The Regional Development Strategy (RDS) sets Council’s overall direction for growth in Ottawa-Carleton to 2021 and includes policies to achieve the desired growth pattern. The policies include land use designations and infrastructure phasing to help Council ensure the long-term economic, social and environmental health of Ottawa-Carleton.

The RDS is consistent with Ottawa-Carleton’s July 1995 Community Vision of "a region of communities that is environmentally healthy, safe, caring, prosperous and diverse." The RDS addresses the following aspects of the Vision:

• Environment: By encouraging more compact development and the protection of sensitive natural areas, the RDS limits expansion of urban growth onto valuable areas.
  
• Economy: The RDS supports economic development throughout Ottawa-Carleton, seeks to maintain and enhance Ottawa-Carleton's high quality of life, aims to resolve servicing constraints to development, and is founded on affordable taxation levels.
  
• Caring Communities: By encouraging a large share of new residential development to locate in and beside existing communities inside and outside the Greenbelt, the RDS maximises access to services, many of which already exist in established areas.
  
• Urban Development: By encouraging additional residential development, particularly in the existing urban area inside the Greenbelt, the RDS is intended to promote communities in which car ownership is not required and that offer a range of housing choices. The RDS also supports diversity, fosters distinct urban villages, seeks to protect the natural environment, and provides for a strong and vibrant Central Area.
  
• Rural Development: The RDS allows for continued rural residential development and the protection of important resource land.

The RDS was further evaluated and refined through a series of 18 strategic scenarios, each of which was rated against three dozen criteria reflecting economic, environmental and social considerations. A second, more detailed phase of evaluation analysed a smaller number of scenarios to determine the best balance of urban residential development inside and outside the Greenbelt.

The RDS deals primarily with the servicing and phasing of urban development in Ottawa-Carleton. Other important policies in this Plan also form part of the overall strategy for development, for example, policies to protect major resource areas for agricultural, mineral resource and other uses, but they are not explicitly addressed in this section.

The RDS is based on the assumption that the population of Ottawa-Carleton will be slightly over one million people in 2021. Households and jobs associated with this level of growth are summarised in Table 1.

Projected Growth in Ottawa-Carleton to 2021

Projections show that most future population growth will occur among those 40 years of age and older as a result of the aging of the post-war baby boom. This will have profound effects on the housing and labour markets within the region over the next 25 years. The demographic shift implies a slowing in the rate of population and employment growth in the region as the population ages and labour force participation in full-time jobs declines.

This direction for growth has been adopted in response to several important factors:

• National Capital Greenbelt. Ottawa-Carleton’s urban area is structured by the federal Greenbelt, which is a defining element. The Greenbelt’s predominantly rural character creates a separation between the urban area inside the inner limit of the Greenbelt and the distinct communities which have established just beyond the Greenbelt. This Plan assumes the Greenbelt will continue to be maintained by the federal government.

• Aging of the baby boom. With the aging of the post-war generation over the next quarter century, the demand for various forms of multiple-unit housing will grow while the market for the traditional suburban single-detached home will shrink.

• The need to live within our means. Smaller government budgets and the need to deliver services more efficiently require that RMOC use its limited resources wisely. Analysis undertaken for this Plan shows that there are a number of inherent advantages to encouraging development in already developed areas, especially in urban areas inside the Greenbelt. Since investment has already been made in sewer, water and transportation systems in these areas, land use should be planned to take advantage of capacities in existing systems. Such development also supports more efficient use of facilities not currently under Council’s jurisdiction, such as schools and recreational facilities, and encourages more diverse neighbourhoods and housing choices.
  
• Environmental concerns. More compact development consumes less land, thus reducing pressures for urban development on agricultural and environmentally sensitive land. More compact development also allows people to use transportation modes other than the automobile, such as walking, cycling and transit, which reduces CO₂ emissions and improves air quality by reducing fuel consumption.
  
• The need to encourage economic development. The region's economy can no longer rely on the federal government and is increasingly tied to the high-technology sector. The Plan can best support economic development in this and other sectors, such as tourism, by maintaining and enhancing the region’s high quality of life, providing services required to support Council’s economic growth policies, and ensuring that limited servicing funds are allocated in the most cost-effective way possible.

The objectives of the RDS are:

1. To plan land use to take advantage of capacities in existing water, wastewater, and transportation systems inside and outside the Greenbelt.
   
2. To encourage denser, more compact and more balanced development on lands designated for urban purposes.

3. To encourage a gradual increase in the proportion of new dwelling units built inside the Greenbelt while avoiding the loss of open space.

4. To carry out land use planning and water and wastewater servicing in a way that supports a long-term balance of 1.1 jobs per household in each urban area outside of the Central Area. This ratio reflects the total number of households and jobs expected to locate in urban areas of Ottawa-Carleton other than the Central Area by 2021.

5. To improve the balance of jobs and housing by encouraging new housing in urban areas outside the Greenbelt with high employment-growth potential, and in the Central and Inner Areas of Ottawa-Carleton.

6. To implement a walking-, cycling- and transit-first policy as part of a balanced transportation system for auto and non-auto modes of travel that accommodates all users and minimises environmental, social and financial impacts.

7. To minimise the Regional and local municipal lifecycle costs (capital, operating and maintenance) of piped and transportation services required for growth.

8. To facilitate economic development by ensuring that servicing responds to areas of employment demand and the expansion of demand in areas associated with emerging technological and business hubs.

9. To encourage residential development in areas that are the most cost-effective to service and discourage residential growth in other areas, while supporting choice in the market.

Regional development policies direct development to areas where existing urban infrastructure has spare capacity. These areas, which are cost-effective to service with piped services and transportation, offer the best potential for future employment growth and meet other criteria for an environmentally, economically and socially balanced region. The analysis of alternative growth scenarios concluded that the most beneficial area for further development was the urban area inside the Greenbelt (shown in Figure 2). However, the RDS also provides a choice for those who want to live outside the Greenbelt in either an urban or rural environment.

In order not to preclude additional employment growth which may be desirable regionally, provincially and nationally, the Plan provides more land for employment growth than is required to meet the projection. This allows for competition among locations which should help reduce land costs.

The Plan also designates more land for residential use than is required within the planning horizon. Again, this provision is intended to foster competition and help reduce housing prices.

Targets for occupied dwelling unit and population allocations in urban areas inside and outside the Greenbelt and in the rural area, are shown in Table 2. These targets allow for roughly equal shares of new housing to be located in urban areas inside and outside the Greenbelt over the 1991-2021 period. However, because the average number of people per household is lower inside the Greenbelt, these areas are expected to receive only 25 to 30 percent of Ottawa-Carleton’s future population growth, while urban areas outside the Greenbelt will absorb about 60 percent. Approximately 10 percent of new dwelling units and 11 percent of future population are planned for the rural areas of Ottawa-Carleton, reflecting their historic share of growth through the 1980s. Targets for housing and population growth inside the Greenbelt are shown as a range which is reflected in the total amount of development anticipated in Ottawa-Carleton.

Figure 2
Urban Areas In Ottawa-Carleton

Note: Urban areas illustrated as "inside the Greenbelt" include all lands inside the inner boundary of the Greenbelt and Blackburn Hamlet and Bell’s Corners, but do not include any land designated as Greenbelt on Schedules A and B of this Plan.

The share of residential development inside the Greenbelt is expected to increase over the planning period as the population ages and the demand for multiple-unit housing closer to services and amenities grows. The share of units built inside the Greenbelt has changed remarkably little since 1981, as shown in Table 3. Although the current demographic situation still favours suburban areas outside the Greenbelt, long-term demographic trends suggest a gradual increase in development inside the Greenbelt. Consequently, policy 1 of Section 2.4.1. aims for an increase in the share of units built inside the Greenbelt in each period after 2001.

2.4.1 Policies

To guide the direction of development, Council shall:

1. Plan for an increase in the share of units built inside the Greenbelt as generally set out in the guidelines of Table 3.

2. Plan for a development pattern for 2021 as indicated in Table 4.

3. Maintain approximately five-years’ supply of vacant urban residential land that is provided with trunk sewer and water services throughout Ottawa-Carleton.

4. In applying policy 3, ensure the five-year supply is not concentrated in any one single area of Ottawa-Carleton, by maintaining sufficient trunk sewer and water services for development inside the Greenbelt and in at least three of the five urban areas outside the Greenbelt, defined as:

a) Kanata Urban Centre/Stittsville;

b) Orléans Urban Centre;

c) Nepean South Urban Centre;

d) Gloucester South Urban Centre;

e) Leitrim.

For the purposes of applying the above policy, it is not required that each of these areas individually has a five-year supply.

5. Ensure that planning policies and zoning by-laws provide opportunities for jobs in the ratio of 1.1 jobs per household in each urban area outside the Central Area. For the purposes of this policy, Kanata and Stittsville are considered to be a single urban area. Zoning by-laws shall provide for a reasonable level of employment in Stittsville, although the 1.1 ratio is not expected to be achieved.

6. Consider an amendment to this Plan to redesignate land designated South Urban Centre Future Development on Schedules A and B to allow urban development. The amendment shall be supported by studies which address the following matters:

a) the timing of need for additional urban land in Ottawa-Carleton;

b) the adequacy of existing and planned improvements to the water, wastewater, road and transit systems to serve the proposed development;

c) the financial impact to RMOC of services required and the cost-effectiveness of the proposed development relative to other choices;

d) opportunities for economic development and achievement of a balance of jobs and housing;

e) provision of a range of housing opportunities;

f) impact on resource areas and the natural environment;

g) other studies as required in this Plan, such as those dealing with stormwater management.

7. Maintain good-quality farmland in agricultural production on lands shown as South Urban Centre Future Development for as long as possible. Uses permitted on the lands designated South Urban Centre Future Development are those permitted in Agricultural Resource Areas.

8. Redesignate the Kanata North Expansion Area shown on Schedule B to allow urban development to proceed, subject to studies which address the matters outlined below to the satisfaction of Council. In the event that the studies are not completed to the satisfaction of Council, the lands shall be redesignated to General Rural. The studies shall address the:

a) provision of transportation and other infrastructure which fulfills Regional and local functions;

b) mix and variety of housing types;

c) variety of employment opportunities;

d) Environmental Impact Study for lands within 120 metres of the South March Highlands/Wetlands to be completed to the satisfaction of the Ministry of Natural Resources;

e) phasing of development related to both the provision and the cost of providing transportation and other infrastructure;

f) policy approaches which Council might wish to consider as to financial arrangements and requirements for any needed infrastructure improvements associated with the Kanata North Expansion Area;

g) present and future roles and needs of the South March community and the impact of development of any of the Kanata North Expansion Area lands on the South March community. Reassessment of the planned function of various components of the South March community may be necessary;

h) ability of the Kanata North Expansion Area to satisfy the Provincial Policy Statement.

9. Ensure that all new development within the urban area shown on Schedule A is serviced entirely by the central systems for water supply and wastewater treatment. Interim uses on private services may be permitted provided that it can be demonstrated to the satisfaction of Council that such development:

Notwithstanding this policy, residential development consisting of single-detached dwellings on private individual services shall be permitted on Part Lot 10, Concession 1 (Rideau Front), City of Gloucester designated as Lot 36, Registrar’s Compiled Plan No. 904.

10. Not extend central services to the rural area except in exceptional circumstances to address a public health issue, in accordance with Section 10.3.7, or where an overall study has been completed to support the extension, in accordance with the policies of Section 10.3.8.

Development inside the Greenbelt can be supported in a number of ways in this Plan, including redesignations and policies on zonings, redevelopment, and servicing. In addition, Council actions not governed by this Plan, such as setting of development charges, can be used to pursue objectives of the Plan, provided they conform to provincial legislation. The following policies describe some of the key ways in which the RDS objectives for development inside the Greenbelt can be met.

Council shall:

1. Upgrade water and wastewater systems inside the Greenbelt to provide capacity for development.

4. Support zoning by-laws for higher-density residential uses where appropriate throughout the urban area, and particularly in the Central Area and on land around rapid transit stations.

5. Adopt alternative development standards for services under Council’s jurisdiction and encourage other agencies to do the same.

6. Respect the characteristics of established communities. When considering the redesignation and rezoning of land to create suitable sites for housing and other uses, ensure that the significant impacts of the proposed development on adjacent residential development are minimised.

7. Protect formal parkland, sensitive natural areas, significant natural features, and open space linkages.

8. Review the amount, type and distribution of residential and employment development inside the Greenbelt periodically but not less than every five years.

The phasing of development is intended to minimise the need for new servicing expenditures while allowing for consumer choice, a competitive housing and land market, and economic development opportunities. By co-ordinating the timing of water and wastewater infrastructure improvements with overall demand and supporting the cost-effective provision of other Regional services, such as roads and transit, phasing of development will help provide an adequate supply of serviced urban land without triggering the need for costly transportation works required to service development in particular areas.

Development will occur in two phases. 

Phase 1 dwelling unit capacity is based on an analysis of the water, wastewater and transportation infrastructure which is the most cost-effective to provide over approximately the next 10 years, to 2006, and how much residential capacity would be available in total with this infrastructure in place. 

Phase 2 refers to additional development up to 2021. Phase 2 development does not anticipate that all urban-designated land would be consumed by 2021. In fact, based on projected development densities, land will be available for both residential and employment uses in all urban areas outside the Greenbelt after 2021. Consequently, additional development is possible beyond the horizon of the Plan, estimated to be within the ranges shown in Table 5.

The number of dwelling units for each phase is shown in Table 5. 

2.6.1 Policies

Council shall:

1. Provide servicing (trunk water, wastewater and transportation) to accommodate the dwelling unit capacities set out in Table 5 as Phase 1 and Phase 2 development.

2. Periodically review the development phasing provided for in Table 5 and, if required, adjust phasing based on the performance of individual areas with respect to such matters as:

a) actual rates of development;

b) use of transit and other non-auto modes of transportation;

c) levels of congestion on Regional roads and provincial highways serving individual areas;

d) rates of water consumption and wastewater flow;

e) levels of employment in relation to the objective to achieve a balance with households;

f) supply and demand for other relevant services.

3. Use its discretion to determine the sequence for development of land within the Urban Area shown on Schedule A, subject to phasing policies in this Plan. The designation of land as Urban Area on Schedule A does not oblige Council to provide infrastructure within the time frame of the Plan.

4. Have regard to Table 6 when setting spending priorities for major water, wastewater, road, and transit works in order to ensure that most of the infrastructure described in Table 6 is constructed or under construction by the year 2006. An amendment is not required for changes to Table 6.

5. Within each Urban Centre, including Stittsville and Leitrim, approve plans of subdivision and condominium so as to achieve a contiguous pattern of residential development, unless there are compelling reasons to the contrary.