of a strategic economic development professionals and businesses and is also home to over 100 approach that began over 10 years ago. independent artists and galleries. PEC is also one of Canada’s fastest growing wine-regions, and a burgeoning creative food In 2004, Prince Edward County’s Economic Development economy that has been supported through food and wine Strategy indicated that it had little competitive advantage in events that showcase local cuisine. The business community attracting traditional industry and manufacturing. Instead, its is dominated by small and medium-sized businesses. A advantage lies in its quality of place due to the desirability significant amount of job creation and innovation is driven by of the rural landscape, natural environment, and small town small and medium-sized businesses. character. The County decided to channel its resources into establishing a creative economy. In support of this vision, a Relevance to The District of Muskoka Municipal Cultural Plan (2006) and Tourism Development Plan (2006) were created to implement an investment attraction Prince Edward County has successfully leveraged their campaign aimed at the creative class. distinctive sense of place to attract investment and diversify their tourist economy. This was accomplished through an Currently, local economic development is being driven by aggressive recruitment strategy of creative professionals Prince Edward County’s Creative Rural Economy Community and businesses. The District of Muskoka has many of the Improvement Plan (2012). This Plan outlines projects and quality of place characteristics that are attractive to creative activities that will be undertaken within the County as well as professionals and industries, such as a picturesque natural financial incentives available for investment. The objectives environment and a thriving cultural and arts scene that attracts of the plan include aligning the County’s Creative Rural 69 seasonal residents and tourists.
How does this align with our other priorities and goals? • Promoting economic activities that provide year-round, full-time, employment will help to retain youth by providing more meaningful employment opportunities • Build upon the District’s existing strengths in the tourism industry to promote economic development that respects and local identity and character
70 4.2.3 Rejuvenated Economy, Kenora Ontario Description of case study boating and recreation infrastructure, increasing year- round visitors, creating an “open for business” environment, Located in north western Ontario on the Lake of Woods, enhancing venue infrastructure, improving transportation Kenora is a popular destination for cottagers and tourists from infrastructure. Manitoba and the mid-western United States. In 2006, the City lost its main economic base when paper and pulp mills Results in case study closed. The City was forced to change direction of its local economic development efforts and transform itself from a pulp Significant infrastructure investments funded by both the city and paper town to a destination and lifestyle community. and the federal government through the Federal Action Plan kick started the economic rejuvenation. The city invested In the ten years since the paper and pulp mills closure, the City $7.5 million in revitalizing the downtown and $4.5 million has made enormous strides towards fostering a sustainable on the waterfront area. These projects attracted private tourist economy. The City hired an Economic Development sector investments, including a condominium development. Officer and set up a Regional Economic Development The initiatives resulted in the development of two different Commission, the Lake of the Woods Economic Development education tourism centres related to the surrounding natural Commission (EDC). The EDC was created to implement the environment, Lake of Woods Discovery Centre and the White Region’s Economic Development Plan. The plan focused on Cap Pavilion. From 2009 and 2014 the City saw a 300% business development, particularly the value-added forestry increase in tourism and total tourism spending has increased sector, tourism and special events, education and training to $543 million in 2011 from $482 million in 2008. The City of and the identification of key infrastructure projects. The City Kenora and its partners were able to accomplish a lot over a also developed programs to encourage cottagers to spend short time period by adopting a shared vision of Kenora as a more time at the lake through its “Office @ the Lake” program, “premier boating destination”. made possible through investments in telecommunications infrastructure. Relevance to The District of Muskoka
The City’s tourism strategy outlines its investment priorities for Similar to the District of Muskoka, the City of Kenora has the next five years. This includes; enhancing and expanding 71 marketed its quality of life in order to attract residents, businesses and tourists. The City has built its identity based on its natural environment, which offers similar experiences to the District, such as cottaging, boating and nature appreciation. The goals of the City are also similar to the District; to increase year-round tourism, to attract cottagers to bring their business with them to the lake and to build upon their creative assets.
How does this align with our other priorities and goals? • More permanent, full-time, and meaningful employment will retain youth in the District and will build a more resilient and diverse economy that utilizes local strengths
SUMMARY
Quality of place is foundational to local economic development.
A shared vision and goal between all stakeholders is essential.
Supporting small to medium-sized businesses is the key to growth in the creative economy, especially in rural communities.
Provide flexible and inclusive spaces for business and public use.
72 4.3 Climate Change Adaptability and Resiliency 4.3.1 Sustainability Checklist, Port Coquitlam British Columbia Description of case study The Sustainability Checklist contains 6 criteria (land use, housing, community character and design, environmental The City of Port Coquitlam is one of 21 municipalities located protection and enhancement, social equity and economic within Metro Vancouver in British Columbia. With a population development), some with specific sub-criteria (i.e. design, of 56,347 residents, the City is located adjacent to both the public space etc. under community character and design). Fraser and Pitt River. The City of Port Coquitlam requires that Each sub-criterion is weighted and scored based on a point a sustainability checklist be completed in the development system. It is important to note that the City has acknowledged approvals process, applying to both rezoning and development that no project will earn a perfect score and has established no permit applications. Applicants are required to complete this pass/fail standard. In addition, some sections of the checklist assessment at the beginning of the development process. may not apply to all projects. The City expects a range of scores The checklist is a compressive assessment of development depending on the type of application and each checklist is projects that exemplifies a ‘triple bottom line’ approach in assessed individually for how it addresses the municipality’s order to achieve sustainability goals outlined in their Official sustainability goals. Statistical data is required to be submitted Community Plan and Corporate Strategic Plan. The purpose in conjunction with the checklist that provides information of this checklist is to ensure that the proposed project used in assessing proposed development. Examples of such contributes to the key pillars of sustainability, economy, data includes estimated number of employment opportunities environment and society, by satisfying six predetermined produced by development, number of housing types, housing criteria. Upon submission the City is able to provide specific sizes, and tenure. suggestions and recommendations to the applicant that would improve their overall score. According to the City the checklist A completed checklist is required in the development will assist in making development decisions and will allow the application package along with a proposal, planning rationale, municipality to play an active role in achieving sustainable and survey. The Sustainability Checklist is completed in two land use development to create more complete communities. stages; By incorporating this checklist within the preliminary stages of the development process, sustainability goals are integrated 1. The applicant submits a self-scored checklist with their into built form and land use decisions. development permit application 2. The checklist is reviewed by City staff and any revisions 73 are discussed with the applicant to which a final checklist is As well as for regional planning, including, completed by Staff before being submitted and reviewed by the Community and Economic Development Committee and “Regional Growth Management: Broad consensus and Council. commitment to a sustainability inspired regional growth strategy In tracing the intent of this checklist to higher-level policy, We commit to help create a livable and sustainable region within the City’s Official Community Plan, growth management while maintaining municipal character and diversity by and sustainability are two of the key objectives that frame the fostering complete communities in a compact urban area, plan’s policies. Within Chapter 7.1 ‘Growth Management and a strong and resilient economy, transportation choices and Sustainability’, the objective reads, protecting the environment”
Chapter 7.1— “The objective for growth management and Port Coquitlam’s Sustainability Checklist provides an example sustainability is to plan for the orderly and efficient development of a land use planning action that embodies the goals and of land for housing, businesses, jobs, community amenities intentions of higher-level climate change and sustainability and facilities and to improve the social, environmental and policies. economic well-being of the community through good planning and land use management” Results in case study
Similar to the District of Muskoka, Metro Vancouver has Four benefits of this checklist noted by the City was that first, developed a sustainability framework, which includes strategic it functions as a measurement tool the municipality could use priorities for the environment, including, to determine if the Official Community Plan and Corporate Strategic Plan goals were being met and followed by “Climate Change: A zero net carbon region, resilient to the developers. Secondly, the checklist functions as an indicator, effects of climate change allowing the City to monitor community sustainability. Next, We commit to minimize the region’s contribution to climate this checklist initiates the conversation around sustainability change and prepare the region for the effects of climate and complete community development with developers change” from the beginning of the development process. Finally, the 74 checklist is a simple framework for City staff to follow when How does this align with our other priorities and reviewing applications that creates consistency among how goals? applications are assessed for sustainability. • More built infrastructure for community preparedness by Relevance to The District of Muskoka connecting land use planning and emergency planning • Reduces the carbon footprint and improves energy Port Coquitlam is a growing city with a permanent population efficiency of the District. size comparable to the District. However, the District currently does not have any development mandate that seeks to incorporate goals of sustainability and environmental protection and resilience into development proposals. The approach taken by Port Coquitlam seeks to encourage developers to consider the environment and their environmental impact through their design considerations at the early stages. While the District’s Official Plan contains built form policies related to design and setbacks in certain areas, there appears to be an absence of blanket policies related to environmental standards for the entire District. Port Coquitlam’s checklist illustrates a way in which to integrate energy efficiency and emergency preparedness into the built form of new developments. A checklist submitted during the application stage is a form of proactive planning against the impending consequences of climate change.
75 4.3.2 Compact Development, Dieppe, New Brunswick Description of case study mature forests, wetlands, and valley lands which, according to reports, posed development challenges for the developer. The Village en Haut du Ruisseau, or The Village, is an example The SCD project was made possible through a collaboration of the sustainable community design (SCD) model and located between the Province, the City, and the private developer, in the City of Dieppe, New Brunswick. Dieppe is directly east TriDev Corporation. Prior to the project, the City had of Moncton and contains a number of river systems, ample recognized that new land use proposals were promoting natural green space, and the Greater Moncton International sprawl. The SCD model focuses on clustering developments Airport. Natural heritage is an important element of the city to reduce site servicing and increase land available to be kept which features an urban forestry program for the protection, as green or open space. Notable environmental benefits of management, and monitoring of urban trees. this land use model are that water and air quality is improved through compact development and green buffers are created The Village was the province’s first SCD pilot project. The around residential and mixed use developments to function SCD model is applied to new subdivision developments with as a stormwater management tool. The SCD model also the intention to increase density and preserve natural green exhibits cost saving benefits for the developers, residents, space. The initial reasons for pursuing this model were to and municipality by reducing servicing costs due to a compact combat rural sprawl and reduce greenhouse gas emissions development pattern that requires servicing a smaller portion but other benefits included: of the site.
• new affordable housing units; The SCD model is carried out in four phases. First is to identify • reduced building costs (associated with preparing and natural areas for preservation and before locating home sites tendering land); that do not encroach on these natural areas. Next, streets • reduced site servicing costs; and and trails are established to match the site layout allowing lot • the creation of a new transit stop. lines are drawn within the designated area. In the case of The Village, street layout and housing sites were pre-approved by Through compact development, the City was able to the municipality so that development could continue in multi- curtail encroachment on environmentally sensitive areas. year phases. Implementation of the SCD involves extensive Surrounding the development site is the Fox Creek watershed, collaboration between varying consultants and provincial and 76 municipal departments such as infrastructure, water, planning, development approach through compact and efficient new conservation, that also included feasibility and mapping developments and servicing efficiencies while protecting work. The extent of inter-governmental collaboration will vary the natural environment (Objectives 1-5). More specifically, depending on how municipal responsibilities are allocated. In Policy 11 within this section talks exclusively about the some cases, it was noted that using the SCD model requires implementation of smart growth concepts. And excerpt from patience and time because it involves working outside the policy reads, traditional standards that are unfamiliar which lengthens development process. Policy 11— “It shall be a policy of Council to implement the smart growth concepts described below in order to contribute The Village en Haut du Ruisseau and the SCD concept to creating a more dynamic and more sustainable urban aligns with select goals, objectives and policies found within environment…” the City’s Municipal Development Plan. Within Section 3, ‘A Healthy and Sustainable Community’, Goals 2 and 7 speak to Interestingly, following Policy 11 is a proposal to council that the development of compact communities and protection and outlines how to see this policy carried out in practice, improvement of the natural environment: “It is proposed that Council ensure that the zoning by-law, Goal 2: “Building compact and efficient communities subdivision by-law and the subdivision procedures, standards Reducing urban sprawl by focusing on promoting a strong, and guidelines be updated regularly to serve as a complement connected, mixed-use community” to the Plan and provide guidance regarding land subdivision”
Goal 7: “Protecting and improving the natural environment In conjunction, Policy 18, under the theme of ‘flood risk Ensuring that current and future developments in the city management and climate change adaptation’ says, respect the natural components of the environment and that the natural environment is protected and promoted” Policy 18— “It shall be a policy of Council to continue to look at various legal tools and other adaptation and protection Likewise, Section 5, ‘Managing Development and the Urban measures to protect flood-vulnerable lands” Form’ the objectives speak to adopting the “smart growth” 77 Finally, within the residential land use section (6.1) Policies While originally targeted to singles, couples and families, 12 and 13 speak to innovative design in strategic areas and 15% of the homebuyers ended up being young families but the development of new residential areas that account for the a majority were mature homeowners. Most were looking to changing climate: downsize to smaller units. In total, 217 units were built and the City had negotiated that 20% of these be affordable. The Policy 12— “It shall be a policy of Council to encourage the 217 units were made up of a mix of housing types, which design of innovative residential areas in strategic locations included townhomes, and multi-unit dwellings clustered into that comply with environmental, economic, and demographic groups of 2-4. The Village received a high walk score as a market conditions and must be in line with the objectives, result of its proximity to other amenities and facilities and policies and proposals of this Plan” was the recipient of a number of awards and recognized regionally, nationally and internationally. The development Policy 13— “It shall be a policy of Council to promote the also successfully protected the important natural features of creation of residential areas that consider impacts related the area. to climate change. These include, but are not limited to, the impacts of projected changes in precipitation and an increase Relevance to The District of Muskoka in the frequency of severe weather events”. This case study is relevant because the development patterns While the use of the SCD model is not explicitly referenced in and trends seen in The Village are similar to that of the District. the Municipal Development Plan, it is supported by existing In the District, new developments are often phased, much like City goals, objectives and policies. the SCD example. Compact development would prove to be financially viable for the District because it would minimize Results in case study servicing costs. Most importantly, this development model is grounded on the principle of environmental protection The Village en Haut du Ruisseau land was re-zoned in 2007 and sustainability and would respect the physical landscape with construction beginning in 2009. The development was and natural heritage that is important to the District’s culture, carried out in phases at a rate of around 15 units per year. identity and economic base.
78 How does this align with our other priorities and goals? • Compact development reduces greenhouse gas emissions; • Promotes a diversity of housing types that are suitable to different age groups and; • Allows for opportunities to promote active transportation.
79 4.3.3 Emergency Preparedness, City of Nanaimo British Columbia Description of case study Community Plan. As a strategy for achieving their community sustainability goals, the City has developed distinct urban Nanaimo, British Columbia is a small municipality located nodes and corridors that are intended to support denser on the southeast coast of Vancouver Island adjacent to the development and a mixture of services and amenities Georgia Strait. The City is one of the municipalities found within (Section 2.1 ‘Urban Nodes’). These nodes are accompanied the Regional District of Nanaimo. Vancouver Island contains with land use designations and policies. One in particular, the 6 regional districts with the City of Nanaimo containing a “Hospital” urban node found in Section 2.1, ‘Urban Nodes majority (57.7%) of the region’s population and functioning as Cont.’ contains a land use and design policy focused on the economic and employment center for the region. emergency and support vehicles,
There are two examples that come out of the City of Nanaimo Section 49— “The movement and safe access of emergency that demonstrate how emergency response planning can and support vehicles shall be provided for in plans for the new be incorporated into land use planning. First, much like the development or redevelopment of lands” District of Muskoka, Nanaimo has the 2015 City of Nanaimo Emergency Response and Recovery Plan which contains Through this policy, the City has made an explicit design predetermined ‘Reception Centers’ dispersed throughout requirement for new developments that takes into account the city; Nanaimo Aquatic Centre, Bowen Park, Beban Park the needs of emergency services. and Oliver Woods Community Centre. All of these centres currently have other primary uses, but have been made to Results in case study into an emergency management and response assets. These 4 centres are to be used as ‘Emergency Reception Centres’ The City has utilized the concept of shared use facilitates so during emergency situations in the event that residents have that emergency response is more efficient. Residents of the to evacuate their homes. According to the City, these centers City of Nanaimo have predetermined facilities where they, in are equipped and designed to meet basic needs such as the event of an emergency or disaster, can access the help food, water and shelter. and services they need. In the second policy example, the City has illustrated one approach to address emergency planning, The second example comes from the City’s Official namely the effective and efficient movement of emergency 80 vehicles, in land use planning policy. is efficient and clear of any obstacles.
Relevance to The District of Muskoka How does this align with our other priorities and goals? The City of Nanaimo sets a precedent on how to marry the concepts of emergency response and land use planning • Would help to prepare underserved and remote through Official Community Plan policies and shared use communities against the impacts of climate change such facilities. The District of Muskoka and Area Municipalities as increased storm severity and frequency. currently have emergency response plans in place however they do not designate areas in which residents can go in the event of an emergency or disaster. These plans encourage, or have guidelines for, “emergency operations centres” which would be established at the time for decision makers and information distribution but are absent of permanently established locations for displaced residents. There are dispersed communities within the District that might experience challenges emergency response, and receiving assistance during extreme weather events like power outages or extreme rain or snow storms. Having facilities retrofitted to accommodate residents would allow for emergency management to take place in one centralized location in convenient locations dispersed across the District.
The District does not have any policies that encourage or require the inclusion of emergency planning in new developments. As a bottom up approach, the city’s built form will be able to ensure that emergency response and dispatch 81 4.3.4 Sunshine Coast Regional District Community Energy and Environment Plan (CEEP), British Columbia Description of case study uses through incentives and education
The Sunshine Coast Regional District (SCRD) is located 4. Expand Local Renewable Energy Opportunities in southwestern British Columbia and roughly a two-hour • Identify areas that can support renewable energy projects drive from Vancouver. The SCRD consists of two urban such as solar and wind areas, three First Nations, and six unincorporated areas. • Explore options to allow personal or community-level The SCRD partnered with local municipalities and First renewable energy projects Nations communities to develop a Community Energy and Environment Plan (CEEP) in 2009. The CEEP describes 5. Reduce and Reuse Solid Waste as a Resource eight goals with associated actions that the SCRD should • Support reuse as a diversion strategy pursue to improve energy efficiency and reduce greenhouse • Implement curbside recycling programs where possible gas emissions. These eight goals, with selected actions, are: 6. Strengthen the Local Economy 1. Support Energy Efficient Land Use Practices • Develop a sustainable energy supply strategy • Create energy efficiency standards for use in • Create of green businesses network to promote local development review “green” businesses • Concentrate development in first and second tier growth areas 7. Manage Brownfield Sites • Develop brownfield sites into community assets or 2. Reduce Dependence on Single-Occupant Vehicles development sites • Encourage alternative modes of transport through infrastructure investments 8. Foster a Culture of Conservation in the Community • Foster a culture of efficient driving through education • Create public awareness of climate change and energy programs and idle-free zones efficiency • Support local champions or groups improving energy 3. Enhance the Green Building Sector efficiency • Promote energy efficiency for existing residential 82 The actions associated with each goal are specific strategies This is preceded by language that directs the District to take or programs that should be pursued by the SCRD and a leadership role and lead by example by reducing internal carried out by the public, industry, or local municipalities. The greenhouse gas emissions and preparing a community-wide CEEP also provided the foundation for developing a regional greenhouse gas reduction plan. sustainability plan on the understanding that impacts of climate change are not confined to regional boundaries and Results in case study cooperative strategies to reduce greenhouse gas emissions are required. The CEEP clearly establishes a link between greenhouse gas emissions and climate change while also identifying the The District of Sechelt, a district-level government within benefits of improving energy efficiency through built form and the SCRD, acknowledges and supports actions to reduce individual actions. The plan also describes land use policies greenhouse gas emissions (in this case, established by a such as compact development and development review provincial charter) while also providing a strategy for action strategies alongside regional initiatives that reduce the local through compact development and transportation demand contribution to climate change and realize economic benefits management strategies. from reducing greenhouse gas emissions and improving energy efficiency. Section 2.10— “The District of Sechelt supports the B.C. Climate Action Charter goals to reduce emissions. The target Relevance to The District of Muskoka for overall greenhouse gas emissions in Sechelt is 58,300 tonnes per year by 2031, which represents a 29% reduction The District of Muskoka is similar to the South Coast Regional compared to “business as usual”. District in that both share similar structure of urban settlement areas and various rural communities. Also, the SCRD and Section 2.11— “Recognizing the majority of emissions in District of Muskoka are similar in government structure Sechelt (and the Sunshine Coast) are generated through as regional level authorities that can provide direction to transportation activities, the priority actions and goals for constituent municipalities. The CEEP outlines specific actions Sechelt focus on compact land use patterns and transportation that can be taken by a District level government to encourage demand strategies (i.e. reducing dependence on vehicles).” 83 more energy efficient communities and reduce greenhouse gas emissions. Many of the actions recommended in the CEEP fall within the authority of the District of Muskoka or could take the form of partnerships between District and local municipalities.
How does this align with our other priorities and goals?
• Compact built form is more energy efficient than dispersed development and provides opportunities for a mix of land uses that contributes to more housing options. • An effective greenhouse gas reduction or energy efficiency plan also discourages private automobile trips and supports the development of more active or efficient modes of transport such as cycling or public transit. • Local economy benefits from mixed use development that provide spaces for diverse employment to residents. • Energy efficient, compact communities can be more effectively served by emergency services and provide.
84 4.3.5 Marin County Greenhouse Gas Reduction Plan Description of case study Within these measures are specific programs that can achieve progress in one or more of the identified areas. These Marin County is a predominantly rural area marked with larger programs fall into categories of agriculture, atmosphere and urban centres at its southern end near San Francisco and climate, community development, design, economy, energy along the Pacific Coast. It encompasses and six cities, five and green building, housing, public services and facilities, towns, and 20 small Census Designated Places. As an area transportation, and water. that is coastal but also contains sensitive inland ecological areas the impacts of climate change will greatly affect the The Marin Countywide Plan includes policy that requires the quality of life in the County. The Marin County Greenhouse Gas continued monitoring and implementation of the Marin County Reduction Plan, prepared by the Marin County Development Greenhouse Gas Reduction Plan and formalizes the plan in Agency, describes the effects of global warming on the people official land-use documents. of Marin County including more frequent extreme weather events, forest fires from drier and warmer summers, increased Section AIR-4. f— “Establish a Climate Change Planning demand for electricity, and pollution concerns. In response Process. Continue implementation of the approved Marin to the challenges posed by increasing global temperatures, County Greenhouse Gas Reduction Plan. Integrate this plan the plan recognizes reducing greenhouse gas emissions as into long-range and current planning functions of other related a priority for the County to reduce their contribution to global agencies. Establish and maintain a process to implement, warming and climate change. The plan recommends four measure, evaluate, and modify implementing programs…” measures that the county government could improve upon to reduce greenhouse gas emissions and improve energy The Countywide Plan also recommends the assessment of efficiency. These four measures are: carbon emissions resulting from future development to be used in evaluating new development. 1. Building energy use 2. Transportation Section AIR-4.h— “Evaluate the Carbon Emissions Impacts 3. Waste Management of Proposed Developments. Incorporate a carbon emissions 4. Land Use assessment into land use plans and the environmental impact report for proposed projects.” 85 Results in case study How does this align with our other priorities and goals? Describes specific programs that can reduce greenhouse gas emissions at a county or district level including internal • Transportation improvements such as cycling government improvements that can demonstrate leadership infrastructure and more transit supportive development and mainstream energy efficient decisions. The plan also will increase mobility options within and between urban covers a wide range of programs from building improvements areas and reduce reliance on personal automobiles. and land use controls to educational campaigns that increase • Mixed use development promotes access to local energy efficiency. Establishing clear baselines and targets to businesses and living and working in the same evaluate progress toward reducing greenhouse gas emissions community and improving energy efficiency is central to the plan. The • Compact and mixed use development provides an plan also identifies land use controls that direct development opportunity for a variety of housing types for a diverse towards downtowns and along corridors to create compact, range of residents. transit-supportive areas that are mixed-use and maintain a housing/jobs balance.
Relevance to The District of Muskoka
Reducing greenhouse gas emissions and improving District energy efficiency require programs that can be implemented by the government at a district or county level. A mix of urban and rural areas in the county provides a similar structure to the District of Muskoka. The identity of the county is also related to the intimate connection to nature and this plan underscores the importance of reducing damage to this identity.
86 4.3.6 Region of Niagara Climate Change Adaptability Plan Description of case study Section 7— “A healthy natural environment is central to our quality of life and economic well-being. It is part of Niagara’s The Region of Niagara has developed a climate change appeal to both residents and tourists.” adaptability plan that discusses the impact that climate change may have for their sizeable tourism and recreation economy. This is followed by recognizing the need to create plans for The climate change adaptability report describes the potential adaptation to the future impacts of climate change. for a positive short-term relationship between climate change and the tourism sector. Longer peak tourist seasons and Policy 7.A.3.4— “Recognizing that some climate change may shorter winters as a result of warmer temperatures would be unavoidable, the Region shall develop and implement increase the peak summer tourist season. plans to adapt to potential impacts.”
However, the study also discusses potential risks to the Results in case study tourism sector as a result of climate change such as declining water levels affecting boaters, changes in the population of The plan discusses potential effects of climate change on the desirable fish populations affecting sport fishing, declining tourism industry by identifying the effects of climate change water quality from storm runoff and increased algal blooms on the natural environment and which specific sector of the affecting beaches and lakes, as well as more frequent tourist economy will be affected. It also highlights potential extreme weather events damaging the natural environment. short-term benefits and longer-term concerns that should be Due the uncertainty associated with climate projections the addressed by municipal governments and tourism agencies. impacts on the tourism sector are speculative and developing an action strategy will require monitoring and forecasting of Relevance to The District of Muskoka climate change. The District of Muskoka, like the Region of Niagara, is reliant In the Niagara Region Official Plan there is enabling policy on nature-based tourism as a key driver of the economy and that recognizes the importance of the natural environment to its identity is drawn from the connection it has to nature. While residents and tourists: winter tourism is important to the District the benefits from a
87 prolonged summer tourist season would be felt in a similar How does this align with our other priorities and manner to the Region of Niagara. Both the Region of Niagara goals? and the District of Muskoka encompass other municipalities and are responsible for tourism and economic development. • A more adaptive tourism sector can help to diversify This gives them to authority to undertake improvements, the economy into other tourist activities or sectors that programs, or policies that affect the tourism industry at a present options for employment in the District. regional level. • Reviewing new proposals for tourist developments on their adaptability and resiliency to climate change ensures they are able to be served efficiently by emergency services and are as energy efficient as possible.
SUMMARY
Incorporate elements such as mixed use and compact development to secure emergency response and preparedness for all communities.
Recognize climate change impacts on health, personal property, the economy, and the natural environment in policy documents.
Provide direction on interventions such as improving energy efficiency.
88 4.4. Mobility Options 4.4.1 Introduction of Regional Transit Service, Bow Valley, Alberta & Annapolis Valley, Nova Scotia Description of case study kilometre section of Highway 101 in Nova Scotia’s Annapolis Valley, running on an hourly or bi-hourly schedule, six days a The Bow Valley Regional Transit Service Commission, week. This region has a population of approximately 42,000 commonly known as “Roam Transit” provides daily fixed residents clustered in small urban settlement areas ranging in route transit in the Town of Banff, Town of Canmore, and Banff population between 1,000 and 5,000 residents. National Park along the Highway 1 corridor in Alberta. This region has a population of 22,000 residents, many of whom This transit service is seen as being highly successful in its work in the tourism and service sector. In 2012, Roam Transit regional role of connecting low-density rural communities. The launched an hourly regional transit service between Banff and partnership model of financial support from numerous member Canmore primarily to provide transit service to residents who municipalities has allowed for the continued operation of this live in Canmore and work in the tourism and service industry important regional service. Major ridership markets for Kings positions in Banff. It also provides provide an additional choice Transit include seniors who compose of 30% of their ridership, of transportation for tourists. Employment mobility is quite and students at a regional post-secondary institution. Kings unique in this region as that 9% of Canmore residents work in Transit fares are $3.50 for single trips, $90 for an adult monthly Banff and 88% of Banff residents work within the town as per pass, and $65 for a monthly seniors pass. Banff National Park’s Eligible Residency policy. This region features a high seasonal and non-permanent population, Results in case study which is reflected in measures such as housing tenure where 57 % of Banff residents are renters and 22 % of the population Roams regional transit service between Banff and Canmore of Canmore is non-permanent. Roam Transit fares are $6 for has quickly gained in popularity. In 2014, the service carried a one-way trip and $80 for a monthly pass. approximately 100,000 customers and the entire Roam Transit service had a revenue/cost ratio of 67%, which is double the Kings Transit is an inter-municipal transit service along the national average (33%) for transit systems in communities Highway 101 corridor in Nova Scotia. This transit service under a population of 50,000. is a partnership between the Municipality of the County of Kings with the towns of Kentville, Wolfville and Berwick. Four Kings Transit has been in operation since 1981 and is transit routes connect several rural communities along a 200 regarded as one of Canada’s most efficient rural transit 89 systems. Kings Transit carries approximately 1,700 riders per for seasonal workers as well as social and medical supports day. Municipalities contributed $1,679,000 in the net operating for seniors, the primary mode of transportation in the District cost for the service with a revenue/cost ratio of 37% in 2014. is the car.
Relevance to The District of Muskoka How does this align with our other priorities and Three urban centres (Gravenhurst, Bracebridge and goals? Huntsville) are located in a linear orientation along Highway 11 in the District of Muskoka. Having three urban centres in • Having employees being able to access work with a close proximity to each other provides an opportunity to build variety modes of transportation will greatly assist in the ridership and serve demand for regional trips in the District. attraction and retention of staff that will drive the local Local operator Hammond Transportation provides two bus economy. trips daily along the Highway 11 corridor between Barrie • Transit services in smaller communities allows for and Huntsville with fares ranging from $4 to $22 one way. enhanced mobility options for seniors to access services The frequency and fare structure of the existing Hammond and supports within the community. Transportation service is not a regular transit service that is • Reduce greenhouse gas emissions within the District convenient, flexible and affordable for District of Muskoka residents.
According to the 2011 District of Muskoka Demographic Profile, up to 60% of residents who live within the District are seasonal, some of whom work in the tourism sector and may not have the financial capacity to own a vehicle. Additionally, 38% of the District’s permanent population is over the age of 55, well above the Ontario average of 27%. These two population groups would be captive ridership markets for a future regional transit service. To access employment opportunities 90 4.4.2 Partnerships to provide rural transportation services, Huron and Perth Counties, Ontario Description of case study The initial partners of this rural transportation initiative were:
EasyRide is a rural transportation service provided by a • Stratford Meals on Wheels & Neighbourly Services collective of five non-profit service support agencies in Huron • Midwestern Adult Day Services and Perth Counties in Southwestern Ontario. A group of non- • Town & Country Support Services – Huron County profit agencies who share the common interest of enhancing • Community Outreach & Perth East Transportation travel options for local residents in rural communities within • Mitchell & Area Community Outreach and Mobility Bus Huron and Perth Counties submitted a joint grant proposal • St. Marys & Area Home Support Services through the Province’s LHIN Aging at Home Strategy in • VON Perth-Huron 2008/2009. These agencies were awarded a grant to create EasyRide, which leveraged the existing fleet resources Most partners continue to participate in this partnership and (buses, accessible vans and caravans) of the partnered the Stratford Meals on Wheels & Neighbourly Services, agencies. These agencies then partnered to create a Midwestern Adult Day Services, and Town & Country Support centralized dispatch system to assign trips to serve registered Services have amalgamated to become One Care Home clients. Booking services for scheduling trips is provided from & Community Support Services, the primary provider of Monday-Friday with transportation being provided seven days EasyCare service. a week. EasyRide has 24 vehicles which are operated by 34 paid staff drivers and over 200 volunteer drivers. Results in case study
EasyRide is tailored to serve the needs of the following groups EasyRide has experienced continued growth in annual in Huron and Perth Counties: ridership. In 2012/2013 more than 4,000 clients were served and 100,000 trips coordinated within Huron and Perth • Residents who are without personal transportation Counties. options in areas without public transit • Seniors The leveraging of shared resources between the participating • Residents with physical and cognitive limitations community non-profit organizations has allowed for the following benefits in service delivery: 91 rural residents to access employment, social supports and • Standardized eligibility process for the intake of new medical services without a taking a car. clients • Efficiency in schedule design for trips How does this align with our other priorities and • Standardized operating procedures goals? • Marketing • Enhanced access to key destinations such as hospitals • Access to employment opportunities to support economic and the Community Care Access Centre growth • Support aging in place by increasing access to services Program funding from the various organizations totaled in other locations $238,000 in 2010/2011 was allocated for the operations of • Reduce demand for private automobile trips and reduce EasyRide. greenhouse gas emissions
Relevance to The District of Muskoka
The service area of EasyRide in Huron and Perth Counties is 5,600 square kilometres spanning many rural communities with a low population density. The District of Muskoka is similar in size at 4,765 square kilometres. The percentage of seniors (residents over the age of 64) in Perth and Huron Counties is higher than the Province of Ontario as a whole (19% in Huron, 16% in Perth and 13% for Ontario). Very limited rural transportation services exist in the District of Muskoka. The existing Muskoka Extended Transit coordinated by the District only provides service to rural communities one day per week on a fixed schedule with high-floor, non-accessible school buses. This service does not provide the needed flexibility for 92 4.4.3 Subsidized passes for taxi services, Peace River Alberta Description of case study Results in case study
The Town of Peace River, Alberta (pop. 6,700) provides a taxi The taxi-pass program had a patronage of 13,801 rides in subsidy (taxi-pass) program for various population groups to 2012 and 20,859 rides in 2013. There were 149 registered provide an alternative and affordable mobility option within users in 2012 and there is no figure for registered users their community. This program was launched primarily as a in 2013. The Town of Peace River provided a subsidy of result of the discontinuation of fixed route transit service in $146,109 to the taxi-pass program in 2013. the municipality due to high operating costs. The taxi-pass program is meant to serve residents who meet at least one of Relevance to The District of Muskoka the following criteria: The taxi-pass program provides a low-cost mobility option to • Registered student at a local post-secondary college selected population groups such as low-income, seniors, and • Combined family income below $25,000 annually residents with disabilities. This program was implemented • Individual with an income below $15,000 annually due to the lack of conventional fixed route transit within • Seniors over the age of 65 years the municipality. This program could be implemented as • Residents on the provincial severely handicapped income a partnership with existing taxi providers within the District support program of Muskoka. Only the Town of Huntsville within the District • Clients of the Peace River Regional Women’s Shelter has a fixed transit route, and this program could be easily • Residents with medical disabilities implemented other urban centres within the District to provide an alternative and affordable mobility option. Users of the taxi-pass program are provided with a card that allows the purchaser to buy 40 discounted trips in a four-week period. Three taxi companies independently participate in the taxi-pass program. There is no municipal operational support for this program but there is an annual municipal financial contribution to fund the taxi-pass program.
93 How does this align with our other priorities and goals?
• This program provides a transportation option that provides an additional mobility option for targeted populations in the community. This service supports seniors and individuals with mobility limitations, which assists the municipality with policies that encourage aging in place. • Encourage aging in place
SUMMARY
The District of Muskoka would benefit by offering alternative modes of transportation to private vehicles, especially for demographics without access to private vehicles.
The District should explore the possibilities and opportunities to implement a regional public transit service along the populated Highway 11 corridor.
The District could explore a subsidy program for taxi services to provide a lower cost mobility option for low- income residents, seniors and individuals with disabilities.
94 5.0 Next Steps
This report has identified potential policy recommendations the current District Official Plan. Below is a summary of the that could be immersed into the Muskoka District Official policy recommendations for each priority and action items Plan. The following recommendations are based on the that can support the implementation of these policies. aforementioned healthy community priorities and have been derived directly from their respective goals and supporting case studies. In discussions with District staff the likely approach taken for the immersion of healthy and complete community policy recommendations in the Official Plan review will be additions and amendments to the existing structure of
95 5.1 Age-Friendly Planning
POLICY RECOMMENDATIONS ACTION ITEMS Mandate that Area Municipal Official Plans should require Monitor the growth rates of commercial and industrial mixed-use land use designations in their urban centres. development in conjunction with the availability of affordable These land use designations should include compact, housing. higher-density affordable housing for seniors and other demographics in different sizes, densities and tenure types Monitor the housing requirements of the community and consider a variety of housing types to meet the needs of Ensure that substantial new resort development makes permanent, semi-permanent, and seasonal residents in the provisions for affordable housing for its employees. District.
Provide for compatible land uses within the same general Establish affordable housing targets in new residential vicinity. Area Municipalities should be encouraged to development. This can be done through appropriate zoning implement mixed-use zoning in urban centres, including by-law regulations, provision of smaller built forms, offering commercial development that fits the scale of the home modification services, and policies that encourage community, reinforces a sense of place, and promotes affordable housing. walking or biking, such as small stores, community centers, or offices. Work with Area Municipalities and other key stakeholders to identify potential sites for community health hubs. The District should also coordinate with the Province to further determine if these sites are appropriate.
96 5.2 Diverse Economy
POLICY RECOMMENDATIONS ACTION ITEMS Create policies that allow for the inclusive uses of flexible/ Establish a Community Improvement Plan (CIP) in order to adaptable spaces in order to accommodate pop-up attract investment in the District that aligns with its priorities programing and temporary uses. in alignment with OReg 550/06 for upper-tier CIPs.
Recognize that a sense of place is a key requirement to Foster the growth of business incubators by providing space attracting economic investment and building a creative and identifying collaborative networks in order to create diverse economy in land-use policies. more equitable service delivery to rural areas.
Continue to protect the District’s quality of place through land use policy that protects the rural character and natural environment of the region.
Ensure that there is a shared brand and vision across all partner organizations, including the District, area municipalities, Muskoka Futures and Muskoka Tourism.
Support Area Municipalities in investing into an attraction campaign aimed at creative professionals.
Support Area Municipalities in prioritizing investment in downtown renewal and access to the waterfront.
97 5.3 Climate Change Adaptability and Resiliency
POLICY RECOMMENDATIONS Promote energy efficient policies that can be used as an Encourage development patterns that are sensitive to future educational model for other organizations and businesses, changes in the climate and acknowledge current mitigation with the District as a leader and champion of improving and resiliency strategies. energy efficiency.
Encourage Official Plan or by-law changes that would permit Formally recognize the link between between climate and promote compact, mixed use developments. change and tourism and account for future climate change impacts in economic development plans. Encourage Area Municipalities to evaluate public assets to be retrofitted into emergency centers or to incorporate design or built form requirements that ensure emergency response access.
Formally recognize the link between greenhouse gas emissions and climate change in the Official Plan.
Improve internal energy efficiency by acknowledging the strategic goals for greenhouse gas reduction in the Official Plan.
Enforce growth boundaries and target areas for denser and transit supportive development to improve energy efficiency in new development.
98 ACTION ITEMS Conduct baseline greenhouse gas emission studies and set Incorporate policy within the Official Plan encouraging regional and internal targets the development of a checklist into the Area municipal development processes that are reflective of their Study the short, medium, and long-term impacts of climate environmental goals. change on lake levels, water quality, average temperatures, and extreme weather. Draft a plan for reducing greenhouse gas emissions that can provide recommendations for specific land use actions and Recommend actions such as flexible programming that policies to be included in the District Official Plan. can diversify the tourist economy or economy at large in response to the impacts of climate change. Develop a coordinated plan with consultation of the public and constituent municipalities to ensure the goals of regional energy efficiency are addressed at the local level through Official Plans, Zoning Bylaws, or other development controls as well as individual choices and actions.
99 5.4 Mobility
POLICY RECOMMENDATION ACTION ITEMS A District-Wide transit feasibility study should be conducted The District expand Muskoka Extended Transit to provide to identify future transit routes and infrastructure. Land use service in rural communities on additional days and time policies that complement the potential introduction of mobility periods to enhance access residents to services. Additional services such as public transit could include the placement financial resources would be required from the District to of key land uses such as institutional, mixed- use, expand the service offering to additional days and time commercial and high density residential along future transit periods. routes, minimum walking distances from developments to transit stops and a compact urban form in the Downtowns Explore provincial grant programs to fund capital of the Urban Centres to facilitate future transit service. Land investments in accessible vehicles for Muskoka Extended use policies cannot be implemented until future transit routes Transit are identified. Engage local community support service non-profit agencies and providers to explore a partnership model to deliver rural transportation services.
The District could explore a subsidy program for taxi services to provide a lower cost mobility option for low- income residents, seniors and individuals with disabilities. Further discussion is needed with local community service groups in the District.
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