HomeMy WebLinkAboutPD 31-08
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REPORT TO
COUNCIL
Report Number: PD 31-08
Date: July 14, 2008
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From:
Neil Carroll
Director, Planning & Development
Subject:
Planning for Employment in the Greater Golden Horseshoe
Background Paper, May 2008
Prepared by the Ministry of Public Infrastructure Renewal
Recommendation:
1. That Report PD 31-08 of the Director, Planning & Development, regarding the
Planning for Employment in the Greater Golden Horseshoe Background Paper,
dated May 2008, EBR Registry Number: PF010-3142, be received;
2. That the Ontario Growth Secretariat, Ministry of Energy and Infrastructure be
advised that Pickering Council generally supports the Proposed Strategies in the
Planning for Employment in the Greater Golden Horseshoe Background Paper,
and also recommends that:
(a) the Province identify and market significant employment clusters
throughout Ontario, including the existing Energy Cluster in Durham
Region, as anchored by the City of Pickering, and focus investment and
job creation strategies within those identified clusters to expand Ontario's
economy while remaining competitive globally;
(b) the Province identify provincially strategic and significant areas for
employment growth and land protection in Ontario, including the Highway
407 corridor and Downtown Pickering, and focus infrastructure
improvements, public sector investments and land protection strategies to
these areas to encourage desired employment investment and growth;
(c) the Province establish and release a comprehensive package of fiscal and
regulatory tools to encourage desirable employment investment;
(d) the Province require all its Ministries and Crown agencies to align
investment, growth and development decisions with the Provincial Growth
Plan; and
(e) the Province consider the comments provided on the Proposed Strategies
in the Background Paper as set out in Appendix I to Report PD 31-08; and
4. Further, that the City Clerk forward a copy of Report PD 31-08 to the Ontario
Growth Secretariat of the Ministry of Energy and Infrastructure, and the Region of
Durham.
Executive Summary: In 2005, the Growth Plan was approved for the Greater
Golden Horseshoe (GGH). An element of the Growth Plan is to ensure that there is an
adequate supply of land for employment areas and other employment uses.
Report PD 31-08
July 14, 2008
Subject: Planning for Employment in the GGH
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As part of the Provincial Growth Plan implementation, the Ministry of Public
Infrastructure Renewal (MPIR) released a Background Paper entitled Planning for
Employment in the Greater Golden Horseshoe. The paper provides information on land
use planning issues relating to employment activities. It also explores the changing
nature of employment in the GGH, the challenges of planning for employment and
potential strategies to better plan for employment.
It is recommended that Council support the Proposed Strategies in the Planning for
Employment in the Greater Golden Horseshoe Background Paper and recommend that
the Province: identify and market significant employment clusters throughout Ontario,
including the existing Energy Cluster in Durham Region; identify provincially strategic
and significant areas for employment growth and land protection in Ontario, including
the Highway 407 corridor and Downtown Pickering; establish and release a
comprehensive package of fiscal and regulatory tools to encourage desirable
employment investment; and require all Provincial ministries and Crown agencies to
align decision-making with the objectives of the Provincial Growth Plan.
Financial Implications: No direct implications from providing comments on the
Background Paper.
Sustainability Implications: The recommendations contained in this Report
supporting the Proposed Strategies in Province's Background Paper and proposing
further actions by the Province, complements the City's objective of protecting strategic
employment areas for investment opportunities. Employment planning is a critical
component of our Sustainable program - providing local job opportunities and fiscal
stability in the City to better balance our economic, environmental and social objectives.
1.0 Back~round:
1.1 The Province approved the Growth Plan for the Greater Golden Horseshoe in
2005.
The Province's Growth Plan for the Greater Golden Horseshoe (GGH) directs
growth to built-up areas of communities through intensification and to designated
urban growth centres, such as downtown Pickering. New greenfield
development is directed to designated greenfied areas, such as Seaton. The
Province advises that it is supporting the Growth Plan by investing in public
infrastructure, public transit, assuming stronger Provincial authority, and
providing new fiscal and regulatory tools for municipalities to implement the
Growth Plan.
Report PD 31-08
July 14, 2008
Subject: Planning for Employment in the GGH
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1.2 Recent Provincial Initiative to assess employment areas in the Greater
Golden Horseshoe.
As part of the Growth Plan's implementation, the Ministry of Public Infrastructure
Renewal (MPIR) is required to undertake an assessment of employment areas in
the GGH. As a first step, MPIR has recently released a Background Paper
entitled Planning for Employment in the Greater Golden Horseshoe. The overall
objective of the employment area assessment is to ensure that:
· there is enough readily available land for future economic activities;
· the GGH is in a good postion to adapt to new economic trends;
· ensure that employment areas can be accessed by transit, walking, or
cycling and are being planned and designed for in an appropriate way; and
· employment activities are planned for in a way that supports growth
management objectives.
The Ontario Growth Secretariat of MPIR is seeking feedback on the information
and ideas in the Background Paper to help inform and shape the final outcome of
the assessment.
Copies of the Background Paper are available for viewing in the Planning &
Development Department or at www.placestogrow.ca. Notice of the paper has
also been posted on the Environmental Registry (EBR Registry Number:
010-3142) with a request for comments by July 18, 2008.
1.3 The feedback received on the Background Paper may result in a series of
Provincial initiatives to better support land use planning for employment
activities.
Once MPIR has reviewed the feedback received on the information provided in
the Background Paper, some of the possible actions that may result include;
· amending policies in the Growth Plan for the Greater Golden Horseshoe;
. employment lands mapping;
· guidelines to support better planning for employment uses; and
. a regional database of employment lands.
The Regional Planning Department prepared comments on the Background
Paper. The recommendations in Regional Commissioner's Report 2008 - P - 57
were adopted by Regional Council in June, 2008. The Region was generally
supportive of the Proposed Strategies. However, they noted the Province should
recognize the energy cluster in Durham, and the significance of the Provincial
Seaton employment lands. A copy of Region's Report is available from the
Region's website at www.region.durham.on.ca.
Report PO 31-08
July 14, 2008
Subject: Planning for Employment in the GGH
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2.0 Discussion:
2.1 The Province must consider the unique economic circumstances of each
single and upper-tier municipality in the GGH and develop appropriately
scaled strategies that can also assist local municipalities.
The Province can contribute greatly to local economic development strategies and
planning through the provision of regional and global economic trends, data and
information to guide and support local decision-making. Detailed employment land
databases and standardized employment definitions would also assist
municipalities greatly when analyzing local opportunities and protecting areas for
employment investment.
Pickering continues to target jobs to population ratio of 1:2 locally, given our
strategic location as a gateway into both Toronto and Durham Region, and the
availability of land and intensification opportunities that will support new
employment investment.
2.2 The Province's economic profile of Durham Region must highlight an
existing energy cluster, and promote its emerging national and global
significance.
Durham Region is the "energy capital" of Ontario, anchored in the City of
Pickering through a variety of energy and related industries. This existing
employment cluster is unique in Ontario, and should be promoted and expanded
with strong support from the Province. This cluster is well positioned to capture
significant employment growth and investment. Seaton provides an ideal
location for the energy cluster to grow in Durham.
2.3 A comprehensive package of initiatives including fiscal, regulatory and
other tools need to be developed to enable municipalities to implement the
Growth Plan at the local level.
The Background Paper provides a list of planning and financial incentives and tools
that municipalities are encouraged to use such as the new design control provisions
in the Planning Act, heritage property tax relief measures, the Development Permit
System and Community Improvement Plans.
The existing tools and incentives advocated by the Province are not fiscally
attractive for Pickering as they require significant financial contributions through
the municipal tax base. This places an undue financial burden on existing
taxpayers and diverts limited financial resources to subsidize new development.
It is essential that the Province provide municipalities with the financial resources
to implement the Growth Plan. Therefore, it is recommended that MPIR release a
comprehensive package of initiatives including fiscal, regulatory and other tools
that will be made available to implement the Growth Plan policies at the local
level.
Report PD 31-08
July 14, 2008
Subject: Planning for Employment in the GGH
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2.4 The Province should require all of its Ministries and Crown agencies to
align their decisions on investment, employment and growth to support the
objectives of the Provincial Growth Plan.
While local and regional municipalities have a significant role in implementing the
objectives of the Provincial Growth Plan, the Province must recognize the
substantial role it can play in influencing investment decisions and supporting
municipal efforts to implement the Plan. The Province should establish a
mechanism requiring its various Ministries and Crown agencies to demonstrate
that their decisions, directions and actions are aligned and consistent with the
objectives of the Plan.
2.5 The Province should identify the employment lands along the Highway 407
corridor as provincially significant, and allow designation of strategic
employment lands that will be needed beyond 2031. The Province should
also designate Downtown Pickering as provincially significant.
The background paper suggests identifying future strategic employment areas
for a time period exceeding twenty years. The Growth Plan policies also
advocate the identification of provincialy significant employment areas. Staff
considers the Seaton employment lands not only provincially significant but also
strategic for Durham's employment growth over the next 25 years. In addition,
the Province should also consider the extended Highway 407 corridor and
Federally-owned lands on the north side of Highway 7 as provincially significant.
From a market perspective, the Seaton employment lands are strategically
located as the eastern gateway to Toronto and western gateway into Durham
Region. Immediately north is the federally-owned lands for a potential future
Pickering Airport. However, major infrastructure investments are required to
maximize the benefits generated by these lands. A submission to the Treasury
Board from the Ministry of Municipal Affairs and Housing respecting
infrastructure support funding for this area is pending. This Provincial investment
needs to be protected.
It is recommended that the Province identify Seaton's prestige employment lands
and the employment lands along the future Highway 407 corridor as provincially
significant. The Province should commit to funding required infrastructure to
attract complementary and desired employment investments from
national/international interests. In addition, the Province should revise the
Growth Plan to allow the designation of strategic, provincially significant
employment lands beyond the 2031 time frame.
It is also recommended that Downtown Pickering, an Urban Growth Centre, be
recognized as provincially significant for its employment potential for major office.
Provincial investment should be directed to this Centre, and decisions made by
the Province to maximize the Centre's potential.
Report PD 31-08
July 14, 2008
Subject: Planning for Employment in the GGH
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2.6 The Province should clarify the uses permitted under the Growth Plan in
"employment areas" and prohibit large format! major retailing.
The Province should provide clarification on the Growth Plan's definition of an
"employment area" with respect to the scale and type of retailing. While staff
concurs that retailing provides jobs, the intent of designating "employment areas"
in official plans is to reserve strategically located lands for uses that should not
be located in predominantly residential areas. Large format and other major
retailing centres serve residential areas and should therefore be located in
residential areas. Residential areas are better served by transit and permit
'walk-to' customers. Locations in employment areas tend to isolated and poorly
served by transit. The original "retail warehouse" definition should be recognized
essentially as a loophole permitting retailing, not an industrial (warehouse)
function.
The Regional Official Plan policies discourage the consumption of Employment
Area lands for retail commercial uses and limits retailing to those uses serving
the immediate area. However, the Plan still permits by amendment, the
introduction of retail warehouses, subject to criteria. This policy should be
deleted by the Region as part of its conformity amendment for Places to Grow.
In Pickering, major retailing is directed to Pickering's downtown or arterial road
corridors adjacent to residential neighbourhoods. Given the significance of
Seaton's prestige employment lands, the Central Pickering Development Plan
specifically prohibits large format retailing in those areas.
It is recommended that the Province identify and protect strategic, provincially
significant employment lands for high quality employment opportunities such as
office, business park, and manufacturing and prohibit large format retailing/ retail
warehousing/ major retailing within these lands..
2.7 Detailed comments on the Proposed Strategies in the Background Paper are
provided.
Staff has provided detailed comments on the Proposed Strategies for Council's
review and endorsement (see Table, Appendix #1).
3.0 Next Steps:
The Province will be conducting workshops to discuss and provide feedback on
the Backround Paper. In addition, City staff attended a stakeholder consultation
workshop in the Town of Markham on June 23, 2008, arranged by MPIR.
Appendix:
Appendix I:
Staff Comments on Proposed Strategies
Report PD 31-08
July 14, 2008
Subject: Planning for Employment in the GGH
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Prepared By:
Approved I Endorsed By:
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Neil Carroll, MCIP, RPP
Director, Planning & Development
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Catherine Rose, MCIP, RPP
Manager of Policy
GM:ld
Copy: Chief Administrative Officer
Director, Office of Sustainability
Recommended for the consideration
of Pickering City Council
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Appendix I
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Staff Comments on the 'Proposed Strategies' in the
Planning for Employment
Greater Golden Horseshoe Background Paper
~r:nbe~___ Proposed Strategy
4. 1 a) The Province should expand its existing regional
economic profile analysis to take into account major
employment need shifts. This analysis can then be
used as guidance information by municipalities to
undertake review of local economic development
strategies and to refine the understanding of locational
and other needs of specific employment uses.
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4.2.2 a)
4.2.2 b)
5.1 a)
5.1 b)
The Province should work with upper- and single-tier
municipalities, building on existing work, to develop a
consistent and shared database of existing and planned
employment areas, and their attributes (e.g. size, service
or not serviced, transportation, access, etc.).
The Province should work with stakeholders to
develop a new approach for determining future land
needs for employment that places greater emphasis
on the unique needs of different sectors of the
economy and on the growth management imperative
to locate jobs close to where people live and in transit-
supportive locations.
The Province should work with stakeholders to
develop a set of guidelines to support better planning
for employment uses. Some of the areas that these
guidelines may examine include: general urban design
principles that support attractive, functional
development that fits the local context, and supports a
vibrant public realm;
. form and design required to support different
economic activities;
. parking and other standards with an eye to
supporting more compact, pedestrian- and transit-
supportive development.
The Province should provide support to municipalities
in the use of existing tools, and explore the
development of new tools and incentives, to support
better urban form and design in employment areas.
City Comment
Support. This information would be very
helpful in guiding and supporting local
planning decisions and economic
development strategies.
Support. However, GGH single- and
upper-tier municipalities are developing
a consistent and shared employment
database with standard terminology.
Rather than create a separate provincial
database, it is recommended that the
Province participate in the GGH
database discussions. This information
should also be shared with lower-tier
municipalities.
Support in principle. The Province
should be developing a methodology for
determining future employment land
needs while recognizing the unique
regional economies across GGH, in
consultation with single- and upper-tier
municipalities.
Support in principle. Broad Provincial
Guidelines would be appropriate and
can be used as a resource by
municipalities in preparing more
detailed Guidelines at the local level.
Support. The Province should be
providing local municipalities with new
fiscal tools and incentives that support
the implementation of appropriate
streetscape design (such as walking
and cycling infrastructure) and
encourage sustainable design
approaches within employment areas.
Number
5.2 a)
5.3.1 a)
5.3.1 b)
5.2 b)
5.3.2 a)
Proposed Strategy
The Province, other levels of government, and the
broader public sector should explore ways to ensure that
their decision on the location and funding of their
respective institutions and facilities support the Growth
Plan policies of intensification, downtown revitalization,
and complete communities.
The Province should continue to work with municipalities
and Metrolinx to ensure that priority is given to transit
investments that support large employment nodes of
major office development and employment activities,
such as in urban growth centres, major transit stations
along intensification corridors.
Where appropriate and where market conditions allow,
the Province and municipalities should use land holdings
and investments in urban growth centre, major transit
stations, or areas with existing frequent transit service, or
existing or planned higher order transit service to support
development of major office uses.
The Province should work with stakeholders to
undertake a review of potential barriers to the siting and
design of public institutions in a way that contribute to
achieving the objectives of the Growth Plan, particularly
those objectives related to downtown revitalization.
The Province should work with stakeholders to
develop a set of guidelines to support better planning
for office uses. Some of the areas that guidelines may
examine include:
. planning for various office uses in a manner
that makes more efficient use of land and is
more transit-supportive;
. planning for more specific land use
designation for office use;
. supporting the clustering of office uses, where
appropriate.
City Comment
Support. However, the mechanism to
ensure that decisions on provincial uses
support the Growth Plan is unclear.
Ministries in the past have made their
site selection on criteria that is
inconsistent with the Plan. Therefore, it
is recommended that the Province
establish a mechanism to align decisions
on infrastructure, employment and
development by its Ministries and
agencies with the objectives of the
Growth Plan.
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At the local level, Growth Plan policies
will be implemented through required
Official Plan conformity amendments
and subsequently during the review of
development applications including
provincial proposals.
Support. Transportation investment is
critical to achieving desired employment
investment and establishing efficient
mobility hubs, particularly in the Seaton
Employment Lands and Downtown
Pickering.
Support. Public investment in facilities
and infrastructure must focus on
provincially significant employment
areas and urban growth centres to
capitalize on transit-supportive densities
and amenities.
Support. Provincially significant
employment areas, particularly urban
growth centres and "mobility hubs",
should be the preferred choice for the
siting of major provincial, regional and
other public institutional buildings.
Support in principle. Broad Provincial
Guidelines would be appropriate and
can be used as a resource by
municipalities in preparing more
detailed Guidelines at the local level.
In Pickering, office uses are permitted
within the employment areas. However,
major office development is planned
within Pickering's downtown now
designated as an Urban Growth Centre
in the Growth Plan.
Continued
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Number
5.3.2 a)
5.4 a)
5.5 a)
6.1 a)
6.1 b)
Proposed Strategy
The Province should work with stakeholders to
develop a set of guidelines to support better planning
for retail activities. Some of the area that these
guidelines may examine includes:
. proactively planning for the appropriate
location and design of major retail, including
large-format retail;
. overcoming barrier to mixed-use retail
developments in intensification areas.
The Province should work with stakeholders . to
develop a set of guidelines to support better planning
for industrial, warehousing, and logistics uses. Some
of the areas that these guidelines may examine
include:
. supporting proactive planning for industrial,
warehousing and logistics uses;
. developing appropriate criteria to identify
employment areas that should be set aside for
industrial, warehousing, and logistics uses.
The Province should explore the development of new
tools and incentives to help facilitate the reuse of older
strategically located employment areas for continued
employment activity.
The Province should work with stakeholders to
develop guidelines to help municipalities and others
identify areas in existing urban areas that are well
located for employment uses and to investigate ways
to overcome barriers to the re-use of those areas.
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City Comment
Downtown Pickering will serve as the
main destination in west Durham for
regional, civic and local activities, and
developed at the greatest scale and
intensity. The current Downtown Core
Development Guidelines support
increased density and mix of uses and
provide for a range of office/employment
opportu n ities.
Support in principle. However, the
Regional Official Plan and the City's
Official Plan discourage the consumption
of Employment Area lands for retail
commercial uses. Such uses are directed
to the downtown or mixed use areas that
are easily accessible by residents. Large
format retailing is not permitted within
Seaton's Employment Areas.
In addition, the Province should be
identifying and protecting strategically
located and provincially significant
employment lands for more traditional
employment uses, and prohibit large
format retailing in these areas.
Further, the Growth Plan should be
amended to permit protection of
strategically located and provincially
significant employment areas beyond
the 2031 timeframe. These lands
should also be protected from
conversion to residential.
Support in principle. Broad Provincial
Guidelines would be appropriate and
can be used as a resource by
municipalities in preparing more
detailed Guidelines at the local level.
Support. The Province should be
providing local municipalities with new
fiscal tools and incentives to facilitate
the reuse and intensification of older
strategically located employment areas.
Support. However, Guidelines should
be broad and focused on removing
barriers to redevelopment in existing
areas. In addition, the Province should
provide funding to enable municipalities
to develop more specific Guidelines at
the local level.
Number
6.1 c)
6.1 d)
6.2 a)
6.2 b)
6.3 a)
7.2 a)
Proposed Strategy
The Province should look at ways to overcome
barriers to redevelopment in existing areas through a
review of existing land use compatibility guidelines.
City Comment
Support in principle. However, it is not
clear if reference is being made to
MOE's land use compatibility
guidelines. The review of these
guidelines should relate to barriers to
redevelopment within employment
areas.
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The Province should continue to support Support.
redevelopment of Brownfields.
The Province should continue to work with
municipalities and Metrolinx to ensure that priority is
given to' transit investments that support large
employment nodes of major office and employment
activities, such as in urban growth centres, major
transit station areas, and along intensification
corridors.
The Province will continue to use its investments in
highways in the Greater Golden Horseshoe to support
efficient goods movement.
Municipalities should ensure that servicing for large
contiguous employment areas is properly planned for
and that regional, water and wastewater, master plans
adequately account for the provision of servicing to
these areas when it is required.
The Province should work with stakeholders to
explore ways that it can support established and
future strategic employment areas through:
. Further work to identify and/or protect
established and future strategic employment
areas;
. Targeted infrastructure investments;
. Technical analysis (e.g. site-related information
to assist in the identification of underutilized
lands);
. Exploring ways to overcome development
constraints and barriers, such as,
o land assembly;
o servicing improvements;
o addressing inter-jurisdictional issues;
o expediting the approval process.
Support. However, the Province should
also assist with the funding of needed
infrastructure improvements such as
water, wastewater, roads, sidewalks,
etc. in urban growth centres, major
transit station areas, and along
intensification corridors.
Support. The Province should consider
the impact of tolls on Highway 407 and
their impact on cost-efficient movement
of goods.
Support. Region and City support the
early servicing of Seaton's employment
areas in order to balance jobs with
population.
Support. The Seaton employment
lands should be recognized as
provincially significant as the lands
occupy frontages along Highways 7 and
407. From a market perspective, the
lands are strategically located as the
eastern gateway to Toronto and
western gateway into Durham Region.
However, major infrastructure
investments and long-term funding are
required to maximize the benefits
generated by the Provincial lands.
The Province should consider
marketing these areas to
national/international interests as
anchors to attract complementary and
desired employment investments.
Number
7.2 b)
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Proposed Strategy
If necessary criteria are met, the Province should
consider mechanisms to conceptually identify the
general location and/or characteristic of future
strategic employment areas beyond a twenty-year
planning horizon, to better coincide with long-term
infrastructure planning and servicing strategies. This
would require municipalities to meet urban boundary
expansion policy tests, and potentially additional tests,
prior to designating these future employment areas for
development.
City Comment
Support. The Province should be
considering future demand for
employment-lands and strategic
locations for employment lands along
with urban land requirements for a fifty
year planning horizon along with
provincial long-term infrastructure
requirements such as 400 series
highways, in consultation with GGH
single- and upper-tier municipalities.
In Pickering, the Province should
consider the extended Highway 407
corridor and federally-owned lands
north of Highway 7.