Brooklin Study Secondary Plan and Transportation Master Plan Background Report: Stage One Overview and Policy Gap Analysis

Transcription

1 Brooklin Study Secondary Plan and Transportation Master Plan Background Report: Stage One Overview and Policy Gap Analysis January 2015 prepared by S o rensen G rave ly L owe s Pla n n i ng Assoc i at es i nc. for the Town of Whitby

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3 TABLE OF CONTENTS 1 INTRODUCTION AND PURPOSE... 1 INTRODUCTION... 1 SECONDARY PLAN AREA... 1 PURPOSE OF THE REPORT BACKGROUND BROOKLIN STUDY REPORTS POPULATION, HOUSING, AND EMPLOYMENT ANALYSIS RETAIL / COMMERCIAL SPACE NEEDS ANALYSIS CULTURAL PLAN INPUT CULTURAL HERITAGE RESOURCE SURVEY PARKS AND RECREATION FACILITY NEEDS ANALYSIS COMMUNITY FACILITIES NEEDS ANALYSIS POTENTIAL INTENSIFICATION OPPORTUNITIES NATURAL HERITAGE ASSESSMENT BACKGROUND REPORT WATERSHED PLANNING, HAZARD LANDS AND STORMWATER MANAGEMENT MUNICIPAL SERVICING OVERVIEW REPORT EXISTING CONDITIONS TECHNICAL SUMMARY REPORT: BROOKLIN STUDY TRANSPORTATION MASTER PLAN PAST BROOKLIN-FOCUSED STUDIES BROOKLIN URBAN DESIGN AND ZONING STUDY BACKGROUND REPORT AND URBAN DESIGN GUIDELINES (1995) DOWNTOWN BROOKLIN STRATEGIC ACTION PLAN (2000) BROOKLIN VILLAGE CAUSE REPORT (2000) DOWNTOWN BROOKLIN COMMUNITY IMPROVEMENT PLAN (2004) HERITAGE CONSERVATION DISTRICT PLAN (2007) URBAN DESIGN CONCEPT AND GUIDELINES OF THE BROOKLIN MAIN CENTRAL AREA EXPANSION (2008) OTHER DESIGN STUDIES STAGE ONE PUBLIC INPUT POLICY FRAMEWORK AND RECENT POLICY AMENDMENTS OPA 85 (IN EFFECT) OPA 90 (UNDER APPEAL) DRAFT OPA 1 - HEALTHY AND COMPLETE COMMUNITIES / HERITAGE / SUSTAINABILITY (DRAFT) DRAFT OPA 2 URBAN LAND USE POLICIES AND HOUSING POLICIES (DRAFT) POLICY REVIEW OF EXISTING SECONDARY PLAN RESIDENTIAL DESIGNATION, SECTION Residential Densities Protection of Stable Residential Areas MIXED USE DESIGNATION, SECTION SPECIAL PURPOSE COMMERCIAL DESIGNATION, SECTION URBAN DESIGN REQUIREMENTS FOR BUSINESS PARKS HEALTH PRECINCT MAJOR COMMERCIAL DESIGNATION, SECTION DOWNTOWN BROOKLIN AND THE REGIONAL CENTRE / MAJOR CENTRAL AREA...50 Need for Different Policy Approaches for Different Parts of the Downtown / Major Central Area...50 Detailed Land Uses and Built Form...50

4 Built-form Vision...51 Parking...52 Accommodating Specialized Housing PUBLIC SQUARE URBAN-RURAL INTERFACE URBAN AGRICULTURE COMPLETE AND HEALTHY COMMUNITY MAPPING CHANGES HOUSEKEEPING MATTERS POLICY IMPLICATIONS FOR THE FUTURE URBAN DEVELOPMENT AREAS FUDA #5 AND CONLIN/ANDERSON LIVING AREA FUDA # NEXT STEPS...60 ii

5 1 Introduction and Purpose Introduction The Town of Whitby is undertaking a comprehensive study, called the Brooklin Study, to prepare a Secondary Plan and Transportation Master Plan to enable the Town to guide and manage growth in the Brooklin area. The purpose of the Secondary Plan is to determine the land use designations for the urban expansion areas north and west of Brooklin, the employment lands adjacent to the future Highway 407 and the lands in the vicinity of the Conlin Road/Anderson Street intersection, as well as to update the existing Brooklin Community Secondary Plan. An integrated approach is being taken for the Brooklin Study, which combines the requirements of the Planning Act and the Environmental Assessment Act. The Transportation Master Plan and Secondary Plan studies are being undertaken at the same time in order to create an integrated process. The Brooklin Study will address Phases 1 and 2 of the Municipal Class Environmental Assessment (EA) process for transportation infrastructure. Stage One involves the preparation of a number of background studies to inform the secondary plan and potential land uses. These background reports are summarized in this report. Secondary Plan Area The Brooklin Secondary Plan Area encompasses the existing community of Brooklin, as illustrated in black as the Existing Secondary Plan Boundary on Figure 1. In addition to this existing area, the new Brooklin Secondary Plan Area also consists of: The urban expansion areas added through Regional Official Plan Amendment No. 128 (ROPA 128) to accommodate the future population and employment forecasts; The existing designated employment areas south of the future Highway 407; and The Conlin/Anderson Residential Area. The urban expansion areas approved through ROPA 128 along with the existing designated lands within the Brooklin Secondary Plan Area are intended to accommodate projected population and employment growth to the year Despite a planning period of 2031, the Brooklin Secondary Plan Area will be able to accommodate additional population and employment beyond 2031 as the community matures and builds out. The Secondary Plan study will plan for the full mature build-out of the community.

6 Some of the urban expansion areas approved by the Region through ROPA 128 remain appealed at the Ontario Municipal Board (OMB), and are identified as deferred urban expansion areas in Figure 1. The future land use designations in the deferred areas will not be able to be approved until the deferred areas are approved by the OMB and included in the urban boundary. Figure 1: Brooklin Secondary Plan Area New Brooklin Secondary Plan Area Existing Brooklin Secondary Plan Area Deferred Urban Expansion Areas Living Area Employment Area Major Open Space Area Regional Corridor Regional Centre Source: Region of Durham Official Plan Schedule A 2

7 Purpose Of The Report This report summarizes the background studies prepared as part of Stage One of the Brooklin Secondary Plan Review and provides an overview of the key issues, opportunities and constraints identified in those background studies and by the public. This report also highlights the key findings of several recent studies undertaken within Brooklin prior to the secondary plan review. As well, the report describes the current policy framework that governs development within Brooklin including the existing Secondary Plan and highlights gaps in the policy framework with respect to the issues identified. The purpose of this report is to discuss the implications of the Stage One background analysis and matters to consider in preparing the new Secondary Plan. 3

8 2 Background Brooklin Study Reports A comprehensive range of studies has been completed in support of the Brooklin Study. In addition to this subject report, the Brooklin Study includes the following background reports: Population, Housing, and Employment Analysis by Hemson Consulting; Retail / Commercial Space Needs Analysis by Realty Research Group Ltd., Cultural Plan Input by AuthentiCity; Cultural Heritage Resource Survey by Wayne Morgan; Parks and Recreation Facility Needs Analysis by Monteith + Brown Planning Consultants; Community Facilities Needs Analysis by Sorensen Gravely Lowes Planning Associates Inc.; Potential Intensification Opportunities by Sorensen Gravely Lowes Planning Associates Inc.; Natural Heritage Assessment Background Report by Beacon Environmental Ltd. and R.J. Burnside and Associates Ltd.; Background Report on Watershed Planning, Hazard Lands and Stormwater Management by GHD Inc. and Stonybrook Consulting Inc.; Municipal Servicing Overview Report prepared by GHD Inc.; and Existing Conditions Technical Summary Report: Brooklin Study Transportation Master Plan by AECOM Canada Ltd. Consultants retained by the Town have completed a number of the above studies and consultants retained by the Landowners completed some. The studies that were completed by the Landowners consultants were peer reviewed by consultants on behalf of the Town, and revised based on input from Town staff. Following are the highlights of each technical report. 2.1 Population, Housing, and Employment Analysis The report begins with a discussion of the policy framework for the Brooklin Secondary Plan. This is followed by a review of housing development patterns and trends and an analysis of housing needs, residential intensification potential, housing affordability in Whitby and Brooklin and an affordable housing strategy. The housing needs analysis is followed by a description and summary tables of the key results of the capacity analysis and development potential to This analysis includes an estimate of both employment and population capacity at full build out of the Brooklin Secondary Plan area and the anticipated population at Key assumptions and the detailed descriptions for each of the residential and employment capacity analyses are provided. The study also analyses the greenfield density required to achieve the Growth Plan density requirement in Whitby. The study concludes with an employment land 4

9 conversion analysis of two industrially designated sites in Brooklin the Armtec site (former Brooklin Concrete Site) at Baldwin Street and Columbus Road and the Madison Properties site adjacent to the future Baldwin Street and Highway 407 interchange. The study found that the current affordable house price in Whitby is $344,746 and below. To achieve the Region s target of 25% of all new housing units to be affordable to low and moderate income households, 7,500 affordable housing units will need to be provided. However, the study found that it will not be a significant challenge for 25% of total housing to be below the affordable price threshold. It can be achieved with townhouses and apartments as well as a small proportion of small lot single and semidetached houses. The capacity analysis found that at full build out, Brooklin could accommodate approximately 28,200 people in the existing Secondary Plan Area (including intensification and build out of the Regional Centre/ Major Central Area) and 52,300 people in the expansion areas in the remainder of the new Secondary Plan Area. This latter population includes the anticipated population in the Conlin /Anderson residential area as well as the areas currently deferred in ROPA 128. The total ultimate population in Brooklin, including the deferred areas, will be approximately 80,670 people at full build out. The 2031 population in Brooklin, however, is anticipated to be approximately 56,200 including intensification within the existing Secondary Plan Area. Employment in Brooklin at full built out is estimated to be approximately 25,500 jobs including the existing Secondary Plan Area, the expansion areas and the deferred areas in ROPA 128. The majority of the jobs (13,070 jobs) will be located on industrial designated lands. The conversion analysis found that it is reasonable and justified to consider conversion of the Armtec site for alternative uses. The range of potential uses will be explored in the next stage of the study. The study also concluded that Armtec is a long- time employer in Brooklin and a member of the community and it would be beneficial for Whitby to support the relocation of Armtec to a more suitable location in the existing or planned employment areas in the Town. The conversion analysis found that the Madison Properties site is an attractive location for higher intensity employment uses given its location on Highway 407 and adjacent to the planned Regional Centre / Major Central Area and that higher intensity employment uses could enhance the role of the adjacent Regional Centre / Major Central Area. As a result, the study recommended that the site not be fully converted from employment to retail commercial uses as requested by the owner. However, the study found that it may also be possible to incorporate the site into the Regional Centre / Major Central Area and provide for a broader range of higher intensity mixed uses. Given these characteristics, as long as a plan for the site incorporates higher intensity mix of employment uses and can meet its planned purpose for employment, other additional uses could be considered on the site as part of a mixed use plan within the Regional 5

10 Centre / Major Central Area without offending the Growth Plan conversion criteria. The appropriate range of land uses and density of development will be determined through the next stage of the secondary plan process. 2.2 Retail / Commercial Space Needs Analysis The purpose of the Brooklin Retail / Commercial Needs Study was to review, analyze, forecast and recommend the broader range of retail/commercial space requirements that will be necessary to satisfy the existing and future population and demand needs in the Brooklin community. The report summarized the existing retail / commercial space inventory in the Town and in Brooklin. A survey of merchants in Brooklin was undertaken as part of the study with the two most important questions being What are your major concerns about doing business in Brooklin? and What do you think the Town could do to assist retailing in Whitby? The study analyzed the required space in Brooklin in comparison to the total needs within the Town of Whitby. The study forecasts warranted space by commercial type by 2031 and for the ultimate build out of Brooklin. 2.3 Cultural Plan Input The purpose of the background Cultural Plan Input report was to ensure that culture and heritage is an integral part of the future vision for Brooklin and an integral part of the secondary plan. The inclusion of cultural issues and considerations in land use planning, in economic development and in other areas of municipal planning is a growing trend among leading municipalities in Ontario and nationally. The Brooklin cultural planning process was launched in April 2014 as part of the Brooklin Study. The first phase of work involved an examination of a wide range of Town of Whitby planning documents and reports to establish an understanding of ways in which culture and heritage issues were already being understood and acted upon across a variety of departments and community planning issues. Establishing a clear understanding of this planning context is an essential foundation for any cultural plan. Consistent with the vision of the Secondary Plan, the next phase of work involved extensive community consultation and engagement to support a strong, open and transparent planning process. The report recommended the following principles to guide implementation of the Brooklin Cultural Plan and ongoing cultural development: Managing Growth guide growth and development in Brooklin in ways that support intensification while maintaining the community s distinctive small town identity. 6

11 Sustainability an integrated approach to planning for the future of Brooklin includes an understanding of sustainability including social, economic, environmental and cultural considerations. Collaboration adopt a collaborative approach to cultural development supported by sustained communication and collaboration between the Municipality and its cultural, community and business partners. Accessibility and Inclusion provide cultural opportunities, resources and activities that are accessible to residents of all ages, abilities, ethnicities, and economic circumstances. The report recommended four Strategic Directions which anchor and set a context for a series of issues and considerations for future actions. Under each Strategic Direction, recommendations were made for considerations for the Secondary Plan and other broader considerations. The considerations for the Secondary Plan are summarized as follows: Strategic Direction 1: Support a Strong and Vital Downtown Considerations for the secondary plan: o Consider the expansion of programming activities at Grass Park as a community hub and key venue for cultural events and activities. o Encourage and allow for the creation of small public spaces to support the staging of small scale cultural performances and activities. o Give consideration to the inclusion of cultural resources and activities including public art as prominent components in the major public square proposed for the southwest corner of Baldwin Street and Winchester Road. o Explore the potential to re-establish a Farmers Market in the downtown. Strategic Direction 2: Ensure Responsive and Accessible Cultural Programs Considerations for the secondary plan: o Consider the inclusion of multipurpose space suitable for cultural programs and activities (e.g., exhibition space, performance/rehearsal space, meeting space) in new community infrastructure across the community including in schools, recreation facilities, and community centres including the future public secondary school. o Maintain the Brooklin Memorial Park as a key recreational facility in close proximity to the Downtown. o As new neighbourhoods are developed, plan for the creation of parks and parkettes or small green spaces to serve as community gathering places and potential venues for cultural activity at a neighbourhood level. Strategic Direction 3: Increase Collaboration and Coordination of Activities No considerations for the secondary plan under this Strategic Direction. 7

12 Strategic Direction 4: Encourage Integrated Cultural Planning in the Town of Whitby No considerations for the secondary plan under this Strategic Direction. 2.4 Cultural Heritage Resource Survey The Cultural Heritage Resource Survey was prepared by Wayne Morgan, Heritage Planner on behalf of the Brooklin Landowners Group. The report was peer reviewed by Unterman McPhail Associates on behalf of the Town. The report documented existing and potential cultural heritage resources. As part of this cultural heritage resource survey, existing and proposed heritage policies in the Whitby Official Plan were examined and additional policies to assist in the conservation of heritage resources in the Study Area were recommended. The study focuses on the expansion area outside of the existing Brooklin Secondary Plan. The Heritage Conservation District Plan addresses the majority of heritage resources within the existing Secondary Plan area. Wayne Morgan completed a historical review of the study area using local and regional historical sources along with aerial photography, historical mapping and photographs and a review of local histories to support the survey and evaluation of cultural heritage value. The historical research provided a contextual background to the physical windshield or walking survey in the study area identifying potential cultural heritage properties. The survey was conducted primarily from the municipal road rights-of-way except where access was provided by a property owner. In total, 35 properties and 9 road segments have known or potential cultural heritage values, of which 28 properties were within and 7 adjacent to the Study Area. Six additional properties in the Town s Heritage Register do not have significant cultural heritage values. Three of the 35 properties were identified as having outstanding cultural heritage values. The report recommended that: 1. The 6 properties not having significant cultural heritage value be considered for removal from the Register; 2. The 3 properties with outstanding cultural heritage values be considered for designation under Part IV of the Ontario Heritage Act; 3. The Port to Port Railway alignment, where it still exists, be commemorated; 4. Where possible, the 9 road segments having cultural heritage value should be conserved; 5. The municipality work with the owners of the 18 properties within and adjacent to the Study Area to include them in the Heritage Register; 6. A heritage impact assessment be required with any planning application in the Study Area involving or adjacent to a property identified in this Survey as having a designated or potential cultural heritage resource; and 8

13 7. Either the Whitby Official Plan or the Brooklin Secondary Plan consider including policies that give direction to defining the scope and application of a heritage impact assessment. 2.5 Parks and Recreation Facility Needs Analysis As part of the preparation of the Brooklin Secondary Plan, Monteith+Brown Planning Consultants prepared a Parks and Recreation Facility Needs Analysis to assist in determining land needs required to serve parks and recreational needs within the Brooklin Secondary Plan area. The report recognizes the ongoing nature of concurrent studies, namely the Whitby Sports Facility Strategy that has a significant bearing on the Brooklin assessments. Pending the outcome of the Whitby Sports Facility Strategy, the recommendations contained in the Parks and Recreation Facility Needs Analysis for the Brooklin Secondary Plan may be subject to change. To meet the needs of the projected population, the study identified the need to consider the following indoor recreation facilities in the Brooklin Secondary Plan area: Twin pad arena; Indoor Aquatics centre; Active living and wellness space; Indoor walking/running track; and Multi-purpose program space. The report concluded that the most appropriate way to address these space requirements is to consolidate them as part of a multi-use community centre. The following outdoor recreation facilities were also identified for consideration to service the future population of Brooklin: 7 soccer fields; 6 ball diamonds; 1 multi-use field; 8 tennis courts; 6 multi-use courts (or as required by distribution); 1 splash pad; and 1 skateboard park. The land needs to accommodate these facilities total approximately 33 hectares by 2031 with additional land needs of approximately 15 hectares to accommodate facilities required for the full build out population. As a result a total of 48 hectares would be required to accommodate the recreational facility requirements. These facilities would be accommodated largely in local and district parks. Additional parkland will be required to meet the passive open space requirements of the residents. 9

14 The Official Plan and the 2006 Culture, Parks, Recreation and Open Space Strategic Master Plan (CPROS) targets would require 64.5 hectares each for local and district parks for a total of 129 hectares at full build-out of the community based on a combined 1.6 ha of parkland per 1,000 residents. This would necessitate the provision of an additional 95 hectares over and above the existing parkland supply within the Secondary Plan Area. This target is in excess of the amount of parkland that the Town will likely achieve through parkland dedication. Should the Town wish to attain parkland service levels aligned with the Official Plan and CPROS targets for local and District Parks, the Town may need to supplement parkland received through Planning Act dedications with lands received through other means. The report recommends that the Town strive to obtain parcels for local and district parks that are large enough (i.e. a minimum of 1.5 hectares in size) to accommodate a meaningful range of structured and drop-in recreational/cultural uses. While providing a walkable range of parks is desirable for a healthy community, the Town will need to determine how acceptance of Village Squares, Parkettes or other small parks may influence how much parkland remains for parks containing higher order facilities such as sports fields. 2.6 Community Facilities Needs Analysis The Community Facility Needs Analysis assessed the community facility needs related to the increase in population planned for the community of Brooklin. In order to assess the community facilities needs, the existing facilities were identified through site visits, background research and correspondence with the Town. These facilities included places of worship, schools, libraries, community centres and emergency services. Facility services providers were then contacted directly for feedback on their respective facilities needs related to the projected growth. The Community Facility Needs Assessment identified the need for the following facilities within Brooklin to accommodate the growth planned for 2031: 9 additional Public Elementary Schools, 2 additional Public Secondary Schools, 3 additional Catholic Elementary Schools, 1 additional E.M.S. Hall, and 1 district library through expansion or replacement of the existing library. Beyond 2031 to full build-out, these additional facilities would be required: 5 Public Elementary Schools, 2 Public Secondary Schools, and 1 or 2 Catholic Elementary Schools. The need for an additional fire station will be determined in the next stage of the study. 10

15 2.7 Potential Intensification Opportunities The purpose of the Potential Intensification Opportunities study is to identify and assess the potential intensification opportunities within Brooklin. The intensification opportunities analysis builds on previous background intensification studies prepared for the Town of Whitby and confirms potential intensification sites within the community of Brooklin. The Growth Plan for the Greater Golden Horseshoe, 2013, (Growth Plan) measures intensification within an area called the built up area. The built up area has been delineated by the Province in each urban area within the Greater Golden Horseshoe. The built up area in Brooklin is shown in Figure 2. Figure 2: Location of Brooklin Built Boundary Source: Sorensen Gravely Lowes Planning Associates Inc. (2014). Potential Intensification Opportunities. Figure 1. 11

16 This report deals specifically with intensification within the built up area, and thus focuses predominantly on potential opportunities within the built up area as shown in Figure 2. There may be vacant or underutilized properties within Brooklin that fall outside the built up area, but these properties are not the focus of this report. In many cases, these vacant parcels are already designated for their planned use. However, the planned land use for a few of the properties may be subject to change and in such cases, these properties are reviewed in this report. Over 20 potential intensification sites were identified and reviewed within four general intensification areas and corridors as identified on Figure 3 as well as the Conlin/Anderson area identified on Figure 2. The latter area, although being largely an undeveloped greenfield area, is within the Town s built boundary identified by the Province and does count towards the Town s intensification target. Overall, it is anticipated that approximately 1,800 units could be built through intensification by 2031 with a long term potential for up to 2,700 units. However, these figures are only an estimate of what could happen if each property intensifies as anticipated. Some may never intensify in this time period while others may redevelop for commercial use rather than residential or mixed use. For each of the 4 areas identified on Figure 3 and within the Conlin / Anderson area, more detailed planning will be undertaken in the next stage of the Brooklin Study to determine the appropriate mix of land uses, densities and built form within these areas. 2.8 Natural Heritage Assessment Background Report The Natural Heritage Assessment Background Report was undertaken by Beacon Environmental Ltd. and R.J. Burnside and Associates Ltd. on behalf of the Brooklin Landowners Group. The study was peer reviewed by North South Environmental Inc. and Blackport & Associates on behalf of the Town. The purpose of the Natural Heritage Assessment was to identify a natural heritage system within the study area, based on a compilation of data gathered through limited field investigations conducted by Beacon and an overlay of the Central Lake Ontario Conservation Authority (CLOCA) Natural Heritage System (NHS). It also characterized the geological and hydrogeological conditions and included an existing conditions water balance for the Secondary Plan Area. This study identified the portions within the Secondary Plan Area that are necessary to support important natural heritage features and functions, and are therefore constrained from future development. The identified Natural Heritage System will be reflected in the Secondary Plan and protected from development. 12

17 Figure 3: Key Map of Intensification Sites Source: Sorensen Gravely Lowes Planning Associates Inc. (2014). Potential Intensification Opportunities. Figure 5. 13

18 The NHS identified by Beacon et. al. (2014) (as shown in Figure 4) is comprised of two levels of natural areas, Level 1 and Level 2. Level 1 areas contain features that are environmentally significant or sensitive and should be constrained from development unless a permit is granted from the appropriate regulatory agency. Features considered Level 1 constraints are: Significant Woodlands; Floodplain (CLOCA) where associated with another natural feature such as a wetland, woodland or valleyland; Provincially Significant Wetlands; Other wetlands associated with watercourses, valleylands and woodlands; Fen communities (as Significant Wildlife Habitat); Valleylands defined by top-of-bank limits; Fish habitat, including on-line ponds; Watercourses, permanent and intermittent; and The habitat of endangered and threatened species, in accordance with the requirements of the Endangered Species Act. Level 2 areas are areas that require further study in order to determine if a feature exists or if a particular feature should be maintained. Areas and features included within Level 2 for further study include: Wetlands not associated with floodplains, valleylands or watercourses; Floodplain not associated with a natural feature such as wetland, woodland or valleyland; Areas where top-of-bank limits are uncertain; Isolated ponds; Ephemeral drainage features; and Areas of non-congruency between Beacon s NHS and CLOCA s NHS. 14

19 Figure 4: Identified Natural Heritage System Source: Beacon Environmental & Burnside (2014). Brooklin Secondary Plan Area Natural Heritage Assessment Background Report. Prepared for Brooklin Landowners Group. Figure

20 2.9 Watershed Planning, Hazard Lands and Stormwater Management GHD Inc. and Stonybrook Consulting Ltd. completed the Background Report on Watershed Planning, Hazard Lands and Stormwater Management on behalf of the Brooklin Landowners Group. The study was peer reviewed by AECOM on behalf of the Town. The purpose of this Background Report was to: a. Identify watershed boundaries and existing drainage patterns within the Greater Brooklin Secondary Plan area; b. Summarize policy direction on surface water management and hazard land delineation/management from existing policy documents, regulations and watershed plans; c. Identify preliminary limits of hazard lands including the extent of available floodplain mapping along each of the valley/stream systems with the Secondary Plan area; d. Identify stormwater management (SWM) design criteria for the management of water quality and quantity for erosion and flood control purposes by watershed; e. Develop a preliminary SWM concept illustrating locations of proposed SWM facilities; f. Provide preliminary input on Low Impact Development (LID) measures for incorporation into development plans, where appropriate; and g. Identify Stages 2 and 3 study needs to address SWM and hazard land delineation. The report developed a preliminary stormwater management concept illustrating locations of proposed stormwater management facilities (Figure 5). The proposed locations are subject to change based on further detailed studies and land use planning. As well, opportunities to consolidate ponds will be reviewed as this study advances. 16

21 Figure 5: Conceptual Locations of Stormwater Management Facilities Source: GHD and Stonybrook (2014). Brooklin Secondary Plan Background Report on Watershed Planning, Hazard Lands and Stormwater Management. Figure 4.3. This report also illustrates the extent of floodplain mapping available along each of the streams and valleys within the study area, which represents flood hazard areas (Figure 6). Development is generally not permitted within regulatory floodlines. As well, Central Lake Ontario Conservation Authority (CLOCA) policies set a 10 metre setback development buffer from the regulatory floodlines. The Secondary Plan land use map 17

22 will need to reflect the regulatory floodlines as hazard areas and limitations to development. Figure 6: Regulatory Floodlines Source: GHD and Stonybrook (2014). Brooklin Secondary Plan Background Report on Watershed Planning, Hazard Lands and Stormwater Management. Figure

23 2.10 Municipal Servicing Overview Report GHD Inc. prepared the Municipal Servicing Overview Report on behalf of the Brooklin Landowners Group. The report provides an overview of the existing infrastructure within the Brooklin Secondary Plan Area and describes a conceptual sanitary sewerage and water distribution system that confirms the feasibility of servicing the growth areas within the Brooklin Study Area (see Figures 7 and 8). The Region of Durham reviewed an earlier version of the report and indicated that the report provided sufficient background on servicing needs and potential options, including locations of sanitary and water trunk services, and that the Region, through an Environmental Assessment, will determine the preferred means of servicing the Brooklin Secondary Plan Area Existing Conditions Technical Summary Report: Brooklin Study Transportation Master Plan AECOM is retained by the Town of Whitby to complete the Transportation Master Plan (TMP) component of the Brooklin Study. This summary of the existing conditions report is specific to the TMP component of the study. The TMP for the Brooklin area will determine transportation infrastructure and mobility requirements and is being conducted in accordance with the Municipal Engineers Association Class Environmental Assessment (EA) process. The work completed to date for the Northwest Brooklin Class EA, the purpose of which was to give consideration to establishing an alternative route for provincial Highway 7/12 as it passes through Brooklin so that the Town of Whitby can gain care and control over Baldwin Street as it passes through Downtown Brooklin, will be incorporated into the TMP. The study area for this TMP includes the Secondary Plan area and is bounded by Scugog/Whitby Townline Road to the north, Taunton Road to the south, Lake Ridge Road to the west and Townline Road to the east. Technical work completed to date involves confirmation of the existing and planned Active Transportation network (i.e. cycling and pedestrian sidewalks, paths, and trails) and transit services. In addition the existing and planned road network is currently being reviewed and assessed. The road network in the study area includes provincial, regional, and local facilities, providing connectivity to other areas of Whitby as well as neighbouring municipalities and regions. The Town of Whitby is responsible for some arterials and all collector and local roadways. The Region of Durham is responsible for the significant arterial road network and the provincial highways are maintained by the MTO. 19

24 Figure 7: Conceptual Sanitary Sewerage System Source: GHD (2014). Municipal Servicing Overview Report for Brooklin Study Area, Town of Whitby. Figure SAN

25 Figure 8: Conceptual Water Distribution System Source: GHD (2014). Municipal Servicing Overview Report for Brooklin Study Area, Town of Whitby. Figure WTR

26 The existing traffic characteristics within and surrounding the Brooklin area have been analyzed using traffic count information extracted from the 2006 and 2011 Cordon Counts 1 and 2013 count data collected by the Town of Whitby. The magnitude of existing traffic congestion within the Brooklin study area was assessed using volume-to-capacity (v/c) ratios to isolate key bottlenecks and areas of congestions. V/C ratios indicate the level of congestion on a road. A v/c ratio of greater than 1.00 means that the traffic on a road segment is equal to the vehicle capacity of the road segment. A 0.9 v/c ratio is typically used to identify capacity deficiencies that may need to be addressed through network improvements (i.e. a v/c of 0.9 or higher is generally indication of stop and go traffic conditions). The 2011 Cordon Counts and Brooklin area traffic counts were employed to identify existing capacity issues in the Brooklin study area, and are summarized in Figure 9 below. The capacity analysis revealed that several major roads in the Brooklin study area are congested under present conditions. The following list summarizes the capacity issues that were identified through the analysis: Baldwin Street; Winchester Road/Highway 7 2 ; Taunton Road; and Columbus Road. Highway 7 and Highway 12 (Baldwin Street), which run through Brooklin s downtown core, is a heavily travelled route during the summer, providing a key north/south linkage to Port Perry and other points in cottage country to the north and east. It is important to consider this heavy summer traffic demand when evaluating overall transportation infrastructure deficiencies and needs in Brooklin. Since Baldwin Street is a key route in downtown Brooklin, further investigation was conducted for Baldwin Street north of Winchester Road. As previously demonstrated, Baldwin Street is already at or near capacity in the peak direction. Baldwin Street also carries a moderate amount of truck traffic (4% -10% on daily basis) which contributes to the congested conditions. Based on the information collected to date, impacts to the Brooklin community can be summarized as follows: There is considerable long distance through traffic (30% to 60%) predicted for the future conditions on Highway 7/12 Baldwin Street travelling through Downtown Brooklin; 1 Cordon Counts are traffic counts from the Greater Toronto Area which are undertaken by Regional Governments and the Province of Ontario. Cordon Counts are conducted every 2 to 5 years. 2 The observed deficiency was based on a 2-lane cross-section and 2011 count data (prior to the recent widening to a 4- lane cross-section). New count data obtained as part of the TMP (see note at the beginning of Section 4.3) will confirm whether the widened cross-section has alleviated this issue. This TMP will also examine longer-term network capacity. requirements. 22

27 Highway 407 East is expected to alleviate Highway 7/Winchester Road congestion to some degree, however north-south capacity deficiencies remain; With a constrained right-of-way, additional road capacity on Highway 7/12 Baldwin Street is not possible without impacts on parking in Downtown Brooklin, such as the removal of on-street parking on Highway 7/12 Baldwin Street; Infiltration and diversion of traffic into adjacent neighbourhoods will potentially persist/increase as people attempt to avoid congested roadways; Promotion of a pedestrian and business-friendly downtown is better supported through removal of congestion caused by long distance through auto and truck traffic and adoption of applicable road standards; and Diverting long distance, through and commuter trips from Highway 7/12 Baldwin Street to acceptable alternate routes has the potential to defer or alleviate the need to undertake capacity improvements on Baldwin Street in Downtown Brooklin. The Problem/Opportunity Statement is developed in Phase 1 of the Class EA process and establishes the key problems that the study is trying to solve. In order to address the significant population growth anticipated for Brooklin, the existing and expected transportation deficiencies in the downtown area and transportation improvements being planned in the area, this TMP will assess future transportation system needs, provide recommendations for new and/or improved infrastructure and recommend transportation policies that the Town can use to manage transportation infrastructure in Brooklin. Preliminary feedback indicates there is considerable community and Council support for reducing congestion in Brooklin. This includes reducing congestion resulting from through traffic in Downtown Brooklin, by diverting Highway 7/12 traffic to alternate routes. The following Problem/Opportunity Statement is being put forth for community and Council input, and will be presented at the next PIC: With impending significant population growth, and to support a communityfocused, pedestrian-oriented, business friendly, and sustainable downtown, the longer-distance through traffic, heavy-truck traffic, and some commuter traffic is no longer suited to travel through Downtown Brooklin. Diversion of Provincial Highway 7/12 to a suitable alternative has the potential to alleviate congestion and improve the social environment of the downtown core. Transportation policies and infrastructure improvements are required to encourage alternative sustainable modes of travel throughout Brooklin (transit, walking, and cycling) and to accommodate the transportation infrastructure needs associated with growth identified in the Brooklin Secondary Plan Area. 23

28 Figure 9: 2011 Capacity Deficiencies (AM Peak Hour) Note: This map only identifies locations with count data available with resulting link V/C ratios of 0.8 or above. Source: AECOM Canada Ltd. (2014). Existing Conditions Technical Summary Report DRAFT Brooklin Study Transportation Master Plan. Exhibit 1. 24

29 3 Past Brooklin-Focused Studies A number of background planning and urban design studies have been completed in the past for the Brooklin community. These have primarily focused on the policy and design framework for the Downtown / Major Central Area. Completed studies include: Brooklin Urban Design and Zoning Study Background Report by Walker, Nott, Dragicevic and Associates (1995); Brooklin Urban Design Guidelines by Walker, Nott, Dragicevic and Associates (1995); Downtown Brooklin Strategic Plan by MHBC (2000); Brooklin Village CAUSE Report by Ontario Association of Architects (2000); Downtown Brooklin Community Improvement Plan (2004); Brooklin Heritage Conservation District Plan by BRAY Heritage et.al. (2007); and Brooklin Business District Main Central Area Expansion: Urban Design Concept and Guidelines by MBPD et. al. (2008). These studies were reviewed to ensure that previous issues, analyses and recommendations have been thoroughly addressed in the Secondary Plan. 3.1 Brooklin Urban Design and Zoning Study Background Report and Urban Design Guidelines (1995) The purpose of the background report was to review the typical role, form and functions of a successful commercial core in a small urban area. The study found that there are two main principles for a healthy and successful main street. The area has a mix or diversity of uses which are complementary and attracts the public by providing an opportunity for working, shopping, socializing, and living. The area has a physical setting that provides an environment which people find comfortable, convenient, visually pleasing and secure. The authors further noted that, the basic objective of a main street area is to attract people and to encourage them to stay for as long as possible, so that they give life and activity to the main street. This means that there must be a variety of uses that are linked together so that they are complementary and support one another. 25

30 These two principles and the objective that follows continue to hold true today. The secondary plan should provide the policy guidance to ensure that these basic principles and objectives of a main street can be achieved in Downtown Brooklin. A number of primary objectives of the Urban Design Guidelines are relevant to the Secondary Plan including: To reinforce and maintain the heritage character of the main street through compact redevelopment which respects and complements the existing scale and character of buildings and public spaces; To provide a framework for the continued development of Brooklin s main street as a viable business area; To provide a high quality streetscape design to accommodate safe pedestrian and vehicular links between the main street and the surrounding community; and To encourage an improved pedestrian-oriented main street through coherent siting of buildings, provision of safe attractive sidewalks and incorporation of public spaces. Some of the assets of the Brooklin community identified in the study continue to be key assets today that the Secondary Plan should build upon. These include: A collection of heritage buildings; A traditional main street framework; An opportunity for both community and tourism services to attract both local residents and non-residents; Stable existing neighbourhoods adjacent to the main street ; and The Lynde Creek valley, which represents a potential open space opportunity for the whole Brooklin community. The study also identified a number of issues that continue to be relevant today. These include: The potential for a pedestrian friendly shopping street is impeded by high traffic volumes and parking in front yards of buildings; The need to provide buffering to the adjacent low density residential neighbourhoods from the mixed use and commercial uses; The demand for, and supply of parking will become increasingly important as the main street area redevelops; and Lands along Lynde Creek are for the most part in private ownership, which may be an impediment to realizing the open space and trail opportunities. The Urban Design Guidelines identified five precincts in and around the Downtown / Major Central Area. These were: Central Baldwin Street; North Baldwin Street; South Baldwin Street; South of Winchester Road; and Residential Neighbourhoods. 26

31 The Urban Design Guidelines provide an urban design concept for each of these five areas and then detailed urban design guidelines for the area as a whole. The focus on the five precincts and the urban design concept for each of these five precincts has relevance to the Secondary Plan as differing policies may be appropriate for each of the five precincts, and many of the urban design concepts may be appropriately addressed in the policies of the Secondary Plan. Central Baldwin Street, in the guidelines, is envisioned as the commercial core of Brooklin from Cassels Street to the Lynde Creek bridge. The concept is to focus the most intensive development along this portion of Baldwin Street. Buildings of up to 3 storeys in height with small setbacks from the front lot lines were envisioned. At intersections higher heights were permitted. North Baldwin Street is designed as an area of new mixed use development on vacant lands along the east side of Baldwin Street. Larger building setbacks are intended to support lower intensity development of up to 3 storeys. South Baldwin Street is also designated as a mixed use area and the urban design concept is for retail uses at grade with alternative uses on two floors above. However, the concept anticipates in the short term that the existing houses will be converted for commercial uses. This is still relevant for the west side of Baldwin as the east side of Baldwin has redeveloped. South of Winchester Road at the time of the report referred to the FUDA at the southeast corner of Winchester Road and Baldwin Street. It is now fully developed as a commercial area. However, the South of Winchester commercial and mixed use area has increased through OPA 85 and the requirement for differing policies and design approaches applies equally to this area. Residential Neighbourhoods are the stable residential areas surrounding the Downtown. The objectives of the Guidelines are to enhance the existing residential character, ensure infill development reflects the existing character and ensure an appropriate interface between the development in the downtown and the adjacent residential areas. The detailed Urban Design Guidelines in Section 4 of the report will be reviewed and updated as part of the Urban Design Guidelines prepared in Stage 4 of the Brooklin Secondary Plan review. The Urban Design Guidelines as well as policies in the Secondary Plan should address the walkability of the Downtown in order to create a safe and comfortable walking environment for Downtown residents and shoppers. The Urban Design Guidelines should also address the design and built form of new infill development in the Downtown so that it respects the existing heritage character of the Downtown. 3.2 Downtown Brooklin Strategic Action Plan (2000) In 1999, the Town initiated a community-based Strategic Action Plan for Brooklin. The Downtown Brooklin Strategic Action Plan was presented to Council in The 27

32 Strategic Action Plan was meant to facilitate positive action toward the strengthening of downtown Brooklin. The vision for the Strategic Action Plan states that: Brooklin s Downtown will be a vibrant and active centre of a growing and working village, and a close knit, friendly community; It will be a village centre steeped in tradition and history with buildings, streets and streetscapes that reflect its unique past and its role as a village meeting and gathering place; Downtown serves its community with shops, services and businesses that support, and are supported by, the Brooklin residents; These will be combined with quaint, unique and attractive stores, cafes, services and recreation amenities that draw visitors from considerable distances to enjoy what we have here in Brooklin; Downtown Brooklin will be a people place where residents and visitors can gather to shop, dine out, be entertained, or relax; Its mix and scale of stores and services will reflect its heritage past, but also its future as a growing community; and It will be a village centre with something for everyone, a unique gem in the Town of Whitby. This vision is quite relevant for the Secondary Plan and an updated vision for the downtown could be considered for inclusion within the Secondary Plan. The Strategic Action Plan contains five themes for action including: Organizing for action; Attracting new investment and development; Improving our downtown physical environment; Bringing more people downtown; and Image-building and promotion. The actions under each of these five themes are given a timing of immediate, short term, medium term or long term. Of relevance to the Secondary Plan review, a number of goals, directives and actions are identified related to land uses, transportation and other matters that could be addressed by the Secondary Plan including: Downtown Brooklin will attract appropriately scaled new development as infilling within the downtown; New residential housing types in the form of seniors housing and medium density residential uses in keeping with the existing character will be encouraged; Through strategically placed and appropriately scaled infill development, a greater critical mass of shops and services will be provided; The streetscapes will be pedestrian friendly and historically accurate; Downtown Brookin will have a broad range of activities, uses and services that draw people on a consistent basis during weekdays and weekends; 28

33 A new Brooklin Village Square will act as a community meeting place and civic focal point for the downtown (Reference is made to a Brooklin Village Square in front of the CIBC building); Study opportunities to create a more integrated pedestrian/bike network in and around the downtown; Prepare a long term strategy to gain public ownership of green space in and around Downtown Brooklin; and One of the most significant ways of bringing people downtown is to increase downtown housing. Opportunities for housing above stores and in new residential developments are to be aggressively promoted. The establishment of new appropriately sized seniors developments within and around the downtown should be promoted. Subsequent to this report, the Brooklin Downtown Development Steering Committee was appointed by Council in 2001 to implement the Strategic Action Plan. 3.3 Brooklin Village CAUSE Report (2000) The Ontario Association of Architects applied the Community Assist for an Urban Study Effort (CAUSE) to prepare a document outlining concepts and visions that could be used to invigorate Downtown Brooklin. The CAUSE programme assembles a team of architects, planners and landscape architects from outside the study community to promote a fresh look at community planning issues. Some of the recommendations that are relevant to the Secondary Plan review include: Provide for mid block parking opportunities and consider shared parking or reduced parking requirements; Increased on-street parking possibilities, increased sidewalk widths and pedestrian zones at intersections should be considered as traffic calming measures and to enhance the pedestrian environment; The possibility of using the Lynde Creek corridor for open space and pedestrian linkage should be studied in more depth; Increasing residential density in and around Downtown Brooklin through multiunit development in larger houses, mixed-use development in areas directly adjacent to the commercial core and rear lot severances on deep lots; Creating a landmark redevelopment at the intersection of Baldwin and Queen Streets; Provide for commercial development for larger businesses at the intersection of Columbus Road and Highway 12, which together with new commercial development south of Winchester Road would create bookends of commercial development on either side of the Downtown; Consider mixed use development along Baldwin Street from George Street to North Street which would respect the existing character through professional offices, small retail stores and other low-impact commercial uses; and 29

34 Lands in the Prestige Industrial designation along Baldwin Street north of Highway 407 should be developed in a manner that does not significantly increase truck traffic along Baldwin Street. These recommendations provide a basis upon which to consider land use options and policy recommendations through the Secondary Plan process. 3.4 Downtown Brooklin Community Improvement Plan (2004) The Community Improvement Plan was approved by the Ministry of Municipal Affairs and Housing in The original Community Improvement Plan for Brooklin dated back to In 2002 Nexus Architects completed a Façade Improvement Guideline for Whitby and Brooklin. Heritage Guidelines for Brooklin were also completed in 2002 by Nexus Architects. The Town determined that the implementation of these guidelines could be achieved by providing incentives to local businesses to make improvements to the facades of commercial buildings in Downtown Brooklin. The Community Improvement Plan was subsequently updated to provide for this implementation and grant programme. The Community Improvement Plan includes a Priority Area along Baldwin Street and an overall Grant Eligibility Area that encompasses much of the Major Central Area north of Winchester Road. The Community Improvement Plan and boundary could be referenced in the Secondary Plan, but it doesn t offer any land use directives to be addressed in the Secondary Plan. 3.5 Heritage Conservation District Plan (2007) The majority of downtown Brooklin is within a Heritage Conservation District. The Heritage Conservation District Plan (HCDP) approved in 2007 is a change management plan to conserve the heritage character of Brooklin while permitting heritage friendly infill development new buildings that respect the past and emulate its best features. The Plan states that, the intended result is a district in which some areas are preserved virtually intact while others are significantly altered but in ways that are compatible with the heritage character of the areas as a whole. Further, it states that there will be substantial amounts of infill between, behind and around the essential historic buildings. The Secondary Plan currently anticipates the heritage conservation district designation in Section The HCDP boundary was added to the Secondary Plan through OPA 90. Reference to the HCDP and inclusion of key policy directives of the HCDP particularly as it relates to the appropriate form of infill should be incorporated into the new Secondary Plan. 30

35 The HCDP contains policy recommendations to be included in the Secondary Plan that have yet to be acted on. It also recommends the preparation of a follow-up urban design plan for the downtown that would examine the urban design implications of both conservation and development within the downtown. Some of the issues with the existing Secondary Plan raised in the HCDP include: Inclusion of both the existing downtown core and the new shopping area south of Winchester Road in the Major Central Area requires a clear policy distinction between the two areas in order to conserve and revitalize the village s existing commercial core; Smaller scale, incremental development is more likely to support the goals of the HCDP; The list of permitted uses in the Major Central Area supports the diversity intended for Brooklin, but the implications of residential intensification needs to be more fully explored in the Secondary Plan; The implications of the Major Commercial policies within the District should be reviewed and examined in the event that large scale commercial developments are anticipated; Policies are needed to address the relocation of threatened heritage buildings; The permitted uses for downtown Brooklin may need to be fine tuned to fully support the objectives of the HCDP; Existing low density residential areas of heritage significance need to be conserved while areas suitable for redevelopment need to be identified; and Parking and access standards need to be adapted to suit the finer grain and pedestrian emphasis of the conservation district. Some of the objectives and policy directives recommended in the HCDP that are relevant to the Secondary Plan include: To encourage heritage friendly development that is compatible with the arrangement, scale, architectural styles and materials that constitute the District s heritage character; To provide a mix of land uses that will support and strengthen the existing commercial, residential and community service uses in the downtown core; New development should be limited to existing vacant sites or to sites currently occupied by non-heritage significant buildings; Overall development within downtown Brooklin should be guided by an urban design plan for the downtown; All new development in the District should follow the guidelines in Section 6 of the HCDP; On-street parking, small off-street parking lots and parking structures should be the preferred means of addressing parking demand, but a parking study should be a requirement in the Secondary Plan; Remove and replace the Residential designation with Mixed Use designation within the District except for the central portions of Durham Street, Cassels Road east of the bridge and all of Princess Street south of the Mixed Use edge along Grass Park; and 31

36 Heritage Impact Statements should be required for all developments adjacent to the District. 3.6 Urban Design Concept and Guidelines of the Brooklin Main Central Area Expansion (2008) The Urban Design Concept and Guidelines of the Brooklin Business District Main Central Area Expansion by MBPD et.al. (2008) details a vision and master plan concept for the new Major Commercial area that was formerly FUDA #4, south of Winchester Road and west of Baldwin Street. The report created an urban design vision for the south west quadrant. The intent of this design vision is to develop a pedestrian friendly mixed use Urban Village, which will: Function as a new urban gateway into the traditional main street of Brooklin; Contain several land uses including retailing, offices, hotels and convention facilities, and residential; Complement the urbanistic underpinnings of main street Brooklin; and Become an extension of the Central Area in terms of its urban design character. Some of the key planning and design principles of the urban design vision include: Establish a legible and ordered urban structure that is inspired by the best urban qualities, forms and scale of traditional main street Brooklin; Devise an internal road structure and a Street and Block Pattern to form the basis of the urban structure of the lands; Create a major open space focal point within the subject area as a Village Green and as a means of operating and organizing built form; Encourage a mix of land uses within the newly established block structure including commercial and residential uses; Connect and integrate the subject area to the adjacent lands across Baldwin Street and Winchester Road and to the rest of the adjacent community; Enable and support strong pedestrian connectivity between the subject area, the historic main street of Brooklin and adjacent lands; Build upon and use the advantages created by the proximity of Highway 407 as a major transportation corridor, such as access, high visibility and exposure; and Provide a critical urban mass and a mix of compatible land uses to achieve a sustainable environment and built form along with a vibrant public realm. A Master Plan Concept was prepared to elaborate on the Urban Design Vision. It sets out a road and block pattern, identifies a central open space area and identifies three differing land use categories as illustrated in Figure

37 Figure 10: Master Plan Concept 33

38 The urban design guidelines in Section 3 of the report provide detail on the intended built form and streetscape character of these blocks and streets. In Urban Core 1 and Urban Core 2 (Type A and B blocks), building heights are to be a minimum of 2 storeys. Mixed use is encouraged to be comprised of retail or live/work uses on the ground floor and residential above. In the Type C blocks, employment uses are envisioned. Section 4 of the report provides greater block by block detail of the intended built form and land use types. Many of the land use and built form recommendations should be addressed in the Secondary Plan to provide further direction on the development of this key quadrant in the Major Central Area. 3.7 Other Design Studies A number of other urban design related studies have been prepared. These urban design guidelines and studies will be used as the basis for an updated Brooklin Urban Design Guidelines prepared in Stage 4 of the Brooklin Study. These urban design guidelines and studies include: Brooklin Street and Landscape Plan Design Guideline Report, 2002 by TSH, Baldwin Street Landscape Plan, Part 2: Ten Year Implementation Strategy, 2006 by TSH, Downtown Signage Study: Summary Report, 2004 by Town of Whitby Planning Department, Façade Improvement Guidelines: Whitby & Brooklin, 2002 by Nexus Architects, and Neighbourhood Design Guidelines Village of Brooklin,1994 by Milus Bollenberghe Topps Watchorn. 34

39 4 Stage One Public Input In addition to the technical background studies discussed in Section 2, a Public Consultation Report was prepared by Sorensen Gravely Lowes Planning Associates Inc. and AECOM. The public feedback summarized in the report originates from the two Public Information Centres held in April 2014 and from an on-line survey held from April through to June Through the various methods of soliciting public input, a number of issues and ideas were repeatedly raised. The relationship between these key issues and the new Brooklin Secondary Plan is discussed below. A Walkable Community The community expressed the desire for improved walking and cycling infrastructure and generally a more walkable community. Some ideas on improvements included: more trails and bike lanes, a mixed-use trail linking Brooklin and the rest of Whitby, a safe route to south Whitby from Winchester Road to Taunton Road, and increased access and walkability of the Downtown. The fundamental elements of a walkable community will be considered in the design of new neighbourhoods in the Secondary Plan. These elements include short blocks, a mix of uses, the provision of sidewalks, a 10 minute walking distance to parks and other community facilities and the provision for safe and convenient connections to community uses and natural open spaces. Streetscape improvements for pedestrian safety should also be introduced in the new Secondary Plan. Through the Transportation Master Plan, improved walking and cycling infrastructure will be addressed. Maintaining and Improving the Vibrancy of the Downtown Downtown Brooklin was seen by many residents as one of the things they liked the most about Brooklin. However, it was also identified as the most important thing that needed improving in Brooklin. Ideas from the public on how it can be improved include: Improve walkability and expand the boulevards, Need more shopping choices, Need more outdoor restaurants and cafes; Get the trucks off of main street; Improve character of streetscape and improve business facades; and Expand the downtown. In addition, maintaining a vibrant and strong downtown was seen as one of the most important factors when planning for Brooklin s future. 35

40 Ensuring the on going vitality and vibrancy of Downtown Brooklin will be a key theme in the Secondary Plan. The Retail/Commercial Space Needs Analysis by Realty Research Group Ltd. forecasts the need for additional commercial and retail space in Brooklin. In developing the new Secondary Plan, we will need to consider the appropriateness of the existing designations of the Downtown, and the amount of additional commercial space that should go into the Downtown while protecting existing businesses. The policy strategy will need to be comprehensive to address not only additional commercial needs but ensuring the heritage character is maintained, through traffic and parking needs are addressed, streetscape and boulevard treatments are considered to promote walkability and how the historic downtown will link with the newer areas within the Major Central Area south of Winchester Road. Shopping and Restaurants The community expressed the desire for more shopping, restaurants, and more grocery stores. The Retail/Commercial Space Needs Analysis by Realty Research Group Ltd. estimates the need for additional retail, food retail, and restaurant space to service the estimated population. In developing the land use mix for the expansion areas in the next phase of the Study, consideration will need to be made for more commercial space to accommodate the warranted new space estimates. The key matter to be addressed will be where the additional commercial space is located, what form it will take and how the vibrancy of the Downtown is maintained with additional commercial floor space in the community. Maintaining the Small-Town Feel Small-town feel was seen as one of the primary strengths of the community and what residents liked the most about Brooklin. Maintaining the small-town feel was consistently raised as how they would like to see Brooklin 20 years into the future. The Secondary Plan will need to identify ways to maintain the small-town feel despite the population and employment growth planned for the community. Maintaining the character of the Downtown, creating walkable neighbourhoods, protecting the character of established neighbourhoods, providing well designed and located parks and village greens and providing appropriate housing character and design can all play a part in maintaining the small-town feel. Providing Community Facilities, Sports Facilities, Parks and Recreation Parks and recreation and walking and cycling were identified as one of the many things residents liked about Brooklin, but public spaces and walking and cycling were also identified as one of the areas for improvement. The community stated that there are not enough community facilities and sports and recreation parks to meet their needs. As well, the provision of safe and active play spaces ranked highly in the survey. Other comments were: 36

41 Provision of active parks within walking distance from home; Need for more parks and play equipment; Need for a full sized community centre; Need for more trails particularly linking to south Whitby; Expand Grass Park to accommodate more community events; and Improve public places. The Parks and Recreation Facility Needs Analysis by Montieth + Brown (2014) identified the need for a number of indoor and outdoor recreation facilities to serve the needs of the 2031 population. The Secondary Plan will address, the provision of new facilities, the amount, location and type of passive active parks and the means to link these facilities through the walking and cycling networks. Providing Local Jobs The community expressed the desire for more local jobs, and this will become increasingly important as the population of Brooklin grows over the next 20 years. The Population, Housing, and Employment Analysis by Hemson Consulting (2014) forecasts approximately 25,500 jobs at ultimate development of Brooklin, with the majority of the forecasted new jobs to be located on employment lands. Hemson s forecast supports the community s desire for more jobs within the community. The new Secondary Plan will address the provision of employment lands to accommodate the forecasted new jobs. Protecting Heritage Character The heritage character of Brooklin was identified by many respondents as one of the things they liked the most about Brooklin. However, protecting the heritage character was also identified as one of the most important improvements in Brooklin. It is clear that protecting cultural heritage properties as well as Brooklin s heritage character is a important issue among residents. Built-form policies that ensure compatibility with the established heritage character of the Downtown will be a key consideration in the new Secondary Plan. The Secondary Plan will need to establish a policy to ensure future buildings will fit into the heritage character of the Downtown Brooklin and its adjacent neighbourhoods. In addition, streetscape policies that support the existing heritage character will also need to be explored. The Cultural Heritage Resource Survey by Wayne Morgan (2014) identified 35 properties and nine road segments to have known or potential cultural heritage values. This study recommends a heritage impact assessment be required for any planning application in the Study Area involving or adjacent to a property identified as a cultural heritage resource. This requirement and a defined scope of a heritage impact assessment will be addressed in the Secondary Plan. 37

42 5 Policy Framework and Recent Policy Amendments The policy framework applying to land use planning in Brooklin includes provincial policy such as the Provincial Policy Statement (PPS) and the Growth Plan for the Greater Golden Horseshoe, regional policy including the Durham Regional Official Plan and the recent growth management amendments to the Regional Official Plan and lastly the Town s Official Plan and recent amendments to the Official Plan to conform to the provincial and regional policy documents. Provincial Policy Statement 2014 (PPS) The PPS sets the policy foundation for regulating the use and development of land for all of Ontario and is based upon the fundamental principles of sustainable and resilient communities for people of all ages, a clean and healthy environment, and a strong and competitive economy. The PPS promotes efficient use and development of land and focuses growth and development to settlement areas. It requires communities to develop with densities and a mix of land uses that support transit and alternative modes of transportation such as walking and cycling. It encourages appropriate intensification and redevelopment to allow for the efficient use of land, infrastructure and public facilities. Long-term economic prosperity is supported by maintaining and enhancing the vitality and viability of downtowns and main streets. As well, it sets out policy direction for conserving Ontario s biodiversity, protecting natural heritage, water, agricultural, cultural heritage and archeological resources for their economic, environmental and social benefits. Municipal official plans are to be consistent with the PPS. Growth Plan for the Greater Golden Horseshoe, 2013 The Growth Plan builds upon the policy framework of the PPS. It is a framework to implement the Government of Ontario s vision for building stronger, prosperous communities by better managing growth. It specifically applies to the geographic area of the Greater Golden Horseshoe. It sets out a number of policy directions for growth and development of communities, including a minimum intensification target in the builtup area of each settlement area and a minimum density target in the greenfield portion of each settlement area. Schedule 3 of the Growth Plan allocates population and employment forecasts to the year 2031 for upper- and single-tier municipalities, including for the Region of Durham. The Province requires municipalities to amend their Official Plan policies to conform to the Growth Plan. Durham Regional Official Plan The Region of Durham completed a Growth Plan implementation study titled, Growing Durham to make recommendations for managing growth in conformity with the Growth Plan. The Growing Durham study recommended a number of urban area expansions in order to accommodate the forecasted 2031 population and employment growth. In 38

43 addition, it recommended a number of policies to support intensification within built-up areas and the phasing and monitoring of growth to ensure that it occurs in a sequential and logical manner. The Growing Durham Study led to an amendment to the Regional Official Plan through Regional Official Plan Amendment #128 (ROPA 128). ROPA 128 expanded the Brooklin urban boundary to include additional urban lands to the north, west and south. Those lands are also referred as urban expansion areas. Further, it designated the urban expansion areas as either Living Area or Employment Area (see Figure 1). ROPA 128 allocated to Whitby a 2031 population of 192,860 and total intensification within the built-up area of 11,963 units by Growth management objectives established by ROPA 128 include: by 2015, and each year thereafter, accommodate a minimum 40% of all residential development occurring annually through intensification within built-up areas (ROPA 128 assigned a specific target of 45% to Whitby); develop designated greenfield areas with an overall gross density of 50 residents and jobs combined per hectare; and accommodate a minimum 50% of all forecast employment in designated Employment Areas (Policy 7.3.9). In addition, ROPA 128 gave direction to municipalities in undertaking their conformity exercises, in preparing intensification strategies and in preparing phasing policies. ROPA 128 also provided guidance to municipalities in the preparation of secondary plans. In particular, ROPA 128 requires secondary plans to: address the growth management objectives of Policy 7.3.9; assess transportation, servicing and facility needs (and associated costs); consider effects on the natural, built and cultural environment; consider land use conflicts; provide a range and mix of land uses and housing types, including affordable housing; and achieve sequential and orderly development (Policy ). Town of Whitby Official Plan To meet the Province s conformity requirement, the Town of Whitby amended its Official Plan to conform to the Growth Plan and to ROPA 128 through: OPA 85 (approved) affecting the southwest quadrant of Baldwin Street South and Winchester Road West; and OPA 90 (adopted but appealed) implementing the Growth Plan and ROPA 128 conformity on population, employment, designated greenfield planning and intensification. In addition, the Town is undertaking an Official Plan Review and has released two draft Official Plan Amendments for public review as follows: draft OPA #1 regarding healthy and complete communities, heritage, and sustainability; and draft OPA #2 regarding land use and housing policies. 39

44 These recent policy amendments are described below and implications identified for the secondary plan. 5.1 OPA 85 (in effect) OPA 85 affects lands generally located at the southwest corner of Baldwin Street South and Winchester Road West. The purpose of OPA 85 is to expand the Major Central Area boundary and to change the land use designation from Future Urban Development Area (FUDA) #4 and Prestige Industrial to Major Commercial, Mixed Use-Commercial and Business Park. The expanded Major Central Area is intended to accommodate the additional warranted commercial space to meet the anticipated commercial needs of Brooklin s future population growth to 25,000. Additional policies are introduced to provide greater direction on the intent of the Mixed Use-Commercial area including the integration of residential and commercial uses. The policies also require a public square to be provided as an internal focal point for the Major Commercial area (Section ). In addition, the policies require development in the southwest quadrant to complement Brooklin s historic downtown business district and the vibrancy of the Main Central Area. Further, Section requires buildings to be brought up to the street edge, and to encourage the establishment of a pedestrian oriented public realm. OPA 85 recognizes that there will be a need for additional commercial floor space to 2031 to serve the additional population growth beyond 25,000 people. The amount of that commercial space is currently being evaluated through the background study, Retail / Commercial Space Needs Analysis. The OPA requires that new development be subject to design guidelines that are reflective of and compatible with the heritage architecture of the Brooklin Heritage Conservation District. The urban design guidelines are to address the massing and scale of buildings, the provision and design of public roads, public meeting places, open spaces and zoning standards. Further, it indicates that the guidelines will be guided by the urban design plan Brooklin Business District Main Central Area Expansion Urban Design Concept and Guidelines, OPA 90 (under appeal) OPA 90 applies to the entirety of the Town of Whitby. It updates the Official Plan to ensure conformity with the Growth Plan and ROPA 128 as it relates to the 2031 population and employment targets and the percentage of new population and employment growth that is expected to occur within the Built Boundary as intensification. As it relates to the Brooklin Study Area, OPA 90 adjusts the urban boundary to accommodate the forecasted growth to the year As a result, OPA 90 adds urban 40

45 expansion areas north and west of the existing Brooklin Community, in conformity with ROPA 128, which are identified as FUDA #5 and expanded FUDA #2. The FUDA areas, the existing Brooklin Secondary Plan area, and the lands currently designated as Prestige Industrial south of Conlin Road, east and west of Anderson Street make up the Brooklin Study area. OPA 90 implements the Town s intensification strategy as part of its Growth Plan conformity exercise. New section 4.13 identifies the Baldwin/Winchester area as an Intensification Area, while new Schedule B3 generally illustrates the northwest and southeast corners of Baldwin/Winchester as Intensification Areas. Section sets out a number of policies that apply to all Intensification Areas to ensure built-form compatibility with the surrounding established areas, including policies relating to building design (Section ), amenity areas and the public realm (Section ), land use compatibility (Section ), and an overall built form vision (Section ). Section provides policies specific to the Baldwin/Winchester Intensification Area. It prohibits new drive through service facilities and gas bars in the Heritage District Conservation Area and within the Baldwin/Winchester Intensification Area. It also sets out the long term overall density target of 75 residential units per gross hectare, and indicates that the potential exists for approximately 950 additional dwelling units and additional 540 jobs located within the Baldwin/Winchester Intensification Area. Schedule B3 and Section identify Winchester Road and Columbus Road as Intensification Corridors. Building heights in Intensification Corridors are permitted to be in the range of 2 to 8 storeys with the exception of larger sites that abut natural features and front on an arterial road, which may be increased to 12 storeys (Section b). Surface parking is generally not permitted in Intensification Corridors, except for non-residential uses in a mixed-use building (Section c) i)). OPA 90 also amends Section , which describes the Major Central Areas of Whitby, including Baldwin/Winchester. It states that Major Central Areas are to be planned as the main concentration of urban activities in the Town with a full array of land uses. It further indicates that the Major Central Areas as illustrated on Schedule B3 are conceptual, and states that Secondary Plan policies and policies applying to Intensification Areas and Intensification Corridors will articulate how development will occur. Another change that affects Brooklin is the addition of the Brooklin Heritage Conservation District Plan boundary to Schedule K, which generally captures Downtown Brooklin. New drive-throughs and automobile service stations are not permitted in the Heritage Conservation District Area (Section ). However, OPA 90 does not introduce additional policies specific to the Brooklin Heritage Conservation District Plan. 41

46 5.3 Draft OPA 1 - Healthy and Complete Communities / Heritage / Sustainability (Draft) The first draft Official Plan amendment stemming from the Town s current Official Plan Review addresses healthy and complete communities, heritage, and sustainability. It introduces sustainable community planning policies and proposes changes for economic prosperity, growth management and heritage protection. A new overall vision and guiding principles for the Official Plan are introduced in Section 2. In particular, Section h) of the Guiding Principles specifically encourages continued revitalization of Downtown Brooklin which reflects its heritage significance and promote[s] a mix of uses and attractions that reinforce the function as cultural, administrative, entertainment, retail and social focal points of the community. (p.7). A new section on Economic Prosperity is introduced, and specific to Downtown Brooklin, Section encourages a healthy and balanced development of all commercial areas and promotion of traditional shopping districts for commercial, higher order office development and community and government services. New Section b) requires a comprehensive secondary plan be prepared for FUDA #2 and #5, incorporating an update of the Brooklin Secondary Plan to ensure that the role of the Brooklin Major Central Area as the dominant centre is maintained within the expanded Brooklin community. (p.38-39). New section lists the required contents of a Secondary Plan: a) the distribution and location of planned land use designations in the Secondary Plan area; b) the alignment and classification of arterial and collector roads, including transit routes and facilities, special features such as grade separations, and cycling and pedestrian facilities with consideration to providing connections to community uses; c) policies and designations for the establishment of an appropriate Natural Heritage System and development of a strategy for its protection, including land securement options; d) policies and designations to provide a wide range and mix of housing types, densities (including minimum densities), sizes and affordability; e) the provision of an appropriate hierarchy of central areas that will be the focus of mixed use retail, personal services, and community services; f) the determination of commercial facilities in terms of type of uses permitted, appropriate locations and specific design, site size and floor space criteria; g) the location of community facilities such as parks, urban squares, schools, places of worship and recreation facilities; h) the provision of live/work opportunities for combined residential and business or personal services and offices, in appropriate locations; i) policies governing the integration of new residential and non-residential development with existing residential and non-residential areas with regard to minimizing impacts on existing neighbourhood and community areas; 42

47 j) opportunities and scope for redevelopment and intensification of existing uses; and k) urban and site design considerations including: I. residential areas designed to allow convenient pedestrian and vehicular access to schools, local parks, natural open space areas, recreational and institutional facilities, and to the local commercial areas; II. residential areas designed to include a mixture of housing densities and designs. Higher density and specialized housing such as senior citizen units should be clustered around neighbourhood centres; III. open space, schools, places of worship, commercial facilities, parks and buildings of historic or symbolic significance closely integrated to serve as neighbourhood foci; IV. streetscape and landscape treatments implemented through the subdivision and development control process; V. minimizing conflicts between urban and rural land uses through reference to the Agricultural Minimum Distance Separation Formulae where necessary; and l) phasing policies including, where appropriate, requiring the preparation of block plans or neighbourhood plans to coordinate the delivery of services and infrastructure. The background studies completed for the Brooklin Study will provide basis for the Secondary Plan to address the issues listed in proposed Section

48 5.4 Draft OPA 2 Urban Land Use Policies and Housing Policies (Draft) The second draft Official Plan amendment from the Town s Official Plan Review study deals with residential, central area, commercial, mixed use, industrial, institutional/community facilities and parks/open space land use policies and designations as well as housing policies. Draft OPA 2 proposes to expand the Major Central Area on the north side of Winchester Road, as shown in Attachment 2-E (Figure 11). It also proposes to redesignate the Mixed Use areas within the Major Central Area to Major Commercial. Based on the input from previous studies including the HCDP, additional policies are likely required in the Brooklin Secondary Plan to give greater policy direction on the intended land uses and built form within these areas. Draft OPA 2 also proposes to redesignate a portion of FUDA #2 and a Prestige Industrial Area in the vicinity of Conlin Road and Anderson Street to FUDA #5 to conform with the change of this area to Living Area in the ROP. A new goal is introduced for the Residential section, which is the development of residential neighbourhoods with a range of densities (Section ). As well, a new objective in Section encourages residential intensification in appropriate locations. Accordingly, Section of the Low Density Residential designation permits a maximum density in greenfield areas that exceeds the standard maximum of 30 dwelling units per net hectare. Similarly, higher density maximums are permitted within Intensification Areas and Corridors by Section b). The Prestige Industrial policies specifically require the new Brooklin Secondary Plan to identify appropriate locations for General and Prestige Industrial Areas, including Business Parks (Section ). Further, the policies require consideration be given to Business Park locations in proximity to Highway 407 and that the secondary plan should establish policies to achieve a high order of urban design and landscaping in Business Parks. The establishment of a Health Precinct in the vicinity of Highway 407 and Baldwin Street interchange is set out in Section A new policy is introduced regarding the Conversion of Industrial Areas. Section expresses the intent of the Plan to relocate the Brooklin Concrete operation on Baldwin Street North and redevelop this site as a regeneration area. Urban Squares is a new classification of park space introduced by draft OPA 2, which is to be established in Secondary Plans. Section states that Secondary Plans may contain policies and designations for the establishment of urban squares, and describes urban squares as public gathering areas serving the immediate neighbourhood and visitors to the area, which may be in public or private ownership. 44

49 Figure 11: Official Plan Review - Proposed Draft Amendment # 2, Attachment 2-E 45

50 6 Policy Review Of Existing Secondary Plan The existing Brooklin Secondary Plan policies are contained in Section 11.5 of the parent Official Plan, and the land use schedule is Schedule K (Figure 12). This section of the report presents a policy review of the Secondary Plan and identifies the following areas where further policy detail or refinement is warranted in the new Secondary Plan: Residential built form policies; Residential density policies; Retail and mixed use policies; Further detailed policies to implement the overall directives of the new draft Official Plan amendments; Policies required to appropriately direct the development of the Brooklin Major Central Area and the differing geographical components within it; and, Policies related to the creation of a complete and healthy community that supports walking, cycling, and public transportation. Specific policy gaps are discussed below. 6.1 Residential Designation, Section Residential Densities Section a) of the parent Official Plan sets a maximum density of 30 dwelling units per net hectare for the low density residential designation. In preparing the new Secondary Plan, consideration should be given to the appropriateness of setting out a minimum and maximum density range, including the appropriateness of the maximum density cap of 30 dwelling units per net hectare in all areas. For instance, the maximum density in designated greenfield areas may be higher in order to reach the minimum greenfield density target, whereas it may be lower in the older established residential areas to protect the established character Protection of Stable Residential Areas Draft OPA 1 introduces a new strategic objective in Section e) to ensure protection of established community character and sensitive integration of new development with existing development. Policies to ensure new infill development within the established stable residential areas is compatible and fits in with the established character should be included in the new Secondary Plan. 46

51 In addition, the current Secondary Plan contains no transition policies to address compatibility between the Major Central Area, Mixed-Use Area, and adjacent established low density residential areas. It may be appropriate to introduce new policies to ensure compatible and appropriate interface between these areas to protect the character of established stable residential areas. Figure 12: Existing Brooklin Secondary Plan, Schedule K of the Town of Whitby Official Plan 47

52 6.2 Mixed Use Designation, Section OPA 85 introduces a new policy and land use designation of Mixed Use Commercial. The new Mixed Use-Commercial designation of OPA 85 permits, retail, commercial, multi-storey business, professional or corporate offices, and live work with nonresidential uses on the ground floor and medium/high density residential on floors above (Section ). In comparison, the existing Mixed Use designation of the Secondary Plan permits limited retail, personal service, office, and residential uses (Section ). The uses permitted within each designation are fairly similar. It is noted that draft OPA 2 proposes to redesignate the Mixed Use areas north of Winchester Road to Major Commercial as the Major Commercial designation allows the broadest range of commercial uses as well as high density residential. If draft OPA 2 is adopted by Council, then the remaining Mixed Use designated area would be at Anderson and Winchester. Section sets out the ratio of commercial to residential in mixed use developments being one square metre of commercial floor space for one square metre of residential floor space. Section requires the zoning for new development to include provisions for residential uses in accordance with the High Density Residential use provisions. In comparison, new Section b) for the Mixed Use-Commercial designation introduced by OPA 85 sets out a required ratio of one square metre of medium and/or high density residential floor space for each one square metre of ground floor commercial floor space. The Secondary Plan review may need to consider differing policies for differing geographical parts of the Downtown / Major Central Area to reflect differing built form intent and the need for heritage protection. 6.3 Special Purpose Commercial Designation, Section Section permits Special Purpose Commercial uses at the southwest corner of Baldwin and Columbus (the Armtec Holdings Limited site, formerly Brooklin Concrete), which is designated General Industrial. This site has also been identified as a potential intensification site in the Potential Intensification Opportunities report and was considered as a conversion site in the Population, Housing and Employment Analysis report. The next step in the study process will need to consider different land use alternatives for the Armtec site including suitable non-employment uses. 6.4 Urban Design Requirements for Business Parks Draft OPA 2 (Section ) requires the Brooklin Secondary Plan to consider Business Park locations in proximity to Highway 407, and establish policies to achieve a high order of urban design and landscaping. 48

53 As well, OPA 85 redesignates lands immediately north of the future Highway 407 on the west side of Baldwin Street to Business Park, and introduces new section which sets out the uses permitted within the Business Park designation. However, detailed design policies are not included in OPA 85 or draft OPA 2. Detailed urban design and streetscape policies for the Business Park designation should be considered for the new Secondary Plan. 6.5 Health Precinct Draft OPA 2 introduces new Section , which identifies the need to consider the establishment of a Health Precinct in the vicinity of Highway 407 and Baldwin Street as part of the Brooklin Secondary Plan update. OPA 2 defines a Health Precinct as a cluster of health and medical related facilities, including research and development facilities and related uses. The next stage of the Secondary Plan should consider the location of a potential Health Precinct and develop a policy framework to promote and achieve a Health Precinct in Brooklin. 6.6 Major Commercial Designation, Section Major Commercial designated lands are located at the southeast quadrant of Baldwin Street and Winchester Road and in Downtown Brooklin. In addition, OPA 85 redesignated the southwest quadrant of Baldwin Street and Winchester Road from FUDA #4 to Major Commercial, and draft OPA 2 proposes to redesignate the Mixed Use areas in the Downtown to Major Commercial. Although lands are currently designated Major Commercial in the Secondary Plan area, and additional Major Commercial areas are proposed, there are no policies in the Secondary Plan that address the Major Commercial areas within the Brooklin context. Section a) of the parent OP lists the range of permitted uses and states that development in Major Commercial areas is to be guided by the Central Area policies. However, the Major Central Area policies of Section do not address built form, design or streetscape matters, which is important considering the Major Commercial area designation applies to the Downtown Brooklin mainstreet, the Heritage Conservation District and the greenfield component of the Major Central Area where a pedestrian oriented retail area is to be established. In preparing the Secondary Plan, consideration needs to be given to setting out detailed built-form and streetscape policies, including consideration of the Urban Design Concept and Guidelines of the Brooklin Business District Main Central Area Expansion study by MBPD et. al. (2008). In effort to reinforce the historic character of the Downtown, consideration should be given to directing retail stores with large footprints to the Major Central Area south of Winchester Road while encouraging and facilitating smaller stores to the existing Downtown. 49

54 6.7 Downtown Brooklin and the Regional Centre / Major Central Area Need for Different Policy Approaches for Different Parts of the Downtown / Major Central Area The general area in the vicinity of the Baldwin / Winchester intersection is conceptually identified as a Regional Centre in the Regional Official Plan. Regional Centres are intended to act as the main concentration of commercial, residential, cultural and government functions in a well designed and intensive land use form (Section 8A.1.1, ROP 2013). Section 8A.2.2 b) of the Regional Official Plan describes Regional Centres as the main concentrations of urban activities, providing an array of institutional, commercial, major retail, residential, recreational, cultural, entertainment and major office uses. It is to function as the community s primary cultural, business, entertainment and commercial focal point. Similarly, OPA 90 makes clear that Major Central Areas are to be planned and developed as the main concentration of urban activities (Section ). The current secondary plan permits a mix of land uses and higher residential densities in the Major Central Area and surrounding area. However, the secondary plan does not provide details on how the development and array of land uses contemplated by the ROP or OPA 90 are to fit in with or complement the local heritage context of the existing downtown. As discussed in Section 4.2 of this report, OPA 90 identifies the Baldwin/Winchester component of the Major Central Area as an Intensification Area (Section ). The associated policies provide direction on height and density as described in Section 4.2. South of Winchester Road, the policies allow for greater heights and densities. This permitted built form will be of a significantly different character from the built form that is in the Heritage Conservation District component of the Downtown / Major Central Area. As a result, the Brooklin Study should introduce more specific policies for different parts of the Downtown / Major Central Area that direct different forms and intensities of commercial and mixed use development to the Heritage Conservation District Component of the Downtown / Major Central Area and to those areas adjacent to stable residential neighbourhoods compared to the areas south of Winchester Road. Detailed Land Uses and Built Form Section of the Brooklin Secondary Plan states that a development plan for the Major Central Area will be initiated upon adoption of the secondary plan. The Brooklin Urban Design and Zoning Study Background Report and the Brooklin Urban Design Guidelines both by Walker, Nott, Dragicevic and Associates (1995) were completed shortly after the adoption of the Brooklin Secondary Plan. Subsequently, a number of studies affecting the Major Central Area were completed, as summarized in Section 2 of this report. Although some of these studies were initiated almost 20 years ago, much of the identified issues, direction, and recommendations remain relevant today, as 50

55 discussed in Section 2 of this report. In preparing the new secondary plan, the findings of these background reports and design guidelines should be considered, and a detailed land use and built form plan for the Downtown / Major Central Area should be incorporated into the new secondary plan. Draft OPA 2 proposes to redesignate the Mixed Use designated areas along Baldwin Street, north of Winchester Road to Major Commercial (see Figure 11). As well, draft OPA 2 proposes to expand the Major Central Area boundary north of Winchester Road to include areas to the east and the west (see Figure 11). The appropriateness of the proposed redesignation and expansion of the Major Central Area boundary will need to be considered in light of the projected warranted additional retail and commercial space determined through the Retail / Commercial Space Needs Analyses by Realty Research Group Ltd. Section of the Secondary Plan sets out a maximum gross retail and personal service floor space of 65,450 square metres in the Brooklin Major Central Area. This cap on commercial floor space will be reviewed and updated based on the findings of the Retail/Commercial Space Needs Analysis. This section of the Secondary Plan also references a future population of 25,000. This population is based on the previous boundary of the Secondary Plan and will be updated based on the Population, Housing, and Employment Analysis (Hemson 2014). The mix of land uses, densities and built form in the Regional Centre / Major Central Area at Baldwin Street and Winchester Road and its linkage to the Downtown along Baldwin Street should be a key consideration in the land use options that will be determined in the next stage of this study. This area will be key to accommodating major retail uses, higher density residential development and higher intensity employment uses. Options for accommodating a Health Precinct within or adjacent to this centre should also be explored in the land use options. Built-form Vision The Downtown / Major Central Area is planned to be the focal area of commercial and cultural activities for the community of Brooklin. The Downtown/ Major Central Area overlay applies to a number of underlying land use designations Low and Medium Density Residential, Mixed Use, Major Commercial, and Hazard Land. As well, the Baldwin / Winchester Intensification Area (OPA 90) is also part of the Downtown / Major Central Area. Furthermore, the Downtown / Major Central Area spans a fairly large area, as delineated on Schedule K of the parent OP (Figure 12). The various land use designations have differing intents and purposes, and because of the relatively large area of the Downtown / Major Central Area, it is necessary to set out a central theme or focused vision for the Downtown / Major Central Area that is specific to the Brooklin context, while also setting out differing built form visions for the differing components of the Downtown / Major Central Area. Section 4.13 of OPA 90 sets out design criteria and built form policies for Intensification Areas. Since the Baldwin / Winchester Intensification Area falls within the Downtown / Major Central Area, consideration should be given to incorporating the intensification 51

56 area design criteria and built form policies into the Downtown / Major Central Area policies, as well as additional detailed policies that implement the built form recommendations of the various background studies discussed in Section 2 of this report. Parking Section d) ii) of OPA 90 introduces restrictions on surface parking in the Baldwin/Winchester Intensification Area, which should be addressed as well in the Downtown / Major Central Area policies of the secondary plan. Within the Heritage Conservation District, municipal surface parking lots may be appropriate to serve the commercial development in the existing heritage buildings and in recognition of the low scale of future infill, which may make structured parking unrealistic. As well, on-street parking on Highway 12 plays a major role in the Downtown, but it is controlled by the Ministry of Transportation. The Secondary Plan will need to address these parking issues. Accommodating Specialized Housing Section k) ii) of draft OPA 1 directs higher density and specialized housing, such as senior citizen units, to cluster around neighbourhood centres. The Secondary Plan will need to provide more detail on how specialized housing and senior housing can be incorporated into the Downtown / Major Central Area, and future neighbourhood centres. 6.8 Public Square Section (OPA 85) requires the development of a public square in the southwest quadrant of the Major Central Area at Baldwin Street and Winchester Road. Proposed new Section of draft OPA 2 describes the intent of urban squares and provides that Secondary Plans may contain policies and designations for the establishment of urban squares A new park classification of an Urban Square could be introduced into the Secondary Plan, and the location of Urban Squares identified in the land use schedule. As well, further policy direction should be provided to ensure the development of the urban square at Baldwin and Winchester is in-line with the vision established in the Urban Design Concept and Guidelines of the Brooklin Business District Main Central Area Expansion by MBPD et.al. (2008). 6.9 Urban-Rural Interface The surrounding rural area was raised during the public workshops as as a defining character for Brooklin. In developing the new secondary plan, consideration should be given to ensuring compatibility and appropriate transition in character and built form between the new urban land uses and adjacent rural and Greenbelt lands. 52

57 6.10 Urban Agriculture Section of OPA 1 expresses the municipality s support for the establishment of community gardens and farmers markets in appropriate locations. The secondary plan could identify locations and further policy support to allow and encourage them Complete and Healthy Community Draft OPA #1 proposes a number of new policies to encourage and support complete and healthy communities in Whitby. In particular, some new guiding principles introduced by draft OPA #1 that should be considered in the new secondary plan include: The creation of compact, mixed use pattern of urban growth; Require a high order of urban design, incorporating accessibility considerations in all development and redevelopment proposals; Establish and maintain linked and integrated transportation systems that safely and efficiently accommodate various modes of transportation, including automobiles, public transit, cycling, and walking; and Maintain a diverse and interconnected system of public spaces that feature convenient, and comfortable access, encourage safe and healthy environments, and appropriately serves all components of the population. The public also identified the desire for enhanced walkablilty in Brooklin through both streetscape design to create a comfortable pedestrian experience as well as an extensive network of trails. These matters should be considered in both the design of new neighbourhoods as well in the Secondary Plan policies on streetscape design Mapping Changes A number of mapping form changes are proposed, as discussed below. Currently places of worship are not illustrated on Schedule K and community uses are permitted in the Residential designation. Schools are identified on Schedule K as a symbol. Consideration should be given to the appropriateness of identifying all community facilities separately from the Residential designation, either through an Institutional designation, or symbol on the land use schedule. New Section of draft OPA 1 requires Secondary Plans to illustrate the alignment and classification of arterial and collector roads, transit routes and facilities, and cycling and pedestrian facilities. Although OPA 1 is still in draft form, it would be appropriate to amend Schedule K to illustrate the alignment and classification of roads as well as cycling routes and pedestrian trails. It is noted that recently approved OPA 91 for the West Whitby Secondary Plan illustrates existing and future road alignments and classifications. The updated Brooklin Secondary Plan should follow a similar format. Currently, residential land use designations are illustrated on Schedule K with symbols. Consideration should be given to revising the land use map by delineating boundaries 53

58 for each residential designation. Doing so would be consistent with the land use schedules of the Port Whitby Secondary Plan (Schedule F), and the West Whitby Secondary Plan (Schedule V) Housekeeping Matters There are a number of other policies in the current Secondary Plan that require updating or deleting. These housekeeping matters are identified as follows: Section states that Council will monitor and review the need for a secondary school. A school is currently being built and the need for additional secondary school sites will be determined through the secondary plan study and identified in the Secondary Plan. As such, this policy should be deleted. Section permits limited residential intensification. However with the adoption of OPA 90 and the Growth Plan, this policy should be deleted. In its place, new detailed policies that ensure compatibility with scale and physical character of new development with established neighbourhoods should be introduced, as discussed above. Section sets out the potential future designation of a Heritage Conservation District. This was done by OPA 90, so this policy may be deleted. Section speaks of the realignment of Anderson Street as shown on Schedules K and D being schematic. As the road has been realigned, this policy may be deleted. 54

59 7 Policy Implications For The Future Urban Development Areas The Brooklin Study includes consideration of the expansion areas identified as Future Urban Development Areas (FUDA) #5 and #2 in the Whitby Official Plan as shown in Figure 13. Parts of FUDA 5 and FUDA 2 are deferred areas in ROPA 128, and the availability of these areas for development is subject to the approval of the Ontario Municipal Board, which is still pending (Figure 1). The next step of the study will develop and evaluate a series of land use options for the expansion areas. The proposed land uses for the deferred areas cannot be approved until it is demonstrated through the OMB process that these lands are needed. The land use options will be based on the findings of the background studies summarized in Section 2 of this report. The key matters to consider in these land use options, as identified through the background studies are summarized in the following two sub-sections. In addition to the FUDA #5 and #2 areas, land use options will also be developed for the Conlin/Anderson residential area. This area is designated as Living Area in the Regional Official Plan (Figure 14), but is currently designated Prestige Industrial and FUDA #2 in the Town s Official Plan (Figure 13). Draft OPA 2 proposes to designate this area as part of FUDA #5. This area will be treated similar to FUDA #5 in the next stage of the Secondary Plan study and considered for a range of residential and supporting land uses. 7.1 FUDA #5 and Conlin/Anderson Living Area The FUDA #5 area and the Conlin/Anderson residential area are designated as Living Areas in the Regional Official Plan (Figure 13). The Region s intent for these areas is to accommodate residential uses that are necessary to house the projected 2031 population, and the commercial services, parks and recreational uses, and institutional uses required to meet the needs of the future residents of these areas. The FUDA #5 and Conlin/Anderson Residential area represent a significant amount of land, in comparison to the size of the existing Brooklin Secondary Plan Area. Much of the forecasted population for Brooklin will be residing in these areas. It is estimated that approximately 52,290 people will be located in this area. As such, most of the additional community facilities and parks and recreational facilities identified as required in the background studies will need to be located in these areas. However, some of the facilities such as an expanded library and a new multi-use community centre should be located in or adjacent to Downtown Brooklin to enhance its vitality. 55

60 Figure 13: Future Urban Development Areas #5 and #2 Source: Town of Whitby Official Plan Amendment 90 Exhibit B. FUDA 5 FUDA 2 Conlin/Anderson Residential Area New Brooklin Secondary Plan Area Existing Brooklin Secondary Plan Area 56

61 Figure 14: FUDA #5 and #2, and Conlin/Anderson Residential Area Source: Durham Region Official Plan, Schedule A. 2 FUDA New Brooklin Secondary Plan Area Existing Brooklin Secondary Plan Area Conlin/Anderson Residential Area (Deferred Urban Expansion Area) 57