PLANNING JUSTIFICATION REPORT

Transcription

1 630 Colborne Street, Suite 202 London, Ontario N6B 2V2 T: (519) F: (519) PLANNING JUSTIFICATION REPORT Ian F. MacNaughton MA, FCIP, RPP Bernard P. Hermsen MUDS, BES, MCIP, RPP Paul R. Britton BES, MCIP, RPP W. Brent Clarkson MA, MCIP, RPP James D. Parkin BES, MCIP, RPP Submitted to the City of Sarnia with applications for: Draft Plan of Subdivision Approval Official Plan and Zoning By-Law Amendments Carol M. Wiebe BES Kris Menzies BES, BEd, MCIP, RPP David McKay MSc, MCIP, RPP Brian Zeman BES, MCIP, RPP Offices in: Kitchener Vaughan London Kingston Barrie City, Town and Rural Planning Municipal Plans and Studies Land Development Urban Design / Community Planning Landscape Architecture/ Cultural Heritage Natural Resource and Aggregate Planning Expert Evidence and Mediation Project Management Submitted on behalf of: Sifton Properties Limited Location: Part of Lot 46, Broken Front Concession NW Corner of Michigan Avenue and Modeland Road, Sarnia

2 November 26, Colborne Street, Suite 202 London, Ontario N6B 2V2 T: (519) F: (519) Ian F. MacNaughton MA, FCIP, RPP Bernard P. Hermsen MUDS, BES, MCIP, RPP Paul R. Britton BES, MCIP, RPP W. Brent Clarkson MA, MCIP, RPP James D. Parkin BES, MCIP, RPP Carol M. Wiebe BES Kris Menzies BES, BEd, MCIP, RPP David McKay MSc, MCIP, RPP Brian Zeman BES, MCIP, RPP Offices in: Kitchener Vaughan London Kingston Barrie City, Town and Rural Planning Municipal Plans and Studies Land Development Urban Design / Community Planning Landscape Architecture/ Cultural Heritage Natural Resource and Aggregate Planning Expert Evidence and Mediation Project Management Mr. Kim Bresee Director of Planning and Building Department Planning and Building Department City of Sarnia 255 North Christina Street Sarnia, Ontario N7T 7N2 Dear Mr. Bresee: RE: Applications for Draft Plan of Subdivision Approval, Official Plan and Zoning By-Law Amendments Part of Lot 46, Broken Front Concession NW Corner of Michigan Avenue and Modeland Road, Sarnia Sifton Properties Ltd., Our File Y316 O On behalf of our client, Sifton Properties Limited ( Sifton ), we are pleased to submit applications for Draft Plan of Subdivision, and Official Plan and Zoning By-Law Amendments. As you are aware, Sifton Properties Ltd., wishes to develop their property for a range of residential, retail and service commercial uses, at the corner of Michigan Avenue and Modeland Road. The development is comprehensively planned with a range of residential uses planned, including single detached dwellings, attached townhome dwellings, and a low-rise retirement residence. The accesses to the residential component of the development are either through existing right of way stubs into the development, from the west and the north, or from the extension of Stathis Boulevard, proposed to be extended eastward to Modeland Road. The commercial component of the development proposes approximately 13,139 square metres (141,427 square feet) of commercial retail floor space over two sites, north and south of the future intersection of Stathis Boulevard and Modeland Road. Sifton has requested that Council consider the residential and commercial components of the project separately, with external considerations such as the ongoing City Commercial Policy Review potentially delaying the commercial component of the project. To that end, we are submitting two applications each for Official Plan and Zoning By-Law Amendment. We are confident, however, that the merits of both applications will allow for an expedient review from City and County Staff, with Sarnia Council giving their approval to development at a significant location within suburban Sarnia. In support of our application, we have enclosed the following studies: Draft Plans of Subdivision, signed by the property owner and surveyor in accordance with City requirements; Planning Justification Report (MHBC), 5 copies for each OPA/ZBA application; Transportation Impact Assessment (Dillon), 5 copies for each OPA/ZBA application; Retail/Commercial Market Impact Assessment (urbanmetrics), 5 copies for the commercial OPA/ZBA application; and Function Servicing Report (RW Stratford Consulting), 5 copies for each OPA/ZBA application.

3 Kindly review the enclosed applications and information at your earliest convenience and advise if any further information is needed. We look forward to working with you and your counterparts on this important project. Yours Sincerely, MHBC Planning David A. McKay, MSc, MCIP, RPP attach. cc. Phillip Masschelein, Sifton Properties Limited

4 TABLE OF CONTENTS EXECUTIVE SUMMARY Page i 1.0 INTRODUCTION SITE DESCRIPTION AND SURROUNDING LAND USE DESCRIPTION OF PROPOSAL DESIGN CONSIDERATIONS TECHNICAL REPORTS AND SUPPORTING STUDIES Traffic Impact Study Market Impact Study Functional Servicing Report PLANNING ANALYSIS Section of the Planning Act Provincial Policy Statement (2005) County of Lambton Official Plan City of Sarnia Official Plan City of Sarnia Zoning By-Law CONCLUSIONS 23 FIGURES After page Figure 1 Location Map 2 Figure 2 Plan of Subdivision 3 Figure 3 Concept Site Plan 3 Figure 4 Conceptual Rendering 3 Figure 5 Design Considerations 6 Figure 6 Existing Official Plan Schedule A Designations 15 Figure 7 Existing Official Plan Schedule B Designations 17 Figure 8 Existing Official Plan Schedule C Designations 19 Figure 9 Existing Official Plan Schedule A-3.1 Designations 19 Figure 10 Existing Zoning 22 Figure 11 Proposed Zoning 22 APPENDICES A Photos of Site and Surrounding Area B Draft Official Plan Amendment C Draft Zoning By-law Amendment D Population and Employment Density Calculations Sifton Sarnia Mixed Use Community Planning Justification Report November 2009

5 EXECUTIVE SUMMARY MacNaughton Hermsen Britton Clarkson Planning Limited (MHBC Planning) has been retained by Sifton Properties Ltd. to seek approvals for an Official Plan Amendment, a Zoning By-law Amendment and a Draft Plan of Subdivision application to develop an approximately 10.6 hectare (26.27 acre) property for a mixed use residential/commercial community at the northwest corner of Michigan Avenue and Modeland Road in the City of Sarnia, County of Lambton. The proposed community is comprised of: - 21 single detached dwelling residential lots (Lots 1 21); - One retirement home residential block (Block 23); - One multiple attached dwelling residential block (Block 22); - One community park block and walkway access block (Blocks 24 and 27); - Two commercial centre blocks (Blocks 25 and 26); - Five reserve blocks (Blocks 28-32); and, - An interconnected road network (Stathis Boulevard and Street A ). Based on the above, it is our professional opinion that the proposal to develop an approximately 10.6 hectare (26.27 acre) property for a mixed use residential/commercial community at the northwest corner of Michigan Avenue and Modeland Road is in the public interest and represents good planning for the following reasons: 1. The proposed development is consistent with the relevant policies of the Provincial Policy Statement. 2. The proposed development is in conformity with the relevant policies of the County of Lambton Official Plan. 3. The proposal is to develop lands designated for growth in the City of Sarnia Official Plan. This report has addressed the relevant policies of the City Official Plan. 4. The proposed development is located in an area which has been designated for growth. The development includes a mix of housing choices, as well as passive and active recreational opportunities, and a commercial centre within walking distance. Therefore the proposal satisfies the residential policies of the County and City Official Plans. 5. The development of the site as proposed will not result in negative impacts to the planned function of the various commercial areas within Sarnia. 6. The proposed development will be constructed using full municipal services in accordance with the relevant City, County, and provincial policies. 7. The development is compatible with existing and planned land uses on adjacent lands. Sifton Sarnia Mixed Use Community Planning Justification Report November 2009 i

6 8. The proposed Draft Plan of Subdivision and implementing Zoning By-law Amendment conform to the Provincial Policy Statement and comply with the County and City Official Plans. Sifton Sarnia Mixed Use Community Planning Justification Report November 2009 ii

7 1.0 INTRODUCTION MacNaughton Hermsen Britton Clarkson Planning Limited (MHBC Planning) has been retained by Sifton Properties Ltd. ( Sifton ) to seek approvals for an Official Plan Amendment, a Zoning By-law Amendment and Draft Plan of Subdivision applications to develop an approximately 10.6 hectare (26.27 acre) property for a mixed-use residential and commercial development at the northwest corner of Michigan Avenue and Modeland Road, in the City of Sarnia. For clarity, separate applications are to be submitted for the residential and commercial components of the development; however, this report will speak to the development as a whole. This planning report has been prepared in support of the proposal and provides justification for the application, addressing relevant planning policy and regulations applicable to the property. The following documents have been reviewed in the preparation of this report: Provincial Policy Statement (2005) County of Lambton Official Plan City of Sarnia Official Plan City of Sarnia Zoning By-Law Traffic Impact Study prepared by Dillon Consulting Ltd. dated November, 2009 Market Impact Study prepared by urbanmetrics Inc., dated December, 2008 Functional Servicing Report prepared by RW Stratford Consulting Inc., dated October, 2009 Sifton Sarnia Mixed Use Community Planning Justification Report 1 November 2009

8 2.0 SITE DESCRIPTION AND SURROUNDING LAND USES The subject property is located at the northwest corner of Michigan Avenue and Modeland Road, and is described as Part of Lot 46, Front Concession. The site is 10.6 ha (26.27 acres) in size and has approximately 210 m (689 ft) of frontage on Michigan Avenue and 515 m (1690 ft) of frontage on Modeland Road. The location of the subject lands is identified in Figure 1 of this report. The property is currently vacant of any buildings or structures and has been used predominantly for agricultural purposes. The area along the north property line has some mature tree cover. The property is bounded by the following land uses: TO THE NORTH: TO THE EAST: TO THE SOUTH: TO THE WEST: Low Density Residential Existing agricultural uses on the east side of Modeland Road, and a Place of Worship Existing agricultural uses on the south side of Michigan Avenue, with some new single detached dwellings at the corner of Michigan Avenue and The Rapids Parkway Single detached dwellings. Photos of the site and surrounding area can be found in Appendix A. Sifton Sarnia Mixed Use Community Planning Justification Report 2 November 2009

9 LAKE EHURON ON LAKESHORE S ROAD E R OADHWY HWY #7 #7 BLACKWELLB K LL ROAD R OAD BLAC KWE LL R OAD BLACKWELL ROAD MICHIGAN ANAVE. MIC AVE. HIG AN LINE MODE LAND R OAD SOURCE: COUNTY OF LAMBTON MAPS & GIS -LAMBTONATLAS/ONPOINT SUBJECT PROPERTY LOCATION MAP FIGURE 1

10 3.0 DESCRIPTION OF PROPOSAL The proposal is to develop the property as a mixed use residential and commercial centre. Official Plan Amendment, Zoning By-law Amendment, and Draft Plan of Subdivision applications have been submitted for consideration by the City. The proposed Draft Plan of Subdivision is attached as Figure 2 of this report, and depicts the following: - 21 single detached dwelling residential lots (Lots 1 21); - One retirement home residential block (Block 23); - One multiple attached dwelling residential block (Block 22); - One community park block and walkway access block (Blocks 24 and 27); - Two commercial centre blocks (Blocks 25 and 26); - Five reserve blocks (Blocks 28-32); and, - An interconnected road network (Stathis Boulevard and Street A ). The proposal will be developed on full municipal services which will be constructed in accordance with the recommendations of the Functional Servicing Report. Components of the proposal as shown on the Concept Plan (Figure 3) and Conceptual Rendering (Figure 4) are described as follows: Single Detached Dwelling Lots The northern portions of the lands are to be developed for 21 single detached residential lots, via a planned extension of Holden Drive from the north. The Holden Drive extension would connect to a planned east-west road. The lot widths range in size from 15 metres to 18 metres. Multi-Residential Block A hectare (2.39 acre) multi-residential block is proposed, accessed via Stathis Boulevard. This block is planned for approximately 35 townhouse units. Commercial Blocks Two commercial blocks with a total are of ha (13.03 acres) are planned on the subject lands. These two blocks are separated by the future east-west extension of Stathis Boulevard, which intersects Modeland Road approximately 250 metres north of the Michigan Avenue / Modeland Road intersection. The proposed commercial development is planned to service the adjacent community and is expected to consist of the following types and approximate scales of uses: o o o o One 45,578 sq. ft. (4,234 sq.m.) grocery store; One 17,798 sq. ft. (1,653 sq.m.) drug store; One 5,129 sq. ft. (477 sq.m.) bank with drive-thru; One 2,987 sq. ft. (277 sq.m.) restaurant with drive-thru; Sifton Sarnia Mixed Use Community Planning Justification Report 3 November 2009

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13 Community Park Anchor Zone Small Retail Zone Small Retail Zone 4A 5B 5D 5E - Mix Community Interconnectivity Commercial and Range Park Building of Land Layout Uses 5C - Framing The Corridor Single Detached Dwellings Townhouses Smaller Retail and Service-Commercial Arterials Community Park Anchor Retail Local Retirement 2-3 Corridor Minute Roads Framing Wak Internal Commercial 4-5 Built Minute Form Roadways Walk Pedestrian Park/Buffer Connectivity

14 Community Park Anchor Zone Small Retail Zone Small Retail Zone 4A 4B 5D 5E - Mix Community Interconnectivity Commercial and Range Park Building of Land Layout Uses 5C - Framing The Corridor Single Detached Dwellings Townhouses Smaller Retail and Service-Commercial Arterials Community Park Anchor Retail Local Retirement 2-3 Corridor Minute Roads Framing Wak Internal Commercial 4-5 Built Minute Form Roadways Walk Pedestrian Park/Buffer Connectivity

15 Community Park Anchor Zone Small Retail Zone Small Retail Zone 4A 4B 5D 5E - Mix Community Interconnectivity Commercial and Range Park Building of Land Layout Uses 4C - Framing The Corridor Single Detached Dwellings Townhouses Smaller Retail and Service-Commercial Arterials Community Park Anchor Retail Local Retirement 2-3 Corridor Minute Roads Framing Wak Internal Commercial 4-5 Built Minute Form Roadways Walk Pedestrian Park/Buffer Connectivity

16 Community Park Anchor Zone Small Retail Zone Small Retail Zone 4A 4B 4D 5E - Mix Community Interconnectivity Commercial and Range Park Building of Land Layout Uses 4C - Framing The Corridor Single Detached Dwellings Townhouses Smaller Retail and Service-Commercial Arterials Community Park Anchor Retail Local Retirement 2-3 Corridor Minute Roads Framing Wak Internal Commercial 4-5 Built Minute Form Roadways Walk Pedestrian Park/Buffer Connectivity

17 Community Park Anchor Zone Small Retail Zone Small Retail Zone 4A 4B 4D 5E - Mix Community Interconnectivity Commercial and Range Park Building of Land Layout Uses 4C - Framing The Corridor Single Detached Dwellings Townhouses Smaller Retail and Service-Commercial Arterials Community Park Anchor Retail Local Retirement 2-3 Corridor Minute Roads Framing Wak Internal Commercial 4-5 Built Minute Form Roadways Walk Pedestrian Park/Buffer Connectivity

18 o Seven Service Retail Units with a combined floor area of 73,430 sq. ft (6,822 sq.m.); Access to the southerly commercial lands would be gained from Michigan Avenue, Modeland Road and from the proposed extension of Stathis Boulevard. The northerly commercial lands would be accessed from the proposed extension of Stathis Boulevard. Parking will be provided at grade for each building. Retirement Home Block A hectare (3.26 acre) retirement home block is proposed at the southwest corner of the property. This block would house approximately 130 retirement suites in a four storey building. Park Block A 0.77 hectare (1.90 acre) park block is planned, fronting onto the future Stathis Boulevard extension. This park would service the surrounding existing and planned residential community in this area of the City. A draft of the proposed Official Plan Amendment and schedules has been attached as Appendix B of this report. A draft of the proposed Zoning By-law Amendment and schedules has been attached as Appendix C of this report. It is our intention to have the Official Plan Amendment, Zoning By-law Amendment and Draft Plan of Subdivision reviewed concurrently through the planning approval process. Site Plan Control approval for the commercial, retirement home and multi-residential blocks would occur at a later date. Sifton Sarnia Mixed Use Community Planning Justification Report 4 November 2009

19 4.0 DESIGN CONSIDERATIONS From an urban design perspective, our vision for this subdivision is the creation of a balanced, vibrant community with a strong community node, functioning as a gateway to the neighbourhood and providing a gradual transition to lower density residential areas. The development is designed to accommodate a mix and range of residential, retirement, recreational and commercial uses to all residents and visitors within and surrounding this subdivision. The following is a summary outlining how the proposed draft plan of subdivision has been designed based on key principles of good urban design: INTEGRATED NEIGHBOURHOOD STRUCTURE The proposed subdivision provides an integrated community design that coordinates land use, open space, street patterns and built form to reinforce the community vision. The location and organization of the proposed land uses ensures that this subdivision will function both as a gateway for the edge of the City, and as a community node which integrates well with the proposed lower density areas to the west and north. This subdivision will bring prominence to the intersection of Michigan and Modeland, and will be transit-supportive when developed. MIX AND RANGE OF LAND USES The subdivision contemplates a diverse mix of uses on the site, including single detached dwellings, townhomes, retirement homes, a retail and service-commercial centre, and a community park (see Figure 5a). The combination of uses helps to draw residents from surrounding areas to this community, helping to achieve our vision of a balanced, vibrant community. THE COMMUNITY PARK The subdivision proposes a community park that will provide active and passive recreational opportunities for both this subdivision and the surrounding community. The park is proposed in a central location to support walkability within the greater community (see Figure 5b). Pedestrian connections have been provided to the park to ensure it is well connected within and around the subdivision. LIVELY STREETSCAPES The subdivision is designed to reinforce the major and minor transportation corridors of Michigan Avenue and Modeland Road. Commercial built form and massing are located close to the streets to frame both corridors, promoting a more pedestrian-scaled relationship with the corridors (see Figure 5c). All streets will be tree-lined to provide a natural canopy and enhance the quality of the public realm. A landscaped median is proposed for Stathis Boulevard at the intersection with Modeland Road to provide a sense of arrival for the greater community to all residents and visitors. A STRONG COMMUNITY NODE The proposed commercial centre will be the focus of this subdivision, establishing a local community node that provides the day-to-day necessities for local residents. The centre will provide local retail and service-commercial uses which support pedestrian-friendly movement Sifton Sarnia Mixed Use Community Planning Justification Report 5 November 2009

20 within the greater community, thereby helping achieve a balanced, vibrant community. The following design considerations have been considered as part of the commercial centre: Building Design and Orientation - Smaller retail and service-commercial buildings will be directed towards the street to define the edge and enhance the vision of this site as a gateway into Sarnia. - Larger-scale anchor buildings such as a grocery store will be located furthest from the street to avoid long continuous facades on the major corridors (see Figure 5d). - A variety of architectural styles, details and materials will be used along building facades to provide visual interest. Parking Areas and Site Circulation - Parking areas will be located primarily internal to the site - Vehicular and pedestrian entrances and routes will be clearly identified and distinguished. - An interconnected road network will be implemented to ensure efficient pedestrian and vehicular movement (see Figure 5e). - Barrier-free pedestrian accessibility will occur throughout the centre. - Pedestrian links between the commercial centre and the surrounding neighbourhoods will be maximized. Loading/Servicing - Loading for larger-scale anchor buildings will occur primarily at the rear of the building where feasible. - All loading areas shall provide screening to reduce their visual impact on the pedestrian realm. - Mechanical/storage equipment will be screened from the public view. Landscaping and Streetscaping - Enhanced design and landscaping is contemplated at the corners and at gateways into the community. - Tree-lined streets are provided to promote pedestrian comfort and friendliness. - A variety of paving techniques and landscaping materials will be used to define the public and pedestrian realms. - Landscape buffers and fencing will be provided to screen traffic, noise and parking adjacent to residential areas. - Patios are contemplated to animate the street frontages. - Pedestrian-scaled furniture such as benches, waste receptacles and bicycle lock-ups will be provided to enhance the pedestrian experience. SUMMARY Overall, the draft plan of subdivision has been designed to respect the existing suburban character, establish a strong community presence and sense of place, and provide strong interconnectivity throughout the plan. Based on the above, it is our opinion that the proposed plan of subdivision adheres to the principles of good urban design. Sifton Sarnia Mixed Use Community Planning Justification Report 6 November 2009

21 5.0 TECHNICAL REPORTS AND SUPPORTING STUDIES The following reports and studies were prepared in support of the proposed Official Plan Amendment, Zoning By-law Amendment and Draft Plan of Subdivision applications. A brief discussion of the findings and conclusions are summarized below. 5.1 Traffic Impact Study A Traffic Impact Study was prepared by Dillon Consulting Ltd in support of the proposed development. The Study reviewed existing traffic conditions and projected future service levels for Michigan Avenue, Modeland Road, and their intersection. The study found that these roadways are currently operating at an acceptable level of service with movements at key intersections operating at well below their designed capacity. The study notes that the new intersection of Modeland and Stathis Boulevard will be a full turning movement intersection. The three other proposed accesses to the retail-commercial centre along Modeland Avenue will be right in-right out only. The access along Michigan Avenue into the centre is to have right and left turn inbound, but right turn only outbound to Michigan. The report anticipates no additional improvements to the external road network in the immediate future. By 2015, the study assumes that Michigan Avenue and Modeland Road will be upgraded to Urban Cross Section roads, with 30.5 m rights-of-way; and the intersection will be signalized. In analyzing the accesses to the retail-commercial centre for 2015 projected volumes, the report projects continued acceptable levels of service for morning and evening peak volumes. However, the study notes an am/pm level of service of C/F for the intersection of Modeland and Stathis due to additional queuing time for traffic wishing to turn left from Stathis to Modeland, northbound. To remedy this, the report recommends the signalization of the Stathis/Modeland intersection, which would improve operations at this intersection to A/B (am/pm). 5.2 Market Impact Report A Market Impact Study was prepared by urbanmetrics Inc. concerning the commercial component of the project, and how it will fit the existing hierarchy of the Sarnia commercial market. The report makes the following findings: o o o The subject site has good potential for retail/service uses based on its locational attributes, including its proximity to Highway 402 and location at the intersection of Modeland Road and Michigan Street, both of which are major routes. Additional population growth is expected to continue in Sarnia and elsewhere in Lambton County in future years. Based on current building activity, northeast Sarnia in close proximity to the subject site is expected to capture a significant portion of this future growth and this future population would warrant additional commercial retail facilities in the area. The proposed retail facilities on the subject site would serve this population residing in the local area in the future and the existing underserved population living in north Sarnia. A locally serving retail commercial development on the subject site will not create negative impacts on existing commercial facilities to the extent that it threatens the existing commercial life of other centres in Sarnia. Sifton Sarnia Mixed Use Community Planning Justification Report 7 November 2009

22 o o o o There are limited retail facilities north of Highway 402, and a neighbourhood centre would provide a greater range of shopping opportunities for residents in north-east Sarnia. The City s Commercial Land Needs & Policy Review indicates that there is a lack of supply of vacant, designated, zoned, serviced and visible commercial sites in Sarnia. A retail commercial development on the subject site would add to the City s existing inventory, and make up part of this shortfall through development of lands that are better located within the urban boundary. The City s Commercial Land Needs & Policy Review recommends three potential sites to accommodate future growth needs, suggesting that there is a need for additional commercial facilities. Our review of these sites suggests to us that the subject site is a much better alternative to these sites. Any impact created by the proposed development is considered minor in scale and over the longer term there will still be opportunity for development of additional retail areas of the City. 5.3 Functional Servicing Report A Functional Servicing Report was undertaken by RW Stratford Consulting Inc. The purpose of the report was to investigate the opportunities and constraints for providing both water and sanitary servicing for the proposed development. The report made the following recommendations: Two sanitary sewer connections would be made from the Sifton lands to the existing sewer network to the immediate west. The connection at Kamal Drive would be utilized to convey flows from the proposed retirement home. The second would be to the existing sewer (EX. MH SA4) at the intersection of Stathis Boulevard and Wheatley Drive. a 1050 mm diameter storm sewer would be required at the proposed outlet to the Clark Drain, with the opportunity for storm water retention on the commercial parcels. Watermain connections would be available at Kamal Drive, Stathis Boulevard, Bratanek Boulevard and Modeland Road, without requirement of easement. Sifton Sarnia Mixed Use Community Planning Justification Report 8 November 2009

23 PLANNING ACT (g) the restrictions or proposed restrictions, if any, on the land proposed to be subdivided or the buildings and structures proposed to be erected on it and the restrictions, if any, on adjoining land; (i) the adequacy of utilities and municipal services; (j) the adequacy of school sites; (k) the area of land, if any, within the proposed subdivision that, exclusive of highways, is to be conveyed or dedicated for public purposes; (l) the extent to which the plan's design optimizes the available supply, means of supplying, efficient use and conservation of energy; and (m) the interrelationship between the design of the proposed plan of subdivision and site plan control matters relating to any development on the land, if the land is also located within a site plan control area designated under subsection 41 (2) of this Act or subsection 114 (2) of the City of Toronto Act, , c. 23, s. 30; 2001, c. 32, s. 31 (2); 2006, c. 23, s. 22 (3, 4). RESPONSE A Zoning By-law Amendment has been submitted concurrently with the Draft Plan of Subdivision, which will regulate the development of the subject lands. The draft by-law is attached as Appendix C. There are full municipal services existing at the property boundary of the subject lands. The proposal will be developed on full municipal services as per the recommendations of the Functional Servicing Report prepared by RW Stratford Consulting Inc. (see Section 4.3 of this report). This will ensure that the proposed services will be adequate to serve the development. The adequacy of schools will be evaluated as part of the Subdivision approval process. The owner will implement any clauses in purchase or sale agreements as deemed acceptable by the school boards. The Plan of Subdivision details lands which are to be conveyed to the City for park and reserve purposes. The proposed subdivision has been designed to incorporate a mixture of uses which will help reduce automobile usage by locating uses in close proximity to each other, thereby conserving energy. By nature, the commercial, multiple attached dwellings and the retirement home will be subject to the City of Sarnia s site plan control process. Based on the above, it is our professional opinion that the proposed development will be in accordance with the provisions of Section 51(24) of the Planning Act. Sifton Sarnia Mixed Use Community Planning Justification Report 10 November 2009

24 6.2 Provincial Policy Statement (2005) The Provincial Policy Statement (PPS) was passed on March 1 st, 2005 and applies to this proposal. The PPS provides direction to build strong communities and manage resources wisely. The following is a summary of how the relevant policies of the PPS are addressed. PPS POLICY Healthy, livable and safe communities are sustained by: a) promoting efficient development and land use patterns which sustain the financial well-being of the Province and municipalities over the long term; b) accommodating an appropriate range and mix of residential, employment (including industrial, commercial and institutional uses), recreational and open space uses to meet long-term needs; c) avoiding development and land use patterns which may cause environmental or public health and safety concerns; d) avoiding development and land use patterns that would prevent the efficient expansion of settlement areas in those areas which are adjacent or close to settlement areas; e) promoting cost-effective development standards to minimize land consumption and servicing costs; Sufficient land shall be made available through intensification and redevelopment and, if necessary, designated growth areas, to accommodate an appropriate range and mix of employment opportunities, housing and other land uses to meet projected needs for a time horizon of up to 20 years. However, where an alternate time period has been established for specific areas of the Province as a result of a provincial planning exercise or a provincial plan, that time frame may be used for municipalities within the area. RESPONSE a) The proposed development will promote an efficient land use pattern in terms of lot sizes and lot layout that is consistent with similar low and medium density residential within Sarnia, providing a density of 56.3 people and jobs per hectare (details of these calculations can be found in Appendix D). This density represents an efficient land use and development pattern that will not compromise the financial well-being of the City. b) The Plan of Subdivision proposal provides a range of residential, commercial, and open space uses within a planned residential community, meeting this policy. c) No natural heritage features or hazards are present on the subject property. d) The subject lands are within the City s Urban Growth Boundary, and are lands which contemplate development thereof. e) Full municipal services are proposed to provide a costeffective means of servicing the development. No extension of unplanned municipal services is required to accommodate this development The proposed intensification of jobs and land use on the site will assist in accommodating an appropriate range and mix of employment opportunities to meet the projected needs for a time horizon of up to 20 years. Sifton Sarnia Mixed Use Community Planning Justification Report 11 November 2009

25 1.1.3 Settlement Areas PPS POLICY Settlement areas shall be the focus of growth and their vitality and regeneration shall be promoted Land use patterns within settlement areas shall be based on: a. densities and a mix of land uses which: 1. efficiently use land and resources; 2. are appropriate for, and efficiently use, the infrastructure and public service facilities which are planned or available, and avoid the need for their unjustified and/or uneconomical expansion; and 3. minimize negative impacts to air quality and climate change, and promote energy efficiency in accordance with policy 1.8; and b. a range of uses and opportunities for intensification and redevelopment in accordance with the criteria in policy New development taking place in designated growth areas should occur adjacent to the existing built-up area and shall have a compact form, mix of uses and densities that allow for the efficient use of land, infrastructure and public service facilities. RESPONSE The proposed development is located within a settlement area, within the Urban Growth Boundary of the City The proposed development contributes to a desirable land use pattern within the settlement area by: a) The addition of commercial uses to a low density residential area will contribute to the efficient use of land and resources. The development will make use of available services to the property, and will develop a planned neighbourhood park, as contemplated within Sarnia s planning documents. The location of commercial opportunities will allow residents living north of Highway 402 the opportunity to minimize energy consumption and reduce air quality and climate change impacts from automobiles as the commercial centre will be in closer proximity to their homes. The location of the commercial centre will also allow for alternative modes of transportation (walking / cycling) given the close proximity to the residential area. b) Not applicable The proposal will achieve a density of approximately 56.3 people and jobs per hectare and will be developed in a compact built form, with a mix of uses complementing the residential development. Therefore, the use of the property will be efficient and comprehensive Public Spaces, Parks and Open Space Healthy, active communities should be promoted by: a) Planning public streets, spaces and facilities to be safe, meet the needs of pedestrians, and facilitate pedestrian and non-motorized movement, including but not limited to, walking and cycling; b) Providing for a full range and equitable distribution of publicly-accessible built and natural settings for recreation, including facilities, parklands, open space areas, trails and, where practical, water-based resources; c) Providing opportunities for public access to shorelines; and d) Considering the impacts of planning decisions on provincial parks, conservation reserves and conservation areas Infrastructure and public service facilities shall be provided in a coordinated, efficient and cost-effective manner to accommodate projected needs. Planning for infrastructure and public service facilities shall be integrated with planning for growth so that these are available to meet current and projected needs. a) The proposed development includes sidewalks and a park block to facilitate a green network of pedestrian movement within the development and in between residential and commercial areas b) The proposed development will include parkland at a location contemplated within Sarnia s Official Plan. c) There is no shoreline in proximity to the site, so no impacts are anticipated. d) There are no provincial parks, conservation reserves or conservation areas in proximity to the site so no impacts are anticipated. The development has all services available at the property line and therefore will be developed in a cost-effective manner. Sifton Sarnia Mixed Use Community Planning Justification Report 12 November 2009

26 PPS POLICY Municipal sewage services and municipal water services are the preferred form of servicing for settlement areas. Intensification and redevelopment within settlement areas on existing municipal sewage services and municipal water services should be promoted, wherever feasible A land use pattern, density and mix of uses should be promoted that minimize the length and number of vehicle trips and support the development of viable choices and plans for public transit and other alternative transportation modes, including commuter rail and bus Transportation and land use considerations shall be integrated at all stages of the planning process Connectivity within and among transportation systems and modes should be maintained and, where possible, improved including connections which cross jurisdictional boundaries Development and site alteration shall only be permitted on lands containing archaeological resources or areas of archaeological potential if the significant archaeological resources have been conserved by removal and documentation, or by preservation on site. Where significant archaeological resources must be preserved on site, only development and site alteration which maintain the heritage integrity of the site may be permitted Contaminated sites shall be remediated as necessary prior to any activity on the site associated with the proposed use such that there will be no adverse effects. RESPONSE The development shall proceed on full municipal services, which are available at the property line of the subject property. The mix of uses proposed on the subject lands (including grocery, retail and service commercial) in an urban format will provide a destination where patrons can access a variety of retail stores and services in one trip. This is expected to reduce the number of vehicle trips that would otherwise be required if the commercial uses were in separate locations. Commercial development of this nature prefers to locate in close proximity to the adjacent residential neighbourhoods, and existing commercial uses will decrease the distances required to travel for shoppers and employees, which will potentially encourage other modes of travel such as walking and cycling. The neighbourhood is not presently served directly by Sarnia Transit, however commuter buses may be accessed at the corner of Michigan Avenue and The Rapids Parkway, a short walk from the subject property. The proposed development can be supported by the existing transportation network subject to proposed improvements, as indicated in the Traffic Impact Study, completed by Dillon Consulting Ltd. The proposed development supports energy efficiency and improved air quality through land use and development patterns by: o Promoting compact form the proposed development accommodates a mix of commercial services and residential opportunities; o Focusing major employment, commercial and other travel intensive land uses on sites which are well served by public transit the subject lands are served by a regular transit route along Michigan Avenue. As a condition of Draft Plan of Subdivision Approval, an archaeological study shall be undertaken prior to any development occurring on the site, thereby addressing this policy. The subject lands have been used for farming purposes and no land uses in the vicinity of the site would indicate any contamination on the site. Based on the above, it is our professional opinion that the proposed development is consistent with the relevant policies of the PPS. Sifton Sarnia Mixed Use Community Planning Justification Report 13 November 2009

27 6.0 PLANNING ANALYSIS The following is a review of the land use policy framework related to the subject property, and how the proposal has met, or intends to meet those considerations. 6.1 Section 51(24) of the Planning Act Section 6.9 of the City of Sarnia Official Plan requires that a subdivision proposal be evaluated in accordance with the provisions of Section 51(24) of the Planning Act. The following is a summary of how the relevant policies of this section of the Planning Act have been considered. PLANNING ACT In considering a draft plan of subdivision, regard shall be had, among other matters, to the health, safety, convenience, accessibility for persons with disabilities and welfare of the present and future inhabitants of the municipality and to, (a) the effect of development of the proposed subdivision on matters of provincial interest as referred to in section 2; (b) whether the proposed subdivision is premature or in the public interest; (c) whether the plan conforms to the official plan and adjacent plans of subdivision, if any; (d) the suitability of the land for the purposes for which it is to be subdivided; (e) the number, width, location and proposed grades and elevations of highways, and the adequacy of them, and the highways linking the highways in the proposed subdivision with the established highway system in the vicinity and the adequacy of them; (f) the dimensions and shapes of the proposed lots; RESPONSE The proposed Plan of Subdivision maintains provincial interests by conforming to the Provincial Policy Statement. This is discussed in further detail in Sections 6.2 of this report. The proposed development is not premature. The lands have been designated for development within the City s Official Plan and Secondary Plan for Development Area No. 1. The development will not require the uneconomical expansion of municipal services (water, sanitary and roads), ensuring there is no undue burden to the City s existing infrastructure. The proposal is in the public interest as it will provide for a range of residential housing, and will allow for approximately 0.75 hectare of land being reserved for parkland and open space purposes. The proposed plan conforms to the Official Plans of the County of Lambton and the City of Sarnia. This is discussed in further detail in Sections 6.4 and 6.5 of this report. The plan also integrates with the road network and planned density of the residential subdivision to the west of the subject lands. The subject lands can accommodate the proposal. As per Section 5.0 of this report, several supporting studies have been undertaken to determine servicing, retail market economics, and traffic capacity to accommodate the development. Each of these studies has concluded that the proposal is appropriate for the subject lands. Any further study requirements (i.e. archaeological, monitoring reports, etc.) will be addressed through conditions of Draft Plan of Subdivision approval and implemented prior to registration of the Subdivision. The Traffic Impact Study prepared by Dillon Consulting Ltd. offers a discussion of the size and layout of the existing road network surrounding the site, and provides a thorough analysis of the adequacy of the existing roads and proposed internal roads for the development. The report concluded that the existing and proposed road network can accommodate the proposed development without any significant upgrades. The dimensions of the lots have been designed to optimize the use of the land while still achieving a critical community density, commercial opportunities, and providing parkland amenities. Sifton Sarnia Mixed Use Community Planning Justification Report 9 November 2009

28 6.3 County of Lambton Official Plan The City of Sarnia is a municipality within the County of Lambton. The County Official Plan contemplates a hierarchy of settlement areas, and recognizes Sarnia as an urban centre, the highest level of settlement areas within the hierarchy. Section of the County Plan states: Urban Centres contain a wide range of residential, institutional, commercial, and industrial land uses. Urban Centres generally have a significant number of major employers, and include major public service facilities. Development within Urban Centres will occur on full municipal services, except in substantially built up areas where full services are not practical or feasible, in which case minor infilling and limited extensions of the built-up area may occur with municipal water and private septic systems, provided that such development is consistent with natural heritage goals and does not significantly increase the overall density of such areas. The subject proposal will occur on full municipal services, and the proposal generally fulfills the goal of this subsection. Section 2.3 of the County Plan examines Housing policy within the County. Section expects that, Local municipal official plans will include provisions that allow for a range and mix of housing forms, types, sizes and tenures to meet local and County housing needs. Further Section states that, Proponents of residential development are encouraged to provide a broad mix and range of lot sizes, dwelling types, and tenure choices suited to the needs and desires of the residents of the community. The subject proposal offers a wide range of housing options for Sarnia and Lambton residents by providing single detached, multi-residential and retirement home units, thereby fulfills the requirements of Section 2.3. Section 3.4 of the County Plan gives general policy direction to commercial centres within the County, giving support to both downtown Sarnia (3.4.2) and the larger format commercial areas found on London Road and Exmouth Road, near Lambton Mall (3.4.3 and 3.4.4). Section states: Proposals for development of new or peripheral shopping areas will demonstrate that the viability of existing mainstreets and commercial areas will not be threatened. Existing mainstreets and commercial areas should be given first priority for development or redevelopment for commercial purposes. In support of the application, the Proponent has commissioned a Market Impact Study by urbanmetrics Inc. which examines the impact that the proposed commercial centre may or may not have on the planned function of existing commercial sites within Sarnia. The report concludes that there is justification for the commercial development, and that the planned function of other locations, particularly those within the London Road corridor will not be harmed by the opening of the proposed commercial centre. Based on the above, it is our professional opinion that the above proposal meets and/or addresses all relevant policies of the County of Lambton Official Plan. Sifton Sarnia Mixed Use Community Planning Justification Report 14 November 2009

29 6.4 City of Sarnia Official Plan Residential Policies (Section 2.3) The Official Plan contains a number of general goals and objectives for residential development in Sarnia. Section encourages new residential development to: a) complete the existing pattern of residential facilities, particularly schools, and minimize the costs required to extend existing services or avoid the costs of creating new services where existing services are capable of accommodating new development; b) infill existing built-up areas, or redevelop obsolete land uses; c) relocate existing incompatible uses out of residential areas; and d) proceed in such a manner so as not to impose a financial burden on the municipality or municipal taxpayers. Further, Section requires the City to take into consideration an appropriate mixture of housing types for a range of household incomes according to substantiated need and demand for the City as a whole. The development, as proposed, completes the residential development located north of Michigan Avenue and west of Modeland Road, and brings residential growth to the Urban Growth Boundary. The development has been serviced to the property line, and the lands have been accounted for through servicing schemes previously approved by the City. Further, the development will present a number of housing types for different age groups and income brackets, thus fulfilling the objective within Section The portion of the development reserved for residential use will be considered part of the Urban Residential designation (see Figure 6). Section of the Official Plan has specific policies for Urban Residential development. The primary uses permitted in Urban Residential Areas will be for low density housing types, including single and semi-detached dwellings, duplexes, and triplexes, with preference being given to the locating of similar densities of development together. The plan also allows for special residential uses, such as senior citizens accommodation. Section contains policies for neighbourhood parks, which generally consist of recreation facilities at the neighbourhood level and greenbelt areas that serve individual neighbourhoods within a community. Neighbourhood parks are to be: a) be centrally located within a Neighbourhood and be accessible to pedestrians; b) provide opportunities for neighbourhood recreational activities; c) provide opportunities for passive enjoyment of the environment; d) be located in conjunction with an elementary school, where appropriate and feasible; and e) be generally located on a Collector or Local Road, wherever feasible. The neighbourhood park, as proposed, is in the general location contemplated by the appropriate Secondary Plan, and will provide a buffer for existing residential dwellings to the west. The park will be centrally located, for the proposed residential units proposed, along with existing dwellings on Wheatley Drive and Kamal Drive. It is probable that the City will install playground equipment and will serve as a community focal point for residents looking to gather in the outdoors. Finally, the park will be accessible, as part of it will front onto the extension of Stathis Boulevard. Sifton Sarnia Mixed Use Community Planning Justification Report 15 November 2009

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31 In summary, given the range of housing options offered within the proposed development, along with the proposed development of the neighbourhood park, it is our opinion that the proposal would conform to the residential policies within the Official Plan. Commercial Policies (Section 2.4) The Official Plan has a number of goals and objectives for commercial development in Sarnia: o o o o o o to provide for a functional mix, balanced representation, and hierarchical organization of commercial activities within the municipality; to provide for the orderly distribution of commercial land uses in accordance with the commercial land use designations shown on Schedule "A"; to provide a strong Downtown focus within the City's overall system of commercial land uses; to provide for the long term orderly growth, development and redevelopment of commercial land uses; to provide for the establishment of appropriate linkage policies which will relate commercial development to other elements in the City's land use system, to adjacent land uses and to supporting services and transportation systems; and to provide for the long term protection of the environment and natural heritage resources. The Official Plan recognizes a hierarchy of commercial uses and functions, with an overall goal to ensure commercial development is distributed in an orderly fashion through the City, while maintaining a strong Downtown focus. At the same time, commercial development is expected to integrate itself with surrounding land uses and respect the environment and any natural heritage features in proximity. The Plan also requires Council to have regard for a number of criteria when considering additional land to be designated Commercial within the Official Plan in accordance with Section : o the need for such additional areas, the extent to which existing commercial areas are developed, and the nature and adequacy of existing development; An analysis of the commercial component to this development has been prepared by urbanmetrics Inc., who has determined with the continued low density residential development north of Highway 402, that there will be a demand for the retail services proposed at the subject site. Further urbanmetrics has come to the conclusion that the size of the commercial centre will not adversely impact upon the existing commercial hierarchy within Sarnia. o the suitability of the site for the proposed use; The proposed commercial lands are flat, have good visibility, are located generally at the intersection of two major streets and are in close proximity to the residential community which it will service. The site is therefore suitable for commercial land uses. o the adequacy of the existing and proposed highway or street system serving the site; Sifton Sarnia Mixed Use Community Planning Justification Report 16 November 2009

32 The existing and proposed street system is adequate to service the site, subject to site related upgrades, as documented in the Dillon traffic study. o the convenience and accessibility of the site for vehicular and pedestrian traffic and the traffic safety in relation thereto, the provision of adequate off-street parking facilities, and the limitation in the number and design of access points to such parking facilities so as to minimize the danger to vehicular and pedestrian traffic; The parking ratios provided meet or exceed the standards required by the City s Zoning By-Law. As well, access points are minimized so traffic requiring left turns are channeled to appropriate points in the road network, thus minimizing disruption to traffic and safety to pedestrians. The close proximity of the commercial lands to the residential areas it services will facilitate walking and cycling by area residents. o the adequacy of the water supply, sewage disposal facilities and other municipal services; The site is serviceable with municipal water, sewer and storm drainage facilities. o the impact on the environment and natural heritage resources; The lands are currently used for agricultural purposes, and no natural heritage resources exist on the property (see Figure 7). Therefore, it is expected that there will be no adverse impacts on natural heritage resources. o the compatibility of a commercial use with uses in adjoining areas and the effect of such use on the surrounding area in order that such use will not have a depreciating or deteriorating effect upon adjoining properties whether designated commercial or another category in this Plan and appropriate regulations in this regard shall be included in the Zoning By-law; Adequate buffering will be incorporated into the design to minimize impacts to the residential neighbourhood to the west and planned residential uses on the property. Truck traffic will access the site from Michigan Avenue and will not travel on existing/proposed residential streets. As well, the site plan approval process will ensure screening/buffering and lighting issues are dealt with prior to construction commencement. o all commercial development shall be adequately regulated by suitable provisions in the Zoning By-law including adequate setbacks from property lines, appropriate off-street parking requirements, landscaped area or buffering requirements to protect adjacent residential areas, prohibition of nuisances, control over outside storage, and control of lighting for parking areas in certain cases; The draft Zoning By-law Amendment sets out requirements for the commercial lands to ensure a high level of design and compatibility with adjacent existing and planned residential areas occurs. As well, the site plan approval process will ensure screening/buffering and lighting issues are dealt with prior to construction commencement. Sifton Sarnia Mixed Use Community Planning Justification Report 17 November 2009

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34 o every application for any major new Commercially designated areas shall contain supporting information concerning the economic, physical and transportation impact of the proposed development. The economic impact study shall provide information regarding the market feasibility of the proposed commercial development and whether it will affect the viability of any existing commercial areas. Such studies shall be reviewed by Council and used as a basis for approval or refusal of a particular application. Detailed studies prepared by experts in the fields of market economics, transportation and development servicing have been attached to the application and are referenced within Section 5.0 of this report. These reports satisfy this policy. The Official Plan also contains specific policies for Community Commercial areas, found within Section Sections and note that Community Commercial areas are intended to accommodate a limited range of commercial uses in smaller scale plazas and in freestanding buildings. Uses may include food stores, convenience commercial uses, gas bars, car washes, animal hospitals with no outdoor kennels, specialty retail uses such as hardware stores and pharmacies, personal service shops such as barbers and hairdressers, restaurants, day care, laundromats, dry cleaners and small scale oriented office and financial services uses such as branch banks, medical uses and commercial schools. Commercial sports or recreation uses and residential conversions may also be permitted. The proposed commercial development blocks will conform to the Community Commercial area uses as set out in the draft Zoning By-law Amendment. Section also notes that: any new development or redevelopment proposals within the Community Commercial designation shall be subject to the following policies: a) adequate buffering in the form of fencing, berming and landscaping shall be required in the context of site plan control approval to minimize potential impacts between the proposed commercial use and abutting residential uses; b) the floor space of the building devoted to commercial use shall be appropriate to support and serve only the surrounding population; and c) any new building or addition to be constructed for a permitted community commercial use shall be designed and built in a manner compatible with the surrounding residential buildings. As mentioned earlier, the design and buffering of the development from neighbouring residential uses will be dealt with through the site planning process. Further, the amount of floor area proposed is consistent with the opinions expressed by urbanmetrics Inc., the market economic consultant retained by Sifton. Finally, the commercial development shall be low-rise in nature, with the scale of building and form that one would expect in a suburban location, in proximity to a residential development. Based on the above considerations, it is our opinion that the Sifton proposal is consistent with the goals and objectives of the commercial policies of the Official Plan. Transportation Policies (Section 4.1) Section of the Official Plan establishes a hierarchy of roads within Sarnia: o Provincial Highways; Sifton Sarnia Mixed Use Community Planning Justification Report 18 November 2009

35 o Arterial Roads ; o Collector Roads; o Local Roads; and o Private Local Roads. The development is bordered by two arterial roads to the south (Michigan Avenue) and the east (Modeland Road) (see Figure 8). In accordance with Section of the Official Plan, access is limited to the arterial roads, with one full turns signalized movement at Modeland Road and the extension of Stathis Road, one right in-right out access on Michigan Avenue, and two right in-right out accesses on Modeland Road, south of Stathis Road. The development also proposes to extend the alignment of Stathis Boulevard past Wheatley Drive to Modeland Road. This public road, contemplated as a 20.0 m right-of-way public road (23.5 m at the intersection with Modeland Road) would bisect the development site, and provide access to commercial areas, as well as the multiple attached dwellings and the proposed park. Single detached dwellings would be accessed by a connection to Holden Drive, which exists to the north of the site. The proposed development conforms with the transportation policies. Further detailed comment as to road network impacts will be explored within the commissioned traffic impact study. Development Area 1 Secondary Plan Policies The subject property is located within an area designated as Secondary Plan Development Area 1 (Figure 9), which includes lands north of Highway 402, south of Lake Huron, west of Modeland Road, and east of Blackwell Road. Schedule A-3.1 lists the property as low density residential, with 4 units per acre at the south half of the parcel, and 3 units per acre in the north. The land use schedule also shows a neighbourhood park being located midway through the subject lands. The goals listed within the Secondary plan are as follows: GOAL to provide for the orderly development of Development Area 1 in such a manner as to ensure fairness and equity among affected land owners, and maintain and enhance the financial health of the municipality; to recognize, conserve and to the extent possible, integrate with the planned land uses, the identified natural features and attributes of the development area; to adequately provide for the equitable distribution of a wide variety of affordable housing and educational, social and recreational facilities; to ensure that all development plans for the area are implemented so as to be in general conformity with the approved Land Use Schedule (Schedule "A-3.1") RESPONSE The proposal takes advantage of a large undeveloped property within Development Area 1, and takes advantage of infrastructure already planned for the subject property. The proposal integrates with the property to the west and north by providing logical roadway connections and linkages to existing development. The proposal will offer a wide range of housing options, commercial services, and employment opportunities for Sarnia residents of all income levels. The plan is in general conformity with the Land Use Schedule vis-à-vis the residential land use components and proposes residential densities that are congruent with other residential developments within Sarnia. The amendment to the Official Plan contemplated by the applications will recognize the commercial components of the proposal. Sifton Sarnia Mixed Use Community Planning Justification Report 19 November 2009

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38 to effectively integrate proposed development with existing development in such a manner as to minimize disruptions to both present and future residents. The development of the plan can be undertaken in a manner that minimizes disruptions to the surrounding residents. Development Area 1 is intended to be developed primarily as a residential community, but with complementary community facilities and general commercial sites. Section (d) defines mixed residential development as, a mixture of unit types not exceeding three stories in height that may include single detached, semi-detached, duplexes, triplexes, town housing, street townhousing, and other similar forms of housing units consistent with the intent of this Secondary Plan. As such, the development proposed fits the definition of a mixed residential development. Retirement homes are discussed within Section (g). Senior Citizen housing and similar special residential uses shall be encouraged to locate in close proximity to commercial and institutional facilities and open space areas. Therefore, the density targets contemplated within the plan that are applicable to the subject proposal would be an overall residential density of 3.8 residential units per gross acre (9.5 units per gross hectare), and 7.0 units per net acre (17 units per net hectare) for mixed unit development. The proposal, as may be seen on the attached concept plan has a gross area of 26.2 acres (10.6 ha), and net area (single detached and multiple attached areas only) of 6.59 acres (2.6 ha). Therefore, the proposed residential density would be 1.9 residential units per gross acre (4.75 units per gross hectare). Further, the net density proposed would be 7.3 units per net acre (18.4 units per net hectare). Given that a substantial portion of the site is proposed for non-residential uses, it is our opinion that the overall density targets set out in the Secondary Plan are being respected. The proposal gives careful consideration to the types of housing and will offer choices for residents of Sarnia of various income brackets. As well, the Secondary Plan encourages Senior Citizens housing and similar special residential uses to locate in close proximity to commercial and institutional facilities and open space areas. The proposal accomplishes this, with the development of the commercial centre and the planned park location adjacent to the planned residential component of the site. Commercial uses are to be subject to detailed site planning and shall have regard to minimizing negative effects by integrating their design with residential areas. The proposal is superior in doing this by transitioning densities with the existing low density residential neighbourhood with medium density housing (the retirement home block, multiple-attached block, and the park), which will act as a buffer to the commercial development. In summary, it is our opinion that the goals, policies and objectives of the Secondary Plan are met. Sifton Sarnia Mixed Use Community Planning Justification Report 20 November 2009

39 Official Plan Amendments (Section 6.2) Section 6.2 of the plan governs the overall review and amending procedures for the Sarnia Official Plan. Council may recommend amendments to its Official Plan to the approving authority (the County of Lambton) provided:. OFFICIAL PLAN POLICY (a) the original intent and purpose of the Plan is not radically altered; (b) the amendment is needed and can be justified in light of accepted planning principles; RESPONSE The proposal will maintain the intent and purpose of the Plan. The amendment is justified as outlined in this report on the basis of accepted planning principles. (c) adequate and full participation of the general public in the deliberations on the merits of the amendment are undertaken; Through the Planning Act processes, public participation will occur, and Sifton will respond to comments / questions on the proposal accordingly. (d) they conform to the County s Official Plan and the Provincial Policy Statement. The proposal conforms to the County s Official Plan and the Provincial Policy Statement as outlined in this report. Subdivision Control (Section 6.9) Section 6.9 of the plan governs the subdivision approval process within Sarnia, ensuring the policies and land uses of the Official Plan and Secondary Plans are complied with and that a high standard of design is maintained in new development areas. Council shall approve those plans of subdivision that conform with the following: OFFICIAL PLAN POLICY RESPONSE (a) The policies of this plan The proposed subdivision design conforms to the policies of the Official Plan, as amended. (b) Adequate servicing such as water supply, sewage disposal facilities, storm water drainage, solid waste collection and disposal, roads, parkland and fire and police protection can be provided Adequate servicing such as water supply, sewage disposal facilities, storm water drainage, solid waste collection and disposal, roads, parkland and fire and police protection is being provided. (c) The City is able to provide necessary services without imposing undue increases in taxation on all residents (d) The Plan of Subdivision is not deemed to be premature, and it is considered in the public interest Necessary services have been planned for the density proposed for the development and thus should not impose undue tax burden on residents. The plan of subdivision is not premature as this area of Sarnia has been planned for urban development. The proposal is also in the public interest. Based on the above, it is our opinion that the proposal conforms to the policies within Section 6.9 of the City Official Plan. Summary Based on the above, it is our professional opinion that the development proposal meets and/or addresses all relevant policies of the City of Sarnia Official Plan. Sifton Sarnia Mixed Use Community Planning Justification Report 21 November 2009

40 6.6 City of Sarnia Zoning By-Law The Subject lands are zoned Interim Use 1 (IU1) in the City of Sarnia Zoning By-law (Figure 10). The IU1 Zone permits lawfully existing uses and buildings; and accessory uses and buildings. The current zoning permissions and standards will not permit the proposed Plan of Subdivision. As such, a Zoning By-law Amendment application has been submitted concurrently by the owner to rezone the subject lands to accommodate the plan of Subdivision. The amendment proposes to rezone the lands to Urban Residential 1 (UR1), Urban Residential 4 (UR4) with special provisions, Open Space 1 (OS1) for the parkland block, and Community Oriented Commercial (COC) for the commercial shopping centre blocks (Figure 11). The zones are proposed to implement the most current design for the Plan of Subdivision and Conceptual Site Plan. The draft Zoning By-law Amendment and schedules are attached as Appendix C of this report. This attached zoning ensures that the site is developed according to the Plan of Subdivision and in conformity with the City s Official Plan. Sifton Sarnia Mixed Use Community Planning Justification Report 22 November 2009

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43 7.0 CONCLUSIONS Based on the above, it is our professional opinion that the proposal to develop an approximately 10.5 hectare (26.24 acre) property for a mixed use residential and commercial development (submitted under separate applications) is in the public interest and represents good planning for the following reasons: 1. The proposed development is consistent with the relevant policies of the Provincial Policy Statement. 2. The proposed development is in conformity with the relevant policies of the County of Lambton Official Plan. 3. The proposal is to develop lands designated for growth in the City of Sarnia Official Plan. This report has addressed the relevant polices of the City Official Plan. 4. The proposed development is located in an area which has been designated for growth. The development includes a mix of housing choices, as well as passive and active recreational opportunities, and a commercial centre within walking distance. Therefore the proposal satisfies the residential policies of the County and City Official Plans. 5. The development of the site as proposed will not result in negative impacts to the planned function of the various commercial areas within Sarnia. 6. The proposed development will be constructed using full municipal services in accordance with the relevant City, County, and provincial policies. 7. The development is compatible with existing and planned land uses on adjacent lands. 8. The proposed Draft Plan of Subdivision and implementing Zoning By-law Amendment conform to the Provincial Policy Statement and comply with the County and City Official Plans. Respectfully submitted MHBC PLANNING David A. McKay, MSc, MCIP, RPP Harold D. Shnider, BES, MCIP, RPP Sifton Sarnia Mixed Use Community Planning Justification Report 23 November 2009

44 Appendix A Photos of Site and Surrounding Area Estate Residential, north of subject property Subject property, looking south eastward towards Michigan/Modeland intersection. Subject property at west property line Michigan and Modeland intersection Low Density Residential, Wheatley Dr. Low Density Residential from Michigan Avenue, west of subject property Sifton Sarnia Mixed Use Community Planning Justification Report 24 November 2009