YORK REGION CEMETERY NEEDS ANALYSIS AND POLICY FRAMEWORK

Transcription

1 Submitted to the Regional Municipality of York on March 7 th, c YORK REGION CEMETERY NEEDS ANALYSIS AND POLICY FRAMEWORK Submitted by:

2 E. Lees & Associates Consulting Ltd Homer St Vancouver BC Canada V6B 2V2 p: Wolseley Street Toronto ON Canada M5T 1A4 p: Klondike Road Whitehorse YT Canada Y1A 3M1 p:

3 ACKNOWLEDGEMENTS The Project Team for York Region s Cemetery Needs Analysis and Policy Framework Report includes: REGIONAL MUNICIPALITY OF YORK Teresa Cline, Senior Planner Sandra Malcic, Manager, Policy and Environment Marisa Talarico, Planner LEES+ASSOCIATES Erik Lees, Principal Mike Leonard, Senior Associate Catriona Hearn, Senior Associate Jennifer Thibert, Business Manager Suzanna Kaptur, Associate Stewart Denny, GIS Technician MUNICIPAL STAKEHOLDERS Town of Aurora Township of King Town of Georgina Town of East Gwillimbury Town of Newmarket City of Vaughan Town of Richmond Hill City of Markham Town of Whitchurch-Stouffville LEES+Associates i

4 PROVINCIAL STAKEHOLDERS Ministry of Government and Consumer Services, Cemeteries and Crematoriums Regulation Unit Ontario Board of Funeral Services Ontario Association of Cemetery and Funeral Professionals INDUSTRY STAKEHOLDERS Private Arbor Memorial Services Inc. Aurora Cemetery Corporation King City Cemetery Queensville Cemetery Mount Pleasant Group of Cemeteries Newmarket Cemetery Corporation Religious Catholic Cemeteries & Funeral Services Archdiocese of Toronto Diocese of Toronto, Anglican Church of Canada Toronto Hebrew Memorial Parks Toronto Muslim Cemetery Corporation Planning Professionals Augusta National Inc. Cosmopolitan Associates Inc. Larkin & Associates Weston Consulting urbanmetrics inc. Accessible formats or communication support are available upon request. Contact: LEES+Associates ii

5 TABLE OF CONTENTS ACKNOWLEDGEMENTS... i TABLE OF CONTENTS...iii EXECUTIVE SUMMARY... v PROJECT OVERVIEW... 1 STAKEHOLDER CONSULTATION... 4 YORK REGION CEMETERY MARKET AREA... 5 METHODOLOGY... 6 KEY ASSUMPTIONS... 7 HOW DO WE DEFINE DEMAND + NEED? CEMETERY LAND SUPPLY CEMETERY MARKET PROFILE CEMETERY SUPPLY OVERVIEW KEY FINDINGS YORK REGION CEMETERY LAND SUPPLY CEMETERY LAND DEMAND DEMOGRAPHICS DISPOSITION TRENDS CEMETERY MARKET TRENDS COMMUNITY USE TRENDS CEMETERY LIFE CYCLE INTERMENT FOOTPRINT AT-NEED + PRE-NEED SALES YORK REGION RESIDENT DEMAND NON-RESIDENT CEMETERY LAND USE TOTAL YORK REGION CEMETERY DEMAND + LAND USE KEY FINDINGS - CEMETERY DEMAND + LAND USE LEES+Associates iii

6 4 CEMETERY LAND NEED GAP ANALYSIS GAP ANALYSIS: DEVELOPED LAND + TOTAL CAPACITY KEY FINDINGS CEMETERY SERVICE AREA PRIORITIES KEY FINDINGS CEMETERY LAND NEED: BY THE NUMBERS53 KEY FINDINGS IS THERE A NEED? CEMETERY POLICY FRAMEWORK CEMETERY LANDS CRITICAL THRESHOLDS LEGISLATIVE BARRIERS PROVINCIAL POLICY STATEMENT (PPS) OAK RIDGES MORAINE CONSERVATION PLAN (ORMCP) GREENBELT PLAN YORK REGION OFFICIAL PLAN A NEW APPROACH IS REQUIRED POLICY FRAMEWORK + RECOMMENDATIONS LOCATION + SIZE DEVELOPMENT CRITERIA + PROCESS ENVIRONMENTAL STEWARDSHIP LEADERSHIP + ADVOCACY CONCLUSION APPENDICES APPENDIX A STAKEHOLDER CONSULTATION APPENDIX B SOURCES + METHODOLOGY APPENDIX C ACTIVE CEMETERY PROFILES APPENDIX D YORK REGION CEMETERY MAP APPENDIX E YORK REGION CEMETERY DATA TABLES APPENDIX F POLICY ANALYSIS TABLES APPENDIX G GLOSSARY OF CEMETERY TERMS LEES+Associates iv

7 EXECUTIVE SUMMARY In June 2015, the Regional Municipality of York (York Region, or the Region) commissioned LEES+Associates to prepare a Cemetery Needs Analysis and Policy Framework. The need for a cemetery land analysis arose in 2012 in response to Ontario Municipal Board appeals to York Region s Official Plan (YROP-2010). The study is being undertaken as part of York Region s five year Municipal Comprehensive Review (initiated in 2014) to update the Official Plan. This Cemetery Needs Analysis and Policy Framework study has the following goals: 1. To provide an overview of the remaining interment capacity available in York Region cemeteries; 2. To establish the projected need for future cemetery lands in York Region to 2041, and 3. To recommend criteria for the siting and development of expanded or new cemetery land uses. MEETING YORK REGION S CEMETERY LAND NEEDS This report outlines the urgent need for land use policies that will lead to the provision of sufficient cemetery lands for current and future generations of York Region residents, as well as those from adjacent communities choosing to be interred there. These policies are required at both the Regional and Municipal levels. Ideally, the Province will also be engaged and involved with supporting these future land use policies. The recommendations outlined in this Cemetery Needs Analysis and Policy Framework provide a road map to guide policy and planning for the next 25 years, enabling the Region to plan for a sustainable cemetery system that will meet the Region s expected community needs for cemetery services over the foreseeable future. The findings and recommendations from this study s analyses are summarized below. LEES+Associates v

8 CEMETERY SUPPLY York Region currently has: 59 active cemetery sites, of which 34 sites are managed by religious organizations, 12 are operated by local municipalities, 12 are operated by private or non-profit operators, and 1 is a family burial site; 144 inactive cemetery sites, which may have infill opportunities to supplement existing cemetery land supply; 419 acres of developed cemetery land available for sale, of which: o 74% is owned by religious groups; o 22% is owned by private/non-profit organizations, and o 4% is owned by local municipalities. 761 acres of total cemetery land capacity, of which: o 62% is owned by religious groups; o 35% is owned by private/non-profit organizations, and o 3% is owned by local municipalities. CEMETERY SERVICES DEMAND From 2015 to 2041, York Region can expect: 232,000 deaths, including 91,000 residents choosing casket burial and 141,000 residents choosing cremation; 91,000 resident caskets and 28,000 resident cremated remains interred in York Region cemeteries, assuming that cremation rates do not rise beyond 80% of deaths in York Region; An additional 45,000 caskets and 14,000 cremated remains from non-residents to be interred, if the rate of York Region cemetery land use by non-residents does not change and remains 33% of annual interments; An additional 176,000 caskets and 54,000 cremated remains from non-residents to be interred, if the rate of York Region cemetery land use by non-residents were to increase to 66% of annual interments; York Region cemeteries will inter York Region residents in 107 acres of land, and York Region cemeteries will sell residents 214 acres of land. LEES+Associates vi

9 CEMETERY LAND USE NON-RESIDENT USE + RESIDENT DEMAND From 2015 to 2041, York Region Cemeteries can expect to: Use 160 acres of land for all interments and sell 319 acres of land to all families, assuming 33% of cemetery use is by non-residents; Use 315 acres of land for all interments, and sell 629 acres of land to all families, assuming 66% of cemetery use is by non-residents, and Experience the greatest demand for cemetery land in the communities of Vaughan, Markham and Richmond Hill. CEMETERY LAND NEED GAP ANALYSIS York Region Residents Demand Assuming no non-resident use and an even distribution of demand, York Region has: Developed cemetery land with inventory ready for sale for about 45 years of resident demand, and Total land capacity to accommodate 85 years of resident demand. Non-Residents Use Assuming York Region will accommodate both resident demand and non-resident use, there is: Developed cemetery land inventory for 30 years, if the rate of non-resident use (currently 33% of annual interments in York Region) does not change; Total land capacity for 60 years, if the non-resident use rate does not change; Developed cemetery land inventory for less than 25 years, if non-resident use increases to 66% of annual interments, and Total land capacity for 35 years, if non-resident use increases to 66% of annual interments. Land Use by User Group York Region has significant cemetery land need gaps associated with specific user groups, regional service areas and local municipalities. o Some user groups (most notably Roman Catholic and some private cemeteries) do not have sufficient land to meet the needs of their customers over the 25 year planning period; LEES+Associates vii

10 o Northern York communities do not have adequate capacity to meet their demand for cemetery land over the next 25 years; o Central York communities, with the exception of Newmarket, have just enough capacity to meet demand for cemetery land over the next 25 years; o Southern York communities have enough capacity to meet their demand for cemetery land in the next years, and o York Region communities with cemetery land needs (in order of greatest urgency) are listed below: 1. Newmarket is under-served in total cemetery land capacity; 2. Georgina is under-served in total cemetery land capacity; 3. East Gwillimbury is under-served in total cemetery land capacity; 4. Aurora is under-served in developed cemetery land, with limited area to develop additional supply, and 5. Richmond Hill is under-served in developed cemetery land, but has capacity to add more supply. CEMETERY POLICY FRAMEWORK A robust policy framework for cemeteries is needed for York Region collectively, as well as all local municipalities. There is a declining amount of land available within York Region that is suitable for cemetery purposes, and an increasing number of competing interests for these lands; The lack of sufficient reference regarding cemeteries in the Provincial Policy Statement (PPS), other pieces of provincial legislation, and often Official Plans, is compounded by two additional issues: the limited planning horizons and the permanent nature of cemeteries. Typically land use plans forecast need and generate responses within a time frame of 25 years. This presents a challenge for cemeteries, as the typical cemetery planning horizon is 100 years, and A multi-pronged strategy is needed to meet the demand for sacred spaces where York Region residents can bury their dead, remember lives lost and realize the multiple benefits that these spaces can offer. The limited supply of land to meet the rapidly growing needs across York Region has to be carefully managed with an eye to the long term, especially with respect to cemetery lands. LEES+Associates viii

11 The policy framework and supporting recommendations include: Location and Size (subject to amendments by Provincial and Municipal plans); Development Criteria and Process; Environmental Stewardship, and Leadership and Advocacy. Location + Size Implement size and location criteria for cemeteries; Allow expansion of cemeteries and new cemeteries on lands designated as Greenbelt Protected Countryside and the Countryside Area of the Oak Ridges Moraine, and When there are no reasonable alternatives, demonstrate the need to remove prime agricultural lands in the Greenbelt and use these lands for cemetery development, as long as these lands are not specialty crop areas. Ensure that lower priority agricultural lands are considered for cemetery purposes prior to prime agricultural land. Development Criteria + Process Implement cemetery site development criteria for expanding and new cemeteries; Encourage every local municipality to draft a cemetery master plan, whether or not they operate their own cemetery, and As a condition of approval of any cemetery expansion, or new cemetery larger than 5 acres, require the proponent to provide evidence of meaningful community engagement. Environmental Stewardship Encourage local municipalities to include municipal cemeteries in their urban forest enhancement plans; Encourage non-profit, faith-based and commercial cemeteries to participate in urban tree cover initiatives, and Leverage the ability of cemetery lands to retain moisture and recharge groundwater by encouraging appropriate site grading, retention ponds, swales and rain gardens in all new and expanded cemetery plans. LEES+Associates ix

12 Leadership + Advocacy Incorporate the cultural, health and environmental benefits of cemeteries in the update of York Region s service plans, budgets and strategies; Update Provincial Ministries as to York Region s challenges associated with long term planning for sufficient cemetery land, including: o Extension of cemetery planning horizons to at least 50, if not 100 years; o Integration of the concept of permanence in all cemetery land planning; o Inclusion of cemeteries as a legitimate land use on agricultural lands within the ORMCP and Greenbelt lands; o Allowing removal of land from agricultural areas and the transition of this land into rural areas as opposed to settlement areas in order to allow them to be used as cemetery lands; o Use of gravel pits, land fill sites and other brownfields for cemetery purposes, and; o Limitations and/or mitigation of provincial road expansions adjacent to cemeteries. Update York Region s Cemetery Needs Analysis every 10 years to enable the Region, local municipalities and the Province to plan with the best available data regarding to cemetery land needs in York Region. LEES+Associates x

13 1 INTRODUCTION PROJECT OVERVIEW In June 2015, the Regional Municipality of York (York Region, or the Region) commissioned LEES+Associates to prepare a Cemetery Needs Analysis and Policy Framework for York Region, an area covering approximately 1,776 square kilometers in the Greater Toronto Area (GTA) of Southern Ontario. The need for a cemetery land analysis arose in 2012 in response to Ontario Municipal Board appeals to York Region s Official Plan (YROP-2010). The study is being undertaken as part of York Region s Municipal Comprehensive Review and Official Plan update initiated in 2014). Figur e 1: Map of the Greater Toronto Area, Source: Incentive Works + LEES+Associates. 1

14 This Cemetery Needs Analysis and Policy Framework study has the following goals: 1. To provide an overview of the remaining interment capacity available in York Region cemeteries; 2. To establish the projected need for future cemetery lands in York Region to 2041, and 3. To recommend criteria for the siting and development of expanded or new cemetery land uses. This report suggests a policy framework for the Region to meet cemetery needs within the context of current provincial policies. PROJECT APPROACH The following research and analysis underpin the resulting cemetery land analysis and policy framework: 1. Background Review + Research Review and integration of population forecast information provided by the Region s Planning and Economic Development Branch; Review and integration of demographic and cemetery site data, as well as burial and cremation data from sources such as (but not limited to) the Ontario Association of Cemetery and Funeral Providers, the CanadaGenWeb Cemetery project, the Ontario Genealogical Society, the Cremation Association of North America and Provincial Vital Statistics reports; Review of current, high resolution orthophotos, cadastral maps and GIS data in order to analyze the capacity remaining at the Region s largest active cemeteries; Site visits to twelve active cemeteries in York Region, including a minimum of one site in each of its nine local municipalities, to document the character and level of their developed areas; Review of York Region s Official Plan (YROP-2010) and the Official Plans of the nine York Region local municipalities, and other policy frameworks in place in other Ontario jurisdictions, and 2

15 Review of Ontario policy documents, including the Provincial Policy Statement, the Greenbelt Plan, the Oak Ridges Moraine Plan, the Growth Plan for the Greater Golden Horseshoe, the Funeral, Burial and Cremation Services Act, 2002 and subsequent amendments, and related plans and policy statements. 2. Stakeholder Consultation Identification of key stakeholders in York Region s cemetery market (public and private cemetery operations) and provision of two workshops for stakeholder engagement with representatives of York Region; An on-line survey was sent to stakeholders to capture site specific data on current cemetery capacity and interment options, as well as to provide another avenue for stakeholder input, and Interviews of municipal, religious, non-profit and private cemetery operators in York Region to obtain precise information about their capacity as well as additional feedback about their community s needs. 3. Analysis + Report Preparation of a profile and trend analysis using the researched data and collected feedback from the local cemetery industry, Compilation of information received through key cemetery service providers, the research and analysis process and LEES+Associates professional expertise, in order to outline strategic guidelines for the future designation, siting and planning of cemetery land in York Region, and Projection of future demand, through LEES+Associates proprietary Cemetery Business Case Analysis Tool (CBCAT). This tool was developed for North American cemeteries and includes integrated trend and sensitivity analysis spreadsheets that project future growth from historic market datasets and interment activity trends. 3

16 STAKEHOLDER CONSULTATION In order to achieve a rounded perspective of the Region s cemetery operations and land needs, LEES+Associates engaged cemetery stakeholders in a workshop early in the project s process. This event was a workshop to introduce stakeholders to cemetery planning, interment trends, and the scope of this study. A second workshop hosted by York Region provided stakeholders an opportunity to learn about and respond to the preliminary findings of this study. One-on-one interviews with stakeholders and comments from the August 2015 survey supplemented the feedback from the workshops and meetings. It is important to recognize that the accuracy of the data used in this study relies heavily on each stakeholder/respondent s expertise, records management and invested time in compiling the data. The project benefitted from a high level of participation and engagement in the workshops, meetings and survey. Feedback was collected from key representatives in nine local municipalities, religious and private sectors, as well as government agencies, cemetery and funeral associations, and professional planners with an interest in the future development of York Region. A list of stakeholders that attended the workshops, along with a summary of feedback from the consultation process, can be found in Appendix A Stakeholder Consultation." Figure 2: Pardes Shalom Cemetery, Vaughan, York Region, Source: LEES+Associates. 4

17 YORK REGION CEMETERY MARKET AREA For this report, the boundary of the study for cemetery services demand and land needs was defined by York Region, is the defined by the area of the Regional Municipality of York, as shown in the adjacent figure. This is due in large part to the parameters set by the Province to determine need on a regional basis, as compared to a catchment basis. The analyses undertaken in this study focused on York Region residents need for cemetery services over the next 25 years. The recommendations arising from these analyses are pinned to York Region residents needs. However, in addition to the demand for cemetery services arising from regional residents, the pressure on cemetery lands in the Region is increased due to the dearth of available cemetery space in the City of Toronto. Although we have quantified that need during this study, we have also remained within the terms and conditions of the Region s Request for Proposal by bringing forward a policy framework that addresses York Region Figure 3: The Municipal and Regional Boundaries of York Region, Source: LEES+Associates. In the 2015 York Region survey, cemetery operators reported that on average, 66% of their clients were residents of the Region. residents short term (25 year) needs. This is supplemented with longer term strategies that anticipate the pressures from outside the Region. This cemetery land needs analysis prioritizes the expected demand from the Region s residents on the developed cemetery inventory and future capacity available, once approved cemetery sites are developed. 5

18 METHODOLOGY Forecasted population and death rates were obtained from York Region s Planning and Economic Development Branch, Corporate Services Department. This data was segmented by disposition type (cremation versus casket) using reported cremation rates from the Ontario Board of Funeral Services and the Cremation Association of North America (CANA). Future demand and expected use patterns of Regional cemetery services was extrapolated from projected Ontario cemetery market data, based on Regional interment and lot sale trends. Cemetery market capture was calculated for each community by comparing the annual interments to the annual deaths, broken down by the form of disposition. For the purpose of this analysis, community use patterns of cemeteries are assumed to remain consistent over the next 25 years with the exception of the ongoing rise in the cremation rate. Cemeteries in this study include public, private, religious, family, pioneer, memorial and aboriginal burial sites. Ownership of each site was determined through a combination of methods, including feedback from the on-line survey, contact with Regional cemetery operators, as well as independent research using industry sources, such as the CanGenWeb Cemetery Project 1. Alternative scenarios were generated by a detailed sensitivity analysis of key variables, which enabled LEES+Associates to examine the effects of changes in the community demographics and disposition preferences. The findings from these analyses provided guidance and an evidence-based foundation for the key recommendations of this study. Appendix B Sources and Methodology provides a detailed overview of the information sources and methodology used in York Region s Cemetery Needs Analysis and Policy Framework. 1 CanGenWeb s Cemetery Project - 6

19 KEY ASSUMPTIONS The key assumptions include: Growth in the Region will be distributed in accordance with the Draft 40% Intensification Scenario 2 ; 1.2% Average Annual Regional Population Growth over the next 25 years; Baby Boom generation deaths will increase the overall Regional death rate to 7.5 by 2041; Cremation rises by 2% per year to maximum of 80% in each community; 1 acre of cemetery land in York Region equals approximately 900 casketsized lots; 1 pre-need sale will occur for every at-need sale; In-migration and out-migration of casket burials from neighboring regions, excluding Toronto, will be approximately equal; 20% of York Region residents choosing cremation will be interred in Region cemeteries; 75% of cremated remains interred in the Region will be in-ground; 33% of casket burials at York Region cemeteries will not be York Region residents; Non-resident interments could potentially increase up to 66% of all casket burials at York Region cemeteries due to pressure from surrounding regions, and All existing undeveloped space will be converted to cemetery use by regional cemetery operators. 2 Population distribution has been modelled per the draft 40% intensification scenario from the April 2015 report to York Region Council (2041 York Region Draft Growth Scenarios and Land Budget) as a final approved growth scenario was not available at the time of undertaking this study. The implications of the varying intensification scenarios are minor for this study, as the Region s forecasted population is the same under all scenarios with distribution between local municipalities varying slightly. 7

20 HOW DO WE DEFINE DEMAND + NEED? This section identifies how the Regional Municipality of York and the cemetery sector defines demand and need. Demand is defined by the Region as the cemetery land needed to serve York Region residents until However, in addition to the expected demand from residents, in the next 25 years York Region can also expect that cemetery land will be sold to non-residents choosing to be interred in York Region. Combining the expected resident demand and non-resident demand comprises the total forecast cemetery land use over the next 25 years. Need is the gap between forecast cemetery supply (identified in Chapter 4) and forecast cemetery land use. Cemetery land use is composed of both York Region resident demand and non-resident cemetery sales. This needs analysis examines two kinds of Need: York Region Cemetery Land Need and Actual Land Need. The following diagrams show the relationships between resident demand, nonresident use and land need. In the event that demand exceeds supply there is a need. In the event that supply exceeds demand, there no additional land need, instead there is supply remaining. 1. YORK REGION CEMETERY LAND NEED York Region Cemetery Land Need is defined by the Region as the additional land needed by York Region Cemeteries to meet York Region Resident demand from 2015 to The following diagram shows the relationship between cemetery land supply, resident demand and York Region Cemetery Land Need: 8

21 2. ACTUAL CEMETERY LAND NEED Actual Cemetery Land Need is defined as the additional land needed by York Region Cemeteries to accommodate both York Region resident demand and non-resident use. The following diagram shows the relationship between the cemetery land supply remaining (after resident demand is accommodated), nonresident use and Actual Cemetery Land Need: Figure 4: Newmarket Cemetery, Columbaria, Source: LEES+Associates. 9

22 2 CEMETERY LAND SUPPLY This chapter identifies the current cemetery supply and total estimated capacity of existing cemetery land in the Regional Municipality of York. CEMETERY MARKET PROFILE The Regional Municipality of York (York Region) extends from Lake Simcoe in the north to the City of Toronto in the south. To the east of York Region is Durham Region, to the west is Peel Region, and to the northwest is Simcoe County. York Region is located in the Greater Toronto Area (GTA) of Southern Ontario. The Region is comprised of nine local municipalities covering approximately 1,776 square kilometres (686 square miles). These nine local municipalities are further comprised of several smaller communities and districts. The last Statistics Canada census (2011) reported the Regional Municipality s population as 1,032, As of 2015, York Region Planning and Economic Development Branch, Corporate Services Department reported the Regional Municipality s population as 1,133,919. Figure 5: York Region Road Sign, Source: York Region Website. 3 Statistics Canada, Federal Census

23 CEMETERY SUPPLY OVERVIEW ACTIVE AND INACTIVE CEMETERY SITES BY COMMUNITY In this study, active cemeteries are sites that are currently accepting interments and selling cemetery plots. Sites under 1 acre that only accept occasional interments are not considered active for the purposes of this study. This project evaluated 203 cemetery sites distributed throughout York Region, including 59 active cemetery sites and 144 inactive cemetery sites, distributed throughout the nine municipalities in York Region. The following table summarizes the number of active, inactive and total cemetery sites in each of York Region s local municipalities. Table 1: Number of Cemeteries in York Region, Source: LEES+Associates + Municipal Websites, Stakeholder Consultations, Ontario Genealogical Society. 11

24 Cemetery Activity Status Active cemeteries are burial sites that regularly accept interments and sell cemetery plots. Inactive cemeteries have sold all of their plots, have little or no further burial activity at the burial site, and are sometimes referred to as heritage or pioneer sites. Any burials that take place at an inactive site are infrequent and usually fulfill a pre-purchased contract commitment. The following table summarizes York Region s cemetery land area, inventory and estimated capacity. Table 2: York Region Active Cemeteries Supply Characteristics, Source: LEES+Associates + Municipal Websites, Stakeholder Consultations, Ontario Genealogical Society. 12

25 The data in this table was compiled using feedback from industry research, stakeholder consultation, the online survey and a physical analysis of York Region cemetery sites. Developed Area is the total amount of cemetery land developed as burial lots as of August This includes all York Region cemetery land with inventory available for sale, as well as all York Region cemetery land with inventory that has already been used or already been sold to families for future interment. Developed Inventory for Sale is the total available land developed as burial lots that is available for sale and use in each municipal cemetery system, as of August It does not include cemetery land which is already used or sold. Estimated Capacity includes the currently developed cemetery inventory, plus the undeveloped land that could be developed and sold as burial lots in the future in each municipal cemetery system, as of August This analysis is based on the premise that the reported undeveloped cemetery land is capable of development into saleable lots. Appendix B Sources and Methodology provides a detailed overview of the physical analysis methodology for York Region s cemeteries and includes an example of the aerial imagery studied and the physical analysis approach used to assess the capacity of York Region cemeteries. Appendix C Active Cemetery Profiles summarizes the key characteristics of active cemetery sites in the Regional Municipality of York, including but not limited to, each site s location, size, total area, developed land area, and land classification. DISTANCE TO CEMETERY SITES Cemetery Land Density In consultation with the cemetery stakeholders, 900 casket lots per net acre of land (43,560 ft 2 total, 4.5 m 2 / 48.4 ft 2 per lot) was used for the purpose of this study. Using this measure, the number of potential lots on undeveloped land was added to current inventory to estimate the cemetery s total current capacity. Travelling between the two furthest points in York Region, from northeast Georgina to southwest Vaughan, takes slightly over 60 minutes without major traffic. Therefore, every cemetery within York Region can be reached by York Region residents within about one hour s drive during off peak hours. 13

26 A map of York Region cemetery sites can be found in Appendix D York Region Cemetery Map. SURVEY HIGHLIGHTS This section summarizes the notable land supply challenges faced by cemetery operators and the unique characteristics of each local municipality s cemetery market, highlighted by participants in the cemetery stakeholder survey feedback. Region-wide Feedback Planning Horizon This study was commissioned to examine York Region s future land need up to the year However, cemetery stakeholders reported that: A 25 year time scale is unsuitable for effective cemetery planning. The Best Practice timescale for cemetery planning is at least 50 years, and more often 100 to 150 years, and Currently it takes an average of 5 to 7 years to design, obtain government approvals, and develop a cemetery property in York. It takes approximately 20 years for a cemetery to become established within a community. Residents and Non-Residents Cemetery stakeholders reported that: On average, 33% of annual interments from all York Region cemetery operators are non-residents. Private and religious stakeholders report a higher average, with 66% of their annual interments being non-residents. Resident Proximity to Cemetery Supply Cemetery stakeholders reported that: On average, families drive 30 to 45 minutes to visit a cemetery in York Region. Cemetery stakeholders reported that at approximately 82% of cemetery sites, the average travel time logged by most visitors to their site was 30 minutes or less. Stakeholders considered this to be a reasonable distance for families to travel to access an active cemetery. Only 8% of respondents reported that visitors typically travelled more than 45 minutes to visit their site. Cemetery sites that reported an average travel time of more than 45 minutes, specifically serve the Muslim and Jewish communities. 14

27 Feedback by Municipality The following table summarizes the challenges and unique characteristics that affect cemetery supply by municipality. Survey feedback in this table was verified by the information available in the CanadaGenWeb Cemetery Project. Cemetery stakeholders participating in the survey reported that: 15

28 16

29 Table 3: Notable Challenges + Unique Community Cemetery Characteristics by Municipality, Source: August 2015 Stakeholder Survey and LEES+Associates. These Survey Highlights provide an overview of the feedback from the study s stakeholder survey respondents. They are not the opinion of LEES+Associates. CEMETERY SUPPLY BY OWNERSHIP Cemeteries are also unique in that they are invested with religious and personal qualities based on the desire for families, communities or member of religious groups to be interred together. This creates a demand for lands by sector. The following table summarizes the ownership of York Region s current cemetery sites. Non-religious, non-profit organizations are categorized under Private Sites. Other Religious Sites in this table refers to cemetery sites dedicated to United, Methodist, Lutheran, Presbyterian, Baptist, Mennonite, Quaker, Jewish, and Muslim faiths. Other Sites in this table refers to designated cemetery land not typically used for burial by community residents, including memorial sites, private family properties and pet burial sites. Table 4: York Region Cemetery Sites by Ownership, Source: LEES+Associates and CanGenWeb Cemetery Project. 17

30 A more detailed overview of York Region cemetery sites by ownership and municipality can be found in Appendix E York Region Cemetery Data Tables. The following figure provides an overview of all cemetery sites by ownership in York Region: Figure 6: York Region Cemetery Sites by Ownership, Source: LEES+Associates. 18

31 KEY FINDINGS YORK REGION CEMETERY LAND SUPPLY In conclusion, the cemetery land supply analysis of York Region has identified: 59 active cemetery sites, of which 34 are managed by religious organizations, 12 are operated by local municipalities, 12 are operated by private or non-profit operators, and 1 is a family burial site; 144 inactive cemetery sites, which may have infill opportunities to supplement existing cemetery land supply; 419 acres of developed cemetery land available for sale, of which: o 74% is owned by religious groups; o 22% is owned by private/non-profit organizations, and o 4% is owned by local municipalities. 761 acres of total cemetery land capacity, of which: o 62% is owned by religious groups; o 35% is owned by private/non-profit organizations, and o 3% is owned by local municipalities. Figure 7: Toronto Muslim Cemetery, Richmond Hill, ON, Source: LEES+Associates 19

32 3 CEMETERY LAND DEMAND This chapter identifies the forecasted cemetery land use in York Region and outlines the key demographic and cemetery market variables that affect the demand for cemetery services in the Regional Municipality of York. These include: Age distribution; Population (historic statistics and future projections); Deaths (historic statistics and future projections); Ethnic origin and religious profiles; Disposition trends (cremation rates), and Community use trends (including residency and pre-need sales patterns). Sources used to determine demand include (but are not limited to) Statistics Canada s Vital Statistics Death Database, the Office of the Registrar General, Ontario and the Canadian Centre for Health Information. DEMOGRAPHICS AGE DISTRIBUTION Figure 8 on the following page illustrates the most recently available (2011) and future (2041) age profiles for York Region. Figure 8 is a graph that shows 2011 data as horizontal bars and 2041 data as vertical lines. In this graph, the male population data is shown on the left and the female population data is shown on the right of the central midline axis. Of particular interest in Figure 8 is the distinct shift from the recent age distribution to the future age distribution for those 70 and older in the Region, as mortality rates improve. 20

33 Figure 8: Historic and Future Regional Municipality of York Population Age Structures, Source: Long Range Planning Branch: York Region 2041 Preferred Growth Scenario, November 5, 2015 Staff Report - Attachment 2, Page 13. Demographically, the largest single cohort in Canada is the "Baby Boom" generation: people born between 1952 and As this cohort reaches its life expectancy, an increase in the demand for cemetery services is expected. According to Statistics Canada, the aging of the population should cause cemetery and funeral related purchasing to accelerate from 2017 to Canada's Baby Boom Is Nothing like the One in the US, Robert L. Brown, Past President of the Canadian Institute of Actuaries, expert advisor EvidenceNetwork.ca, 21

34 The oldest Baby Boom generation members reached the age of 63 in The average life expectancy for this cohort is about 80 years. In 2032, the oldest of this group will reach the age of 80 so an increase in demand for death-related goods and services is expected prior to this, around 2022 or sooner. The number of deaths is then expected to decrease again towards 2045, when the youngest of this generation turns 80. Key Findings Age Distribution 5 The median age in York Region is 39.3, slightly younger than Ontario s median age of ; Vaughan is York Region s youngest community, averaging 37.9 years of age; King is York Region s oldest community, averaging 42.9 years of age; Currently, the largest age cohort among York Region residents (according to Figure 5) is 45 to 49 years old; Currently, 11.7% of York Region residents are over the age of 65; York Region has one of the highest proportions of children and youth in the province, and York Region s population is younger and aging at a slower rate than the Ontario population as a whole. 5 Ontario Trillium Foundation Simcoe-York Regional Profile Statistics Canada Census. 22

35 POPULATION: HISTORIC + FUTURE PROJECTIONS Figure 9 provides an overview of the population distribution within York Region s local municipalities as of Figure 9: York Region s Distribution of Municipal Populations in 2014, Source: LEES+Associates. 23

36 The following table summarizes the population changes in York Region and over the past 5 years and the projected 2041 population for the Region, based on the Draft 40% Intensification Scenario from the April 2015, 2041 York Region Draft Growth Scenarios and Land Budget. Table 5: York Region and Provincial Population, Historic Statistics and Projections to 2041, Source: York Region Planning and Economic Development Branch, Corporate Services Department, Statistics Canada. A detailed breakdown of Ontario and York Region s population changes over the past 5 years and projected 2041 populations by municipality can be found in Appendix E York Region Cemetery Data Tables. Key Findings - Population: Historic and Future Projections In the past 5 years, York Region s population growth rate has been higher than the Ontario annual average growth rate of 1.57%; In the past 5 years, Whitchurch-Stouffville grew the fastest and Newmarket grew the slowest; Regional planners expect an increase in population growth in all local municipalities over the next 25 years; The greatest annual average population growth in York Region is expected to occur in East Gwillimbury, Georgina, Markham, and Vaughan, and York Region s overall growth rate is forecast to slow over the next 25 years. Specifically, lower growth rates are forecast for King, Newmarket, Markham, Richmond Hill, Whitchurch-Stouffville and Vaughan. 24

37 DEATHS: HISTORIC AND FUTURE PROJECTIONS The following figure provides an overview of the death distribution within York Region local municipalities in Figure 10: York Region s Distribution of Municipal Deaths in 2014, Source: LEES+Associates. The following table summarizes the number of deaths in York Region over the past 5 years, as well as the expected projections for the Region to Table 6: York Region Municipal Deaths, Historic and Projected to 2041, Source: York Region Planning and Economic Development Branch, Corporate Services Department and Statistics Canada. 25

38 In comparison, the GTA averaged 31,500 deaths per year over the past 5 years, with an average death rate of approximately 5.4 deaths per A more detailed breakdown of York Region s deaths by local municipality can be found in Appendix E York Region Cemetery Data Tables. Key Findings - Deaths: Historic and Future Projections York Region s death rate is lower than the rest of the GTA, as well as Ontario s average death rate of 7.02 deaths per 1000 people; The passing of the Baby Boom generation will drive York Region s death rates up over the next 25 years; Death rates have been steadily increasing in York Region over the past decade; King has the highest death rate in York Region, and Due to its large population, Markham accounts for the highest number of deaths in York Region. ETHNIC ORIGINS + RELIGIOUS GROUP PROFILES The demographic estimates in this section assume that each ethnic and religious group has the same death rate as the general population and retains its proportion of representation in the current population. Ethnic Origins The following table identifies the estimated 2015 populations by the top four ethnic groups in York Region. Table 7: York Region Population by Ethnic Origin in 2015, Source: York Region Planning and Economic Development Branch, Corporate Services Department. 26

39 The following table summarizes the estimated deaths by the top four ethnic group projected for York Region to Table 8: York Region Municipal Deaths by Ethnic Origin Projected to 2041, Source: York Region Planning and Economic Development Branch, Corporate Services Department. Religious Groups The following table identifies the estimated 2015 populations by religious group in York Region. Table 9: York Region Population by Religious Group in 2015, Source: York Region Planning and Economic Development Branch, Corporate Services Department. The following table summarizes the deaths by religious group projected for York Region to Table 10: York Region Municipal Deaths by Religious Group Projected to 2041, Source: York Region Planning and Economic Development Branch, Corporate Services Department Historic Religious Data and LEES+Associates. 27

40 Death data by religious group has not historically been tracked by Regional, Provincial or Federal governments, therefore more precise information is not available. A more detailed breakdown of York Region s deaths by religious group in each municipality can be found in Appendix E York Region Cemetery Data Tables. Many ethnic and religious groups have funerary customs that discourage or do not permit, cremation. For this reason, it is believed that there will always be a segment of the population that will choose casket burial. Since Vatican II in 1962, cremation has been allowed within the Catholic faith (provided that cremated remains are kept together). However some branches of Christianity oppose cremation, including some minority Protestant and Orthodox groups, including Greek and Serbian Christians. Most notably, the Eastern and Oriental Orthodox Churches forbid cremation. Funerals in the Muslim community follow specific rites, though they are subject to regional interpretation and variation in custom. In all cases, cremation of the body is forbidden. While cremation has become an approved disposition method among Liberal Jews, Orthodox Jews have maintained a stricter line and believe Halakha (Jewish law) forbids it. The number of York Region deaths anticipated from religious groups that forbid cremation fall well within the projected numbers for decedents choosing traditional burial between 2015 and Over the last 100 years, cremation has become established as the primary funeral rite in many cultures of the world. Religions such as Hinduism, Sikhism and Buddhism mandate cremation. 28

41 Key Findings - Ethnic Origins and Religious Profiles The top four ethnic origins reported in York Region are: Italian (17%), Chinese (16%), English (15%) and Scottish (10%); 33% of Vaughan residents claim Italian origins; Visible minorities (primarily Asians) comprise 37.2% of the population of York Region; 56% of York Region s population identifies as Christian; 31% of York Region s population identifies as Catholic; 4% of York Region s population identifies as Anglican; 23% of York Region s population claim no religious affiliation; Relative to Ontario and Canada as a whole, York Region has a higher proportion of residents who identify as Hindu (5%), Jewish (6%) and Muslim (6%), and York Region s cremation rate is expected to continue increasing, however due to ethnic and religious preferences, it is expected it will never increase beyond 80% of community deaths. Figure 11: Cremation Room at Elgin Mills Cemetery, Crematorium and Visitation Centre, Richmond Hill, Source: Mount Pleasant Group Website. 29

42 DISPOSITION TRENDS Disposition is the means by which human remains are disposed of following death, typically by means of casket burial or cremation. CREMATION RATES Cremation is the preferred means of disposition nationwide. The average Canadian cremation rate increased from 49.0% in 2004 to 62.5% in It is expected to continue to rise in most provinces (including Ontario). The cremation rate in Ontario is the seventh lowest in Canada. It has increased from 49.0% in 2004 to 62.5% in This is a 10 year, historical, annual average growth rate of 2.5% per year. The Cremation Association of North America (CANA) predicts Ontario s cremation will rise to 66.5% by 2017, averaging a future annual growth rate of 2.0% per year. The following map illustrates the preference for cremation in Canadian provinces and territories as of Figure 12: Canadian Rates of Cremation as of 2014 Source: Cremation Association of North America Study. 30

43 In comparison, the cremation rate in York Region was 59.3% in This is lower than the provincial average, but if it continues to rise at the same rate as the rest of the province, CANA predicts that York Region s cremation rate will rise to 63.1% by The following map illustrates the level of preference for cremation in each York Region community, with the darker shades representing areas with higher rates of cremation. Figure 13: Cremation Rates by Postal Code, Source: Ontario Board of Funeral Services 31

44 Key Findings Disposition Trends In 2014 cremation rates were, Georgina - 80% Newmarket - 72%; Aurora - 69%; King - 66%; Whitchurch-Stouffville - 64%; East Gwillimbury - 64%; Richmond Hill - 50%; Markham - 47%, and Vaughan - 21%. Figure 14: Elgin Mills Cemetery, Crematorium and Visitation Centre Entryway, Richmond Hill, Source: Mount Pleasant Group Website. 32

45 CEMETERY MARKET TRENDS In all graphs in this section, the bar graph data reflects York Region s local municipal populations. This data aligns with the left vertical axis. The line graph data reflects York Region s Cemetery Market, measuring the annual number of deaths and dispositions (by the number of cremations and casket burials). This data aligns with the right vertical axis. The following graph shows the historic York Region cemetery market trends over the past 5 years. Figure 15: Historic York Region Cemetery Market Population, Deaths, Cremations and Casket Burials, Source: LEES+Associates. 33

46 The following graph shows the projected York Region cemetery market trends to Figure 16: Future York Region Cemetery Market - Population, Deaths, Cremations and Casket Burials, Source: LEES+Associates. 34

47 COMMUNITY USE TRENDS The extent to which residents in an area choose to be buried in cemeteries varies significantly based on a range of variables. These include the attractiveness of the existing sites, the diversity of cemetery product and service options, the ability to meet religious/ethnic traditions, proximity, accessibility and other considerations. York Region communities are located in densely populated urban areas adjacent to other densely populated regions. Under these conditions, it is expected that cemeteries will take in a significant number of non-resident deaths, particularly from the City of Toronto. In this study, it is assumed that the loss that would normally be expected to cemeteries outside the region will be more than made up by non-residents, creating a scenario where it can be assumed that 100% of expected casket burials in York Region would effectively be interred in local cemeteries. A high cremation rate usually affects the number of customers that come to the cemetery because many cremated remains are not interred in a cemetery. Typically, 80% of residents choosing cremation will not inter in local cemeteries and are instead kept at home or scattered in a place of personal meaning. Figure 17: Highland Memorial Gardens, Gormley, Ontario, Source: LEES+Associates 35

48 The following graph shows York Region cemetery market projections to Figure 18: Future York Region Cemetery Market Cremations and Burials, Source: LEES+Associates. A summary of York Region s historic deaths by disposition method and by local municipality can be found in Appendix E York Region Cemetery Data Tables. 36

49 CEMETERY LIFE CYCLE The following diagram summarizes the life of an active cemetery and its relationship between resident demand, non-resident use, and land need. Figure 19: Diagram of the Cemetery Lifecycle, Source: LEES+Associates. Ongoing burials throughout a cemetery s life reflect the process of meeting the community demand and managing the pressure from non-residents who choose to be buried in that community. Often these non-residents have family from York Region communities buried in the local cemeteries. Total sales during the life of an active cemetery are a reflection of the cemetery operator s response to both community demand and non-resident sales. INTERMENT FOOTPRINT The demand for cemetery land is primarily driven by in-ground casket burial. It has the largest footprint of any interment option. According to feedback from cemetery operators during consultations, York Region cemeteries currently accommodate approximately 900 casket lots per net acre (4,047 m 2 / 43,560 ft 2 ), therefore this measure of capacity per acre was used for assessing land need in this study. This is a theoretic yield, subject to a range of factors that could reduce the number significantly. The measure of 900 casket lots per net acre, assumes an average 4.5 m 2 / 48.4 ft 2 allocated for each grave site, surrounding paths, and supporting infrastructure. Compared to casket burial, interring cremated remains is less land consumptive and has a smaller footprint. Cremation lots typically require 1.2 to 1.4 m 2 (4 6 ft 2 ) and can accommodate multiple interments. 37

50 Cremated remains are often interred in the grave of a spouse or other family member. Cemetery bylaws in Ontario commonly permit from 2 to 8 cremated remains to be interred in the same burial lot. In addition, interment options such as columbaria niches, ossuaries, family vessels and scatterings significantly reduce land use. AT-NEED + PRE-NEED SALES Families may purchase a grave at cemeteries when a resident dies ( at-need ) or alternatively, individuals may choose to purchase a grave before they die ( preneed ). Canadian municipal cemeteries typically do not aggressively market their services and often lack dedicated sales representatives. Consequently they usually average a 2 : 1 ratio of at-need to pre-need sales of grave spaces. In contrast, North Amercian private operators and some premium religious cemeteries often generate an average 2 : 3 ratio of at-need to pre-need sales. York Region has a high concentration of private and premium religious cemeteries compared with other Ontario muncipalities. Analysis of the proportion of lot sales to interments reported in this study s online survey, as well as the feedback from subsequent stakeholder interviews, leads to the conclusion that York Region cemeteries experience an average 1 : 1 ratio of at-need to pre-need sales. Therefore, it is assumed that for every at-need interment and lot sale, cemetery operators generate one pre-need lot sale. 38

51 The following graph provides an example of the type of cemetery sales activity that make up a normal year in the operation of a typical York Region Cemetery. Figure 20: Year of Sales Activity for a Typical York Cemetery, Source: LEES+Associates. 39

52 YORK REGION RESIDENT DEMAND CASKET DEMAND This analysis assumes that York Region cemeteries will continue to experience a 1 : 1 ratio of at-need to pre-need sales, therefore, York Region cemetery lot sales are expected to be twice that of York Region s expected interment demand. The following table summarizes the projected number of in-ground casket burials and the land required for casket lot sales for York Region residents to Table 11: York Region Resident Casket Burials and Lots Sale Projections to 2041, Source: LEES+Associates, York Region Planning and Economic Development Branch, Corporate Services Department + CANA. A breakdown of York Region s projected resident casket burial and lot sales by municipality can be referenced in Appendix E York Region Cemetery Data Tables. 40

53 CREMATED REMAINS DEMAND The actual impact on land need from interring cremated remains will depend on the type of cremated remains interment options offered at the cemetery. Typically, Canadian cemeteries find that 75% of cremated remains interments take the form of an urn buried in cremation or casket lots and 25% involve columbaria, scatterings, ossuaries, or other means of above ground interment. The following table summarizes the projected number of in-ground cremation burials and the land required for cremation lots to serve York Region residents between now and 2041, assuming that a cremated remains interment uses one quarter of the space of a traditional in-ground burial. Table 12: York Region Resident Cremated Remains Interments and Lot Sale Projections to 2041, Source: LEES+Associates, York Region Planning and Economic Development Branch, Corporate Services Department + CANA. A breakdown of projected cremation burial and lot sales by local municipality for York Region residents is available for reference in Appendix E York Region Cemetery Data Tables. 41

54 NON-RESIDENT CEMETERY LAND USE EXPECTED NON-RESIDENT USE RATE: 33% The previous section of this report outlined the cemetery land needed to meet the demand arising from the interment of York Region residents. However, York Region cemeteries also expect to accommodate the interment of residents from outside of York Region. This study s online survey of cemetery operators suggested that on average, 33% of York Region cemetery sales are to non-residents. Therefore, it is assumed in this needs analysis, that York Region resident interments constitute 67% of a cemetery operator s clientele. Private operators and religious cemeteries reported even higher rates of nonresidents, with 50% to 90% of their families being from outside of the Region. Casket Land Use The following table summarizes the projected number of in-ground casket burials and the land required for casket lot sales for non-residents to 2041, assuming that non-residents account for 33% of cemetery business in York Region. Table 13: York Region Non-Resident Casket Burials + Lots Sale Projections, 33% Scenario, Source: LEES+Associates, York Region Planning and Economic Development Branch, Corporate Services Department + CANA. 42

55 Cremated Remains Land Use The following table summarizes the projected number of in-ground cremation burials and the land required for cremation lots for non-residents to 2041, assuming that non-residents account for 33% of cemetery business in York Region. Table 14: York Region Non-Resident Cremated Remains Interment + Lot Sales Projections, 33% Scenario, Source: LEES+Associates, York Region Planning and Economic Development Branch, Corporate Services Department + CANA. A breakdown of York Region s projected non-resident casket and cremated remains, burial and lot sales by local municipality can be found in Appendix E York Region Cemetery Data Tables. Key Findings - Non-Resident Rate: 33% In addition to the land used to serve York Region Residents, if 33% of cemetery land in the Region is sold to non-residents, York Region will need: 53 acres of cemetery land to inter non-residents (at-need sales), and 105 acres of cemetery land to sell lots to non-residents (at-need and preneed sales). 43

56 HIGHER NON-RESIDENT USE RATE: 66% During the consultation process, several stakeholders expressed concern that the non-resident rate may increase to 66% of York Region s cemetery business, as land becomes increasingly scarce in adjacent communities. Casket Land Use The following table summarizes the projected number of in-ground casket burials and the land required for casket lots for non-residents to 2041, assuming that non-residents account for 66% of cemetery business in York Region. Table 15: York Region Non-Resident Casket Burials and Lots Sale Projections, 66% Scenario, Source: LEES+Associates, York Region Planning and Economic Development Branch, Corporate Services Department + CANA. Cremated Remains Land Use The following table summarizes the projected number of in-ground cremation burials and the land required for cremation lots for non-residents to 2041, assuming that non-residents account for 66% of cemetery business in York Region. Table 16: York Region Resident Cremated Remains interments Projections, 66% Scenario, Source: LEES+Associates, York Region Planning and Economic Development Branch, Corporate Services Department + CANA. 44

57 A breakdown of York Region s projected non-resident casket and cremated remains, burial and lot sales by local municipality at this higher non-resident rate can be found in Appendix E York Region Cemetery Data Tables. Key Findings - Higher Non-Resident Rate 66% If 66% of cemetery land in York Region cemeteries is sold to non-residents, then York Region will need an additional 155 acres cemetery land for interment and 310 acres for cemetery lot sales, above what was projected in the 33% scenario. Therefore, in addition to the land used to serve York Region residents, if the Region experiences a rate of 66% of annual interments, York Region cemeteries will need a total of: 208 acres of cemetery land to inter non-residents, and 415 acres of cemetery land to sell lots to non-residents. The following figure highlights the communities adjacent to York Region that are expected to contribute the most pressure from non-resident cemetery land users in the future. Figure 21: Map of Communities that receive and contribute to Non-Resident Cemetery Land Use in York Region, Source: LEES+Associates. 45

58 TOTAL YORK REGION CEMETERY DEMAND + LAND USE This section summarizes the total demand and land use at York Region cemeteries over the next 25 years. The following table summarizes the projected York Region resident demand and non-resident use, providing an overview of the total pressure on York Region cemetery sites to Table 17: York Region Cemetery Land Use by Municipality, Projections to 2041, Source: LEES+Associates, York Region Planning and Economic Development Branch, Corporate Services Department + CANA. 46

59 KEY FINDINGS - CEMETERY DEMAND + LAND USE Resident Demand From 2015 to 2041, York Region cemeteries can expect to: Inter York Region residents in 107 acres of land (Table 12 and 13), and Sell York Region residents 214 acres of land, assuming cemeteries maintain an average at-need to pre-need ratio of 1:1 (Table 12 and 13). Non-Resident Land Use From 2015 to 2041, York Region cemeteries can expect to: Inter non-residents in 53 acres of land and sell non-residents 105 acres of land, if they continue to account for 33% of cemetery volume (Table 14 and 15), and Inter non-residents in 208 acres of land and sell non-residents 415 acres of land, if they grow to account for 66% of cemetery volume (Table 16 and 17). Total Cemetery Land Use (Resident + Non-Resident) From 2015 to 2041, York Region cemeteries can expect to: Use a total 160 acres of land for all interments and sell a total 319 acres of land to all families, if 33% of cemetery volume is non-resident (Table 18); Use a total 315 acres of land for all interments, and sell a total 629 acres of land to all families, if 66% of cemetery volume is non-resident (Table 12, 13, 16, and 17), and In all scenarios, York Region will experience greatest demand for cemetery land from Vaughan, Markham and Richmond Hill, based on the number of people expected to die and choose casket burial in these communities. Even though Markham is projected to experience a greater number of deaths, Vaughan s unusually low cremation rate will create a higher demand for casket burials, which will result in Vaughan cemetery sites using land more quickly than Markham cemeteries. As Vaughan, Markham and Richmond Hill are located the closest to the City of Toronto, they will experience the greatest pressure from non-residents for cemetery land in the coming years. 47

60 4 CEMETERY LAND NEED GAP ANALYSIS This chapter defines York Region s cemetery land Need by comparing the cemetery land use (resident demand and non-resident use) identified in Chapter 3 to the cemetery land supply identified in Chapter 2. This identifies the land need gap in the Region. Provincial and regional governments across Canada commonly track demographic statistics, assess community need, and plan public resources by service area. Three distinct Regional Service Areas have been identified for the assessment of cemetery land need in York Region; Northern York, Central York and Southern York. Figure 22: York Region Service Areas Map, Source: LEES+Associates Northern York includes the local municipalities of East Gwillimbury and Georgina. Central York includes Aurora, King, Newmarket, and Whitchurch-Stouffville. Southern York includes Richmond Hill, Vaughan, and Markham. GAP ANALYSIS: DEVELOPED LAND + TOTAL CAPACITY On the next page, Table 18 summarizes the gap between the supply and demand for cemetery land from 2015 to 2041 by York Region Service Area. Table 19 assumes that developed land available for sale (existing inventory) is York Region s cemetery land supply (Column B). On the following page, Table 19 also summarizes the gap between the supply and demand for cemetery land from 2015 to 2041 by York Region Service Area. Table 20 assumes that all undeveloped land will be developed and become part of York Region s cemetery land supply (Column B), changing the definition of supply from developed land for sale to the total land capacity available. 48

61 ELAC Maze Logo In Table 18 and Table 19, the columns reporting Total Inters (interments) include non-resident use, and Total Lot Sales include pre-need lot purchases. In both Tables, positive numbers under the Need columns signify an excess of land supply, after the expected demand and land use is met. Negative numbers under the Need columns signify the need for additional developed cemetery land to meet the expected resident demand and nonresident land use. Table 18: Developed Land Gap Analysis: Supply: Land for Sale Land Use = Land Need or Supply Remaining Source: LEES+Associates. 49

62 ELAC Maze Logo Table 19: Total Capacity Land Gap Analysis: Supply: Land for Sale + New Land (from Undeveloped Areas) Land Use = Land Need or Supply Remaining, Source: LEES+Associates. A more detailed breakdown of York Region s cemetery land needs gap analysis tables by local municipality is available for reference in Appendix E York Region Cemetery Data Tables. 50

63 KEY FINDINGS CEMETERY SERVICE AREA PRIORITIES A detailed breakdown of York Region s cemetery land need priorities by municipality is available in Appendix E York Region Cemetery Data Tables. The following table highlights the cemetery land need priorities in each York Region service area. 51

64 Table 20: York Region s Land Need Gap Analysis by Regional Service Area, Source: LEES+Associates. 52

65 KEY FINDINGS CEMETERY LAND NEED: BY THE NUMBERS This section provides an overview of York Region s cemetery land need, and the relationships between the existing cemetery land supply (developed area and total land capacity), residential demand and non-residential land use. 1. YORK REGION CEMETERY LAND NEED The following diagram for York Region Cemetery Land Need defines Need as set out by the Region s terms of reference for this study. It identifies the additional land needed or land supply remaining after meeting 25 years of demand with the existing developed land supply and total land capacity. 53

66 2. ACTUAL CEMETERY LAND NEED The following diagram for Actual Cemetery Land Need expands upon Need by including non-resident cemetery land use. This analysis examined two scenarios. The first scenario assumes that non-resident land use will remain at 33% of cemetery volume. The second scenario assumes that non-resident land use will increase to 66% of cemetery volume, as predicted by cemetery stakeholders. Figure 23: Queensville Cemetery, East Gwillimbury, Source: LEES+Associates. 54

67 York Region Cemetery Land Need In summary, according to the parameters set out for need by York Region in this Cemetery Needs Analysis finds that: York Region currently has 419 acres of developed cemetery land available for sale and 761 acres of total cemetery land capacity; York Region cemeteries will use 107 acres of cemetery land to meet the expected resident burial demand (at-need sales) and sell 214 acres of land (atneed and pre-need sales) to York Region residents over the next 25 years. This can be delivered through the currently developed supply of 419 acres of cemetery land available for sale, and There is no need for additional cemetery land on a Region-wide basis to accommodate York Region residents within a 25 year horizon. Actual Cemetery Land Need York Region has cemetery land to meet resident demand until 2041, however, according to the parameters identified by the stakeholders surveyed, there is an actual cemetery land need. York Region has significant cemetery land need gaps associated with specific user groups, regional service areas and local municipalities. In summary, the additional findings of this analysis, which are beyond the scope of this study as defined by York Region, include the following; Northern York communities do not have adequate capacity to meet their communities demand for cemetery land over the next 25 years; Central York communities, with the exception of Newmarket, have just enough capacity to meet their demand for cemetery land over the next 25 years, and Southern York communities have enough capacity to meet their demand for cemetery land in the next years; York Region communities with cemetery land needs (in order of greatest urgency) are listed below: 1. Newmarket is under-served in total cemetery land capacity; 2. Georgina is under-served in total cemetery land capacity; 3. East Gwillimbury under-served in total cemetery land capacity; 4. Aurora is under-served in developed cemetery land, with limited area to develop additional supply, and 5. Richmond Hill is under-served in developed cemetery land, but has the capacity to add more supply. 55

68 Region-wide, assuming an even distribution of cemetery land use, York Region has enough developed cemetery land to accommodate about 45 years of resident demand; York Region has enough developed land for approximately 30 years of resident demand and non-resident use (assuming the historic proportion of 33% nonresident sales does not change in the future); York Region will not have enough developed land for 25 years of resident demand and non-resident use if the proportion of non-resident sales increases to 66% in the future. Non-resident land use is a very important variable in York Region s cemetery market, warranting closer examination in future studies; Region-wide, York Region has enough total cemetery land capacity to accommodate 35 to 60 years of resident demand and non-resident use; York Region cemeteries can expect to sell 319 acres of land between now and the year 2041, assuming the historic proportion of 33% non-resident sales does not change, and York Region cemeteries can expect to sell 629 acres of land to meet between now and the year 2041, if the proportion of non-resident sales increases to 66% in the future. Needs Analysis Accuracy The supply estimates in this study are a high-level approximation of the total cemetery land capacity available to each community. The accuracy of this land need gap analysis is dependent upon the quality of the information provided throughout the consultation process as well as the prevalence of the average benchmark measures assumed across York Region s cemetery system. This analysis is based on benchmarks agreed to by Regional Staff, professional industry consultants and cemetery stakeholders (e.g. the measure of 900 cemetery lots per acre was approved by participants during this study s consultation workshops). It is important to recognize that York Region cemeteries have historically chosen a variety of cemetery designs, some with a lower or higher lot to land yield. York Region cemeteries that offer double depth burials and a wide range of cremation options can expect to have greater land capacity than projected in this study. This analysis conservatively assumes one casket or an average 4 urns will be buried in each single full-sized lot. 56

69 KEY FINDINGS IS THERE A NEED? On a broad regional scale, York Region has sufficient cemetery land to meet its residents cemetery service requirements for the next 25 years. However, there are a number of other factors that should be considered when evaluating cemetery land need. Supply factors that affect cemetery land sufficiency, include: Municipal supply. Five out of nine of York Region s local municipalities will not be able to accommodate the pressure on its developed cemetery land over the next 25 years. Even if all approved land was fully developed, three of these local municipalities will still have a need for additional burial space; Supply distribution. Cemetery land is not evenly distributed across the Region. Some residents will not be able to access cemetery services in their community; User group supply. Some cemetery operators that serve particular user groups (most notably the Catholic Diocese and some private firms) do not have sufficient land at their cemetery sites to meet the expected demand from their customers over the 25 year planning period, and Availability. Certain stakeholder groups own the majority of York Region s cemetery supply. Not all cemetery land is accessible to all York Region residents, creating additional supply limitations. Currently 72% of available cemetery land is owned by religious groups. Some of these cemeteries only bury members of their faith community, which means those cemetery lands are not available for secular use. Examples of this include the 36 acres of land at Richmond Hill s dedicated Muslim cemetery or the 289 acres of Jewish cemetery land in Vaughan. Demand factors that affect land sufficiency, include: Proximity to Family and Community. Families typically choose and prefer to be buried with one another and their community; Religious Beliefs Traditions. The majority of York Region residents have a religious affiliation and some religions have specific burial requirements not offered by non-religious sites. The Catholic Diocese currently expects to run out of land to serve their members in less than 10 years, and Ethnic Traditions. Some ethnic communities (e.g. Chinese and Italian cultures) also have specific interment traditions that can only met at certain sites. 57

70 Cemeteries are unique in that it is the only land use expected to serve a community in perpetuity. For this reason, the measure of sufficiency should extend to at least 50, if not 100 years. The 25 year time frame for this study and the commensurate findings do not fully portray the long term level of cemetery land sufficiency in York Region. In conclusion, this study finds that York Region does not have a region-wide need for additional cemetery land in the next 25 years. However, once family patterns, religious and ethnic factors are taken into account, the Region will not be able to adequately serve the communities in North York regional service area, as well as certain religious groups over the next 25 years. Figure 24: Holy Cross Catholic Cemetery, Markham Source: 58

71 5 CEMETERY POLICY FRAMEWORK With the advancing age of the Baby Boom generation, combined with the increasing population, the death rate in Canada is poised to rise. The number of people expected to die over the next three decades will be greater than anything we have ever previously experienced in this country. The need for cemetery land has never been so urgent, and yet the intrinsic value of cemeteries as places of solace, contemplation and ceremony, as keystones of the urban forest, and crucial parts of open space systems, has not been well articulated in policy or community discourse. In this section of the report, we preface criteria for a framework of policy recommendations with a brief discussion of the social, environmental and financial benefits cemeteries contribute to communities: Cemeteries are a clean, sustainable service sector that generate significant economic benefits for the Region; Cemeteries contribute to a complete community through the narratives, remembrance and commemorations they host, foster and record; Healthy, liveable and safe communities are sustained by: accommodating an appropriate range and mix of residential (including second units, affordable housing and housing for older persons), employment (including industrial and commercial), institutional (including places of worship, cemeteries and long-term care homes), recreation, park and open space, and other uses to meet longterm needs. Provincial Policy Statement, 2014 Cemeteries can enhance the urban forest and habitat while creating landscapes of seasonal beauty, colour and interest; Cemeteries provide places of passive outdoor enjoyment, walking, running and cycling; Cemeteries are places where monumental and ephemeral arts can be displayed and maintained; Cemeteries are an integral part of a healthy community s open space, parks and conservation land systems, and Cemeteries employ hundreds of trained, semi-skilled, and entry level employees, contributing significant economic value to the community. 59

72 Cemeteries can be also be perceived as: Sanitized, featureless, relentless landscapes, sequestered and alienated from the community; Threatening or forbidding places, with vast expanses of burial grounds; Enclaves of sadness, places that reflect unresolved grief, and Landscapes replete with superstitions, arcane symbols and expressions of unfamiliar religious beliefs and traditions. One of the challenges in securing sufficient cemetery lands in York Region, and then planning, developing and managing them, is the general lack of knowledge about the spectrum of experiences associated with death, dying, interment and memorialization. This naiveté underpins a historic lack of interest in or even reference to cemeteries in Ontario s legislative and planning instruments. Not that Ontario is unique; this is a problem in many places across the world. A robust policy framework that acknowledges the community benefits and perceptions of cemeteries, is needed for York Region and all local municipalities within the Region. This section of the report focuses on the critical thresholds associated with cemetery lands, the Provincial legislative barriers to planning for cemeteries, siting criteria for cemeteries, and a policy framework for the development of cemeteries within York Region. Activity and Recreation in Cemeteries York Region recognizes that walking/hiking and cycling are among some of the most popular and fastest growing activities for residents. People are recognizing the importance of natural heritage experiences to their quality of life and are associating their measure of fitness and improved health with active recreation and active transportation. York Region Pedestrian and Cycling Master Plan Study, 2008 There are opportunities for Cemeteries to act as natural heritage areas that provide opportunities for recreation and active transportation. 60

73 CEMETERY LANDS CRITICAL THRESHOLDS The legislative and planning context within which Ontario cemetery lands are designated, acquired, designed and developed, is critical in determining how those that live in the province can plan end-of-life rituals, conduct dispositions, and create memorials to others that have passed away. York Region is at an important crossroads in terms of space for interment. There is a declining amount of land suitable for cemetery purposes that is available within York Region, and increasing competition for these lands. The urgency to address the need for new cemetery space in York Region is based on the following: Approximately 232,000 people will die in York Region in the next 25 years; At today s cremation rate of 62% (rising at a rate of 2% a year up to a maximum of 80%): o o 91,000 casket graves will be needed to meet the need of York Region residents that choose in-ground burial in the next 25 years, and 101 acres will be needed to accommodate those 91,000 casket burials in the next 25 years, as well as additional space for those choosing the burial of cremated remains in separate lots. Approximately 928,000 people will die in York Region in the next 100 years, and At today s cremation rate of 62% (rising at a rate of 2% per year up to a maximum of 80%): o o 360,000 casket graves will be needed to meet the need of York Region residents those that choose in-ground burial over the next 100 years, and 400 acres will be needed to accommodate those 360,000 casket burials in the next 100 years, as well as additional space for those choosing to bury of cremated remains in separate lots. Figure 25: Cycling at Mount Pleasant Cemetery, Toronto. Source: LEES+Associates. 61

74 The need for cemetery land in York Region will soon reach a critical stage in the communities of Newmarket, Georgina, East Gwillimbury, Aurora and Richmond Hill. Within these communities, there are municipal, religious and commercial cemeteries that are essentially out of land. Of those that are not, most will be within the 25 year horizon of this plan. The few with space beyond this will almost certainly be full by At this time, there is no plan for how to accommodate the deaths that will occur in these communities when the current capacity is expended. Perhaps more challenging and concerning is that existing legislation is largely silent with respect to cemeteries. Those that do acknowledge this land use are weak or out of step with the importance of the bereavement sector in our society. Compounding the gap in legislative policy is a general lack of literacy regarding the reality of death, bereavement and memorialization in the contemporary context. Over the past 100 years, North Americans have become profoundly distanced from death and dying. The gradual turning over of death and disposition to the undertaker (who undertake the necessary tasks associated with death and disposition) was the beginning of our distance from most aspects of the death and dying processes. As a result, when the issue of cemeteries, crematoria and other essential bereavement infrastructure is discussed, the first challenge is to break through the discomfort and unease that many feel towards addressing death. It is within this context that the following evaluation of legislative and social barriers to planning for cemetery land is discussed. Figure 26: Green Burial Section - Royal Oak Burial Park, Victoria, BC, Source: LEES+Associates. 62

75 LEGISLATIVE BARRIERS There are multiple barriers within legislation at almost every level of government that impair planning, acquisition and development of cemetery lands. We use legislation to include policies, acts and associated amendments that address both the spatial, procedural and regulatory aspects of disposition and interment. Many, but not all of these, are planning instruments. The largest barrier is the absence of sufficient direction stating that the use of land for cemetery purposes is not only legitimate, but a keystone of community infrastructure. A coordinated strategy ensuring adequate space and places for burial, ceremony, and memorialization does not exist in provincial or regional plans. It is only occasionally present at the municipal level. The challenges of upcoming burial demand coupled with the lack of cemetery land are well documented by planners, landscape architects and others. The work of Larkin & Associates, Hilton Landmarks, and LEES+Associates offers substantiated evidence. The lack of sufficient reference and specificity regarding cemeteries in the Provincial Policy Statement (PPS) and often even in Official Plans is compounded by two additional issues: The limited planning horizons, and The permanent nature of cemeteries. Typically, most land use plans forecast need and generate responses within a time range of 25 years. And yet cemetery land use cannot readily change, in law and in practice, cemetery lands are purchased and maintained in perpetuity. Clearly, a much longer planning horizon is warranted. The following section is a description of the various constraints and opportunities that are present within existing Provincial legislation in Ontario. A table outlining Provincial legislation can be found in Appendix F Policy Analysis Tables. 63

76 PROVINCIAL POLICY STATEMENT (PPS) 2014 Constraints In the PPS, cemeteries are referred to as an institutional land use. The lack of direct reference to cemeteries makes it difficult to ascertain the intended direction the PPS is taking regarding the siting and development of cemeteries, and The PPS states that a range of land made available in a local municipality will meet the projected needs of a community for approximately 20 years. This presents a challenge when planning for cemeteries, as the planning horizon for a cemetery should be 100 years. Opportunities The PPS gives options for the expansion of settlement areas as the need arises based on whether land use needs are being met for a municipality; It is an option to assess whether land required to meet the projected needs of a population can be found via the use of prime agricultural areas. One way this would be possible is by removing land from prime agricultural areas and transitioning this land into expanded settlement areas. This infers that it is possible to use prime agricultural land areas for the siting of cemeteries, as long as the lands are not specialty crop lands and there are no reasonable alternatives on lower priority agricultural lands. Cemetery lands also need to be in compliance with the minimum distance separation formulae, and impact from expanding settlement area/land use on agricultural operations is mitigated to the extent feasible; For non-agricultural uses of agricultural land there are also requirements for appropriate water and sewer servicing. This would not be an issue with a cemetery as this land use requires minimal infrastructure, a well and septic system are often all that is required and other infrastructure (e.g. sidewalks and extensive utilities) are not necessary at a cemetery site; A cemetery can often enhance natural heritage and provide opportunities for enhanced biodiversity and connectivity of the natural heritage system. Therefore, there need not be any negative impacts on these natural elements within an agricultural area, and The siting and development of new cemeteries is in line with policies within the PPS relating to economic development and competitiveness of a community. As institutional land uses (cemeteries) are seen as providing for the long term needs of a municipality and positively contributing to economic development. 64

77 OVERVIEW OF GUIDELINES ON PERMITTED USES IN ONTARIO S PRIME AGRICULTURAL AREAS (2015) FROM PPS According to the guidelines for permitted uses in Ontario s Prime Agricultural Areas, it is possible to change the land use from prime agricultural land to other uses, when there are no reasonable alternatives outside of prime agricultural areas. In this type of circumstance, lower priority agricultural areas would be assessed first. The procedures outlined within the guide for identifying lower priority agricultural land also need to be followed. Opportunities It is possible to remove land from prime agricultural areas in order to create expanded settlement areas. Under the policies outlined within the PPS, if it is proven that there are no reasonable alternatives to using prime agricultural land for cemetery development, then lands can be removed - ideally from lower priority agricultural lands - and be renamed as settlement areas and then used for the cemetery development, and Renaming lands is one way in which the Greenbelt Plan can be accomodated. The key is in removing the title of prime agricultural land from land to settlement areas in order to use the land for any non-agricultural purposes. It is important to ensure that lower priority agricultural land is used when possible. Removal of land from prime agricultural areas can only be considered where there are no reasonable alternatives outside of prime agricultural areas. In that instance, lower priority agricultural lands within prime agricultural areas must be identified. If there are insufficient growth opportunities within existing settlement areas and on rural lands outside of prime agricultural areas, lower priority (i.e. poorer quality) land within prime agricultural areas needs to be identified and evaluated. Guidelines on Permitted Uses in Ontario s Prime Agricultural Lands, Ministry of Agriculture, Food and Rural Affairs, 2015 To enable use of these lands, it is important to allow cemeteries as a non-agriculture lands use on lower capability lands, removing the land economy issue. These lands have a high market value. Redesignating land as settlement areas will increase its value and making them more out of reach financially for cemetery development. 65

78 OAK RIDGES MORAINE CONSERVATION PLAN (ORMCP) According to the Oak Ridges Moraine Conservation Plan, small scale cemeteries are allowed on Countryside Area land designations within the Oak Ridges Moraine Conservation Area. However, cemeteries are not presently permitted on Natural Core and Natural Linkage Designations. Constraints There is no definition of what constitutes small scale cemeteries to assist with the interpretation of the policies, other than the reference to serving the local area. In addition, no guidance is provided in a policy context for the provision of cemeteries of the size and scale desired by larger cemetery service providers. It would be beneficial for the policy to further define what constitutes the development of a small scale cemetery and specifically what type of cemeteries could be implemented on a smaller site. Opportunities The Oak Ridges Moraine Conservation Plan provides for the development of small scale cemeteries within the Countryside designation, the intention is for such cemeteries to serve the local population only. The advent of Green (natural) Burial areas and conservation areas across North America may mean that this type of cemetery could be suitably located in Greenbelt and ORMCP areas in the future. Figure 27: Ontario Rural Lands east of Yonge and Highway 404, Source: LEES+Associates. 66

79 GREENBELT PLAN The Greenbelt Plan presents significant constraints when it comes to cemetery development for the current needs of York Region. Constraints Prime Agricultural Areas within the Greenbelt cannot be re-designated for nonagricultural uses. Therefore land within the Greenbelt that is designated as rural can be used for cemetery siting, however land within the Greenbelt designated as prime agricultural could not be used for cemetery development. This issue needs to be addressed during the 10 year review of the Greenbelt Plan and also discussed with the Ministry of Municipal Affairs and Housing, and It is likely that the only way to meet the long term cemetery needs of York Region is through the use of prime agricultural land for siting cemetery development. Opportunities Non-agricultural uses are allowed within Rural Areas of the Greenbelt and proposals for cemeteries have to demonstrate that: o o o The use is appropriate for location in a rural area; The servicing proposed is appropriate for the type of use, and There are no negative impacts on natural and hydrological features and that there are no negative impacts to biodiversity. It would be possible to demonstrate that cemeteries are an ideal land use within a rural area as the open space nature of cemeteries is complimentary to other existing uses in rural areas. The infrastructure required for cemeteries is minimal and the servicing required to maintain cemeteries does not disrupt existing agricultural or rural land uses, and Cemeteries can have positive impacts on natural and hydrological features, and can contribute to enhanced natural features and the preservation of open space. 67

80 YORK REGION OFFICIAL PLAN Currently, York Region s Official Plan, 2010 focuses on policies within the Greenbelt Plan which allow cemeteries to be developed within the Rural Areas of the Greenbelt. There are additional approaches that could be taken based on the existing Provincial legislation. These approaches are outlined in the following Policy Framework and Recommendations of this report. A NEW APPROACH IS REQUIRED A multi-pronged strategy is needed to meet the demand for new and expanded cemetery lands. The limited supply of land to meet all of the rapidly growing needs across the community has to be managed with care and an eye to the long term (100 years-plus) with respect to cemetery lands. Some communities are running out of burial space. Few communities have viable plans to acquire and develop cemetery property. Discussion on this issue is primarily absent, and when it does occur, it is compromised by a lack of comfort and understanding about matters of death, dying, interment and memorialization. So the challenge is: how can York Region plan for sufficient cemetery service demands of its residents, knowing the supply of cemetery land is diminishing? Further, how can the equitable supply of cemetery lands be planned such that Region residents can expect a cemetery in reasonable proximity to their community, or at least within their Regional Service Area? The framework outlined in this chapter addresses this challenge within the limits of the existing legislative context and the willingness of residents to alter their interment and memorialization choices. Figure 28: Highland Hills Memorial Gardens, Gormley, Ontario. Source: LEES+Associates. 68

81 We propose a framework that is founded on: Principles of cemetery land use, designation and design; York Region and local government planning and management context, and Innovative solutions and processes. York Region s Cemetery Policy Framework should be based on the following principles: 1. Accommodate the anticipated need for interments by York Region residents projected over a long term horizon; 2. Promote the interment and memorialization traditions of all residents; 3. Promote the diversity of cemetery services and service providers; 4. Situate cemeteries within reasonable distances from population centres; 5. Site cemeteries to maximize their benefits and minimize any challenges to the community; 6. Locate, size, organize and design cemeteries to meet multiple objectives; 7. Acknowledge the existing and future long term presence of the cemeteries; 8. Capitalize on the value of cemeteries as part of complete, sustainable communities; 9. Optimize the environmental value of cemeteries, and 10. Engage stakeholders and government in ongoing contributions to sustainable cemetery systems. Ice Candles Festival of Lights, Kenora, ON The Ice Candle Festival of Lights occurs at the Lake of Woods Cemetery in Kenora and is a celebration of the memories of lost loved ones. Ice candles are purchased or made by community members and placed at loved one s gravesites; Candles are also purchased for deceased loved ones that are elsewhere and their name can be added to a Memory Wall, and People are also encouraged to purchase a candle for the older gravesites with no living relatives and for veterans. Figure 29: Ice Candle Festival, Source: 69

82 POLICY FRAMEWORK + RECOMMENDATIONS The proposed recommendations that follow are organized within this framework of policy objectives: Location and Size; Development Criteria and Process; Environmental Stewardship, and Leadership and Advocacy. LOCATION + SIZE Rationale As the demand for cemetery services increases over time, policies and actions are needed that will deliver sufficient cemetery land, and at the same time articulate expectations for all those associated with planning, designing and providing cemetery services. York Region Service Areas In Chapter 4, three York Region Service Areas were identified as part of the analysis of need for cemetery land on a region-wide basis. Nonetheless, York Region should plan sufficient lands for cemetery purposes such that residents can be buried and memorialized close to the community they call home where possible. Given the lack of available lands and other restrictions, this and future generations may have to be buried at a greater distance from their home than they were able to in the past. The Woodland Cemetery, Stockholm, Sweden The Woodland Cemetery was designed and developed by Gunnar Asplund and Sigurd Lewerentz between 1917 and This cemetery provides a unique blend of natural, environmental and architectural features. The cemetery was built on a former gravel pit, and In 1994, the site was placed on the UNESCO world heritage list and deemed a site of cultural and natural heritage of universal value. Figure 30: Woodland Cemetery, Source: en.stockholm.se/ & 70

83 Policy Objectives To locate cemeteries so that their multiple benefits are optimized, community need is met within a reasonable proximity to each community (ideally within each local municipality, at a minimum within their Regional Service Area) and within reasonable proximity to interment options for each faith community; To locate cemeteries on lands that are suited for interment, are affordable, and that will not be a burden on infrastructure; To separate cemeteries from incompatible land use, and To size cemeteries and areas within cemeteries so that meaningful, interesting places of remembrance can evolve. Figure 31: Newmarket Cemetery, Source: LEES+Associates. All recommendations in this section consider all applicable legislation in York Region, including but not limited to, Municipal, Regional and Provincial Plans and Policy Statements discussed in this chapter, the Funeral, Burial and Cremation Services Act (FBCSA), as well as the Accessibility for Ontarians with Disabilities Act (AODA). Recommendation #1: Implement the following size and location criteria for new and expanded cemeteries shown in Table 21, on the following pages. 71

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86 Table 21: Location and Siting Criteria Summary Table, Source: LEES+Associates. 74

87 Towards Sustainable Cemetery Services Although the bereavement sector would prefer large (100 acre plus) tracts of land, this is rarely realistic due to the increasing shortage of lands available for cemeteries, the cost of assembling large tracts and push-back from the community over large cemeteries and their visual impact. Given the pending shortage of lands suitable for cemetery uses, York Region should create policies that allow for cemetery use on some agricultural and rural lands, woodlots and/or lands presently managed by the Conservation Authorities. The actual percentage of these lands that would be consumed for cemetery purposes would be relatively minor, and the environmental benefits as well as the community benefits from these sites as cultural landscape could be significant. 75

88 Recommendation #2: Greenbelt Plan land use designations in York Region are shown in Figure 33. It is a part of the broader Provincial Greenbelt Lands system, a section of which is shown in Figure 34. Expansion of cemeteries and new cemeteries should be allowed on lands designated by the Province, in York Region as Greenbelt Protected Countryside, (Figure 33) as well as the non-agricultural Countryside Area of the Oak Ridges Moraine (Figure 34), if the cemetery proponent satisfies the following criteria: The approval requirements listed in the Development Criteria included later in this framework, plus: Certification for Green Burial as specified by the Green Burial Council or a Canadian equivalent; Habitat enhancements and protection that meet or exceed the most recently approved plan by the governing jurisdiction(s); Public access that meets or exceeds the most recent municipal Cemetery Master Plan requirements, or if a Master Plan does not exist, public access that enhances non-motorized movement through the proposed cemetery; Vegetation and tree canopy targets that meet or exceed York Region s Greening Strategy, or municipal Urban Forest Strategies, whichever are greater, and Cemetery sites have a maximum size of 50 acres. York Region Greening Strategy: Provides a context for Regional decision-making that supports a sustainable, natural environment; Forms partnerships to drive policies related to Greenlands and natural heritage features into action; Provides a framework for initiatives to restore habitat, increase forest cover, secure Greenlands and their linkages, and promote and protect the natural environment, and Demonstrates strong environmental leadership. The Regional Municipality of York - Greening Strategy, Inspiring Change, 2012 Figure 32: York Region Forest, Source: 76

89 Figure 33: Map of the Greenbelt Lands within York, a Regional Perspective, Source: York Region. 77

90 York Region Figure 34: Provincial Greenbelt Lands, Oak Ridges Moraine and Niagara Escarpment Plan Area Map, York Region, Source: Ontario Ministry of Municipal Affairs and Housing. 78

91 Recommendation #3: When there are no reasonable alternatives, demonstrate the need to remove prime agricultural lands in the Greenbelt to use these lands for cemetery development, as long as these lands are not specialty crop areas. Ensure that lower priority agricultural lands are considered for cemetery purposes prior to prime agricultural land. DEVELOPMENT CRITERIA + PROCESS Rationale Criteria are required when a proponent is considering development of a site for cemetery purposes. Assuming the siting criteria have been satisfied, the proponent needs to know what is required as conditions of approval, in terms of analysis and levels of planning details. The community and residents also need to know the process the proponent will be required to undertake. Policy Objectives To develop cemeteries to meet the needs of all faiths, traditions and secular populations; To develop cemeteries that support and enhance sustainability and goals for complete communities; To develop cemeteries that are attractive and fit into the surrounding landscape; To consider and approve cemeteries that meet as many social and cultural objectives as possible, and To encourage cemetery development, that further environmental objectives. 79 A Night for All Souls, Mountain View Cemetery, Vancouver, BC A Night for All Souls is a cultural event at Mountain View Cemetery that engages the residents of Vancouver and achieves the social objective of community connection. Some events that take place during All Souls include: Memorial lantern making workshop; Opening with music, tea flowers and candles; Walking tour of Mountain View Cemetery, and Storytelling on understanding death and dying. Figure 35: Night for All Souls Event Images, Source: nightforallsouls.com.

92 Figure 36: Night for All Souls Event Images, Source: Recommendation #4: Implement the cemetery site development criteria for expanding and new cemeteries, as shown in Table 22, on the following page. Figure 37: St-George Anglican + Sibbald Memorial Cemetery, Source: Regional Municipality of York. 80

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94 Table 22: Cemetery Development Criteria Summary Table, Source: LEES+Associates. Recommendation #5: In addition to the document requirements outlined as part of cemetery development criteria for expanded cemeteries in Table 22, York Region should encourage every service provider to prepare the following documents: Current (within last 5 years) Cemetery Master Plan; Landscape/Restoration Plan; Funeral, Burial and Cremation Services Act (FBCSA) requirements; Invasive Species Strategy; For cemeteries of greater than 50 acres: Transportation Impact Assessment and a Geo-technical Report; Land Use Compatibility and/or Planning Conformity Report; Hydrology Report, and LIDAR Survey for the entire property and Association of Ontario Land Surveyors (AOLS) survey for Phase I and II development. 82

95 Recommendation #6: Encourage every local municipality, either independently or in partnership with adjacent municipalities, to draft cemetery master plans, whether or not they operate their own cemetery. These master plans are a useful tool in identifying opportunities to optimize existing cemetery land supply and should include: A description of the community and the cemetery services required; Needs analyses that are updated every 10 years that includes: o 25 year and 50 year death and disposition projections; o Land inventory, capacity and future land needs projections; o Service sector analyses (including consideration of faith, geographical and private, non-profit, municipal delivery); In-fill strategies for existing cemeteries; A range of cremated remains and green burial interment options; LIDAR level survey for all properties; Site opportunities and constraints analyses including slope, landform, and vegetation, adjacent use compatibilities/conflicts etc. Site plans for all properties at the concept level of detail; Phases of proposed cemetery development and expansions; Current and proposed building locations, sizes and uses; Road, pathway and entry locations and design standards as per the development criteria above; Internal and external buffer area plans, and Landscape management plans encompassing vegetation and tree planting strategies that meet or exceed the above development criteria as well as habitat enhancement and invasive species strategies as per municipal strategies. Recommendation #7: As a condition of approval of any cemetery expansion, or a new cemetery larger than 5 acres, the proponent should conduct a community engagement program to promote and gain support for the cemetery expansion or proposed new site. 83

96 Recommendation #8: Encourage local municipalities to allow and service providers to develop multistorey mausolea and columbaria in town centres and settlement areas by: Encouraging local municipalities to amend their land use bylaw to allow this use, and Drafting new setback, parking and access requirements for indoor mausolea/columbaria; Recommendation #9: Encourage all local municipalities to institute discounts for residents of their municipality when purchasing any cemetery services such as in-ground graves or cremated remains interment options. Recommendation #10: Ensure that cemeteries provide ample parking at peak times such as during a funeral, crematoria and celebration hall/chapel events. Parking is required to meeting AODA standards and the needs of site staff. Figure 38: Green Burial at the Union Cemetery, Cobourg, Ontario. Source: Louise Bell, Denman Island Memorial Society. 84

97 ENVIRONMENTAL STEWARDSHIP Rationale Cemeteries are a keystone of York Region green infrastructure. Currently, there are 203 cemeteries in the Region and many are essentially cultural or heritage landscapes. All of them contribute to ground water recharge, absorption and retention of stormwater and many provide much-needed tree canopy coverage, as well as wildlife habitat. Given the increasing pressure on land with habitat and amenity value, it is imperative that cemetery lands be planned, designed and managed to optimize the environmental benefits they offer. Policy Objectives To optimize the amenity and recreational role and function of cemeteries in the fabric of open spaces and undeveloped lands across the region; To enhance the urban forest and its associated ecosystem services through improved canopy coverage in cemeteries; To create places of seasonal interest that attract those with family members buried at the cemetery and other visitors alike; To create outdoor classrooms where learning about natural systems, history, local traditions and culture, can occur, and To enhance habitat value in cemeteries. What is Green Burial? Green or natural burial is based on the intent to minimize the environmental impact of death, disposition and interment. Green burial is: 1. Historically, how most families interred their deceased; 2. One of the many options supporting meaningful end-of-life rituals; 3. A growing trend that reflects the values of people from all walks of life, and 4. An environmentally sensitive alternative to conventional burial and cremation. The five core principles of Green Burial are: o No embalming; o No outer burial container; o A fully biodegradable casket or shroud; o Minimal to no memorialization, and o Ecological restoration. 85

98 Recommendation #11: Encourage local municipalities to include municipal cemeteries in their urban forest enhancement plans. Recommendation #12: Encourage non-profit, faith-based and commercial cemeteries to participate in urban forest canopy cover initiatives. Recommendation #13: Leverage the ability of cemetery lands to retain moisture and recharge groundwater by encouraging appropriate site grading, retention ponds, swales and rain gardens with absorbent soils in all new and expanded cemetery plans. Recommendation #14: Encourage all cemeteries to plant a range of native and non-native species that create seasonal interest, provide habitat and feed for birds, and have medium to long maturities. Recommendation #15: Minimize impermeable areas by establishing maximum paved road widths (5.5 metres) by encouraging the use of permeable paving systems, and removing redundant roads for use as new infill burial areas. Recommendation #16: Encourage heritage groups to actively support the care of historic, closed cemeteries, including the preservation of old headstones. 86

99 LEADERSHIP + ADVOCACY Rationale Gaps of understanding exist with respect to cemeteries, interment practices and bereavement services in general. This compounds the fact that some of the basic tenets of cemetery planning have yet to enter or be sufficiently integrated into the Provincial, Regional and Municipal plans and associated bylaws. There is a need for education from the professional ranks through to the community level as well as leadership across all levels of government so that sufficient, meaningful, well considered cemetery services will be available to this and future generations of York Region residents. Avenues of engagement and understanding are required to expand the knowledge of cemetery services and to better serve the community s cemetery and bereavement needs. Policy Objectives To create multiple opportunities to expand the crucial role of cemeteries and their multiple functions in complete communities; To integrate fundamental principles of cemetery planning across the spectrum of policy instruments, and To create processes and points of engagement for all stakeholders interested in and associated with provision of cemetery services and use of cemetery sites. 87 PPS FACT OR FICTION? : The Provincial Policy Statement, 2014 does not allow cemeteries in prime agricultural areas. FICTION The Provincial Policy Statement, 2014, recognizes cemeteries as an important component of healthy communities (Policy b) and clarifies that cemeteries are a permitted use on rural lands (Policy ). The Provincial Policy Statement, 2014 has a provision to permit limited non-residential uses, such as cemeteries, within prime agricultural areas only if a set of criteria can be met (Policy 2.3.6). These criteria include: demonstration of need; the proposed site is not in a specialty crop area; consideration of reasonable alternative locations that avoid prime agricultural areas or impact lower priority agricultural land; and meeting the requirements of the minimum distance separation formulae. Provincial Policy Statement 2014: Rural Ontario Draft for Discussion

100 Recommendation #17: Incorporate the cultural, health and environmental benefits of cemeteries in the update of York Region s service plans, budgets and strategies. Recommendation #18: Encourage local municipalities to incorporate the cultural, health and environmental benefits of cemeteries in the update of their service plans, budgets and strategies. Recommendation #19: Encourage those local municipalities that operate cemeteries to synchronize their business plans with the Cemetery Master Plans recommended above in order that their short and long term sustainability be achieved. Recommendation #20: Take a leadership role with local municipalities and service providers by: Sharing long term growth projections with service providers; Convening a summit of service providers and local government every 2 years to discuss trends, needs and issues facing all stakeholders associated with provision of cemetery services, and Chair a cemetery advisory group that identifies issues and generates solutions associated with cemetery services. Recommendation #21: Update the appropriate Provincial Ministries as to York Region s challenges associated with long term planning for sufficient cemetery land, including: Extension of cemetery planning horizons to at least 50, if not 100 years; Integration of the concept of permanence in all cemetery land planning; Inclusion of cemeteries as a legitimate land use on agricultural lands within the ORMCP and Greenbelt lands; 88

101 Allowing removal of land from agricultural areas and the transition of this land into rural areas as opposed to settlement areas in order to allow use as cemetery lands; Use of closed gravel pits, land fill sites and other brownfields for cemetery purposes, and Limitations and/or mitigation of provincial road expansion adjacent to cemeteries. Recommendation #22: Promote greater acknowledgment, focus and inclusion of cemetery planning during any significant review period such as the 10 year Greenbelt Review and the Comprehensive Review (Official Plan Review) process. Recommendation #23: Update York Region s Cemetery Needs Analysis every 10 years to enable the Region, local municipalities and the Province to plan with the best available data regarding cemetery land needs in York Region. 89

102 CONCLUSION This report outlines the urgent need for land use policies that will lead to the provision of sufficient cemetery lands for the current and future generations of York Region residents, as well as those from adjacent communities choosing to be interred there. Approximately 300 acres of cemetery space will be used over the next 25 years. Depending on the cremation rate and alternate forms of disposition, this study has determined that approximately 1,100 acres of cemetery land will be needed over the next 100 years in York Region. These policies are required at both the Regional and Municipal levels. Ideally, the Province will also be engaged and involved with supporting these future land use policies. The recommendations outlined in this Cemetery Needs Analysis and Policy Framework provide a road map to guide policy and planning for the next 25 years, enabling the Region to plan for a sustainable cemetery system that will meet the Region s expected community needs for cemetery services over the foreseeable future. Figure 39: The Woodland Cemetery, Stockholm, Sweden Source: 90

103 APPENDICES 1. APPENDIX A STAKEHOLDER CONSULTATION 2. APPENDIX B SOURCES + METHODOLOGY 3. APPENDIX C ACTIVE CEMETERY PROFILES 4. APPENDIX D YORK REGION CEMETERIES MAP 5. APPENDIX E YORK REGION CEMETERY DATA TABLES 6. APPENDIX F POLICY ANALYSIS TABLES 7. APPENDIX G GLOSSARY OF CEMETERY TERMS 91

104 APPENDIX A STAKEHOLDER CONSULTATION Summary of Stakeholder Consultation Engagement Events Workshop 1: July 22 nd, 2015 Municipal Stakeholders Workshop July 23 rd, 2015 Private + Religious Stakeholders Workshop Online Survey August 2015 Workshop 2: October 19 th, 2015 Cemetery Industry Stakeholder Workshop All qualitative and quantitative feedback provided during the stakeholder consultation process was documented and analyzed. The following section provides the documented feedback collected. This is not an exhaustive summary of all feedback received and is meant to serve of an example of the input provided. 92

105 E. Lees & Associates Consulting Ltd. York Region Cemetery Needs Analysis & Policy Framework July 22 nd 2015 Municipal Stakeholder Workshop Notes Date: Wednesday, July 22 nd, 2015 Time: 8:45 am - 2:00 pm Location: Aurora Cultural Centre, Aurora Attending: Teresa Cline, (TC) Senior Planner, Policy & Environment Planning and Economic Development Corporate Services, Regional Municipality of York; Sandra Malcic, (SM) Manager, Policy & Environment, Regional Municipality of York; Mike Leonard, (ML) Senior Associate, LEES+Associates, Cemetery Planners, Catriona Hearn, (CH) Senior Associate, LEES+Associates, Cemetery Planners Confirmed Stakeholder Attendees: 93

106 E. Lees & Associates Consulting Ltd. A total of 23 representatives of nine local municipalities and municipal cemetery operations attended (out of 55 invited) along with two representatives each from York Region and LEES+Associates. Meeting Notes: 9:00 am Welcome, Project Purpose and Introductions Workshop hosts (Representatives of York Region and the consultant team) introduced themselves and thanked participants for attending the event; A brief overview of the purpose of the Workshop was given: To provide input on behalf of their organizations regarding cemetery needs, planning policies, and criteria for siting potential new cemeteries in York Region; L+A noted that data is to be collected from all municipal cemetery representatives in order to determine the current amount of unused interment capacity in each municipality and in York Region overall (to be collected via Survey Monkey questionnaire) within next few weeks, and Attendees were asked to state their name and organization and their reason for attending the workshop. As well, they were asked say what came to mind when they thought of the word, cemetery. Responses varied but most reported positive words, such as quiet, peaceful, and history. 9:30 am Presentation by LEES+Associates on Cemetery Planning Trends LEES+Associates delivered a PowerPoint presentation that covered the following: Project Background 2014 Municipal Comprehensive Review to update Official Plan (OP) Need to Update Regional Forecasts to Project Objectives (Summary) 1. Create an inventory and determine the capacity remaining in existing cemeteries; 94

107 E. Lees & Associates Consulting Ltd. 2. Determine future cemetery needs to accommodate York Region s anticipated needs to 2041, and 3. Develop criteria and a recommended policy frame- work to meet identified needs and direct the siting and development of expanded or new cemetery uses. Project Timeline Five phases, beginning June 2015: Phases 1 3: ( Identify Issues ) through Aug, followed by Phases 3 4 ( Possible Solutions ) through Sept and Phases 4-5 ( Preferred Strategies ) Nov to Jan 2016, with final report to Council March Cemetery Planning (Summary) Trends in cemetery planning and design were illustrated with slides and described by L+A, including: 1. The continuing rise in the cremation rate; 2. The aging of the Baby Boom generation; 3. Rising expectations: demand for choice, personalization and meaningful places of remembrance; 4. Increasing life expectancy; 5. Increasing diversity of traditions; 6. Smaller, more mobile families; 7. Increasing standards of living and disposable income; 8. The push for financial transparency and accountability ; 9. A desire for more environmental options; 10. Funerals as celebrations of life; 11. Growing interest in sustainable cemetery practices, and 12. Cemeteries as places for the living - as cultural landscapes, environmental open space, and as venues for community uses and events. 95

108 E. Lees & Associates Consulting Ltd. Key Findings (Summary) L+A presented slides outlining the key findings regarding cemetery needs in York Region according to: Age Profile A relatively young community; Ethnic Profile Top Five: Chinese, Italian, English and Scottish (37% visible minorities); Religious Profile 56% Christian; 23% no affiliation; Hindu, Jewish and Muslim all ~5%; Population Growth Relatively high, at 2% per year; Death Rate 4.2 per thousand (low due to age profile); Cremation Rate 57% in York; 63% in Ontario overall; York Region s Historic Cemetery Market by each of the nine local municipalities highest in Georgina (80%) and lowest in Vaughan (21%); York Region s Market Capture (Caskets: Cremation interments ) 90% of caskets and 20% of cremated remains (disposition of balance not recorded by any agency); York Region s Historic Cemetery Demand last 5 years, annually: 2,600 casket interments and 2,000 cremation interments; York Region s Future Cemetery Demand Growth to slow to 1.5% and 173,000 deaths projected; Current Supply Estimate 18 active York Region Cemeteries are over 5 acres in size; Demand Estimate ,000 caskets and 101,000 cremations, translating to 64,600 casket interments and 20,250 cremation interments; The final slide depicted York Region Cemetery locations (approximately 180 identified; not all sites have been yet been mapped). 10:30 am Coffee Break Attendees took a short break to enjoy refreshments provided by York Region. 96

109 E. Lees & Associates Consulting Ltd. 10:45 am General Discussion arising from Presentation Questions were addressed by representatives of York Region and the consultants. The following points were discussed: How do you identify need? (Demographics and burial trends); How interim uses are integrated into planning; Why not planning for cemeteries? Designation may be challenged at Board; Reserve? Conclude: no need Is that possible? Caskets - driving space requirements; Vaults (crypts) make grave reuse difficult; How do you reuse? 4 dispositions/grave (1 casket + 4 cremations) remove first interment and place new interment Can a municipality regulate density? No, not much say on interments - S.41 SP boundary only is shown at Registrar s office; Need to make sure little guys aren t hurt when big cemetery companies come to area; Can t go into ORM, Greenbelt and urban land is too expensive. Buy in Whitebelt then have to plan around; Greenbelt is the answer; Cemetery planning for years in the future; Woodlots Natural Heritage Protection; This study presents an opportunity to address cemetery policy in a significant way, and Can we dictate how industry delivers service zoning bylaw criteria? 12:20 pm Working Lunch and Breakout Groups Four tables were set up for group discussions over lunch provided by York Region. One representative from York Region or L+A facilitated the discussion at each table, based on the following table questions: 1. Over the past 5 years, what trends have you noticed? 97

110 E. Lees & Associates Consulting Ltd. 2. Given the demand at your cemetery site(s), do you feel that your organization has enough inventory supply to last: Less than 5 years; 10 years; 15 years; 20 years, and More than 25 years. 3. What opportunities do you see for developing new cemetery sites for your community? 4. What challenges do you see in siting new cemeteries for your community? 5. What key criteria do you think should be included in a cemetery siting policy for your community? 6. What additional feedback would you like to offer regarding this project? 2:45 pm Reporting Back and Discussion (Summary) Key points included: Question 1: What trends have you noticed? Seeing increasing cremation interments and non-christian burials; Cremation consumes a lot less land; Return to simpler alternatives vs fancy cemeteries; Cremation driven by family values, not cost; If cremated remains are scattered, there is no place for families + friends to visit; Cremation families want a site that looks like a real grave (headstone etc.); Cemetery planning need longer planning horizon than 25 yrs. (2-500 yrs.) for multigenerational burials; Seeing demand from specific faith groups for their own cemetery sites; Inadequacy of care and maintenance funds (cemetery maintenance could eventually become a municipal responsibility); Genealogy as a driver for interest in cemeteries, and Impact of technology in cemeteries is starting to be felt. 98

111 E. Lees & Associates Consulting Ltd. Question 2 (Not addressed at Workshop; Answered by cemetery operators on Survey Monkey questionnaire.) Question 3: What opportunities do you see for new cemetery sites in your community? Limited to no opportunities under current planning legislation; Cemeteries seen as the lowest priority by planning departments; Historically, no need to designate cemetery lands - cemeteries built in rural areas; Current policies are reactive rather than proactive; Schools, cemeteries and parks have similar historic land needs and uses (a community resource that everyone expected to have within a reasonable proximity to their community, and were an accepted part of the community, like other municipal land uses); Cemeteries should be reintegrated back into community (some types easier than others); Issue may stem from who is operating the cemetery, and Memorial Park more acceptable term than cemetery. Question 4: What challenges do you see in siting new cemeteries? OP reflects Provincial policy which restricts the number of land uses including cemeteries through the PPS, and the Greenbelt, Oak Ridges Moraine Conservation Plan and Places to Grow policies; At the same time, the fact that cemeteries don t require municipal infrastructure discourages local municipalities from approving land use changes to accommodate cemeteries within the 20 year growth boundary; Planning for a 20 year framework is too short to accurately project future demand; Conflicts between cemeteries and other best land uses; Cemetery needs across entire GTA will affect demand for cemetery space lands in York Region; NIMBYism; Non-traditional service delivery needs specifications (not compliant with regulations). Should density be the criteria for casket space? 99

112 E. Lees & Associates Consulting Ltd. Cemeteries are not well supported by local municipalities as they are exempt from paying property tax; Increasingly hard to site cemeteries; Competition with developers to acquire land, and Quality design should be emphasized. Question 5: What key criteria should be included in a cemetery siting policy? Transportation access (convenience)/proximity to urbanized areas; Sight line considerations; Need buffer zones; Cultural attitudes towards cemeteries and funeral homes to be considered; Good neighbours relationship important; Cultural concerns with death amongst certain nationalities should be accommodated within cemetery design (concerns of citizens with Asian backgrounds were cited, for example.) Not-for-profit cemeteries should be afforded the same land use opportunities as for-profit sites; Appropriate geotechnical characteristics; Not in ESA; Choice between urban or agricultural zones only; Not in Class 1 to 3 farm land - otherwise, agricultural land is suitable; Size limits should be prescribed; why should a cemetery be allowed to designate and zone large acreages that won t be used for several hundred years? If Greenbelt not available, then siting new facilities will be hopeless; The Province should be lobbied to accommodate cemeteries within the Greenbelt. Question 6 (No additional feedback was given) Action: L+A to provide meeting notes, pdf of presentation and York Region project terms of reference to be send to attendees via a Drop Box link. Attendees to fill in final online cemetery survey, which will be sent as Survey Monkey questionnaire following review by OACFP. Wrap up: 2:15 pm EDST Notes by: CH/ML, LEES+Associates. 100

113 E. Lees & Associates Consulting Ltd. York Region Cemetery Needs Analysis & Policy Framework July 23 rd 2015 Private and Religious Stakeholder Focus Group Notes Date: Thurs. July 23rd, 2015 Time: 9:00 am - 12:00 pm Location: Newmarket Voyageur Best Western Hotel, Yonge St. Newmarket Attending: Teresa Cline, (TC) Senior Planner, Policy & Environment Planning and Economic Development Corporate Services, Regional Municipality of York; Sandra Malcic, (SM) Manager, Policy & Environment, Regional Municipality of York; Mike Leonard, (ML) Senior Associate, LEES+Associates, Cemetery Planners, Catriona Hearn, (CH) Senior Associate, LEES+Associates, Cemetery Planner Confirmed Stakeholder Attendees: 101

114 E. Lees & Associates Consulting Ltd. A total of 26 representatives from religious groups, private businesses (planning firms, funeral homes, private cemetery owners), representatives of religious cemeteries, and (provincial) government attended out of 33 invited guests) along with two representatives each from York Region and LEES+Associates. Meeting Notes: 9:00 am Welcome, Project Purpose and Introductions Workshop hosts (Representatives of York Region and the consultant team) introduced project team and thanked participants for attending focus group session; SM gave a brief statement re: the reason that York Region was undertaking this study, noting that they were working proactively to address the concerns of many of those in attendance, and that York Region and the consultants were here to listen. Reiterated that we need your input or we cannot deliver meaningful report. Purpose of the focus group was summarized as providing an opportunity for attendees to provide input on behalf of their organizations re: cemetery needs, planning policies, and criteria for the potential siting of new cemeteries in York Region; L+A noted that data is to be collected from all private and religious cemetery representatives in order to determine the current amount of 102

115 E. Lees & Associates Consulting Ltd. unused interment capacity in each municipality and in York Region overall (to be collected via Survey Monkey questionnaire within next few weeks), and Attendees were asked to state their name and organization and to say why they chose to come to this event. As well, attendees were asked to state what they hoped would come out of this project. SUMMARY OF ATTENDEE COMMENTS PROVIDED ON PAGE 6, BELOW 9:30 am Presentation by LEES+Associates on Cemetery Planning Trends LEES+Associates delivered a PowerPoint presentation to address the following points: Project Background 2014 Municipal Comprehensive Review to update Official Plan (OP) Need to Update Regional Forecasts to Project Objectives (Summary) 1. Create an inventory and determine the capacity remaining in existing cemeteries; 2. Determine future cemetery needs to accommodate York Region s anticipated needs to 2041, and 3. Develop criteria and a recommended policy frame- work to meet identified needs and direct the siting and development of expanded or new cemetery uses. Project Timeline Five phases, beginning June 2015: Phases 1 3: ( Identify Issues ) through Aug, followed by Phases 3 4 ( Possible Solutions ) through Sept and Phases 4-5 ( Preferred Strategies ) Nov to Jan 2016, for final report by end of 2015 and presentation to Council March Cemetery Planning (Summary) Trends in cemetery planning and design were illustrated with slides and described by L+A, including: 1. The continuing rise in the cremation rate; 2. The aging of the Baby Boom generation; 103

116 E. Lees & Associates Consulting Ltd. 3. Rising expectations: demand for choice, personalization and meaningful places of remembrance; 4. Increasing life expectancy; 5. Increasing diversity of traditions; 6. Smaller, more mobile families; 7. Increasing standards of living and disposable income; 8. The push for financial transparency and accountability ; 9. A desire for more environmental options; 10. Funerals as celebrations of life; 11. Growing interest in sustainable cemetery practices, and 12. Cemeteries as places for the living - as cultural landscapes, environmental open space, and as venues for community uses and events. Key Findings (Summary) L+A presented slides outlining the key findings regarding cemetery needs in York Region according to: Age Profile A relatively young community; Ethnic Profile Top Five: Chinese, Italian, English and Scottish (37% visible minorities); Religious Profile 56% Christian; 23% no affiliation; Hindu, Jewish and Muslim all ~5%; Population Growth relatively high, at 2% per year; Death Rate 4.2 per thousand, low due to age profile; Cremation Rate 57% in York; 63% in Ontario overall; York Region s Historic Cemetery Market by each of the nine local municipalities highest in Georgina (80%) and lowest in Vaughan (21%); York Region s Market Capture (Caskets: Cremation interments ) 90% of caskets and 20% of cremated remains (disposition of balance not recorded by any agency); York Region s Historic Cemetery Demand last 5 years, annually: 2,600 casket interments and 2,000 cremation interments; York Region s Future Cemetery Demand growth to slow to 1.5% and 173,000 deaths projected; 104

117 E. Lees & Associates Consulting Ltd. Current Supply Estimate 18 active York Region Cemeteries are over 5 acres in size; Demand Estimate ,000 caskets and 101,000 cremations, translating to 64,600 casket interments and 20,250 cremation interments; The final slide depicted York Region cemetery locations (approximately 180 identified; not all sites have been yet been mapped.) 10:30 am Coffee Break Attendees were invited to take a break to enjoy refreshments provided by York Region 10:45 am General Discussion arising from Presentation Questions were addressed by representatives of York Region and the consultants. The following points were discussed: a. What do you hope to see from York Region s Cemetery Needs Analysis? Cemetery operators are experiencing significant timelines (13 years) from land offer to 1st interment. Hope that this study improves that; Expand local municipalities understanding of cemetery industry; York Region s Cemetery Needs Analysis should address the City of Toronto/GTA s cemetery needs; Need to address cemetery needs beyond the current land use planning horizon/cemetery needs analysis (20/25 years); Greater understanding of the methodology being used by LEES + Associates, and Where cemeteries can locate urban vs. rural locations is a critical issue. b. General Feedback and Conversation after the Presentation Cemeteries are a permanent land use - only land use that remains in perpetuity. Problem is that perpetual care is good in theory, unpractical in reality. Only works when new cemetery lands become available; 105

118 E. Lees & Associates Consulting Ltd. Cemeteries are a hard sell for local municipalities often not a huge local benefit but larger public benefit. Municipal planners do not understand/have experience planning for cemeteries. Need to expand the local municipalities' understanding of the cemetery industry; The Anglican Diocese experiences 86:20 cremation. Concerned about concept of passive recreation in cemeteries, which are private property, and are sacred/consecrated land. People should not expect to us private property for their own recreational purposes; Participants advised that they don t mind people visiting cemeteries they just don t want them to be promoted as public spaces and be required to put bike paths, picnic tables etc.; Participants have witnessed a lot of disrespect from public and therefore concerned re: liability/security and disrespectful behavior. Privately-owned cemetery land is contributes to local municipalities by being taxed until it is used. They do not believe that private cemetery land owners should be obligated to offer anything to the surrounding community; The Muslim Association operates the only Muslim Cemetery in Toronto/GTA. They have received requests for burial from outside the Region including Quebec, North Bay and City of Toronto. Muslim population is quite young and experiences a very low death rate of approximately 0.5/ will change moving forward as the population ages; Cemeteries could reach out to communities by having interim agricultural land uses (corn grown on vacant land at Muslim Cemetery); be more efficient based on longer term planning, use of double depth burial. Could provide meeting space for community use. Vacant land is held for future uses but can have interim value. Potential to integrate ponds and storm water; Representative of one small Hebrew Cemetery, plus one in the Oak Ridges Moraine (Pardes Chaim) mentioned it took 13 years to open last cemetery and the administration process needs shorter time frame; The OACFP committee representative for Bereavement Authority wants to see how the Region will handle this. The process needs to 106

119 E. Lees & Associates Consulting Ltd. go to a Provincial level. Predicts no burial space available in the GTA within 20 yrs; with no option for burials except in York, at a time when there will be 14,000 deaths/year in Toronto; Representatives have done a lot of work on projections - cremations will rise over time but demand for caskets will remain constant in the GTA, with immigrants at 0.5/1,000. Study needs consistent methodology to determine remaining land capacity. Proposes 900 graves/acres to allow "apples to apples" data and review (or survey respondents to state otherwise). Also recommends collecting data re: lots sold per annum to take into account preneed and at need sales. (Accepted by those in attendance.) OACFP will review survey questions and provide feedback. OACFP is also willing to share data relevant to York Region s Cemetery Needs Analysis; Question the 20% capture rate for cremations in Ontario integral to going forward as it directly affects need. Identified that there is only one crematorium in York Region; others may be cremated outside of York Region. Need to ensure that numbers regarding cremations is accurate; Planning consultant with twenty-five years of experience planning cemeteries has particular interest in policy and wants to be involved; Interest in region s development. Lots of small cemeteries in York Region but not many with capacity; Business in Oakville/Stouffville. Here to understand and to get an education on what is underway; Planner and long-time Cemetery land Planner; Lack of knowledge about cemeteries in the municipal planning sector: no one is planning for cemetery uses. A question of who do you serve? Stakeholders wants to know this study's methodology/process; Met with York Region staff and officials over frustration with Official Plan not accommodating cemeteries; Interest in Funeral side of trends. Want more involvement; Representative works with cemeteries re: licensing, registration and compliance, and application reviews; 107

120 E. Lees & Associates Consulting Ltd. Registrar of Cemeteries in ON is interested to see what this will do to improve and increase the level of service to the public. Believes it is important that community is aware of and accepts development of cemeteries. Wants to see a balance of community and business needs. Wants to see as seamless an approvals process as possible. New sites first need municipal approvals how to improve this process? Important to recognize that cemeteries are in perpetuity (closure only when in the public interest). Interest in long term development. Need to respond to questions from all parties involved. Processes need to align. Needs analysis required for planning cemeteries and for use at OMB. Method is important. Focus should not be just on York Region needs. York Region s Cemetery Needs Analysis should address the City of Toronto/GTA s cemetery needs. Need to address cemetery needs beyond the current land use planning horizon/cemetery needs analysis (20/25 years). Concerns re: longevity of sites and financial viability re: urban/rural land uses. Takes 10 to 20 years for a cemetery to become viable; Cemeteries currently "LULUs" - locally unwanted land uses. Local heritage areas. Cannot qualify as natural areas if fenced (no connectivity of NHA); Stakeholders are frustrated at planning process. Represent OACFP and members; Term burials would be more sustainable but would require provincial approval; Cemeteries are designed but not zoned. Need equitable cemetery land-use. Where cemeteries can locate urban vs. rural locations is a critical issue. Cemeteries could be in urbanized area if appropriate scale and character; No one answer to the question of size related to a cemetery - depends on burial preferences, etc. 100 acres isn t big; need to be located outside of urban area but in close proximity to community; need economies of scale. Should focus on providing choice to meet the needs of the community; Current issues include: NIMBYism; sense of entitlement of public; belief that all cemeteries should be community "green space." 108

121 E. Lees & Associates Consulting Ltd. Public has opportunity for input at the site plan stage of cemetery planning; Real cost. Subsidized burials are problematic for cemeteries. There is a "real cost" of social services required of cemeteries - increasing numbers of people who cannot afford to be buried where they live; PCF contributions were calculated in 1950s - insufficient to support cemeteries in the future. Predicts cemetery insolvency in the future; How should cemeteries fit re: planning for "complete communities?" Mt. Pleasant was originally 200 acres. Cemeteries to fit in "Whitebelt" issue is surrounding subdivisions that grow up around it and neighbours who object to presence of cemeteries. Greenbelt and Oak Ridges Moraine - why not? Smaller cemeteries as an option? How to deliver affordability? Costs $230,000 per acre to develop for cemetery use; Need to accommodate religious diversity; Need for more dialogue and improved public education re: cemeteries because people don't think about death until confronted by loss. OACFP should prepare brochure for public education and awareness, including explaining the role of cemeteries in communities; Preferable for cemeteries to invite the community to planning stage/ask for input. Need to integrate into community fabric; Minimum size should be required. Cannot restrict who can use cemeteries/how used (access in bylaws), and Discussion regarding PPS as of right ability to put cemeteries in Agricultural areas until the 2005 update. Action: L+A to provide meeting notes, pdf of presentation and York Region project terms of reference to be send to attendees via Drop Box link. Attendees to fill in final online cemetery survey, which will be sent as Survey Monkey questionnaire following review by OACFP. Wrap up: 12:15 pm EDST Notes by: CH/ML, LEES+Associates. Distribution: By to all invitees. 109

122 YORK REGION CEMETERY NEEDS ANALYSIS AND POLICY FRAMEWORK REVIEW Stakeholder and Area Municipality Workshop, October 19, 2015 Workshop Feedback Report Workshop Feedback Report York Region is undertaking a cemetery needs analysis and policy framework review. As part of the review, the Region is consulting with the cemetery industry, area municipal staff and other key stakeholders to better understand cemetery needs and to identify considerations for policy development. Lees + Associates have been retained to provide the needs analysis. The purpose of the half day workshop held on October 19, 2015 was to present preliminary key findings from the analysis undertaken by Lees + Associates and to discuss strategies for policy development. The workshop was attended by twenty-four individuals representing cemetery owners, operators, consultants, faith based organizations, the Province of Ontario, Area Municipalities and the Region. Participants are noted on page 8. Erik Lees of Lees + Associates gave a presentation of preliminary key findings on land needs, long term demand for cemetery space and short and longer term options for improving the policy framework for locating and siting of cemeteries within York Region. The workshop was organized in two parts, the first being the presentation and discussion on key findings and the second being small group discussion around identified short term strategies relating to the following themes identified in the presentation: Education and Awareness Optimize and Intensify Cemetery Lands Land Use Policy Approaches/Concepts Site Locational Criteria and Features During the second part, workshop participants provided input in small groups rotating through four themed stations where they populated ideas and comments on poster paper placed on the walls. The interactive formats lead to an exchange of ideas and perspectives with participants being able to review and provide comments on ideas posted by other groups. Sue Cumming, Cumming+Company facilitated the workshop and prepared this summary report of what was heard through the group discussions. 110

123 Page 2 of 9 This workshop feedback report is a synthesis of input participants noted on the poster paper. The report reflects to the greatest extent possible the words and phrases used by workshop participants and does not indicate consensus among participants. During the presentation, Erik Lees asked participants whether there were any gaps or surprises with the preliminary key findings. The following are several questions that were noted: Query about the burial yield of 900 caskets per acre assumption used in the study. Query about the 90% cremation rate assumption used in the study. Clarification on how many cremations per casket burial (4) were assumed in the study. Query about how the preliminary key findings account for different burial practices and traditions and how growth in multi-cultural populations within the Region would be addressed. Query about how non-profit cemeteries are considered in the preliminary key findings. Question about how fixed term leases is being considered/addressed through the study. 1. What was heard about ideas for Education and Awareness Goals for Education and Awareness: To create more understanding/appreciation of death rituals of different faiths and backgrounds. To foster greater societal acceptance and openness about death/grieving processes. To create more knowledge about cemetery planning needs. To elevate the priority for long term cemetery planning amongst elected and staff decision-makers. Audiences Identified: General public/area residents. Area Municipal and York Region Councillors. Members of Provincial Parliament. Area Municipal and York Region Staff (including municipal planners and other staff involved in site approvals). Provincial Staff of the Ministry of Municipal Affairs and Housing and other ministries involved with the Growth Plan, the Greenbelt Plan and Oak Ridges Moraine. Local media with the emphasis on building ongoing relationships to avoid one time single site stories about site approval. Service providers. Tactics/Strategies Identified: Public Lectures/workshops. Community events i.e. Jane s Walks, environment and heritage events. Information sharing on heritage features and importance of pioneer cemeteries. School Field trips (well supervised). Planning profession education (through the Ontario Professional Planners Institute and University Planning Programs). Historical and archaeological research. Who could lead?: A Cemetery Steering Committee. The Bereavement Authority of Ontario. The Ontario Association of Cemetery and Funeral Professionals. The Natural Burial Association. Cemetery operators. Key Volunteers (several participants noted that they would be interested in assisting). 111

124 Messages/themes to be communicated: The planning horizon for a cemetery far exceeds the established provincial policy framework of 20 years. Cemeteries are planned within the context of multigenerations over 100 years. More understanding that the cemetery planning horizon is not a static number and cannot be addressed over a shorter time frame (i.e. 20 years). Cemeteries are fundamental and necessary within our communities and need to be planned for in order to ensure that burial space is available for future generations. Cemeteries are non-intrusive, green, and environmentally friendly and do not impact groundwater and wells. Not all cemeteries are the same underscoring the importance of culturally appropriate education on values and traditions of different faiths and religions. Page 3 of 9 Cemeteries are often created in association places of worship and memorial gardens. Cemeteries are not public parks and while public access is permissible/desirable at some cemeteries, each cemetery has unique circumstances depending on the respected values and culture and site considerations relating to burial practices and memorialization. Address misconceptions about ghosts, death rituals and death/grieving processes. Show how cemeteries can form part of the community. Cemeteries are part of a complete community and are compatible with other land uses. Cemeteries provide a significant heritage and historical value for society. 2. What was heard about approaches and ideas that could be explored to optimize and make use of existing cemetery sites a) Ideas and views on optimization: There appears to be support for maximizing the use of existing cemetery lands for additional capacity. It was noted, however, that this is not an option in Toronto as there is no land left and cremation is natural optimization. It was noted by some participants that proofing pioneer cemeteries for additional capacity is likely inconsequential to the overall demand. It was further noted that municipalities would need to reactivate unused lands within pioneer cemeteries which could involve upfront costs, potential risks and expertise to do so. If a pioneer cemetery is designated under the Ontario Heritage Act it was noted there may be grants available by application for restoration and renewal. Other ideas to consider depending on suitability and client base may include: Cremation interments over existing lots; Mausoleums/Columbaria being established in many areas; Green burials (if these were defined and criteria developed); Scattering gardens in spaces which could not otherwise be used; Grave re-use under certain circumstances with criterion. There appears to be generally limited or no support for imposing a surcharge for non-residents citing that it is unfair and unreasonable given that cemeteries are a necessity and should be equally available to all people in our society no matter of political boundaries. There also appears to be generally limited or no support for imposing setbacks and limitations that could impact a cemeteries ability to maximize the full use of all land that is available. 112

125 Page 4 of 9 b) Discussion of public use of cemeteries: Workshop participants noted that cemeteries are not public parks and that public access should be determined by each cemetery based on what is best for that cemetery to respect the traditions, privacy and faith and religious values. Some cemetery operators noted that when public use increased, vandalism decreased but even given this they would support public use on a voluntary basis. Additional issues noted included liability, security and potential vandalism. It was observed that municipalities could address some of these issues and compensate cemetery owners provided there were agreements and insurance put in place. Cemetery operators generally agree that public access should be left to the discretion of each cemetery and where feasible encouraged for passive recreation like walking and reflection. More active recreation and picnicking are not seen as compatible with memorialization. It is important that each cemetery maintains control and addresses/provides public access based on terms of cemetery. It appears from the workshop discussion that imposed public use through municipal policy or by-laws would generally not be supported by the cemetery industry. 3. What was heard about land use policy approaches/ concepts that could be considered to address future cemetery needs a) Overall Policy Comments: Plan for equivalent/similar expansion of cemetery land supply relative to other types of intensification (i.e. residential density increase). Ensure that impacts to cemeteries are considered when land use changes are considered near or abutting existing cemeteries. For example increased separation may be required to buffer cemeteries from noise and other adverse impacts. Develop more understanding of cemeteries as an important land use and part of a complete community planning framework. Recognize that municipal boundaries are not static and that the population doesn t perceive boundary as a restriction i.e. most residents are less aware of which municipality a cemetery may be located in and more concerned about religion, faith, traditions, accessibility etc. A land budget for cemeteries could be considered as a tool for managing supply and demand provided it recognizes faith based requirements. Accommodate private and public (including non-profit) cemeteries. 113

126 Page 5 of 9 b) Provincial Policies and Considerations: Would like to see perpetual language of cemeteries in relation to provincial legislation challenged. Perpetuity vs term. It was noted that perpetuity may position cemetery abandonment to the municipality due to lack of provision for long-term care and maintenance. Term may provide for more consistent care and maintenance with potentially fewer cemeteries becoming abandoned which could then result in more burial space and choice. Consider cemeteries on agricultural land and in rural areas. It was noted that lands of a lesser quality for agricultural purposes may be appropriate for locating cemeteries. Would like to see cemeteries permitted in the Greenbelt Plan and in the Oak Ridges Moraine Conservation Plan. There were mixed views on whether this is appropriate with some participants generally not being supportive of cemeteries in these protected areas. Would like to see possible consideration of cemeteries in conservation land with some participants noting that conservation lands are appropriate locations for cemeteries. Conservation Authorities would need to be engaged in discussions about the suitability and feasibility of creating more permissive policies to permit cemeteries. c) About the Planning Horizon: The planning horizon for cemeteries should be generational. Need to address the planning horizon required through Provincial Policy to better reflect long-term needs for planning of cemeteries from the lens of how to ensure that burial needs are provided and protected for future generations a hundred years from now. d) Regional and Area Municipal Policies and Consideration: If cemetery land needs are important, then the Region of York should have some concrete policies to emphasize cemetery planning as a regional priority. It was noted that there are land uses competing for valuable land resources within the Region (i.e. for economic development and housing) which are more immediate. Cemeteries may not be receiving the attention that is warranted to plan for future needs. Need to address the permanency of land use policies for cemeteries as they go beyond the planning horizon. Longer term horizon should be used to determine cemetery needs i.e. longer than other land uses (by 2x or more). Would like to have regional policy that responds to the demand and need data collected in the Lees + Associates Study. A review of cemetery needs should be required as part of any comprehensive Official Plan (OP) Review and Growth Management Study. Both the Region and Area Municipalities should incorporate land use policies in Official Plans requiring consideration of cemeteries and needs when looking at population projections. 114

127 Page 6 of 9 d) Regional and Area Municipal Policies and Consideration (continued): While cemeteries are often incorporated in cultural heritage sections of Official Plans, policies should be included in other sections to better reflect considerations for future cemetery planning. Policies should be developed for green burial. It was noted by participants that green burial should be defined noting that it should not include grave liners, embalming fluid or varnished caskets. There are many different views as to the appropriateness of cemeteries in protected greenbelt areas. Careful consideration should be given to; if, how and when green burial would be permitted in the Region s Greenland System. Should the Region decide to require evidence of cemetery land need as part of an application process then terms of reference and clear determining criterion for need must be developed. Existing and future cemeteries could be overlaid on Area Municipal Maps similar to how future school sites are shown. Create more flexible municipal cemetery by-laws to address term burial Region 10, 20, 30, 40 years and more. More understanding on what this is and implications would be helpful. Would like to see consideration of how development applications could/should accommodate parkland for cemeteries under 50 acres. Pioneer cemeteries could be integrated more into heritage programming at the local level. 4. What was heard about cemetery site locational and siting criteria a) Ideas about where cemeteries should be located: Alternative sites should be affordable and available. When designed properly cemeteries can work in most areas and can effectively co-exist with most land uses. Within the community as much as possible. Near population so as to be accessible for trips to and visiting cemeteries. Near transportation nodes (GO Train, bus stops and subway stations.) In urban areas and residential areas. In urban greenspace. In greenspace, natural areas and conservation lands. There is some interest in considering green burial within the Region s Greenland System. Within the Greenbelt and ORM. There were mixed views about locating cemeteries in these areas noting views about maintaining the purpose of the legislation for the Greenbelt and ORM for future generations. In rural and agricultural areas (on land that may be less desirable for farming). Mausoleums/columbaria could be established in many areas including public parks. Scattering gardens in spaces which could not otherwise be used. As new approaches are explored, it was noted that there may be future opportunities for colocating burials on a small scale in mixed use buildings, museums, city squares. It was further noted that cemeteries may not be appropriate within employment areas. Others also noted that high water table areas could be prohibitive, unless feasibility can be determined through a hydrogeological investigation. 115

128 Page 7 of 9 b) Land uses that should not be located near a cemetery Outdoor storage/heavy industry. Main commercial areas (due to noise concerns). Railroads (due to noise concerns). Hospitals. Avoid contaminated lands. Mixed views on whether schools should be located near cemeteries. If employment uses and industrial uses are located near cemeteries it was suggested that there should be a minimum of a 10 metre buffer from cemetery lands. c) Ideas about site size: One of the short term strategies presented at the workshop for consideration was a suggested maximum of 120 acres in one block or assembly of parcels. The discussion held at the workshop appears to generally not be supportive of this for the following reasons: Does not reflect historic development of cemeteries many smaller and many larger i.e. Mt. Pleasant is 200 acres plus. Full service cemeteries require large tracks of land if all of the necessary services are to be provided to patrons. There was generally little to no support noted through the discussion for limiting the size of burial gardens (i.e. no more than one acre in size) for the following reasons: One acre size maximum appears arbitrary. Burial gardens could be larger or smaller and should be based on operational considerations i.e. casket carrying distance. It was noted that cemeteries could be developed at varying sizes and the setting of a maximum size cap has implications on the maintenance cost of running a cemetery. Some workshop participants further noted that they would like a better understanding of why and on what basis a maximum size would be set and how this is linked to population and need. Smaller properties were noted to be able to accommodate cremation. The size of cemeteries should reflect protected need over many generations. d) Ideas about features and other considerations: Consider accommodating through traffic for large sites where applicable. Consider creating different areas (sections) within the same cemetery for different religions. Incorporate scattering gardens. Incorporate green features and landscape elements. Incorporate existing landscape features into design and function i.e. trees as headstones. Workshop participants discussed opportunities for urban memorial gardens for interring cremated remains and mausoleum. Benefits noted include intensification and higher density. There are mixed views with questions being noted about how these would be received, costs and potential issues pertaining to maintenance. Generally it was agreed that more review and consideration is needed to better understand opportunities and challenges. Consider locating storm water management pond/fountains and have these jointly managed with municipality. 116

129 Page 8 of 9 5. Other Comments and Ideas The following are additional comments noted in the written comment forms received from workshop participants at the end of the workshop. Where possible, the comments have been recorded verbatim. Where a similar comment was noted, these have been synthesized. 1. It would be beneficial to have more direction in the Regional Official Plan on location and land use criteria for cemeteries within the urban areas. Seems to be more focus on rural area policies. 2. Would like to see a much stronger linkage of locational and siting criteria and demand identified in the key findings presented. Would recommend aligning the policy framework with the demand identified to 2041 and location criteria that address current cemetery locations. 3. Lots of discussion groups agreed that green burial could be incorporated into greenlands/environmental areas. Notwithstanding, many workshop participants are generally not supportive and there is the need for further review to determine if and how this should be considered. 4. Green burial is not simply the interment of remains in conservation areas/green space. It is environmentally friendly interment, i.e. no embalming fluids, no grave liners and not treated caskets (varnish). Regardless of where green burial is considered, it needs to be defined. Criteria should be developed better understand green burial and locational and site suitability. 5. There are a number of interest groups managing cemeteries i.e. not for profit, municipalities, religious organizations etc. Using a population focused needs criteria is not going to hit the market totally. Need to consider other factors that are important for selecting a particular cemetery. 6. There is a market driven element that needs to be considered if the supply of cemetery land is not appropriately planned for there could be impacts relative to the availability of burial options for future populations. While green burials and cremation may account in the future for some of the population, a significant component will continue with casket burials due to religion, culture and faith based values and traditions. If there is a diminished supply of land for cemeteries this would impact the availability and financial cost of land options for casket burials. 7. Important to consider equity issues around death and land spaces. 8. Affordability is a key issue for siting and implementation of cemeteries. If cemetery applications are refused, less and less viable properties will not be available later as land is absorbed for other uses. 9. Important to keep heritage while looking at new concepts of burial ideas. New concepts may include multi-purpose buildings, eco-cemetery parks which would require new land use designation and zoning. 10. For optimization of existing sites, education is important. A municipality could benefit from a current opportunity within a pioneer cemetery. 11. Need to address perceived issues about the listing and designating of cemeteries under the Ontario Heritage Act. The designation of active cemeteries is successful and is part of a long term strategy of conservation in municipalities. 12. Should/does the Region in its overall disaster response have provision for a sudden large surge of deaths and burials as a result of a pandemic or other situation and would existing cemeteries be expected to accommodate a sudden influx of burials? 13. Would like to discuss where cemeteries can dispose of excess fill at minimal costs. 14. Public education is important to create more positive understanding of cemeteries in society. 117

130 Page 9 of 9 Workshop Participants Naadia Ahsan, Toronto Muslim Cemetery Doug Annand, urbanmetrics Inc. Matt Bagnall, Larkin+ Associates Planning Consultants Lloyd Baker, Newmarket Cemetery Cosimo Casale, Cosmopolitan Associates (AMI) Tammy Chung, Town of Whitchurch-Stouffville Suzanne Cudnik, Township of King Lilli Duoba, Town of Markham Matt Evans, Newmarket Cemetery Dave Evans, Newmarket Cemetery Mike Everard, Augusta National Inc. Katrina Guy, City of Vaughan Nicole Hanson, Ministry of Government and Customer Services Courtney Heron-Monk, Weston Consulting Inc. Megan Kevill, Town of Richmond Hill Michael Larkin, Larkin+ Associates Planning Consultants Mike Logue, Town of Aurora Howard Mammon, Toronto Hebrew Memorial Parks Larry Martin, Catholic Cemeteries & Funeral Services - Archdiocese of Toronto Jeff McIntosh, Queensville Cemetery Debi Patterson, Town of Whitchurch-Stouffville For further information, contact: Teresa Cline, MCIP, RPP Senior Planner, Planning and Economic Development, Corporate Services, Regional Municipality of York teresa.cline@york.ca Tel: ext Erik Lees, FCSLA, MCIP, RPP LEES + Associates elees@elac.ca Tel: toll free: Glen Timney, Mount Pleasant Group of Cemeteries Jay Todd, City of Vaughan Chris White, urbanmetrics Inc. Workshop Organizers Sandra Malcic, Region of York Teresa Cline, Region of York Marc Dommanget, Region of York Erik Lees, Lees +Associates Sue Cumming, Cumming+Company This workshop facilitated and report written by: Sue Cumming, MCIP RPP Cumming+Company Consultation Facilitator Bus: cumming1@total.net 118

131 APPENDIX B SOURCES + METHODOLOGY SOURCES Data sources reviewed in the process of generating this report include, but are not limited to: National Census Statistics and National Household Survey, Statistics Canada; York Region Planning and Economic Development Branch, Corporate Services Department, Historic Population Statistics and Mortality Data ; 2041 York Region Draft Growth Scenarios and Land Budget, April 23, 2015; York Region 2041 Preferred Growth Scenario, November 5, 2015, Staff Report, Draft 40% Intensification Scenario; Ontario Open Data (York Region Death Statistics, ); York Region Open Geospatial Consortium website, Web Map Services and Georeferenced Map Images from a Spatial Database 7, GIS orthophotos (Aerial Imagery), Contour Data, and LEAR analyses; Municipal Plans, Projections and Inventory Reports from Aurora, Georgina, Newmarket, East Gwillimbury, Whitchurch-Stouffville, King, Richmond Hill, Vaughan and Markham; Ontario Ministry of Infrastructure, Growth Plan for the Greater Golden Horseshoe, 2006 and June 2013 Office Consolidations; Hemson Consulting, Greater Golden Horseshoe - Growth Forecasts to Technical Report Addendum and Rev. Appendix B June 2013; Ontario Trillium Foundation, Simcoe-York Community Profile, 2008; Ontario Board of Funeral Services Cremation Report, ; The Cremationist of North America Statistics + Projections (Volume from December 2014);

132 Funeral, Burial and Cremation Services Act (FBCSA) 2002 and subsequent amendments; The Planning Act of Ontario (RSO 1990) 9, Planning Act and subsequent amendments; Ontario Ministry of Agriculture, Food and Rural Affairs, Guidelines on Permitted Uses in Ontario's Prime Agricultural Areas, February ; Ontario Ministry of Municipal Affairs and Housing, Oak Ridges Moraine Conservation Plan, ; Ontario Ministry of Municipal Affairs and Housing, Greenbelt Plan ; Ontario Ministry of Government and Consumer Resources, Consumer Beware List, Cemeteries; CanadaGenWeb.Org The Cemetery Project 13 ; An Analysis of Land Use Planning Policies for Cemeteries in Ontario, Michael T. Larkin, Ryerson University, 2011, and Spatially Planning for Death in Cities - Planning for Toronto s Silent City, Nicole N. Hanson, Hons. MES (Pl.); Urban and Regional Planning, METHODOLOGY: YORK REGION CEMETERY PHYSICAL SITE ANALYSIS TO ASSESS SUPPLY This section describes our approach to the physical analysis of existing cemetery land supply in York Region. This physical site analysis was a complementary approach used to reconcile and enhance the information about current supply collected through the stakeholder consultation in this study. Key steps in this process included:

133 1. Collecting a List of Existing Cemeteries To Analyze: Each cemetery location was identified, using a number of techniques: Online searches; Affiliation with knowledgeable cemetery professionals local to York Region; Genealogical References; Existing Lot and Concession GIS maps, and Google Earth and Google Map searches. Figure 40: Lot and Cadastre Screen Shot, Physical Data Analysis, Source: LEES+Associates 121

134 2. Defining Boundaries Each cemetery was identified by set of co-ordinates using Google Earth technology. A visual analysis was then carried out to ascertain where existing boundaries are most likely to be according to siting existing features on aerial imagery. These include (but are not limited to): Tree/Hedge lines; Roads/Trails/Railway lines; Walls/Fences; Ditches, and Neighbouring Property, To ensure the accuracy of existing cemetery boundaries, where possible, a street view was explored in proximity to the Cemetery to confirm the aerial view analysis. This was not possible where cemeteries were at a distance from major roads, on private land, or screened by buildings, topography or vegetation. A polygon was drawn for each site to calculate the approximate acreage of existing cemetery land. Where large buildings, ponds or thick vegetation occurred, these were omitted from the calculation as they were deemed unuseable as potential cemetery land. Figure 41: Defining the Boundaries of Pardes Shalom Cemetery, Vaughan, ON, Source: LEES+Associates. 122

135 3. Calculating Existing Undeveloped Space Using further analysis of aerial imagery for each of the sites identified, it was possible to identify areas of undeveloped acreage within existing Cemetery inventory. These areas were verified by the following parameters: Absence of grave markers; Empty space, usually kept as lawn; No dense vegetation; No obvious use as access or right of way, and No obvious hazards e.g. overhead power cables/unsuitable topography or water bodies. Similar to marking the existing cemetery boundaries, polygons were drawn to approximate areas that were undeveloped. Using a sample cemetery site from York Region, Figure 42 shows that in the majority of sites surveyed, the largest proportion of the cemetery land was already used. Figure 42: Identifying the Used Inventory from areas of Pardes Shalom Cemetery, Vaughan, ON, Source: LEES+Associates. 123

136 Using a sample cemetery site from York Region, Figure 43 shows the smaller proportion of the cemetery land that is currently unused and not yet developed into cemetery inventory available for sale. Figure 43: Identifying the Unused Capacity and Undeveloped Areas of Pardes Shalom Cemetery, Vaughan, ON, Source: LEES+Associates. 4. Mitigating the Unknown It is not possible to confirm, using the technology available, whether there are any of the following within those approximate areas of undeveloped cemetery land: Unmarked graves; Underground services, and Unsuitable Geology/Soil Structure. 124

137 5. Extracting Useable, Meaningful Data The physical analysis data was then stored in a master Inventory Matrix, highlighting: Total Area (size); Developed Acreage; Undeveloped Acreage; Infill Potential (whether there seemed to be enough room within and between existing sections and rows to outline spaces for new graves/interment options), and Notes (comments on specific site parameters). Using a sample cemetery site from York Region, Figure 44 shows the white boundary that encompasses the total area of the cemetery site, the numbered undeveloped acreage and the balance of the cemetery land area that accounts for all cemetery inventory used and graves sold at this cemetery site. Figure 44: Verifying the Remaining and Used Capacity of Pardes Shalom Cemetery, Vaughan, ON, Source: LEES+Associates 125

138 APPENDIX C ACTIVE CEMETERY PROFILES The active cemetery profiles on the following page identify the site by Land Use Zone Designation and by Landform Category. These have been identified because there are differences in development requirements for Landform Category 1 and 2 in the Oak Ridges Moraine Conservation Plan, which could affect cemetery planning. LANDFORM CATEGORY 1 (5) An application for development or site alteration with respect to land in a landform conservation area (Category 1) shall identify planning, design and construction practices that will keep disturbance to landform character to a minimum, including, (a) Maintaining significant landform features such as steep slopes, kames, kettles, ravines and ridges in their natural undisturbed form; (b) Limiting the portion of the net developable area of the site that is disturbed to not more than 25 per cent of the total area of the site; and (c) Limiting the portion of the net developable area of the site that has impervious surfaces to not more than 15 per cent of the total area of the site. O. Reg. 140/02, s. 30 (5). LANDFORM CATEGORY 2 (6) An application for development or site alteration with respect to land in a landform conservation area (Category 2) shall identify planning, design and construction practices that will keep disturbance to landform character to a minimum, including, (a) Maintaining significant landform features such as steep slopes, kames, kettles, ravines and ridges in their natural undisturbed form; (b) Limiting the portion of the net developable area of the site that is disturbed to not more than 50 per cent of the total area of the site; and (c) Limiting the portion of the net developable area of the site that has impervious surfaces to not more than 20 per cent of the total area of the site. O. Reg. 140/02, s. 30 (6). The map location number in the following York Region Active Cemetery Profiles list refers to the site numbers in Appendix D York Region Cemetery Map. 126

139 Table 23: Active Cemeteries Profile Summary, Source: LEES+Associates. 127

140 APPENDIX D YORK REGION CEMETERY MAP 128

141 The map on the previous page shows all of the cemetery sites within York Region. The legend for York Region s Cemetery Map is as follows: Stars are active sites, > 5 Acres, with < 40% capacity remaining; Triangles are active sites, > 5 Acres, with > 40% capacity remaining; Squares are active sites, < 5 Acres, and with low activity, and Circles are inactive cemetery sites. 129

142 APPENDIX E YORK REGION CEMETERY DATA TABLES The following tables summarize the number of York Region active and inactive cemetery sites distributed throughout the nine local municipalities in York Region and categorizes their management and ownership by municipal religious, private, and other groups (such as families). Non-religious, non-profit organizations are categorized under Private Sites. Other Religious Sites in this table refers to cemetery sites dedicated to United, Methodist, Lutheran, Presbyterian, Baptist, Mennonite, Quaker, Jewish, and Muslim faiths. 130

143 Table 24: Cemetery Sites by Municipality, Religious and Private Groups in York Region, Source: LEES+Associates. 131

144 The following table summarizes the population changes in York Region and its local municipalities over the past 5 years and the expected population projections for the Region between now and Table 25: York Region Municipal Populations, Historic and Projections to 2041, Source: York Region Planning and Economic Development Branch, Corporate Services Department and Statistics Canada. The population distribution in Table 26 has been modelled per the draft 40% intensification scenario from the April 2015 report to York Region Council (2041 York Region Draft Growth Scenarios and Land Budget). 132

145 The following table summarizes the estimated populations by religious group for each local municipality in York Region in Table 26: York Region Municipal Populations by Religious Group in 2015, Source: Source: York Region Planning and Economic Development Branch, Corporate Services Department and Statistics Canada. 133

146 The following table summarizes the number of deaths in York Region local municipalities over the past 5 years and the expected projections for the Region s local municipalities to Table 27: York Region Municipal Deaths, Historic and Projections to 2041, Source: York Region Planning and Economic Development Branch, Corporate Services Department and Statistics Canada. 134

147 The following table summarizes the estimated deaths by religious group projected for each local municipality in York Region from 2015 to This estimate assumes that each religious group has the same death rate as the general population and retains its current proportion of representation in the general local population. Death data by religious group has not historically been tracked by the Region, Province or Federal governments. More precise information is not currently available for this study. Table 28: York Region Municipal Deaths by Religious Group 2015 to 2041, Source: LEES+Associates and Statistics Canada. 135

148 The following table summarizes the number of in-ground casket burials from York Region residents, by local municipality, over the past 5 years. Table 29: York Region Municipal Resident Historic In-Ground Casket Interments, Source: LEES+Associates, York Region Planning and Economic Development Branch, Corporate Services Department + Cremation Association of North America. 136

149 The following table summarizes the number of in-ground cremation burials from York Region residents, by local municipality, over the past 5 years. Table 30: York Region Municipal Resident Cremated Remains Historic Interments, Source: LEES+Associates, York Region Planning and Economic Development Branch, Corporate Services Department + Cremation Association of North America. 137

150 The following table summarizes the projected number of in-ground casket burials and land required for casket lot sales to York Region residents, by local municipality to Table 31: York Region Municipality Resident In-Ground Casket Burials and Lots Sale Projections to 2041, Source: LEES+Associates, York Region Planning and Economic Development Branch, Corporate Services Department + Cremation Association of North America. 138

151 The following table summarizes the projected number of in-ground cremation burials and land required for cremation lot sales to York Region residents, by local municipality to Table 32: York Region Municipal Resident Cremated Remains interments, Historic and Projections to 2041, Source: LEES+Associates, York Region Planning and Economic Development Branch, Corporate Services Department + Cremation Association of North America. 139

152 The following table summarizes the projected number of in-ground casket burials and land required for casket lot sales to non-residents by local municipality to 2041, assuming that non-residents account for 33% of cemetery business in York Region. Table 33: York Region Municipal Resident In-Ground Casket Burials and Lots Sale Projections to 2041, Source: LEES+Associates, York Region Planning and Economic Development Branch, Corporate Services Department + Cremation Association of North America. 140

153 The following table summarizes the projected number of in-ground cremation burials and land required for cremation lot sales to non-residents by local municipality to 2041, assuming that non-residents account for 33% of cemetery business in York Region. Table 34: York Region Municipal Resident Cremated Remains Interments, Historic and Projections to 2041, Source: LEES+Associates, York Region Planning and Economic Development Branch, Corporate Services Department + Cremation Association of North America. 141

154 The following table summarizes the projected number of in-ground casket burials and land required for casket lot sales to non-residents, by local municipality to 2041 assuming that non-residents account for 66% of cemetery business in York Region. Table 35: York Region Municipal Resident In-Ground Casket Burials and Lots Sale Projections to 2041, Source: LEES+Associates, York Region Planning and Economic Development Branch, Corporate Services Department + Cremation Association of North America. 142

155 The following table summarizes the projected number of in-ground cremation burials and land required for cremation lot sales lost to non-residents by local municipality to 2041, assuming that non-residents account for 66% of cemetery business in York Region. Table 36: York Region Municipal Resident Cremated Remains Interments, Historic and Projections to 2041, Source: LEES+Associates, York Region Planning and Economic Development Branch, Corporate Services Department + Cremation Association of North America. The following table summarizes the gap between the supply of cemetery land and the projected resident demand and non-resident land use for all developed land for sale in York Region, by local municipality to

156 Table 37: Land Gap Analysis: Supply (Land for Sale) Land Use = Land Need, Source: LEES+Associates. 144

157 The following table summarizes the gap between the supply of cemetery land and the projected resident demand an nonresident land use for all available, active cemetery land in York Region, by local municipality to 2041 Table 38: Land Gap Analysis: Supply (Total Capacity) Land Use = Land Need, Source: LEES+Associates. 145

158 In Table 37 and Table 38, positive numbers under the Need columns signify an excess of land supply, after the expected demand and land use is met. Negative numbers under the Need columns signify the need for additional developed cemetery land to meet the expected land use and demand. Table 37 assumes that developed land (existing cemetery inventory) is York Region cemetery land supply (Column B). In this table, total interments and sales include nonresident use, and sales include pre-need lot purchases. Table 38 assumes that all undeveloped land will be developed and become part of York Region s cemetery land supply (Column B). In this table, total interments and sales include non-resident use, and sales include pre-need lot purchases. 146

159 This follow table highlights the need priorities for cemetery land in each local municipality. 147

160 148

161 149

162 Table 39: Land Need Gap Analysis York Municipal Cemetery Systems, Source: LEES+Associates. 150

163 APPENDIX F POLICY ANALYSIS 151

164 152

165 153

166 154

167 155

168 156

169 157

170 158

171 159

172 160

173 Table 40: Policy Analysis Tables Summary, Source: LEES+Associates + Ontario Provincial Legislation. 161

174 162

175 163

176 164

177 165

178 166

179 167

180 Table 41: Official Plan Policies for Cemetery Development, Source: LEES+Associates + York Region Local Municipal Official Plans Overall, the above table exemplifies that lower-tier municipalities within York Region are encouraging cemeteries within rural lands. However, many local municipalities are also encouraging cemeteries on lands zoned as urban, residential or industrial. These lands are considered by the cemetery stakeholders surveyed in this study as too expensive and over serviced in terms of infrastructure. It is recommended that local municipalities and York Region continue to advocate for new cemetery development within rural and agricultural lands, as well as innovative, new forms of cemeteries within urban areas. 168

181 EXISTING CEMETERY LAND USE DESIGNATION EXAMPLES 169

182 Table 42: Existing Cemetery Land Use Designation Examples in York Region, Source: LEES+Associates. 170