Report to: Development Services Committee Date: November 3, 2009

SUBJECT: Agricultural Assessment Study
Final Report and Recommendations

PREPARED BY: Lilli Duoba, Senior Project Coordinator

Environmental Planning & Rouge Park

RECOMMENDATION:

1) That the staff report entitled Agricultural Assessment Study Final Report and Recommendations, dated November 3, 2009 be received;

2) And that the Agricultural Assessment Study Final Report be endorsed in principle as the basis and framework for policy directions to be included in the Town’s Growth Management Strategy for implementation through the Town’s new Official Plan;

3) And that staff in the Sustainability Office review opportunities to implement applicable project components of the recommended Agricultural Strategy through the Green Print – Community Sustainability Plan and report back to Council;

4) And that staff in the Finance Department review the study recommendations with respect to possible financial incentives and report back to Council;

5) And that staff in the Economic and Cultural Departments be forwarded the Final Agricultural Assessment Report to review and consider with respect to future economic and cultural strategies as outlined in the report;

6) And that the Town encourage the Provincial Ministry of Agriculture, Food and Rural Affairs to provide new opportunities for financial support to encourage farming innovation, agricultural best practices and support food security objectives.

7) And that the report be forwarded to the Minister of Agriculture, Food and Rural Affairs, the Region of York and the Rouge Park Alliance.

8) And that Staff be authorized and directed to do all things necessary to give effect to this resolution.

EXECUTIVE SUMMARY:

The Town of Markham Agricultural Assessment Study was undertaken to assess the feasibility of retaining a long-term agricultural presence in Markham and developing a multi-faceted strategy to address the requirements in the Greenbelt Plan, Provincial Growth Plan and Provincial Policy Statement with respect to agricultural lands. The Agricultural Assessment Study concludes that Markham can retain a viable and sustainable agricultural presence in the context of the Provincial Growth Plan requirements, but the unique nature of the high proportion of tenanted lands creates the need for a strategy involving a greater level of municipal and senior government support. The most pressing need for the Town is to ensure updated agricultural policies are prepared for the future new Official Plan. These policies will identify the requirements for the Rouge Park agricultural lands, Greenbelt and ORM agricultural lands and agricultural lands contained outside of the current urban settlement boundary. The Agricultural Assessment Study also identifies a number of agricultural policies and programs which may be consistent with the objectives of the Town’s Sustainability Office and are directed for further consideration to the Town’s Green Print – Sustainability Plan process. As well, possible financial incentives require further review by the Town’s Finance Department. The Study also suggests a potential role for economic and cultural strategies to support the long-term protection of the Town’s agricultural lands.

1. Purpose 2. Background 3. Discussion 4. Financial

5. Others (HR, Strategic, Affected Units) 6. Attachment(s)

PURPOSE:

The purpose of this report is to present to Council for endorsation the Agricultural Assessment Study recommendations and obtain Council approval in principle to continue to advance the study recommendations through the Town’s Growth Management Strategy, the new Official Plan and Green Print - Community Sustainability Plan.

BACKGROUND:

The Town’s Agricultural Assessment Study commenced in April 2008. The Study was undertaken to assess the feasibility of retaining a long-term agricultural presence in Markham and developing a multi-faceted strategy to address the requirements in the Greenbelt Plan, Provincial Growth Plan and Provincial Policy Statement with respect to agricultural lands. The consulting firm of Planscape was retained to undertake the study. The study work plan was divided into three phases. Phase 1 included the background review which identified the current agricultural profile in Markham and issues impacting agricultural land use as well as opportunities and constraints. Phase 2 of the study explored in more detail the policy context for agricultural lands and identified possible considerations for an Agricultural Strategy for Markham, compatible with the emerging Regional Growth Plan considerations. Phase 3 of the study identified detail directions specifically related to official plan policies and project based initiatives to provide greater support and sustainability for existing and future agriculture in Markham.

A copy of the Agricultural Assessment Study is included as Appendix ‘A’.

OPTIONS/ DISCUSSION:

Public Consultation Process Undertaken

The Agricultural Assessment Study included a number of opportunities to meet with stakeholders and the public to explore agricultural and farming related issues. The following public consultation events were held throughout the course of the study:

June 16, 2008: Phase 1 Stakeholder Meeting

October 29, 2008: Phase 1 Public Information Meeting

January 27, 2009: Farmers Focus Group Meeting

June 22, 2009: Phase 2 Public Information Meeting

Study updates and discussion with Development Services Committee were held on September 25, 2008 and April 14, 2009. The consultant presentation on April 14, 2009, is attached as Appendix ‘B’.

Additional consultation will take place with the public and stakeholders through the ongoing Growth Management Strategy work and the future Official Plan Review process.

Staff heard throughout the study process that notwithstanding using multiple means of study process notification (e-mails, website, newspaper notification), many landowners, predominantly in the rural area, felt that more communication of information on the importance of local agriculture to all Markham residents is required. In order to address this issue, staff recommend that an enhanced communication program be considered at the initiation for the new Official Plan process in consultation with the Town communications Department to ensure a wider circulation of information. This could include an individual mailing or communication at the commencement of the Official Plan Review process.

Public Input

Notwithstanding the above comments received, the public consultation events held throughout the study process were well attended by the public and the farming community. There was a clear indication that the farming community, as a whole, was very supportive of the Town undertaking this Assessment. The major issues raised are summarized as follows:

· uncertainty associated with long term availability of land for agriculture on government lands, specifically in Rouge Park and the termination of farm leases in favour of natural heritage restoration

· need for longer leases to ensure more diversity in agricultural products

· affordability of farming in the area

· conflicts with urban and rural non-farm uses including impact of increasing wildlife population associated with reforested areas and environmental corridors and transportation and trespass conflicts

· increasing complexity in farming due to provincial and municipal regulations

· ongoing deterioration of remaining agricultural infrastructure

· agriculture appears secondary as a Provincial interest – in Markham the Greenbelt lands are predominantly for natural heritage and the remaining lands are available for potential future development through the Provincial Growth Plan

The Town has also received correspondence requesting consideration of cemetery uses in the Town agricultural areas. This request is linked to a current Official Plan Amendment application in Dicksons Hill for a cemetery use on lands within the Hamlet boundary and Oak Ridges Moraine Conservation Area. This planning application was submitted in 2007 and, upon submission of an agricultural justification report, will proceed through the review process. The draft policies in the Region of York Official Plan direct new cemeteries and accessory uses to lands designated ‘Rural Area’ in the Regional Official Plan. With the exception of a very small parcel of land located adjacent to Stouffville at Highway 404, the agricultural lands in Markham are designated ‘Agricultural Area’ in the Regional Official Plan which reflect the ‘prime’ agricultural classification and permit only agricultural, agricultural secondary and agricultural related uses. Town policies will be consistent with and support Regional Official Plan policies.

Region of York LEAR Process and Official Plan

In June 2009, the Region of York released the draft Regional Official Plan for circulation and comment. As part of the regional process to delineate agricultural lands in the Region in accordance with the Provincial ‘specialty crop’, ‘rural’ and ‘prime’ classifications, a LEAR (Local Evaluation Area Review) process was undertaken. This process concluded that all lands in Markham fall within the ‘prime’ classification except for a very small portion of Greenbelt and ORM lands in the furthest most northwest area of the Town. This small parcel is contiguous with the ‘rural’ lands in Stouffville, while the adjoining lands in Markham contain an urban designation. The ‘Agricultural Area’ lands permit agricultural and agricultural related and secondary uses. Non-agricultural uses such as places of worship, golf courses, large scale recreational uses and cemeteries are not permitted.

Coordination of Agricultural Strategy Policy Recommendations

Official Plan Policies

The conclusions of the Agricultural Assessment Study suggest that even should Council decide to assign a portion of the lands outside of the current urban settlement boundary to support the Provincial and regional growth projections, there can continue to be a strong and viable agricultural presence in Markham. The Greenbelt and Oak Ridges Moraine lands and lands not identified for potential future growth to 2031 in the Growth Management Strategy can continue to form part of the long term regional farming community. It is also important to recognize urban agriculture and the smaller agricultural operations currently being farmed on lands designated for urban settlement. The Agricultural Assessment Study recommends the Town update the official plan policies to support agricultural land use in the following geographic policy areas:

1. Rouge Park. Policies should be prepared to identify long-term agriculture, while recognizing the unique circumstance of the Rouge Park and providing flexibility to balance both Rouge Park and agricultural interests.

2. Greenbelt and Oak Ridges Moraine. Policies should be prepared to identify long-term agriculture while recognizing the unique circumstance of the Federal Pickering Airport Site holdings. These policies should encourage partnership and cooperation to achieve the agricultural objectives on the Federal lands.

3. Agricultural Area. Policies should be prepared to support short, medium and long-term agriculture on lands not subject to the Provincial Greenbelt and ORM lands. The land use permissions and agricultural policies would be the same for all the lands. However, any lands identified by Council to support growth to the 2031 planning horizon would be recognized as short-term with specific policies to address the conversion of these lands in accordance with Region and Town phasing policies. The policies would also address the continued use of land for agricultural within the 2031 growth management horizon where the lands identified are in later phases of development.

The exact boundaries of the Town’s agricultural lands will be determined through the future new Official Plan and be based on the recommendations of the Town’s Growth Management Strategy and Environmental Policy Review and Consolidation Study for the Greenbelt Plan area, to the satisfaction of Council.

In addition to the re-organization of agricultural designations, a number of new policy directions are recommended for consideration in the future Official Plan Review process including rural heritage preservation. The Planning Department will continue coordination efforts with the Rouge Park and senior governments to ensure issues related to tenant farming are managed and addressed in a manner that supports the Town’s objectives for long-term agriculture. The Town’s Planning Department will also continue to provide liaison with the Region of York Agricultural Advisory Committee as necessary.

Recommended Agricultural Actions and Initiatives to Support Agricultural Operations

Financial Incentives

The Agricultural Assessment Study suggests the Town could offer financial incentives for the agricultural community to make farming in Markham more economically attractive. Given the high proportion of tenant lands, to be successful, additional financial incentives would need to connect to commitments for longer term agricultural use. Once the Growth Management Strategy is completed, in accordance with the directions of Council, and the delineation of lands not required for growth to 2031 is confirmed, additional tax rebates should be reviewed by the Tax Department to determine the feasibility of this program for Markham.

In addition to traditional tax rebates, the Town could take a more active role in accessing and securing both local and provincial financial incentives. The Premier’s Award for Agri-Food Innovation provides grant awards for agricultural innovation. The Town’s Sustainability Office is currently reviewing potential nominations in Markham. The Town should also encourage the Province to provide new opportunities for financial support to encourage farming innovation, agricultural best practices and support food security objectives.

Land Stewardship

The greatest opportunity for long-term sustainable agriculture in Markham is on lands in eastern Markham owned by the Province and on the federal lands identified for the Pickering Airport Site contained within the Greenbelt Plan area. The Rouge Park have included agricultural land protection as a component of the Eastern Markham Rouge Park planning process which would provide a tremendous opportunity for a long-term presence of agriculture in Markham. Greater coordination and communication is needed with Transport Canada to address existing agricultural issues such as needed repairs in infrastructure and longer term leases in order to assist the farming community in participating in local food programs (100 Mile Diet, Local Food Plus).

Programs that address land stewardship, enhanced farm infrastructure and crop damage caused by wildlife should be initially directed to the Rouge Park for consideration within the context of their agricultural and natural heritage restoration programs. The Rouge Park have identified agriculture as a significant component for the planning of the eastern Markham lands and are preparing guiding agricultural principles to assist to supporting an agricultural community that is consistent with the Rouge Park values. Stewardship programs are not limited to the Rouge Park, but because this area is intended to support long-term agricultural uses, there is a recognized need and support for an infrastructure assistance program and the Rouge Park are actively creating the wildlife habitat which could present potential farm conflicts, this area in Markham is a prime candidate for a comprehensive agricultural and natural heritage stewardship and farm infrastructure program.

Economic and Cultural Strategies

Also important to the Agricultural Strategy are a number of other suggested policies and programs. The Town’s current Economic Strategy ‘2020 Strategic Directions for our Economy’ already identifies strengthening and promoting agricultural links in Markham by enhancing urban-rural connections and supporting urban agriculture. Agriculture as a component of cultural tourism is also been reviewed by the Town’s Director of Culture and the Region of York. It is recommended that the Agricultural Assessment Study be forwarded to these offices for consideration in future strategic initiatives.

Community Sustainability Plan (Green Print)

The Town’s Community Sustainability Office and Green Print – Community Sustainability Plan process are currently addressing a number of agricultural related activities such as local food promotion, the Town’s current Local Food Plus program and a potential Local Food Charter, community gardens, farmers markets and urban agriculture. The program actions identified in the Agricultural Assessment Study, including a potential agricultural advisory committee and a new staff position for an Agricultural Facilitator, should be referred to the Green Print – Community Sustainability Plan process to review in the context of a comprehensive sustainability framework.

Next Steps – Growth Management Strategy and New Official Plan Update

The Greenbelt Act and Provincial Growth Plan require municipalities to bring their official plans into conformity with the Greenbelt Plan and Growth Plan. Once the Town has completed and endorsed the Growth Management Strategy which includes the Town’s Greenway System and Agricultural recommendations, work on a new Official Plan Review will begin. The proposed policy directions and framework will provide the basis for new agricultural polices and designations in the new Official Plan.

FINANCIAL CONSIDERATIONS AND TEMPLATE:

There are no direct financial implications as a result of this report. The financial considerations identified in the Agricultural Assessment Study will be subject to further review.

HUMAN RESOURCES CONSIDERATIONS

There are no direct human resource implications as a result of this report. The Agricultural Facilitator position identified as an optional consideration in the Agricultural Assessment Study will be further considered through the Town’s Green Print – Community Sustainability Plan process.

ALIGNMENT WITH STRATEGIC PRIORITIES:

The proposed study is consistent with the Building Markham’s Future Together strategic priorities on the Environment and Growth Management and the Town’s Economic Strategy ‘2020 Strategic Directions for Our Economy’.

BUSINESS UNITS CONSULTED AND AFFECTED:

The Town’s Agricultural Assessment Study included the open participation of all Town Departments. This report has been reviewed by the Community Sustainability Office.

RECOMMENDED BY:

________________________ ________________________

Valerie Shuttleworth, M.C.I.P, R.P.P. Jim Baird, M.C.I.P, R.P.P

Director of Planning and Urban Design Commissioner of Development Services

ATTACHMENTS:

Appendix ‘A’: Agricultural Assessment Study Final Report

Appendix ‘B’: Phase 2 Consultant Presentation