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HomeMy WebLinkAboutPD 31-08 CitLf 0# REPORT TO COUNCIL Report Number: PD 31-08 Date: July 14, 2008 ,-\ 2 / (--f ..... ,/ 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 Page 2 , . ') ':}z L_ ~/ ,-) 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 Page 3 ,) n J1 L ) it 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 Page 4 ') U I t.. ./ ,J 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 Page 5 () C) b"o L:~ /. 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 Page 6 ') q 7 L.- , 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 Page 7 '\ q 0 l_ ~~~ t) Prepared By: Approved I Endorsed By: ,1,,'--- I ,/ ~<1ltf Neil Carroll, MCIP, RPP Director, Planning & Development C__, ~? 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 // II ,/ Appendix I ') () q i.~. ,/ .' 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. f--- 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. ~? r-j r-l ,J \.) () 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 .- -\ 1 " I i ~,) \'.-' 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. --- 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. -/ ., ? ') : I ....~ ,"_.- 4-~ 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) .C. " i.. :) t. J __"r) 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.