Loading...
HomeMy WebLinkAboutPD 47-06 REPORT TO COUNCIL C) ~.' · t Lt Report Number: PO 47-06 Date: October 10, 2006 From: Neil Carroll Director, Planning & Development Subject: Sustainable Neighbourhood Plan (Growth Management Study Phase 3) Interim Report 2 - September 2006 Recommendation: 1. That Report PO 47-06 of the Director, Planning & Development, regarding the Sustainable Neighbourhood Plan (Growth Management Study - Phase 3), be received; 2. That, in light of the progress made to date as outlined in the Sustainable Neighbourhood Design Guidelines, Interim Report #2, September 2006, prepared by Dillon Consulting Limited, and provided as Appendix I to Report PO 47-06, staff be requested to: (a) report back to Council by the end of 2006 with the Final Draft Sustainable Neighbourhood Design Guidelines; (b) establish an approximate six month trial period for testing the Final Draft Guidelines against development applications submitted to the City; and (c) identify other initiatives for inclusion in the Planning & Development Department's 2007 work program, to incorporate the Final Guidelines into the Department's day to day operations and procedures; and 3. That a copy of Report PO 47-06 be forwarded to the Federation of Canadian Municipalities, ROC Group, Canada Green Building Council, the Minister of Municipal Affairs and Housing, the Director of the North Pickering Land Exchange Team, the Region of Durham and the Toronto and Region Conservation Authority. Executive Summary: In June 2006, Council considered Report PO 39-06 on the Sustainable Neighbourhood Plan (SNP). The purpose of the SNP is to prepare Sustainable Neighbourhood Design Guidelines containing measurable performance targets for assessing neighbourhood development in Pickering. The intent is that all new development will meet, or exceed, a defined minimum level of sustainability. Since June, staff with the assistance of a consulting team lead by Dillon Consulting Limited, continued refining the guidelines and revising the targets. Meetings were held with district energy providers, and contact was made with the Canada Green Building Council respecting use of the Pickering's SNP Guidelines as a model for a Canadian version of the draft Leadership in Energy and Environmental Design - Neighbourhood Development (LEED-ND) standards that were developed in the United States. Report PO 47-06 07"- . . :Subject: Sustainable Neighbourhood Plan (Growth Management Study Phase 3) Date: October 10, 2006 Page 2 Dillon Consulting Limited has prepared the Sustainable Neighbourhood Design Guidelines, Interim Report #2, September 2006, summarizing work over the last three months and outlining next steps. Interim Report #2 is provided as Appendix I to Report PO 47-06. It is anticipated that the Final Draft Guidelines will be completed by the end of this year. In 2007, staff anticipates testing the Guidelines with planning professionals, the building industry, and the community. Subsequently, the Guidelines will be finalized and Departmental procedures changed as necessary to reflect the City's focus on sustainability. As the SNP is one of several related projects the City is undertaking on sustainability, current and future work is being coordinated with other sustainability initiatives the City is undertaking. Financial Implications: No funding implications as a result of adopting the recommendations of this report. The total budget for the Sustainable Neighbourhood Plan was $241,000.00. Half of the funding ($120,500.00) is from a grant from the Federation of Canadian Municipalities Green Enabling Fund. The City is contributing the remaining half of the funds ($110,000.00) from Growth Management Study Phase 3: continuing studies reserve - account 2611-2392; and $10,500.00 from 2005 new consultative expenditure - Growth Management Study Phase 3: Sustainable Development Plan - account 2611-2392. As of the end of September 2006, approximately $75,000.00 remains for this project. Background: 1.0 Significant work has occurred with the guidelines to clarify their intent, reduce overlapping criteria, reflect the Ontario planning system, and identify Pickering-specific targets. Report PO 39-06, considered by Council in June 2006, identified that the framework from the Leadership in Energy and Environmental Design - Neighbourhood Developments (LEED-ND) was a good starting point for the development of measurable performance criteria for Pickering. It was noted, however, that in light of the American origin of the document, and the differences in the planning systems between the United States and Ontario, the performance indicators and the targets required adapting to fit Pickering. For example, in setting Pickering-specific targets, an energy performance rating equal to Energuide 80 is being proposed. This rating is the minimum level of energy efficiency that will be required for all new houses in 2012 under recent changes to the Building Code Act. Report PD 47-06 Date: October 10, 2006 Subject: Sustainable Neighbourhood Plan (Growth Management Study Phase 3) Page 3 078 However, as an incentive to achieve this performance level ahead of 2012, Pickering's proposed SNP Guidelines would award a higher number of points for developments achieving the equivalent of an Energuide 80 rating level in the next few years, and a lower number of points for achieving this minimum rating closer to the 2012 mandatory compliance date. An extract of this performance measure is shown on Page 7 of Appendix I to Report PD 47-06 The point system would be as follows: . 10 points would be awarded if a builder achieves an energy efficiency rating equivalent to Energuide 80 by 2007; . 9 points if achieved by 2008; . 8 points if achieved by 2009; . 6 points if achieved by 2010; . 2 points if achieved by 2011; and . 0 points if achieved by 2012 as mandated by legislation. Another Pickering-specific target being proposed addresses a matter that is being pursued with respect to water consumption. The proposed performance measure is that separate water meters be installed for each unit within multi-residential developments. The intent is to encourage responsible water consumption at the household level. In making the Guidelines Pickering-specific, the appropriateness of the four core categories of development used in LEED-ND was also reviewed. Several changes have been made so that the working draft of the SNP Guidelines now has seven core categories. The table below compares the core categories between LEED-ND and the City's work to date. LEED-ND Pickering SNP Core Categories Core Categories (draft 2005) (working draft Sept. 2006) Location Efficiency Location of Lands Environmental Preservation Environmental Protection Compact, Complete and Mix of Uses Connected Neighbourhood Intensity Connections Resource Efficiency Resource Efficiency Adaptability U~~~ort PO 47-06 Date: October 10, 2006 Subject: Sustainable Neighbourhood Plan (Growth Management Study Phase 3) Page 4 Another attribute of development in Pickering that may need to be reflected in Pickering's SNP Guidelines is that of "high quality design". This element is still being examined by staff and the consulting team to determine whether it fits within one of the seven core categories, whether it should be a new category on its own, or whether achieving high quality design requires a separate but complementary process to the preparation of the SNP Guidelines. While the original LEED-ND framework had only seven required (or 'prerequisite') performance measures out of a total of some 140, the working draft of the Guidelines for Pickering currently has approximately 70 required performance measures. This is similar to the number of required measures suggested through the March 3, 2006 workshop). The remaining performance measures are optional and give extra points (or 'credits'). The increase in the number of required performance measures in the Pickering draft in comparison with the draft LEED-ND document, results from a combination of a number of factors including: the sophistication of planning and development in southern Ontario; the increasing market demand for sustainable features and attributes; and Pickering's interest in being a leader in sustainable development. Nevertheless, the number of required performance measures might change as revisions continue to be made to the working draft. The working draft of Guidelines is being set up to establish performance measures to evaluate both neighbourhood plans and development applications. Examining the scope of the performance criteria from LEED-ND against the City's conceptual framework for sustainability (see Attachment #1), staff finds that the LEED-ND framework (and thus Pickering's working draft SNP Guidelines) corresponds better to some of the objectives than others. The relationship is set out below: Scope of LEED-ND Criteria Pickering's Sustainability Framework compared with Pickering's Sustainability Framework Objective 1: Healthy Environment High Objective 2: Healthy Society Low Objective 3: Healthy Economy Low Objective 4: Responsible Development High Objective 5: Responsible Consumption High Report PO 47-06 Date: October 10, 2006 Subject: Sustainable Neighbourhood Plan (Growth Management Study Phase 3) Page 5 Cl~:"1. ' f 6 The comparison above may assist in establishing additional performance measures and a scoring system that identifies the nature of change required by development to achieve "Pickering Sustainability", not just LEED sustainability. To date, the working draft of the Guidelines assigns points for each performance measure, although the overall scoring system is not yet established. Work will continue refining the performance criteria and targets through review by staff, the consulting team, and selected technical review. The Final Draft Guidelines will then be forwarded to Council by the end of the year with a recommended testing and implementation program. 2.0 Preliminary conclusions from meetings held with district energy providers suggest that Seaton is an ideal planning opportunity to consider establishing a district energy supply for the community, and that a high level feasibility test should be undertaken. In keeping with the City's interest in the energy sector and sustainability Council, through Report PO 39-06, requested staff to investigate the potential for district energy production, and meet with known providers. "District energy" refers to providing the heating and cooling to buildings through one or more centralized energy plants that can produce energy with high efficiency and with low environmental impacts. Most systems also have a co-generation component where electricity is generated and used to power the system, and/or sold to the electricity grid. The fuel for creating heat and cooling is typically natural gas in the initial stages but can evolve over time into more environmentally positive and less price volatile fuels such as bio-fuels, solid waste, waste pellets, solar or geothermal. A district heating system would replace conventional heating and cooling systems (that is, boilers/chillers for employment, commercial, and multi-residential uses, and conventional home furnaces, air conditioners and water heaters in grade- related homes). The key advantages of such systems are: the security of supply for the users; potentially more stable costing that is comparable to conventional systems for the users; the potential to ensure low impact energy systems on a broad-scale; and the potential financial benefit through cost recovery and selling of electricity to the operator. With respect to the SNP, meetings were held with representatives from two key district energy providers: Enwave (which is located in City of Toronto) and Markham District Energy Inc. A meeting was also held with Enbridge Gas Distribution. Report PD 47-06 Date: October 10, 2006 o 7~bject: Sustainable Neighbourhood Plan (Growth Management Study Phase 3) Page 6 However, currently Enbridge Gas is not set up to deliver district energy. A meeting is being set with their sister company, Enbridge Inc. who coordinates Enbridge's business development activities. Preliminary conclusions with respect to district energy are that the timing to consider district energy in Seaton is very opportune, as no development has yet taken place. District energy can be used to serve both non-residential uses, multi-unit residential as well as grade related residential. However, a minimum threshold of development is required. Thus, a further high-level pre-feasibility test of the densities and employment figures for Seaton will be taken as part of the SNP project. A full feasibility study would be required should Council wish to explore district energy supply further, and such a study is beyond the scope of the SNP work program. 3.0 The Canada Green Building Council (GBC) is currently focusing on preparation of a Canadian version of LEED standards for "campus-style" development. In mid September, an update on the status of the City's work on the SNP Guidelines was provided to Mr. Neil Munro, a representative from the GBC. Mr. Munro advised that the GBC is currently focusing their attention on preparing a Canadian version of LEED for "Campus Style" development, and have not yet commenced work on the "LEED - ND" for Canada. However, there may be similarities between the scale of development in a "campus" and a neighbourhood. Our lead consultant will be participating as a reviewer of the GBC's draft campus standards to share knowledge gleaned through the City's work. A copy of the City's Report to Council will be forwarded to the GBC, and they will continue to be apprised of the City's activities on the SNP Guidelines. APPENDIX: Appendix 1: City of Pickering Sustainable Neighbourhood Plan: Sustainable Neighbourhood Design Guidelines, Interim Report #2, September 2006, prepared by Dillon Consulting Limited et al. Attachment: 1. City of Pickering Sustainability Framework, from Report CO 01-06 of the Chair, Benchmarking Sustainability Standards Committee, Attachment 1 -- Sustainable Pickering: A Framework for Benchmarking Sustainability, June 2006, prepared by the ROC Group. Report PD 47-06 Date: October 10, 2006 Subject: Sustainable Neighbourhood Plan (Growth Management Study Phase 3) Page 7 080 Prepared By: Approved I Endorsed By: (:?~ ~~ Ne~ Director, Planning & Development Catherine Rose, MCIP, RPP Manager, Policy CR:cm Attachment Copy: Chief Administrative Officer Division Head, Corporate Projects & Policy Benchmarking Sustainability Standards Committee Recommended for the consideration of Pickering City Council i f: :.. /'- ')0." UOJ. APPENDIX I TO REPORT PD 47-06 City of Pickering Sustainable Neighbourhood Plan Sustainable Neighbourhood Design Guidelines Interim Report #2, September 2006 082 Lit" ../ :I ~ Sustainable Neighbourhood Design Guidelines Interim Report # 2 September 2006 e8J City of Pickering Sustainable Neighbourhood Plan SNP Interim Report #2 - September 2006 ~'''''-' N.f::' PI TABLE OF CONTENTS Page 1.0 INTRODUCTION ...... ............................................................ .................. .... .... ...... 1 1.1 Purpose and Objectives............................................................................. 1 1.2 Format of Report..... ......... ..... .............. ..... .... ........ ... .............. ...... ..... ..........2 2.0 PROJECT STATUS.............................................................................................. 2 2.1 Study Process............................................................................................ 2 2.1.1 Consultation .................................................................................... 3 2.2 Development of Neighbourhood Design Guidelines ..................................3 2.2.1 Develop Regulatory Parameters/Policies........................................ 4 2.2.2 Review of Guidelines by City staff................................................... 4 2.2.3 Agency Consultation....................................................................... 7 2.2.4 District Energy................. ...... ....................... .......... ........ ........ ......... 7 2.3 Proposed Implementation Framework ....................................................... 9 3.0 NEXT STEPS ..................................................................................................... 10 LIST OF TABLES Table 2.1 Examples Applications of the Sustainable Neighbourhood Design Guideline.................................................................................................... 5 LIST OF FIGURES Figure 1.1 The Balance of Environment, Society and Economics in a Sustainable Community................................................................................................. 1 Figure 2.1 Process for Developing Sustainable Neighbourhood Development Guidelines.................................................................................................. 3 Oil/on Consulting Limited Page i City of Pickering Sustainable Neighbourhood Plan SNP Interim Report #2 - September 2006 ~"'~.' A.I .. PI f18 r .J. L~ 1.0 INTRODUCTION This report is the second interim report for the Sustainable Neighbourhood Plan (SNP) project. It provides a summary of the activities and outcomes for the project completed between June 2006 to September 2006, the period since the first interim report for this project (dated June 2006) was prepared. Although some of the activities and outcomes of the project conducted prior to June 2006 are included in this report, a more detailed description of the activities prior to June 2006 is presented in the first SNP Interim Report - June 2006. 1.1 Purpose and Objectives In 2005, the City of Pickering commenced the Sustainable Neighbourhood Plan Project with the assistance of the Green Municipal Enabling Fund. The City and its partners recognized the need to provide a solid foundation for future development and to provide the leadership, guidance and support required to make Pickering a sustainable city. The SNP Project is part of the Sustainable Pickering initiative. Other ~ustainability initiatives in Pickering Include establishing benchmarking standards for sustainability, Partners for Climate Protection program and Sustainable Downtown. Sustainability is important to Pickering because sustainable communities reduce the impact of the built form on the environment while ensuring the long-term economic durability and social cohesion of the community. In other words, economic, social and environmental needs are balanced in the community (Figure 1.1). Note that with respect to community design, the word 'community' is used as a broad term that encompasses a range of scales from neighbourhood to site. Figure 1.1 The Balance of Environment, Society and Economics in a Sustainable Community Oil/on Consulting Limited Page 1 D8~,) City of Pickering Sustainable Neighbourhood Plan SNP Interim Report #2 - September 2006 ~i_..... 101 ~. PI The purpose of the SNP Project is to develop sustainability principles and strategies with measurable criteria as the basis for Sustainable Neighbourhood Design Guidelines for future development in Pickering. The objectives of the SNP are to: 1. Identify a new approach to development; 2. Establish a practical set of guidelines for sustainable community design that will be applied throughout Pickering; and 3. Work collaboratively with municipal staff, developers, residents, energy providers, businesses and others to create a far reaching, innovative guideline. 1.2 Format of Report This report is presented in three main sections. Section 1, the introduction, provides an overview of the context, purpose and process of the SNP project. The second section provides a summary of the status of the project including the development of the Pickering-specific Sustainable Neighbourhood Guidelines and the proposed implementation process of the Guidelines. The final section provides an overview of the next steps in the development of the sustainable neighbourhood plan. 2.0 PROJECT STATUS The progress of the project from June 2006 to September 2006 is described in the following sections, including work related to the development of the guidelines as well as the associated implementation process. 2.1 Study Process A general overview of the study process is shown in Figure 2.1. Note that an additional step has been shown for the study that will be completed by the City, after the Dillon Team has completed their portion of the study. This step includes a consultation and trial period in which the draft document will be presented to stakeholders to obtain their feedback. Feedback obtained during this consultation period will be used to revise the guideline document. Prior to June 2006 (before the first Interim Report was completed) the following components of the study were completed: · The development of the Sustainable Neighbourhood Design Guidelines for Pickering was initiated by establishing the objectives of the project. · Background sustainable collected. · A best practices report, describing case studies on sustainable community design, was prepared from this review of the literature. information neighbourhoods on was · A list of objectives and strategies for sustainable neighbourhoods was then created and the framework for the development guidelines was created. The development of Pickering- specific targets for sustainability was initiated as well as the process for implementation of the Guidelines. . · Consultation was conducted with various stakeholders at workshops and an open house. Dillon Consulting Limited Page 2 City of Pickering Sustainable Neighbourhood Plan SNP Interim Report #2 - September 2006 USG ~'it'4.. ~'. . I III FCM SNP Proiect r---------- ~ I Step 4: Consultation Step 3: I and Trial Period (to be Implementation: I completed by the Step 2: Consensus I City): Step 1: Building: - I Set targets for I -Present guidelines Background -Identify and meet required and I to stakeholders to Research: optional strategies I obtain feedback with stakeholders - Best practices -R . -Identify tools for -Test usability of the review alse awareness on implementation benefits of sustainable guidelines by - Develop list of design - conducting trial runs Complete using existing - technical team developments Develop "made for meetings Pickering" guidelines -Revise guidelines if -Deliver final draft guidelines required Figure 2.1. Process for Developing Sustainable Neighbourhood Developmfmt GUicielines The project is currently in the third step (Implementation). Between June and September 2006, the development of the guidelines and identification of the implementation process continued. 2.1.1 Consultation As shown in Figure 2.1, the study process includes consultation with the general public and other stakeholders. Although two workshops and an open house were held before June 2006 (as described in Interim Report #1), no formal consultation was conducted from June to September 2006. However, select stakeholders, including staff from City departments as well as external agencies have been engaged to provide feedback on the guidelines. The results of consultation with City staff and outside agencies are described in more detail in Section 2.2. Note that after the completion of the FCM SNP Project, additional consultation, to be conducted by the City, is planned for a 6 month period starting in early 2007 to review the guidelines document with a variety of stakeholders (Step 4). 2.2 Development of Neighbourhood Design Guidelines As described in the first Interim Report (June 2006), the Pickering-specific Sustainable Neighbourhood Design Guidelines are being developed based on the LEED- ND document as well as case study research and stakeholder input. The Guidelines will be prepared as a stand-alone document and will be similar to the LEED-ND .'fl NO Irfllf<<~l'Ioodrk",,~""'\, Ratq Sy\tflt\ - PreflmNfV Oran Scot...... ~ lOllS .. . ...~.. <0, .~. _ "~_d'_ ... .~__._ . ~ . Dillon Consulting Limited Page 3 08', City of Pickering Sustainable Neighbourhood Plan SNP Interim Report #2 - September 2006 ~..t~. ~ ". . format, with detailed targets for each strategy described. Since the first Interim Report was issued, the development of the Pickering-specific neighbourhood design guidelines has continued. The focus of the work since June has been on ensuring that the proposed targets and strategies are appropriate for Pickering. In addition, the regulatory parameters and policies associated with the guidelines were further developed. These tasks are described in the following sections. 2.2.1 Develop Regulatory Parameters/Policies The list of strategies and targets was reviewed by the Dillon Team to identify how they can be implemented given the current regulatory regime. Approvals needed by agencies as well as requirements for additional regulations (Le. creation of new by-laws) were identified. 2.2.2 Review of Guidelines by City Staff To determine if the proposed guidelines are appropriate in the Pickering context, the draft guidelines were distributed to City staff for review. Staff from the Planning and Development Department, including Planning, Building Services and Development Control, reviewed the guidelines for the proposed required strategies and provided comments with respect to the format, content and implementation process. The applicability of the proposed targets for Pickering was reviewed and revisions were proposed. Proposed revisions included changes to the categories (or core elements) of strategies. The four original categories based on the LEED-ND document included: location efficiency: environmental preservation: compact, complete and connected neighbourhoods; and resource efficiency. The list of core elements was revised to include the following categories: 1. Location of Lands 2. Environmental Protection 3. Mix of Uses 4. Intensity 5. Connections 6. Resource Efficiency 7. Adaptability Another example of changes proposed through the City review of the draft guidelines included the addition of a strategy to require that all new residential development satisfy the requirements of the Ontario Building Code (OBC) 2012 energy performance rating (Energuide 80) at an earlier time than required by legislation. Excerpts from the updated version of the draft guidelines are presented in Table 2.1. Dillon Consulting Limited Page 4 City of Pickering Sustainable Neighbourhood Plan SNP Interim Report #2 - September 2006 ~i_.. AI ,,- PI 083 Table 2.1 Example Applications of the Sustainable Neighbourhood Design Guideline. Example #1. Site location selection using an example of a new building that would be constructed on the Pickering Town Centre parking lot. Samole Guideline LOCATION OF DEVELOPMENT/SELECTION OF LANDS Site Location Eligible Points Total Points Awarded The lands subject of the draft plan/rezoning/site plan: . are located within the Downtown Core (Urban 1 0 pts 10 pts Growth Centre); OR . are located within the 2003 built boundary; 7 pts OR . are designated urban; 3 pts OR . are designated rural settlement. 1 pt AND . were previously developed; 3 pts 3pts OR . are located on an inti" site; 2 pts OR . are located on adjacent to a previously development 1 pt site. AND . are documented as a site currently contaminated requiring remediation or brownfields; and 0 The cost of remediation is $1 million or greater; or 1 0 pts 0 The cost of remediation is less than $1 million; 6 pts OR . are located on a formerly contaminated but 5 pts remediated site; Totals This Criteria 23 pts max 13 pts achieved Dillon Consulting Limited Page 5 "8~ U .J City of Pickering Sustainable Neighbourhood Plan SNP Interim Report #2 - September 2006 ~ Table 2.1 continued Example #2. Integration of the new Ontario Building Code requirements before the required date using new construction in 2008 at Energuide 80 performance levels for energy as an example. Sample Guideline RESOURCE EFFICIENCY Eligible Points Total Points Awarded Ontario Building Code The lands subject of the draft plan/rezoning/ site plan are governed by official plan/ neighbourhood plan policies requiring all new residential development (10 units or greater and requiring either site plan or subdivision approval): · to satisfy the requirements of the Ontario Building Code 2012 energy performance rating (Energuide 15 pts 80) by 2007, and to require developers to enter into appropriate development agreements to meet this condition and obligation OR · to satisfy the requirements of the Ontario Building Code 2012 energy performance rating (Energuide 80) at an earlier time frame than required by current legislation; AND · At the time of submission/approval of the application for draft plan/rezoning/ site plan, the project identifies the anticipated year of construction and indicates agreement to conditions of approval to that effect; 5 pts 5 pts 2007: 10 pts 2008: 9 pts; 2009: 8 pts. 2010: 6 pts; 2011: 2 pts; 9 pts Totals This Criteria 15 pts max 14 pts achieved Dillon Consulting Limited Page 6 City of Pickering Sustainable Neighbourhood Plan SNP Interim Report #2 - September 2006 ~;""..' ~< ... I nr"...... U.~Lf 2.2.3 Agency Consultation Since the first interim report, which described an initial meeting with the Toronto Region Conservation Authority (TRCA), a second meeting was held with the TRCA to present them with the updated guidelines document (including the draft implementation process) and request their feedback on the content of the guidelines as well as the implementation process. It was agreed that TRCA complete the review of the document, with specific focus on the environmental protection section and provide feedback by mid October. 2.2.4 District Energy One interesting and far-reaching opportunity for sustainable infrastructure in Seaton is to provide energy to the homes and businesses through a district energy system. The proposed guidelines include district energy as one optional environmental performance target. To fully explore this important option, Council authorized the SNP team to undertake additional preliminary investigations after June 2006. The results of these investigations are presented below. The broad objective is to provide heating and cooling through one or more centralized energy plants that can produce energy with high efficiency and with low environmental impacts. Most systems also have a co-generation component where electricity is generated and used to power the system and/or sold to the electricity grid. The fuel for creating heat and cooling is typically natural gas in the initial stages but can evolve into more environmentally positive and less price volatile fuels such as bio-fuels (e.g. ethanol, bio-ethanol), solid waste, waste pellets, solar or geothermal over time. This system would replace conventional heating and cooling systems (e.g. individual home furnaces and boilers/chillers for employment uses). The key advantages of such systems is the security they provide to users, the potential to ensure low impact energy systems on a broad-scale, the potential to reduce greenhouse gas emissions, the potential financial benefit to the operator through cost recovery and selling of electricity and potentially more stable costing that is comparable to conventional systems for users. District energy is wide-spread through much of Europe and is beginning to emerge in the GT A market. Notable recent projects include Regent Park in Toronto and the Markham District Energy System set to provide heating and cooling for 100% of the new downtown area in Markham. Preliminary investigations of the opportunities presented by district energy are being undertaken as part of the SNP project. To date, three meetings have taken place: Dillon Consulting Limited Page 7 09:;' City of Pickering Sustainable Neighbourhood Plan SNP Interim Report #2 - September 2006 ~ · Enbridge Gas Distribution · Enwave Corporation · Markham District Energy These meetings have highlighted some opportunities and constraints to district energy in Pickering and highlight the need for a more in-depth feasibility analysis outside the SNP project scope. Some of the key findings are summarized as follows: · The decision to implement district energy is best taken well in advance of development because retrofit will typically cost in the range of 50% more; most of the district energy infrastructure must be placed in the rights of ways along with roads, wires and pipes and the cost savings to make the program financially feasible are contingent on furnaces and boilers not being built in each building as they would for a conventional community (note that individual units would still require internal distribution systems); · Multi-unit residential, office, commercial, industrial and grade- related residential can all be served by district energy; · A full commitment by the City would be needed to pursue a district energy program; · The key challenge to implementing district energy is not the technology but rather launching the organizational will and structure to plan, manage and operate a district energy system; · Markham believes that there are significant financial benefits to the town of planning and running their own system in their circumstance; · Private partners are available to assist the City in investigating the feasibility and financial viability of district energy as well as to partner in implementation of the program. However, taking on partners diminishes the independence and "public" focus of the initiative (e.g. a private partner may be more interested in the bottom line and less interested in environmental improvements or comprehensive application) ; · The Town of Markham provides a good municipal model for implementation of district energy with respect to organizational and administrative options; · Enbridge gas, though interested in Pickering's project does not currently have organizational infrastructure in place to assist Pickering. They may have some technical expertise they will offer; · Enwave is interested in working with Pickering to further analyze and implement a district energy strategy; · The density of residential development will be a key factor in defining the feasibility of district energy for all or part of Seaton; · The nature of the employment uses will influence the feasibility of district energy (e.g. projects with higher employee and energy needs are preferable to warehousing, low density employment uses); · Typically, the district energy system is anchored with one or more large energy users (e.g. IBM in Markham, large tracts of dense residential including high rise in Regent Park). This provides a guaranteed customer base upon which to invest capital for infrastructure. Dillon Consulting Limited Page 8 City of Pickering Sustainable Neighbourhood Plan SNP Interim Report #2 September 2006 ~'i_... A.I ~. PI 092 2.3 Proposed 1m plementation Framework Since the last interim report was prepared, the implementation framework has been further developed to reflect the stages of the planning process at which each strategy/target would be implemented. The guidelines document has been reformatted to reflect the division of the strategies/targets based on the planning process (Table 2.1). Also note that the guidelines document includes both required and optional performance targets in the same table. The Guidelines will be implemented at three levels: · Official Plan (OP) · Neighbourhood Plans (NP) · Plans of Subdivision (POS) as well as Rezoning and Site Plans .~:~...~~'" . ,-/.,.".,. ., '.~.1!t, ~ . ~'" .,: ,. f .. .I" Plans of Subdivision. The Official Plan will provide overall provisions that refer to the Sustainable Design Guidelines and their implementation through the Neighbourhood Plans and For Neighbourhood Plans and Plans of Subdivision, the intention is that each required sustainability performance target will identify: 1) the minimum requirements for approval; as well as 2) policy options for incremental improvement beyond this minimum. Points will be assigned to the policy options reflecting the appropriate level of performance (e.g. native species for 50% of exterior vegetation receives less points than for 100% of exterior vegetation). As discussed in the first interim report, a point system will be used to score the development applications. Points will be allocated to each successful strategy and will allow developers to choose amongst a variety of optional strategies/targets in addition to all of those that are required. The minimum number of points will be achieved by implementing all the required strategies as well as a selection of optional strategies. In addition, points will be achieved at both the Neighbourhood Plan and the Plans of Subdivision stages. The inclusion of additional strategies and targets in development approvals are important to enhance the sustainability of neighbourhood designs beyond that achieved by the req~ired elements. A wide range of optional strategies will be identified in the Sustainable Neighbourhood Design Guidelines. The intention is to allow some flexibility for developers to choose among these strategies and combine them in a manner that meets the skills, market and comfort of the developer and yet achieves a significant level of environmental, social and economic benefit. As described in the first interim report, the application of the strategies and targets can be implemented through a range of approaches from very regulatory to more voluntary: Dillon Consulting Limited Page 9 :D~.~ City of Pickering Sustainable Neighbourhood Plan SNP Interim Report #2 - September 2006 c. rfIj -:-. 1. Official Plan Amendment The OPA will direct that a certain number of points must be achieved in neighbourhood plans and development applications. The OPA will list the required and optional strategies, targets and point system. OR 2. Council Policy Council will adopt a Special Policy that required and optional strategies and targets will be met through the point system in all neighbourhood plans and development applications. Ideally, some value to developers will be attached to success such as a development charge credit, an application fee reduction or reduced processing time. 3.0 NEXT STEPS As discussed in the sections above, there are many steps in the development of the Guidelines that must be completed before Pickering can implement the Guidelines. Some of these steps can be completed within the existing work plan. However others are beyond the scope of the SNP work funded partially by FCM. The items that can be completed within the existing work plan include: Guidelines Document · The Guidelines document will continue to be refined, with a target of completing a final draft version by the end of 2006. · Comments from TRCA regarding the strategies and targets for Environmental Protection will be incorporated into the guidelines document, as appropriate. · A quick test of the guidelines will be conducted on a Pickering development application as a trial. · Where appropriate, illustrations including maps and figures will be used to describe the visible and "invisible" sustainability features described in some of the strategies and targets (i.e. including the "visible" urban design, and the "invisible" building envelope and infrastructure characteristics). Local Pickering examples will be included. · Technical team meetings with the Region and development industry will be completed. District Energy · Undertake further meetings with Enbridge Inc. who are a sister organization to Enbridge Gas Distribution and are coordinating business development; · Identify funding opportunities to support feasibility assessment stage; and · Consider undertaking a pre- feasibility assessment of district energy for Seaton as part of the SNP project to: 1) confirm that moving on to a feasibility assessment stage is reasonable; and 2) help to write the terms of reference for a feasibility assessment. Dillon Consulting Limited Page 10 City of Pickering Sustainable Neighbourhood Plan SNP Interim Report #2 - September 2006 ~ (\9/.' \)"t Implementation · The implementation process will be refined, including the point system as well as identifying recognition or incentives for participation in the program, such as reduced development charges and/or fast-tracking development applications. -- 'LJ' '- 0'.. .... -~1; - T.'.'..-.' .. .............. "'!:...n.... !...... .~'"\ : I!r:n : , , '~.. .1]WIJI" )1.... -... C"". ..... ...'.'J. ~,.."_........'...........-.. .......'.....-....-- -.....'..J...r ..:..... I . .. '-11. 'Dr' t .. : .11' .:: ~ I,: ,...t.. '"~ !) , , ':' :" f ~...".' ":.2 -".' ".' '.'.'.:'~.'." '. -......1.,... ....-: . ,e...,.I.... !c,.,'.:":'..""""','. ....I,.',g. "............. ,'- I "" ',_ ' i(" ,1- --" : ' .~. I . ,':! g, "H I ." -. ._..J' OJ !:::.:~ . ' !"" :'" : ,fit I i -r;:, ;'- ~.,.'. ;_:::J~ ~ I '..... .- a ._~ . ,,:';J:'-;';"~ ~- Funding · A list of funding sources for additional work will be prepared. The following items will also need to be completed but are beyond the scope of the existing work plan: · In early 2007, the City will present the draft guidelines document to various stakeholders to obtain feedback on the strategies, targets and implementation process; · Testing of the Guidelines should be conducted (e.g. a pilot project for an area such as Duffins Heights); · Conducting a feasibility study for district energy in new areas of greenfield development; · Preparing the detailed implementation strategy including preparation of an OPA and updating by-laws and City Standards; and · Staff training on sustainability and the guidelines. Dillon Consulting Limited Page 11 C9:i ATTACHMENT' REPORT # PO / TO 1../7- il ~ Sustainable Pickering Framework OBJECTIVE 1: HEAL THY ENVIRONMENT . Our Air . Our Water . Our land . Our Plants & Animals OBJECTIVE 2: HEALTHY SOCIETY . Basic Needs (food, shelter, access) . HealthlWell-being/Happiness . Education/Literacy . Arts/Cu Iture/Heritage . Community Safety/Preparedness . Citizen Participationllnvolvement OBJECTIVE 3: HEAL THY ECONOMY . Employment Opportunities . labour Participation Rates . Income levels . Business Attraction/Expansion . Innovation/Entrepreneursh ip . AgriculturelThe Rural Economy OBJECTIVE 4: RESPONSIBLE DEVELOPMENT . Building/Structures . Neighbourhoods . Transportation System . The City of Pickering OBJECTIVE 5: RESPONSIBLE CONSUMPTION . Energy Use . Water Use . Food Consumption . Waste Production/Diversion