6 Growth Management Challenges and Opportunities

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1 6 Growth Management Challenges and Opportunities The Town has established a goal of attaining a 50% participation rate with respect to employment opportunities versus residential population. The Town s preferred land needs projections for new Planning Districts of 486 hectares for neighbourhood areas and associated employment and 260 hectares of land for employment uses are based on an expected population allocation from York Region of 88,000 people and a corresponding 44,000 jobs by Based on discussions with the Region, it is expected that 31,800 jobs will be allocated to East Gwillimbury. This number of jobs justifies 90 ha of employment lands in new Planning districts. The Region s May 2008 Strategic Employment Corridors report in support of Regional Official Plan Amendment #52 identified lands in East Gwillimbury in the Highway Link Corridor (Bradford Bypass), Highway 404 Corridor and Green Lane Corridor as being of strategic importance. An excerpt of this map is shown in Figure 6-1. In this Section Settlement Area Boundary Expansion Options Employment - Growth Management Challenges Employment - Growth Management Opportunities An expansion of the settlement area boundary to include the Highway 404 and Green Lane Corridors would create opportunities for employment along Highway 404 south of Queensville, and mixed-use/employment area along Green Lane that would include residential, commercial and employment opportunities. The Town is currently undertaking transportation and water/wastewater master plan updates. These plans identify road and servicing requirements to 2031 and eventually The preliminary results from this work conclude that the existing transportation system is nearing capacity. There is a need to provide new collector roads in the Town to support growth, in particular a new eastwest collector road north of Green Lane, and a new north-south collector road west of Leslie Street. It is anticipated that the Transportation Master Plan will justify their construction within the 2031 timeframe. By directing new growth to the Green Lane and Highway 404 areas, the extension and construction of key transportation and water / wastewater infrastructure services can be accomplished in a cost effective and efficient manner. The Growth Plan does not depict the Highway Link (Bradford Bypass) as an infrastructure investment in the 2031 planning horizon; it is assumed that this employment area will not be realized until beyond 2031 and that no settlement expansion will occur in this corridor during the 2031 planning horizon. However, this future employment area should be identified and protected for the long term employment needs of the municipality. MALONE GIVEN PARSONS LTD 77

2 Figure 6-1: York Region Identification of Strategic Employment Lands and Corridors 78 MALONE GIVEN PARSONS LTD

3 6.1 Settlement Area Boundary Expansion Options This report provides two options for considering a settlement area boundary expansion to Option 1 shows the lands shown on Map 6-1 that could be designated to meet the population and employment growth needs of the Town s preferred scenario to The settlement area boundary expansion would include the employment corridor along Highway 404. It would also designate lands within the Green Lane corridor directing and concentrating growth in a future transit corridor and facilitate the cost effective and efficient extension of infrastructure. Moreover, designation of land in this area will significantly contribute to the Town developing as a complete community in the 2031 time horizon. The settlement area boundary expansion shown in Option 1 is delineated to the land area requirement identified in the Town s preferred growth scenario. The expansion is based on the general growth management recommendations made in this report, and would represent good planning. In summary, the proposed expansion: Designates strategic employment lands to maximize the use of Highway 404, enhancing the economic competitiveness of the Town and the central part of York Region (comprised of East Gwillimbury, Newmarket, and Aurora); Is consistent with the Town s long-term urban structure plan by directing growth to nodes and corridors that will be well served by public transit and highway infrastructure; Facilitates the cost-effective and efficient extension of critical new road and servicing infrastructure. This includes the east-west collector road north of Green Lane, the north-south collector road west of Leslie Street, and the extension of water/waste water servicing infrastructure to the Highway 404 South employment lands; Provides opportunities to accommodate a full range of employment uses within the Town, allowing for the creation of jobs close to where people live. Job potential provides an appropriate mix of job through Employment Lands, Major Office, and Population-Related type employment uses; Concentrates growth within new Planning Districts along Green Lane and Highway 404 South. By limiting an expansion to these Planning Districts, growth can be comprehensively planned in accordance with the Planning District/Development Plan processes recommended in this report. This process plans for development in a comprehensive manner, contributing to the creation of complete communities and achievement of the Town s sustainability policies; MALONE GIVEN PARSONS LTD 79

4 Provides opportunities to identify and protect strategic high density residential locations in the Green Lane Corridor over the long-term planning horizon. If the Town is required to use the employment allocation used in the Region s preferred approach, only 90 hectares or less land would be designated in the Highway 404 South corridor in the 2031 timeframe. The settlement area expansion that could result from the Region s preferred scenario, using the same general rationale as in Option 1, is shown as Option 2 on Map Employment Growth Management Challenges Should the Region allocate 30,000-33,000 jobs to the Town by 2031, there would be less need for a settlement area boundary expansion for employment lands in the Highway 404 South Planning District than in the Town s preferred scenario. An expansion of 90 hectares or less would not be sufficient to designate and protect all of the employment lands planned south of Queensville in the Highway 404 corridor. The consequences of a reduced employment allocation would: result in a large part of the Highway 404 lands south of Queensville remaining as agricultural and rural land outside the urban boundary of the Town. This would mean that the economic benefits of this $250 million investment in provincial infrastructure could not be capitalized on during the 2031 planning horizon; expose the Highway 404 lands south of Queensville to fragmentation and encroachment from other uses which could threaten the long-term viability of the lands as an employment area; create an activity rate of approximately 34-36% (1 job for every 3 people) which is significantly lower than the Town s target of a 50% activity rate (1 job for every 2 people). This reduction in participation rate is contradictory to the Town s vision of a sustainable and complete community where people are able to live and work; impose a financial burden on the Town, where a greater proportion of tax assessment would need to come from residential properties. 80 MALONE GIVEN PARSONS LTD

5 Map 6-1: Settlement Area Boundary Expansion Option 1 MALONE GIVEN PARSONS LTD 81

6 Map 6-2: Settlement Area Boundary Expansion - Option 2 82 MALONE GIVEN PARSONS LTD

7 6.3 Employment Growth Management Opportunities The following options for addressing a lower employment allocation are being considered: Option 1 Regional Market Approach to Employment Lands The importance of the employment lands along the Highway 404 Corridor in East Gwillimbury should be considered when determining the appropriate range and mix of employment in the central York Region market area. Recent discussions between MGP, Town and Regional staff highlighted the potential for a regional market approach that could assess employment in a central regional market (Aurora, Newmarket, East Gwillimbury) as distinct from employment in the southern and northern regional market areas of the Region. As part of such an assessment, a key conclusion could be that a lower employment density than the Region s 36 jobs per gross hectare is appropriate for East Gwillimbury. This approach could allow the Region to provide employment allocation to the Town to designate and capitalize on the strategic employment lands in the Highway 404 and Green Lane Corridors, taking into account the dwindling supply of land in York Region for employment lands that are in close proximity to 400 series highways. This is especially true along Highway 404. Option 2 25 Year Planning Horizon for Employment The May 2008 Provincial discussion paper entitled Planning for Employment in the Greater Golden Horseshoe includes a proposed strategy that contemplates an alternative to the 20 year planning horizon for employment currently in the Growth Plan b) The Province should work with stakeholders to develop a new approach for determining future land needs for employment that places greater emphasis on the unique needs of different sectors of the economy and on the growth management imperative to locate jobs close to where people live and in transit-supportive locations. The new approach would address: The planning horizon and appropriate geographic scale at which to consider the needs of specific sectors. (OGS-MPIR, May 2008 pg. 35) A 2036 time horizon, or a 25-year planning horizon for employment could be explored as a means to designate sufficient employment lands in the Town. The 2051 forecasting work completed for the Town with the Region provided an employment forecast at 2036 of approximately 45,000 jobs. Utilizing the 2036 planning horizon for employment lands would exceed the 20 year limit established in the Growth Plan and PPS, but would open strategic employment MALONE GIVEN PARSONS LTD 83

8 lands recognizing the need to locate jobs close to where people live and would facilitate growth in locations that respond to industry needs for access to highways to facilitate goods and labour movement. Option 3 Long-Term Identification of Employment The Bradford Bypass/Highway 404/Green Lane employment lands could be identified and protected through the policies of the Official Plan as future employment areas, without designating the lands as part of the Official Plan review. The Provincial Planning for Employment discussion paper is supportive of this approach and discusses the potential for identifying and protecting strategic employment areas beyond a 20-year time horizon. The next five year review of the Town and Regional Official Plans will result in higher population and job totals as the horizon moves to An expansion of the Settlement Area Boundary could be made at that time and would be congruent with the timing of servicing availability expected through the construction of the Upper York Sanitary Sewer. 84 MALONE GIVEN PARSONS LTD

9 Town of East Gwillimbury 7.0 Growth Management Status Report RECOMMENDED POLICIES 7 Recommended Growth Management Principles and Policies This section concludes the report by providing growth management policies that are recommended for consideration and inclusion in the Town s updated Official Plan. 7.1 Recommended Growth Management Policies In reviewing of the Town s Strategic, Official and Community Plans, the Provincial Growth Plan and the PPS, the York Region Official Plan and the comments and directions received through the East Gwillimbury Official Plan Review Process, the following goals and policies related to growth management are recommended for consideration, and inclusion in the new Official Plan. In this Section Recommended Growth Management Policies Complete Communities Development should contribute to the Town becoming a complete community by the year Development within approved Community Plan Areas and Planning Districts should contribute to the Town becoming complete communities by the year 2031; The Town s principles for complete communities should require that Community Plan Areas and Planning Districts: o Are phased to avoid the separation of land uses and ensure the cost effective and efficient extension of infrastructure; o Have a high quality of urban design; o Provide compact built-form with an emphasis on energy efficiency; o Consider and where possible protect and enhance the Natural Heritage System; o Provide a range of transportation choices; o Provide a diverse mix of land uses to support activity at all times of day, including: Housing types that accommodate a range of unit types, tenure and costs, Employment with a variety of jobs and employment sectors near where people live, Community services and facilities in close proximity to where people live and work, Quality public open space and a variety of recreational and cultural opportunities integrated into the community, Easy access to local stores and services to meet daily needs. MALONE GIVEN PARSONS LTD 85

10 Town of East Gwillimbury 7.0 Growth Management Status Report RECOMMENDED POLICIES General Growth Management The Town shall plan towards an estimated 2051 build-out scenario of 150,000 people and 75,000 jobs; Land shall be designated to accommodate a full range of land uses to a 2031 time horizon based on a the finalized regional growth allocation (e.g. 88,000 people and 31,800 jobs); The Town shall review every five years the pace and attainment of population and employment targets, designating more land as necessary; New growth shall be planned to use land efficiently and provide an appropriate mix of residential, commercial, employment, institutional, and recreational uses; New growth outside of the Community Plan Areas should occur within Planning Districts, where Planning District Plans and implementing General/Detailed Development Plans will be approved by Council prior to draft plan of subdivision approvals; Planning Districts should be considered in the areas shown on Map 2-5 of this report. The Town should consider policies requiring that Detailed Development Plans be prepared to coordinate development in large Greenfield areas in existing Community Plan Areas. Nodes and corridors shall be a focus for compact, higher density development in the Town to support existing and future public transit service; The Town will plan to achieve a 50% activity rate, providing 1 job to every 2 residents; Development should occur under a Town wide urban design standard that supports compact built form and an attractive and lively streetscape and pedestrian realm; Land use designations in the Official Plan and Community Plans should be consolidated to provide consistent policies with regard to permitted land uses residential densities. Environmental Protection The Natural Heritage System shall be identified, protected and where possible enhanced; Opportunities to compensate for marginal environmental areas in the Central Growth Area and/or for achieving any Carbon/Nutrient trading goals of the Town should be considered on lands within the Town, including lands within the provincial Greenbelt. 86 MALONE GIVEN PARSONS LTD

11 Town of East Gwillimbury 7.0 Growth Management Status Report RECOMMENDED POLICIES General Commercial A study of the retail commercial needs for the town should be undertaken, recommending policies that: o provide a hierarchy of retail commercial types, o assess land requirements in the 2031 planning horizon for each type of retail commercial use; o identify locational characteristics for each type of retail commercial use; o address the inclusion of retail commercial land use permissions in employment areas. General Employment Strategic locations for employment shall be identified and protected over a long-term, 50 year planning horizon; Plan for employment growth to provide opportunities for a full range of employment uses, including employment lands, population-related, and office employment; A post-secondary education facility shall be pursued to achieving a knowledge/innovation based employment cluster on employment lands in that area. General Residential Planning for residential growth should provide opportunities for an appropriate variety and mix of residential unit types, including low, medium and high density unit types; Planning for residential growth should provide opportunities for a variety and mix of tenure types including freehold, condominium and rental units; Residential growth should occur in a fiscally responsible manner and will be subject to phasing policies that ensure: o that sufficient water, wastewater, transportation and human services are available, o that adequate community and institutional uses, services are available o provision or advancement of adequate employment opportunities to balance proposed growth. Residential development through intensification within the Provincial Built Boundary, will at a minimum, provide for 1,030 units between the year 2015 and 2031; Opportunities for residential intensification within the Built Boundary will occur in a manner that is sensitive to established communities and that contributes to compact built form and a mix of uses. Residential areas should be planned utilizing a net residential density; MALONE GIVEN PARSONS LTD 87

12 Town of East Gwillimbury 7.0 Growth Management Status Report RECOMMENDED POLICIES Measurement of net residential density should include only land utilized for residential dwellings including lot areas, but excluding all public road and widenings, public parks, open space blocks, school sites, local commercial areas, places of worship and other public lands; The permitted range of net residential densities should generally conform to the densities utilized in this report. General Phasing Wastewater servicing allocation in the 2031 planning horizon will generally be made available in two stages: pre and post construction of the Upper York Sanitary Sewer (UYSS); Prior to the completion of the UYSS, 5,465 units of residential servicing allocation (approximately 15,000 people) and associated employment allocation will be available as early as the year 2010, contingent on the extension of the York Durham Sanitary Sewer (YDSS) to the Town and the resolution of downstream capacity constraints; Of the 5,465 units, the Town may proportionately allocate 4,715 units to parties to a funding agreement to extend the YDSS to the Town. Allocation of the 4,715 units will be used to accommodate development of approved and proposed subdivision plans in the communities of Holland Landing-River Drive Park, Queensville and Sharon. The Town may withhold an allocation of 750 residential units in a Town reserve that may be allocated to facilitate the achievement of complete communities and promote sustainable development in the Central Growth Area. Residential servicing allocation beyond the initial 5,465 units will become available contingent on the completion of the Upper York Sanitary Sewer (UYSS); Sanitary sewer servicing allocation resulting from the completion of the UYSS is required to achieve the 2031 and 2051 growth forecasts for the Central Growth Area; Upon completion of the UYSS, the Town may grant servicing allocation within the 2031 time horizon in the Central Growth Area to facilitate: o the build-out of the Holland Landing-River Drive Park, Queensville, and Sharon Community Plan Areas, o the realization of strategic employment lands south of Queensville in the Highway 404 corridor, o the realization of the development of the Green Lane corridor and the construction of key servicing and transportation infrastructure, including the proposed east-west collector road north of Green Lane and the proposed north-south collector road west of Leslie Street. 88 MALONE GIVEN PARSONS LTD

13 Town of East Gwillimbury 7.0 Growth Management Status Report RECOMMENDED POLICIES Planning District Phasing Development within Planning Districts should in accordance with a Council approved Detailed Development Plan, and be phased to ensure: o That the majority of each development is completed prior to the approval of the development of adjacent or nearby lands and that each development contributes to the creation of complete residential neighbourhoods through each phase of the development, o the provision of primary servicing infrastructure (collector and local roads, transit stops, stormwater management facilities, water and wastewater trunk lines) and community infrastructure (parks, schools, local commercial) in the first phase of development when development is proposed to occur over different phases, o a prioritization of development that will promote public transit connectivity and encourage transportation alternatives such as walking and cycling as an alternative to reliance on single occupant motor vehicles, o the achievement of the Town s sustainability policies. Settlement Area Boundary Expansions Settlement Area Boundary expansions shall only be extended to include new Planning Districts beyond the Community Plan Areas, under the following circumstances: o The policies contained in Section of the Growth Plan and Section 5.2 of the York Region Official Plan have been addressed to the satisfaction of the Town and York Region; o The expansion can connect to existing municipal water and wastewater services, or will result in the logical and costeffective extension of services; o Sufficient transportation and transit capacity exists or is planned to service the proposed expansion; o The expansion will, if possible, make effective use of lands abutting existing or planned transit and provincial highway infrastructure; o The expansion will substantially contribute to the Town s goal of providing 1 job for every 2 people; o The Town is satisfied that the expansion will result in sustainable development, achieving sustainability and the complete community principles; o The Town and Region s growth forecast and land needs analyses support the expansion. MALONE GIVEN PARSONS LTD 89

14 Town of East Gwillimbury 8.0 Growth Management Status Report NEXT STEPS 8 Next Steps This report has been prepared in order to foster discussion on the growth management work that has been conducted as part of the Town s Official Plan review process. This report summarizes input provided from York Region staff, public, stakeholders and commenting agencies accumulated over the last two years. To finalize this report and the growth management strategy for East Gwillimbury the following actions are required: Public and commenting agency consultation and comment through Fall 2008; Further dialogue with York Region to finalize the 2031 growth analysis and settlement area boundary expansions; Consultation with the Province; Finalization of the Town s approach to environmental takeouts; Completion of the Environmental Assessment process for major new roads in the Town; Completion of an analysis on the financial impact of growth on the Town; Review and evaluate previous development approvals in the context of the proposed planned urban structure. Completion of these actions will occur during Fall 2008 and is necessary to finalize the growth management strategy and provide input into the Official Plan review process by early Winter The final growth management report will be brought before Council for final approval prior to the adoption of the new Official Plan. 90 MALONE GIVEN PARSONS LTD

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