HomeMy WebLinkAboutPD 23-08
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REPORT TO
PLANNING & DEVELOPMENT
COMMITTEE
Report Number: PD 23-08
Date: June 2, 2008
From:
Neil Carroll
Director, Planning & Development
Subject:
Comments on the Technical Paper
Proposed Size and Location of Urban Growth Centres in the
Greater Golden Horseshoe, prepared by the Ontario Growth Secretariat,
Ministry of Public Infrastructure Renewal, Spring 2008
Recommendations:
1. That Report PD 23-08 of the Director, Planning & Development, regarding on the
Technical Paper Proposed Size and Location of Urban Growth Centres in the
Greater Golden Horseshoe, released Spring 2008, by the Ministry of Public
Infrastructure Renewal, be received;
2. That the comments contained in Report PD 23-08 on the Technical Paper
Proposed Size and Location of Urban Growth Centres in the Greater Golden
Horseshoe, be endorsed, and that the Minister of Public Infrastructure Renewal
be requested to:
a) finalize the size and location of the Pickering Downtown Urban Growth
Centre as set out in the Technical Paper;
b) revise the method of calculating the density in Pickering's Urban Growth
Centre to allow exclusion of the controlled access freeway and railway
corridor; and
c) revise the profile for Pickering's Urban Growth Centre to more accurately
reflect its current mix of uses, and location, as set out in Section 2.4 of this
Report;
3. That the Ministers of Public Infrastructure Renewal, and Municipal Affairs and
Housing be requested to identify a predictable funding program to provide
needed infrastructure and related municipal facilities to foster the growth of
Urban Growth Centres, including Downtown Pickering; and
4. Further, that a copy of Report PD 23-08 be forwarded to the Region of Durham
and the Ministers of Public Infrastructure Renewal and Municipal Affairs and
Housing.
Report PD 23-08
June 2, 2008
Subject: Proposed Size and Location of
Urban Growth Centres in the Greater Golden Horseshoe
Page 2
?7
Executive Summary: Downtown Pickering is identified as an Urban Growth Centre
(UGC) by the Provincial Growth Plan for the Greater Golden Horseshoe. As one of the
implementation steps under the Growth Plan, the Ministry of Public Infrastructure
Renewal released a Technical Paper titled Proposed Size and Location of the Urban
Growth Centres in the Greater Golden Horseshoe. Extracts of the Paper are provided
as Attachment #1.
The Technical Paper shows the proposed size and location for each growth centre.
The map for Downtown Pickering's growth centre is found on Page 45 of the Paper and
is included in Attachment #1. The Technical Paper also: restates the overall objectives
for urban growth centres; identifies guiding principles for them; provides key statistics
and a descriptive profile about each; and suggests principles to improve each urban
growth centre. Comments on the Technical Paper were requested by the end of
May 2008.
Staff supports the size and location of Downtown Pickering's urban growth centre,
proposed in the Technical Paper. However, we continue to disagree with the Ministry's
requirement to use a "gross" land area for monitoring the density. In Pickering's growth
centre, Highway 401 and Canadian National's main railway corridor comprise almost
20% of the total land area. These lands are not redevelopable. The Growth Plan sets
the density target for Downtown Pickering at 200 jobs and persons per gross hectare.
If the Highway 401 and CN lands remain in the calculation of the growth centre area,
then the remaining lands must be developed at significantly higher densities Uust under
250 jobs and persons per hectare), which in our view is contrary to the intent of the
Growth Plan. The Minister of Public Infrastructure Renewal is requested to allow
controlled access highways and rail corridors to be excluded from the density
calculations.
In addition, the Province is requested to provide long-term predictable funding for the
infrastructure and municipal facilities necessary to serve the Downtown Pickering Urban
Growth Centre.
Financial Implications: None
Sustainability Implications: The Growth Plan for the Greater Golden Horseshoe
(Growth Plan), along with the Greenbelt Plan, are key to the Province directing a more
sustainable urban growth pattern across the Greater Golden Horseshoe. Defining
Urban Growth Centres is one of several key elements of the Growth Plan. The
proposed size and location of Pickering's Urban Growth Centre will accommodate
significant new growth with high intensity, mixed uses, and vibrant, pedestrian-oriented
development. The centre will achieve a sufficient size and density to effectively support
public transit as an alternative transportation mode.
Report PO 23-08
June 2, 2008
Subject:
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Proposed Size and Location of
Urban Growth Centres in the Greater Golden Horseshoe
Page 3
1.0 Background
1.1 The Ministry invited comments on its Technical Paper on the Size and
Location of Urban Growth Centres
On June 16, 2006, the Ontario government released the Growth Plan for the
Greater Golden Horseshoe, 2006, which established a twenty-five year vision
and set of policies for the development of more complete and vibrant
communities, with an appropriate mix of housing, jobs and community services.
The Growth Plan identifies twenty-five Urban Growth Centres (UGC) throughout
the Greater Golden Horseshoe and establishes specific policies and minimum
density targets for these centres. The Downtown Pickering UGC, along with the
others adjacent to Toronto, are to achieve a density of 200 jobs and residents
per hectare by 2031.
To implement the Growth Plan, the Ministry of Public Infrastructure Renewal
(MPIR) is working to identify the general size and location of the urban growth
centres. The Ministry has requested comments be provided by May 30,2008,
on the recently released Technical Paper titled Proposed Size and Location of
Urban Growth Centres in the Greater Golden Horseshoe. Among other matters,
the Paper contains conceptual mapping for each UGC to guide municipalities
through Growth Plan conformity.
2.0 Discussion
2.1 The Proposed Boundary for the Downtown Pickering Urban Growth Centre
is generally supported
The Technical Paper envisions the Pickering UGC as a focal point for investment
in institutional, recreational, commercial, cultural and entertainment uses, and as
a location for higher density residential and employment opportunities that
enable walking, cycling and higher order transit service. This vision is consistent
with City's objectives for Downtown Pickering.
The Technical Paper's proposed size and location for the Downtown Pickering
UGC is appropriate to foster an appropriately sized and situated centre for the
City. The map for Pickering reflects City and Regional staff recommendations to
date on this matter. The boundary will be precisely delineated in the Pickering
Official Plan through the City's Growth Plan conformity amendment.
Staff's comments to MPIR were provided to Council in June 12, 2007, through
CAO correspondence respecting Comments to Ministry of Public Infrastructure
Renewal on a Draft Boundary for the Pickering Urban Growth Centre.
Report PD 23-08
June 2, 2008
Subject: Proposed Size and Location of
Urban Growth Centres in the Greater Golden Horseshoe
Page 4
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Attachment #1 is an extract from the Technical Paper. It contains key statistics,
a description of the current Pickering Downtown, suggested objectives, and a
map showing the proposed size and location of the Downtown Pickering UGC.
The Proposed Downtown Pickering Urban Growth Centre boundaries are:
· eastern boundary - the west edge of the Hydro right-of-way;
· northern boundary - north side of Kingston Road, westerly from Hydro
right-of-way to include the west corner of Liverpool Road;
· western boundary - Pine Creek; and,
· southern boundary - north side of Bayly Street, from Liverpool Road to
the Hydro right-of-way.
2.2 The Ministry's requirement that Highway 401 and CN Railway lands be
included in calculating intensification targets goes against one of the
guiding principles for Urban Growth Centres and is not supported
The first two Guiding Principles for Urban Growth Centres proposed in the
Technical Paper are:
· An urban growth centre should be one contiguous area; and,
· An urban growth centre should have opportunities for intensification and
redevelopment that complement existing urban form.
MPIR staff have indicated that required densities within Urban Growth Centres
must be calculated for all lands within the UGC boundaries. While the guiding
principles are supported, achievement of one principle should not frustrate
achievement of other principles.
Retention of a contiguous boundary for the Pickering UGC meets the principle
that the UGC be one contiguous area. However, inclusion of non-developable
Highway 401 and CN rail lands in the density calculations for the UGC frustrates
the achievement of the second principle that a UGC have opportunities for
intensification and redevelopment that complement existing urban form.
The Growth Plan sets the density target for Downtown Pickering at 200 jobs and
persons per gross hectare. The Growth Centre proposed by MPIR comprises a
gross area of approximately 140 hectares, approximately 19% of which is
occupied by the Highway 401/CN corridor. While it is appropriate to include local
and regional roads in the grow area calculation, inclusion of the wide 401/CN
corridor will significantly impact Growth Plan implementation.
Report PD 23-08
June 2, 2008
Subject: Proposed Size and Location of
Urban Growth Centres in the Greater Golden Horseshoe
Page 5
The inclusion of the Highway 401/CNR lands means the remaining lands in the
Pickering UGC must achieve a density of approximately 245 jobs and persons
per gross hectare, being an increase of approximately 23%. None of the other
GT A UGC's have similar large areas of undevelopable lands within their UGC
boundary.
For the Pickering UGC, either the Highway/Railway lands should be mainly
excluded from the UGC boundary at the Official Plan conformity amendment
step of implementing the Growth Plan, or the Minister should agree to not count
these lands for intensification monitoring purposes.
2.3 The density of Pickering's Urban Growth Centre has increased since the
2001 Census information used in the Technical Paper
The Technical Paper indicates a density for the Pickering UGC of about 50 jobs
and residents per hectare. This is based on 2001 census information. Based on
an update of the development that has occurred since 2001, staff suggests the
density of Pickering's UGC, in mid 2007, has increased to about 63 jobs and
residents per hectare.
2.4 The profile for Downtown Pickering should include more specific information
The profile for Downtown Pickering should indicate that the downtown centre
contains recreational facilities in addition to institutional and cultural facilities. It
should also specify that Downtown Pickering is located along the Highway
401/GO transportation corridor.
2.5 To date, the Ministry has consulted with municipal staff on technical
aspects of implementing the Growth Plan
Since the release of the Growth Plan in June 2006, the Ministry has consulted
with staff several times on the matters related to identifying the boundary of the
built-up area, and the scale and scope of the Urban Growth Centres. In each
case, comments on methodology and mapping were provided directly to MPIR
staff given the short time frames for commenting. Although the current Technical
Paper is available on the MPIR website, and was sent to municipalities and other
key stakeholders, there has been no broad public involvement program by MPIR.
The Places to Grow Act requires that municipalities (both the Region and the
City) amend their official plans to conform to the policies of the Growth Plan by
June 16, 2009. The Region of Durham is undertaking a Growth Plan
Implementation Study with the intent to complete a conforming amendment to
the Durham Regional Official Plan by the end of 2008, with adoption anticipated
by June 2009. The Pickering Official Plan Review includes a Growth Plan
conformity amendment as a workplan deliverable in 2009.
Report PO 23-08
June 2, 2008
Subject: Proposed Size and Location of
Urban Growth Centres in the Greater Golden Horseshoe
Page 6
7 '1
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2.6 Consideration of the 'conformity' amendment to the Pickering Official Plan
will provide an opportunity for Council and public input to implementation
of the Growth Plan
The opportunity for local public input on the Pickering Downtown Urban Growth
Centre boundary will occur through the City's process to amend its Official Plan
to conform with the Growth Plan. At that time, minor changes to the boundary
from that set out by the Province can be considered. However, should major
changes to the size and location be recommended, the Minister of Public
Infrastructure Renewal must be consulted.
3.0 Related Growth Plan Implementation Matters
3.1 The Final Built Boundary has been delineated by the Minister
This spring, MPIR also issued a document titled Built Boundary for the Growth
Plan for the Greater Golden Horseshoe, 2006. This document gives the final
principles and the detailed mapping of the delineated built up areas for Durham
Region, and the other Growth Plan areas. The Built Boundary will be used to
monitor the intensification target of the Growth Plan. The Plan requires that 40%
of the Region's future residential growth should be located within the Built
Boundary, by 2015, and each year thereafter.
For Pickering, the Built Boundary identified by MPIR basically follows the CP Rail
line. Staff concurs that this boundary reflects the built up areas of Pickering as
of June 2006 and incorporates almost all of the recommendations made by City
and Regional staff.
3.2 Financial tools available to municipalities are not adequate to provide
infrastructure and municipal facilities necessary to support the intensified
development envisioned for the Urban Growth Centre
The City supports the overall objective of transforming the Pickering's Downtown
into a more vibrant urban growth centre, with intensive, mixed-use, transit and
pedestrian oriented development. However, the financial tools to upgrade the
public infrastructure are not sufficient.
The financial tools provided by amendments to the Planning Act and related
legislation over the past several years are minimal in their ability to stimulate
private sector development. They are mainly aimed at municipal governments
waiving fees or providing subsidies. No significant assistance has been
identified to stimulate the development market and pay for large scale
infrastructure and municipal/public facilities that will be needed to serve the
increased jobs and people. Confirmation of a multi-year, predictable funding
source for infrastructure and other municipal facilities to support urban growth
centres is needed.
Report PO 23-08
June 2, 2008
Subject:
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Proposed Size and Location of
Urban Growth Centres in the Greater Golden Horseshoe
Page 7
Accordingly, it is recommended that Council request the Provincial Government
to identify a predictable funding program to provide needed infrastructure and
related municipal facilities to foster the growth of a Downtown Pickering Urban
Growth Centre.
3.3 The Provincial Growth Plan also provides an intensification in areas
outside the Downtown Urban Growth Centre
In addition to Urban Growth Centres, the Growth Plan includes policies to
achieve intensification in major transit station areas and intensification corridors.
Major transit station areas include lands within an approximate 500 metre radius
of higher order transit stations, such as the Pickering GO station. Intensification
corridors include areas along major roads, arterials or higher order transit
corridors.
The policies require official plans to designate lands to achieve increased
residential and employment densities and a mix of residential, office, institutional
and commercial development, where appropriate, around major transit station
areas and intensification corridors.
Implementation of the major transit station area and intensification corridor
policies will provide opportunities for intensification along such arterial roads as
Kingston Road and Bayly Street and at nodes along these corridors. These
other opportunities will be reviewed and established through the City Official Plan
Review process and the conformity amendment required to implement the
Growth Plan.
Attachments:
1. Downtown Pickering Urban Growth Centre - Key Statistics, Objectives and Map
(Extracts from Technical Paper - Proposed Size and Location of Urban Growth
Centres in the Greater Golden Horseshoe)
Report PD 23-08
June 2, 2008
Subject: Proposed Size and Location of
Urban Growth Centres in the Greater Golden Horseshoe
Page 8
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Prepared By:
Approved/Endorsed By:
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Steve Gaunt
Senior Planner
Catherine Rose, MeIP, R
Manager, Policy
SG:jf
Copy: Chief Administrative Officer
Recommended for the consideration
of Pickering Cit'tCounci
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PlACES TO GROW
l BETTER CHOICES" BRIGHTER FUTU REm"mJ
Proposed Size and Location
of Urban Growth Centres in
the Greater Golden Horseshoe
Tech n ica I Pa per
Spring 2008
Prepared by
Ontario Growth Secretariat
Ministry of Public Infrastructure Renewal
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Downtown Pickering
Urban Growth Centre
Key Statistics
Approximate Area
140 hectares
Approximate Density, 2001 *
50 jobs and residents per hectare
~based on Statistics Canada data on an area closely corresponding to
the proposed size and location.
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Growth Plan Density Target
200 jobs and residents per hectare
Pickering is an emerging centre located in the
eastern portion of the Greater Golden Horseshoe
and is one of two urban growth centres in Durham
Region. The centre is generally focused on the
downtown core area, in the area northeast of the
intersection of Liverpool Road and Bayly Street.
Pickering is a vibrant and active community that
offers a variety of recreational, leisure and cultural
activities for all ages and abilities. The downtown
serves as a commercial and civic centre for the City
of Pickering and surrounding communities.
The centre c.ontains institutional and cultural
facilities and is a key retail shopping and service
hub. Downtown Pickering is well connected to
both local and regional transit, and is located along
a major transportation corridor.
In planning for the Downtown Pickering urban
growth centre, the City of Pickering is encouraged
to consider:
. Supporting existing and planned
transit investments through residential,
employment and institutional
intensification.
. Ensuring walkability and pedestrian-
oriented development.
Supporting the achievement of a complete
community with a vibrant mix of uses.
Proposed Size and Location of Urban Growth Centres in the Greater Golden Horseshoe
Technical Paper Spring 2008
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Legend
Urban Growth Centre, Proposed Size and Location
Frenclllllon's Bay
. Major Highway
_ Regional/Municipal Boundary
Open Space (includes public and private parks,
cemeteries, golf courses, and utility corridors)
Source: MinIstry of Public Infrastructure Renewal
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0.25
0.5 Km
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This proposed size and location mapping is being released for use in implementing the Growth
Plan for the Greater Golden Horseshoe, 2006. An urban growth centre boundary is not a land
use deSignation and its delineation will not confer any new land use designations. nor alter
existing land use designations. Any development on lands within the proposed urban growth
centre boundary is still subject to the relevant provincial plans and provincial and municipal
land use planning policies and approval processes. The Province of Ontario assumes no
responsibility or liability for any consequences of any use made of this map.
Proposed
Downtown Pickering
Urban Growth Centre
Proposed Size and Location of Urban Growth Centres in the Greater Golden Horseshoe
Technical Paper Spring 2008
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