Town of Milton 2015 Pan/Parapan American Games Velodrome Planning Justification Report Macaulay Shiomi Howson Ltd In Association With: AMEC Environment & Infrastructure Paradigm Transportation Solutions Ltd April 2012
Table of Contents Executive Summary... i 1. INTRODUCTION...1 2. SUBJECT SITE AND SURROUNDING AREA...2 2.1 Subject Site... 2 2.2. Existing Land Use... 3 2.3 Existing and Planned Transportation Network... 4 2.4 Site Analysis Conclusions... 9 3. VELODROME PROPOSAL...10 3.1 Context... 10 3.2 Project Description... 14 3.3 Transportation... 14 3.4 Servicing... 16 3.5 Geothermal... 20 3.6 Project Development Conclusions... 20 4. ECONOMIC IMPACT/BENEFIT OF VELODROME...22 4.1 Introduction... 22 4.2 Velodrome Overview... 22 4.3 Construction Impacts... 22 4.4 Direct and Indirect Employment Growth... 23 4.5 Local Tourism Impacts... 23 4.6 Fiscal Impacts... 24 4.7 Conclusions... 24 5. POLICY AND REGULATORY CONTEXT...26 5.1 Provincial Policy Framework... 26 5.2 Region of Halton Official Plan... 32 5.3 Town of Milton Official Plan... 37 5.4 Town of Milton Zoning By-law... 42 6. PLANNING ANALYSIS...44 6.1 Subject Site and Project Suitability... 44 6.2 Contribution to the Community... 45 6.3 Policy and Regulatory Framework... 45 6.4 Conclusions... 47 Appendix A - Photos of Subject Site and Surrounding Area Appendix B - Velodrome - Proposed Regional Official Plan Amendment Appendix C - Velodrome - Proposed Town of Milton Official Plan Amendment Appendix D Velodrome Proposed Town of Milton Zoning By-law Amendment April 16, 2012
Executive Summary The Town of Milton is the host community for the 2015 Pan/Parapan American Games Velodrome and related training and competitive events leading up to and following the Games. The 2.69 hectare (6.6 acre) +/-Velodrome site, together with a 1.25 hectare (3.1 acre) +/-event parking area, 0.3 hectare (0.7 acre) +/- stormwater management facility and related areas for ditch grading and the access road (subject site), is located west of Tremaine Road within the proposed Milton Education Village. It is currently part of a larger property identified municipally as 6400 Tremaine Road. Access will be via a public road owned by the Town from the intersection of Tremaine Road and Louis St. Laurent Avenue (See Map 1 and Figure 1). The venue must be construction ready by the first quarter of 2013. The subject site is located to the west of the Milton Urban Area and east of lands in the Provincial Greenbelt Plan. Amendments to the Region of Halton Official Plan, Town of Milton Official Plan and Town of Milton Zoning By-law are required to permit the use and allow the extension of waste water and water services. This report provides a planning assessment of the Velodrome project in the context of Provincial, Regional and Town planning policies. Analysis with respect to technical considerations was based on input from, and/or related reports prepared by: Servicing AMEC Environment & Infrastructure (AMEC) Transportation Paradigm Transportation Solutions Ltd. (Paradigm) Archaeology Archaeological Services Inc. Cultural Heritage Town Staff/Heritage Milton Characterization AMEC in association with And Baseline Blackport and Associates, C. Portt and Associates, Inventory Dougan and Associates and Parish Geomorphic The report is organized as follows: Site and Surrounding Area Velodrome Proposal Economic Impact/Benefit of Velodrome Policy and Regulatory Context Planning Analysis The Proposed Development The proposed 2015 Pan/ParapanVelodrome is a significant and unique Recreation and Athletic Facility use which requires a minimum 2-2.4 hectare (5-6 acre) site within 60 kilometres of the Pan Am Athletes Village in Toronto. The subject site meets these requirements. i
The analysis has not identified any significant constraints to the development of the site. It is currently vacant with no natural features. In addition, there are no existing uses in the immediate vicinity which would be impacted by the development. The proposed Velodrome is approximately 11, 425 square metres (123,000 square feet) in size. It will include not only a cycling track but also a range of other facilities including non-cycling-related recreational facilities serving the local community. These include a 50% increase in the amount of gymnasium space compared to the previously planned space at the Sherwood Community Centre facilities which will now form part of the Velodrome. Confirmation of financial viability was provided through the preparation of a Business Plan by Sierra Planning & Management and was a key part of the Town of Milton s decision to proceed with the Velodrome. The transportation system provides excellent accessibility to the site based on a well developed existing and planned major highway and road system, as well as an existing and planned transit and active transportation system. Site access will be provided by way of the proposed future Louis Saint Laurent Avenue extension westerly from Tremaine Road. The future intersection of Tremaine Road and Louis Saint Laurent has been identified as the primary gateway into the Milton Education Village. Tremaine Road will serve as a key corridor providing inter-regional access to the facility from Highway 401 and regional access from Regional Road 5. The site can provide significant amounts of parking, and special municipal transit service from the GO Station will be available. In addition, the Town has an extensive system of bicycle and pedestrian facilities which will be extended to the subject site. Urban water and wastewater services can be easily extended to the subject site along the proposed access road and sufficient capacity is available for the use. An approach to stormwater management servicing has been developed in consultation with Conservation Halton and Town of Milton staff which maintains surface drainage systems as open. This maintains full flexibility as part of the future servicing approach and reduces the potential for throw-away infrastructure. Finally, the potential for a geothermal field to service the facility is being investigated. As a world-class facility, the Velodrome would enhance Milton s and Halton s arts, entertainment and recreation sector cluster. The Velodrome would also complement existing attractions within the community such as the Niagara Escarpment, providing many social, lifestyle, environmental, cultural and economic benefits to the community. ii
The proposed Velodrome is expected to have a positive economic impact on the Town of Milton and Region of Halton. During the construction phase, the project will generate construction employment and have a positive impact on the GDP. Once operational, the facility will generate direct and indirect employment growth and draw visitors to the community. The associated tourism spending will generate GDP growth and employment within the Town and surrounding area. The capital requirements and annual operating costs of the Velodrome are expected to be fiscally sustainable for the Town. Policy and Regulatory Framework The PPS and the Growth Plan are the applicable provincial planning policies. The policies of the PPS and the Growth Plan put a priority on efficient development and land use patterns, including efficient use of existing infrastructure and public service facilities. To achieve this objective, the majority of new development is directed to the existing built up area. However, development in other areas is permitted provided it is justified, and that it is carried out in a manner which is efficient and which does not cause environmental or public health and safety concerns. There is also recognition of the need to promote economic development and competitiveness by providing for an appropriate mix and range of employment, as well as opportunities for a diversified economic base. Further, the PPS recognizes the need to plan major facilities so they are appropriately designed and buffered from sensitive uses and to provide for sustainable tourism development. The proposed Velodrome will promote economic development and competitiveness in Halton and is in an area proposed for urban development in conformity with the Growth Plan. As such it is consistent with the PPS and conforms to the Growth Plan. The Velodrome represents a unique opportunity for the Town of Milton and Region of Halton to enhance their economic competitiveness, promote tourism development and enhance the diversity of the economic base. The location will require the extension of infrastructure beyond the existing Milton urban boundary. However, the proposed development site is in an area (the Milton Education Village) identified for future urban development by both the Region in ROPA 38 and the Town in OPA 31 as part of their Growth Plan conformity exercises. Sufficient background work has been undertaken as part of the Sustainable Halton process to justify the inclusion of the Milton Education Village lands in the Milton Urban Area, and to determine the most efficient approach to the provision of services. In addition, this area is being proposed for the creation of a transit hub, and the Region is already in the process of planning for improvements to the Tremaine Road corridor which will create a corridor to serve all modes of transportation. Both the Region s and the Town s current Official Plan include the subject site and surrounding area in the Rural System. The policies encourage its protection for agriculture and the Regional policies prohibit the extension of urban services. At the iii
same time both Plans recognize that there are circumstances where exceptions may be made. This includes specific uses on private services (e.g. in the Regional Plan an office, manufacturing and warehousing use in North Oakville which was permitted recognizing that the area would be included in the urban area in the future and eventually connected to urban services and in the Town s Plan the potential for land extensive tourist facilities may be considered subject to an amendment to the Regional and Local Official Plans and the Zoning By-law based on specific criteria). There is also special recognition through ROPA 40 of the potential for certain public uses to be located outside the Urban Area on urban services. The Velodrome will be located on lands owned by the Town of Milton and the building ownership will be transferred to the Town of Milton after the completion of the Pan/Parapan American Games. As a result, although this unique facility is not identified in the definition of municipal facility in the ROPA 40, it is certainly a major public facility similar to those identified. Further, it is in an area identified by ROPA 38 as a potential urban area, with an employment designation. While the current Regional and Town Official Plans recognize the potential for certain urban uses to be located outside the urban areas, both Plans have also been subject to recent reviews. As a result of those reviews, the Milton Education Village lands including the subject site are proposed to be included in the Milton Urban Area for development between 2021 and 2031. An Employment Area overlay designation has also been applied to the subject site. ROPA 38 was developed through a major review of the Plan carried out by the Region in conformity with the requirements of the Growth Plan. This review assessed the need and justification for the development of the lands prior to 2031 recognizing their current use for agriculture and their relationship both to the existing Milton Urban Area and the adjacent Greenbelt Area and remaining agricultural area. The assessment was based on both a technical evaluation and an extensive consultation program. OPA 31 was also based on an extensive review and implements ROPA 38. Therefore, while both amendments are not yet approved, they represent the Region s and Town s policy approaches with respect to future development, and should be a significant consideration in the evaluation of the appropriateness of the proposed Velodrome site. As such, the development is appropriate in the context of the current Regional and Local Official Plan; and would generally conform with the Plans as amended by ROPA 38 and OPA 31 respectively It should also be noted, that OPA 31 introduces a new section, 1.6, which permits public infrastructure, facilities and services in any land use designation other than the Natural Heritage System. The policies also permit such development to proceed at any time, even if the precise requirements of any applicable phasing plan have not been satisfied. The policies do require such facilities to be designed and developed in a manner compatible with the surrounding neighbourhood. iv
In terms of the current zoning, the Velodrome is not a permitted use in the A1 Zone. A site specific zone will be required to be developed. Consideration should be given to an OPEN SPACE*Special (OS*Special) Zone as the OS zone permits a Recreation and Athletic Facility. This term is defined in the By-law and would include a Velodrome use. Site specific regulations will be required. Conclusions Based on the foregoing analysis, the proposed Velodrome development is appropriate and desirable and represents good planning. This conclusion reflects the following: The proposed site is suitable for the development with no significant constraints; There is no development in the immediate vicinity which will be impacted by the use; The transportation system provides excellent accessibility; Urban services can be easily extended to the subject site and an approach has been developed to stormwater management servicing in consultation with Conservation Halton and Town staff; As a world class facility, the Velodrome will enhance Milton s and Halton s arts, entertainment and recreation sector cluster and complement existing community attractions; The Velodrome is expected to have a positive economic impact on the Town through the construction phase, the generation of direct and indirect employment and tourism spending; The capital costs and operating costs are expected to be fiscally sustainable for the Town; The development is consistent with the PPS and conforms with the Growth Plan; and, The development is appropriate in the context of the current Regional and Local Official Plan; and would generally conform to the Plans as amended by ROPA 38 and OPA 31 respectively. It is recommended that amendments to the Region of Halton and Town of Milton Official Plans to permit the proposed Velodrome, together with an amendment to the Town s Zoning By-law. Proposed amendments are found in Appendices B, C and D respectively. v
1. INTRODUCTION The Town of Milton is the host community for the 2015 Pan/Parapan American Games Velodrome and related training and competitive events leading up to and following the Games. The 2.69 hectare (6.6 acre) +/-Velodrome site, together with a 1.25 hectare (3.1 acre) +/-event parking area, 0.3 hectare (0.7 acre) +/- stormwater management facility and related areas for ditch grading and the access road (subject site), is located west of Tremaine Road within the proposed Milton Education Village. It is currently part of a larger property identified municipally as 6400 Tremaine Road. Access will be via a public road owned by the Town from the intersection of Tremaine Road and Louis St. Laurent Avenue (See Map 1 and Figure 1). The venue must be construction ready by the first quarter of 2013. The subject site is located to the west of the Milton Urban Area and east of lands in the Provincial Greenbelt Plan. Amendments to the Region of Halton Official Plan, Town of Milton Official Plan and Town of Milton Zoning By-law are required to permit the use and allow the extension of waste water and water services. This report provides a planning assessment of the Velodrome project in the context of Provincial, Regional and Town planning policies. Analysis with respect to technical considerations was based on input from, and/or related reports prepared by: Servicing AMEC Environment & Infrastructure (AMEC) Transportation Paradigm Transportation Solutions Ltd. (Paradigm) Archaeology Archaeological Services Inc. Cultural Heritage Town Staff/Heritage Milton Characterization AMEC in association with And Baseline Blackport and Associates, C. Portt and Associates, Inventory Dougan and Associates and Parish Geomorphic The report is organized as follows: Site and Surrounding Area Velodrome Proposal Economic Impact/Benefit of Velodrome Policy and Regulatory Context Planning Analysis Draft Regional Official Plan and Local Official Plan Amendments, as well as a draft zoning by-law amendment, are found in Appendices B, C and D respectively. 1
2. SUBJECT SITE AND SURROUNDING AREA This section provides a detailed discussion of the site and surrounding area, including the existing and planned transportation system. Photographs of the subject site and surrounding area are found in Appendix A to this report. 2.1 Subject Site 2.1.1 Location The subject site is located in Part of Lots 8 and 9, Concession 7, Former Township of Nelson, in the Town of Milton. It is currently part of a larger property identified municipally as 6400 Tremaine Road. The subject site is located outside the Milton Urban Area generally south of Derry Road, west of Tremaine Road, north of Britannia Road and east of Bell School Line (See Map 1). 2.1.2 Configuration 1 The Velodrome portion of the subject site is rectangular in shape measuring approximately 173.25 X 156.23 metres. A rectangular event parking area of approximately 80.6 X 156.23 metres is proposed to be located to the east of the Velodrome site, while a stormwater management (SWM) facility is located to the west. The SWM facility measures approximately 30 X 100 metres (See Figure 1). The access road is described below. Ditch grading on lands which form part of the subject site is proposed to the north and south of the subject site, as well as to the east of the access road. 2.1.3 Access In order to access the site, there will need to be a road constructed from Tremaine Road. The access road is currently proposed to be an extension of Louis St. Laurent Avenue from the east, and then a north-south road connecting with the subject site (See Figure 1). The subject site will front on the north-south road. 2.1.4 Characteristics The subject site is currently used for agriculture. It contains no buildings or structures. The subject site is excessively flat having an overall cross fall of less than 0.5%. There are no natural heritage features or any trees of significance on the subject site or access road (See Maps 2 and 3) 2. In addition it is not anticipated that there are any 1 Based on information provided by AMEC as illustrated in Figure 1. 2 AMEC Environmental & Infrastructure et. al., Milton Educational Village Scoped Characterization and Baseline Inventory, Town of Milton, Draft February 2012. 2
endangered species on the site as the characterization study carried out for the Milton Education Village lands indicates that there were no observations for meadow lark and that chorus frogs are found primarily in the Greenbelt Plan lands to the west. Barn swallows were observed in the study area, but there are no wetlands or structures on the subject site which are the habitats where they would be typically found so their presence is unlikely. 2.1.5 Cultural Heritage There are no buildings or structures on the subject site. A heritage assessment 3 carried out for the Town dated March 5, 2009 indicates that the property at 6400 Tremaine Road is rated Grade C properties that do not comply with any of the criteria outlined in O.Reg. 9/06 and are therefore not worthy of designation under S.29 of the Ontario Heritage Act. The Assessment notes House demolished and little of heritage interest remains. 2.1.6 Archaeological Potential A Stage 1 Archaeological Assessment 4 was prepared for the Boyne Survey Secondary Plan and the Milton Education Village including the subject site. The assessment concluded that significant portions of the study area consist of lands that appear minimally affected by twentieth century activities. A Stage 2 archaeological assessment must be carried out in the portions of the study area not previously subject to Stage 2 which have archaeological potential, as indicated on Figure 4. Previously cultivated land, such as agricultural fields, must be assessed by pedestrian survey: the land should be ploughed and weathered by at least one substantial rainfall before an archaeological field survey can be conducted. The subject site is identified on Figure 4 of the Assessment as an area requiring a pedestrian survey. 2.1.5 Surrounding Area 2.2. Existing Land Use Map 4 illustrates the surrounding existing land use. The immediate surrounding lands are uses for agriculture or are vacant, with the exception of two rural residential lots to the southwest fronting on Bell School Road. North of Derry Road to the northwest there are additional rural residential lots. To the east of Tremaine Road, in the Milton 3 Town of Milton in conjunction with Heritage Milton, Boyne Survey/Milton Education Village Secondary Plan Heritage Assessment, March 2009. 4 Archaeological Services Inc., Stage 1 Archaeological Assessment of Boyne Survey Secondary Plan, January 2009 3
Urban Area, development of the Sherwood Survey is well advanced. This development consists primarily of residential development and related community facilities including park and open space and SWM ponds. 2.2.1 Surrounding Planned Development The subject site forms part of the proposed Milton Education Village. This area is bounded by Tremaine Road to the east, Britannia Road to the south, and the TransCanada Pipeline to the north. The Provincial Greenbelt Plan boundary generally forms the western boundary of the Milton Education Village. Since 2007, the Town of Milton has initiated dialogue with various stakeholders to assess the opportunities for the development of a local university campus in this area, along with related and complementary uses. The lands have been proposed to be included in the Milton Urban Area as part of Region of Halton Official Plan Amendment No. 38 which is currently under appeal to the Ontario Municipal Board. The Town has included these lands in the Sustainable Halton Urban Area (SHP Urban Area) as part of Official Plan Review through Official Plan Amendment No. 31. This amendment has not yet been approved. The Town has also initiated preparation of a Secondary Plan for the Milton Education Village which is anticipated to be completed in 2013. To the east of Tremaine Road, north of Louis St. Laurent Avenue, as noted, development of the Sherwood Survey Secondary Plan is well advanced. The Boyne Survey is located south of Louis St. Laurent. This area is also part of the Milton Urban Area. A Secondary Plan has been prepared for Boyne Survey to permit the development of a residential community with supporting facilities. The Secondary Plan is currently waiting approval by the Region of Halton. 2.2.2 Livestock Operations Three active livestock operations have been identified in the general vicinity of the subject site (See Map 5). However, they are all more than 1,000 metres away with the closest and least significant being approximately 1,280 metres away from the subject site. As a result any impact is anticipated to be unlikely, particularly given that the activity on the velodrome site will be primarily inside a building, and recognizing that the subject site is within an area which is planned for future urban development. 2.3 Existing and Planned Transportation Network 5 2.3.1 Existing Transportation Network 5 Paradigm Transportation Solutions Limited, Draft Milton Education Village Secondary Plan Transportation Background Study, March 30, 2012 4
The proposed Velodrome facility is located within the Milton Education Village lands and is indirectly served by two major east-west provincial highways, Highway 401 and 407 ETR. Within the Town of Milton, Highway 401 has interchanges at Main Street and James Snow Parkway, with a planned future interchange at the realigned Tremaine Road, as recommended in the Class Environmental Assessment (Class EA) Study for the Tremaine Road and James Snow Parkway Transportation Corridor Improvements (2007). Highway 407 ETR is a toll highway that currently runs between Hamilton in the west and Pickering in the east. Within the Town of Milton it has interchanges at Highway 401, Derry Road and Britannia Road. The 407 ETR also provides indirect access to the Town of Milton via interchanges at Appleby Line and Bronte Road (RR 25). An inventory of all major roads within the vicinity of the subject site was completed through field investigations and supplemented by a review of relevant information provided by the Town of Milton and Halton Region. Table 1 summarizes the general characteristics of the arterial and major collector road network. 5
Table 1: Existing Roadway Characteristics ROADW AY CLASSIFICATION JURISDICTION # OF LANES POSTED SPEED (km/ h) CROSS SECTION Derry Road Appleby Line to Tremaine Road 2 80 Rural Tremaine Road to Bronte Street Arterial Halton Region 4 60 Urban Bronte Street to Regional Road 25 4 60 Urban Louis Saint Laurent Avenue Regional Road 25 to Thompson Road 2 50 Rural Minor Arterial Town of Milton Thompson Road to James Snow Parkway 2 50 Rural Britannia Road Appleby Line to Tremaine Road 2 80 Rural Tremaine Road to 1 st Line Arterial Halton Region 2 80 Rural 1 st Line to Regional Road 25 2 80 Rural Tremaine Road Highway 401 to Steeles Avenue 2 80 Rural Steeles Avenue to Main Street 2 80 Rural Arterial Halton Region Main Street to Derry Road 5 70 Semi-Urban Derry Road to Britannia Road 2 80 Rural Regional Road 2 5 Steeles Avenue to Main Street 5 50 Urban Main Street to Derry Road 5 50 Urban Arterial Halton Region Derry Road to Louis St. Laurent Avenue 2 70 Rural Louis St. Laurent Avenue to Britannia Road 2 80 Rural 2.3.2 Existing Transit Service Public transit service within the Town of Milton is provided by both Milton Transit and GO Transit. Conventional transit service is provided by Milton Transit and includes six bus routes, operating weekdays with all routes connecting to the Milton GO Station. Within the Velodrome study area, the recently developed residential lands east of Tremaine Road (Sherwood Survey Secondary Plan) are currently serviced by Route #6 Scott. Route #6 provides all-day service (6:00 a.m. to 8:00 p.m.) and provides direct linkages with the downtown core / Milton GO Station by way of Main Street, Scott Boulevard and Dymott Avenue. Inter-regional transit is provided by GO Transit which provides both rail and bus service between Milton and Toronto via the Milton GO Station located on Main Street. Train service is provided every 20 minutes during the peak AM and PM periods with hourly Bus service at all other times of the day, including weekends and holidays. The determination of transport needs during the Pan Am Games is a separate initiative that is being led by the Ministry of Transportation Ontario (MTO). The potential to offer expanded rail service on the Milton Rail corridor and/or construction of a temporary GO 6
Station within the vicinity of the Velodrome (proposed Kelso/Tremaine Road GO Station) is currently being examined by the MTO and details pertaining to inter-regional transit during the games have not yet been finalized. If a temporary station is deemed required, Metrolinx/GO Transit will be responsible for the design and construction of the station. 2.3.3 Active Transportation Although no trail or cycling facilities currently exist within the subject site or the Milton Education Village lands, the newly constructed Tremaine Road improvements (from Main Street to Derry Road) include provision of dedicated on-road bike lanes and a 3.0 metre paved multi-use path on the east side of the roadway which connects with existing facilities along Derry Road. Development of the Velodrome facility and Milton Education Village lands provides an opportunity for connections between the subject site and major parks, conservation areas and nodes within the Town, and external to the Town. Provision of future on and off-road cycling and pedestrian facilities have been considered throughout the Class Environmental Assessment (EA) Study process for improvements to Tremaine Road and Britannia Road, and an extensive trail system has been proposed to be developed as part of the Boyne Survey Secondary Plan. 2.3.4 Planned Transportation Network Several Class Environmental Assessment (EA) Studies have been completed that address the proposed future capacity of the road network within the vicinity of the subject site. These studies have identified and addressed the Region s transportation needs to the year 2031 and make reference to future road improvements including reconstruction, widening, extensions, realignments, transit improvements, and cycle and trail facility growth in order to improve future capacity, manage demand and increase travel choices. Tremaine Road A number of Class EA studies have been completed for various sections of Tremaine Road which have resulted in the identification of a range of recommendations, some of which are in varying stages of construction: Realignment and widening of Tremaine Road from Steeles Avenue to Highway 401; Construction of a new interchange with Highway 401; Construction of a grade-separated crossing of the CP Rail tracks north of Steeles Avenue; and Widening of Tremaine Road from 2 lanes to 4 lanes north of Main Street. 7
The recent completion of the Halton Transportation Master Plan has further identified the need for additional traffic capacity through the Tremaine Road corridor which resulted in the subsequent initiation of a Class EA study to investigate corridor improvements between Derry Road and Britannia Road. As per the Draft Environmental Study Report (November 2011), the following corridor improvements have been recommended: Widening of Tremaine Road from a 2-lane rural road to a 6-lane urban road (Derry Road to Britannia Road) with a 5.0 metre raised median; Provision of a 1.8 metre delineated cycling lane on both sides of the roadway; Provision of a 3 metre multi-use pathway/sidewalk on both sides of Tremaine Road between Derry Road and Britannia Road; and Provision of a roundabout or signalized intersection at the future Louis Saint Laurent Avenue and Britannia Road intersections. Property requirements for a roundabout have been identified through the EA and ultimate traffic control will be confirmed in the detailed design phase, based on input received as part of the Milton Education Village Secondary Plan. Although the study is currently in the Draft ESR stage, it is anticipated that detailed design will commence in 2012 leading directly to construction in late 2013 (to be completed in 2015). Given the extent of transportation-related improvements occurring throughout the corridor, it is recognized that Tremaine Road will have the potential to provide key, inter-regional access to the proposed Velodrome by way of Highway 401. Britannia Road The recent completion of the Halton Transportation Master Plan, in combination with the transportation recommendations made as part of the Boyne Survey Secondary Plan, have identified the need for additional capacity throughout the Britannia Road corridor. As such, a Class EA study has been initiated which has examined existing and future traffic conditions throughout the corridor, confirming that additional capacity is required in order to accommodate 2031 traffic demands. Although the process is on-going, recommended improvements include: Widening of Britannia Road from a 2-lane rural road to a 6-lane urban road from Tremaine Road to Highway 407; Provision of a 1.8 metre delineated cycling lane on both sides of the roadway; 8
Provision of a 3 metre multi-use pathway/sidewalk on both sides of the roadway; and Provision of a roundabout at the intersection of Britannia Road and Tremaine Road which will improve traffic operations and delineate a western gateway into the Town of Milton. In order to coordinate with the construction of Tremaine Road improvements, detailed design of Britannia Road corridor improvements is anticipated to commence in 2012 with construction immediately following design activities (to be completed in 2015). 2.4 Site Analysis Conclusions The proposed Velodrome is a significant and unique Recreation and Athletic Facility use which requires a minimum 2-2.4 hectare (5-6 acre) site within 60 kilometres of the Pan Am Athletes Village in Toronto. The subject site meets these requirements. The analysis has not identified any significant limitations to the development of the site. It is currently vacant with no natural features. In addition, there are no existing uses in the immediate vicinity which would be impacted by the development. The existing transportation system provides excellent accessibility to the site based on a well developed existing and planned major highway and road system, as well as an existing and planned transit and active transportation system. 9
3. VELODROME PROPOSAL Section 3 describes the context for the development. In addition, it provides a detailed description of the proposed development including the provision of servicing, access and parking. The proposed transit and active transportation requirements are also reviewed. 3.1 Context The Toronto 2015 Pan/Parapan American Games Organizing Committee (TO2015) is a not-for-profit organization that has been granted the mandate to deliver the Toronto 2015 Pan American Games. All three levels of government federal, provincial and municipal have committed to the Games $1.4 billion budget. In addition, the Province of Ontario has committed to being the Games deficit guarantor. 6 The City of Hamilton was to be the original host community for the velodrome sports facility which is one the Games major sports venues. However due to the City s decision not to proceed, the Town of Milton was approached in September 2011 to consider the opportunity to become the host community for the Velodrome. The following represents a chronology of events and actions undertaken by the Town since September 2011: October 12,2011 Toronto 2015 invites the Town to submit an Expression of Interest; October 17, 2011 Town Council resolution that the Town explore options with respect to a permanent or temporary facility; November 21, 2011 Report to Town Council outlines indications of support including letters from Wilfrid Laurier University, Canadian Cycling Association and land donation, but needing further direction from Toronto 2015 to reduce capital cost (and hence local host share); December 5, 2011 - Town Council authorizes commitment to funding local share based on $40.0M project, engagement of Sierra Planning & Management (Sierra) to undertake a Business Plan, report back to Council with results of Business Plan and due diligence process; December 6-23, 2011 Ongoing meetings with Toronto 2015, Infrastructure Ontario and Sierra; January 12-15, 2012 - Tour of three velodromes; January 2-17, 2012 Ongoing meetings, research, assessment, analysis and due diligence related to the Business Plan, legal agreements, planning and zoning requirements; and, 6 Toronto 2015 Website. 10
January 30, 2012 Town Council confirmed the Town s support to proceed with becoming the host community for the velodrome and authorized the signing of the Multi Party Agreement and MOU with Infrastructure Ontario and the Toronto Organizing Committee for the 2015 Pan/Parapan American Games. The Town s interest reflects, as noted in the Council resolution of November 21, 2011: THAT the opportunity to host the Toronto 2015 Pan/Parapan American Games Velodrome facility and related training and competitive events leading up to, including and following the Games, be recognized as an honour and that the permanent facility would serve as a high performance and community legacy, founded on the principles of supporting high performance and community cycling participation and growth, volunteer development, sport tourism, financial viability, community engagement and diversity. Confirmation of financial viability was a key part of the Town s decision to proceed with the Velodrome. The Town engaged Sierra Planning & Management to assist in the completion of the Business Plan. Their analysis sets out: Introduction and Purpose Situational Assessment of Velodrome Facilities The Importance of Location Facility Options Capital Cost Analysis Revenues & Expenses General Assumptions Risk Analysis Economic Impact Estimates Appendices The operating budget analysis includes the results of significant consultation with the cycling community and the expected utilization of the cycling track, which can be used for a variety of sports as well as for event hosting. Feedback from Milton based organizations was considered in this review, as was the Towns existing experience with gymnasium (e.g. Milton Leisure Centre, Milton Sports Centre). The financial projections outline the first five years of operation with a Net Operating impact projected at $116, 179 in Year 1, Scenario two, plus a $250,000 contribution to a Capital Reserve fund. The expected contribution from the Toronto 2015 Legacy Corporation is expected to be in the range of $300-$700K per annum, however the exact amount has not yet been verified. 11
Town of Milton impact on the operating budget is expected to be in the range of $116,000 per year. This amount is not substantially different than the existing tax impact for similar facilities in Milton. The annual budgets for similar gymnasium facilities at the Milton Leisure Centre and the Milton Sports Centre carry a similar operating impact, although this is part of the larger overall operating budget for the facilities that includes all costs and operations, including Town program delivery. Town Staff are confident that for order of magnitude comparison purposes, the net operating impact is similar. This impact is consistent with the Town s financial principal for the project to have no incremental increase on the Milton taxpayer. The proposed capital budget noted a contribution from the Town of Milton in the amount of $3.8M. This amount was calculated by reviewing the capital budget as identified in the Capital Budget forecast, for the Sherwood Community Centre gymnasium. The $3.8M is derived as follows: $2,730,000 for 13,000 square feet that includes the gym playing floor, two dressing rooms, storage, maintenance closet and bleacher seating for 150; $260,000 for 1,300 square feet of ancillary space that incorporates the London FADS and other circulation type spaces (lobby space, corridors); $59,800 for FFE; and $820,736 for soft costs associated with the project In translating these costs allocations to the Velodrome, there is a difference as to what is obtained in the Velodrome for a similar budget. Within the Velodrome, the infield space alone measures for playable surfaces over 20,000 square feet. This represents a 50% increase in the amount of gymnasium space compared with the 14,300 sq feet planned at the Sherwood Community Centre. In addition, the proposed functional program for the Velodrome includes: 300m walking/jogging track that encircles the spectator concourse Infield of the track is a multi-purpose sport floor equivalent to the size of 3 basketball courts. Intended uses include but not limited to basketball, volleyball, badminton, futsal, trade shows, graduation ceremonies, concerts etc. 3000 square foot Fitness Centre Fitness studio for yoga, aerobics, spinning etc. Storage space for both cycling and infield related equipment Individual change room facilities for both cycling and infield users Meeting Room (10-15 people) 1750 permanent seats that can be utilized for viewing infield activities 12
This will in fact yield greater recreational facilities for the Town investment of $3.8M than would be realized within the proposed Sherwood Community Centre due to the nature of the design for the required cycling track and the inherent infield area created as a result. The public will have access to the infield area for recreational purposes, as well as access to the cycling track, fitness facilities and indoor running track based upon efficient scheduling and promotion of the facilities in conjunction with track cycling needs for the National team, Provincial and regional requirements. Squash facilities are still being considered. Legal advice was also sought in respect to various agreements related to this project that will be required to be executed. Multi Party Agreement - This Agreement is between the Provincial and Federal Government, the City of Toronto, the Canadian Olympic Committee ( COC ), the Canadian Paralypmic Committee ( CPC ) and the Ontario 2015 Pan Am Games Bid Corporation ( BidCo ). This Agreement was executed by the aforementioned parties effective November 2009 and the Town is being asked to sign onto the Agreement (via a Joinder Agreement) so that the Town would be a party to the Agreement. Memorandum of Understanding The Memorandum of Understanding would be a formal agreement between the Town, Ontario Infrastructure and Lands Corporation ( I.O. ) and the Toronto Organizing Committee for the 2015 Pan American and Parapan American Games ( Toronto 2015 ), to establish the obligations of each of the parties with respect to the construction of the Velodrome. The critical issues that are being addressed prior to signing include the provisions with respect to naming rights, insertion of the agreed to cap on the Town s financial contribution, the process to allow the use of product donation for the project, completion of all schedules and the issue of the necessary planning approvals to facilitate the Velodrome, which is addressed below. Gift Agreement The Peter Gilgan Charitable Foundation - Legal Counsel for the Peter Gilgan Charitable Foundation has prepared a Draft Gift Agreement. The Gift Agreement provides the payment schedule and reporting requirements related to the $7.0M capital pledge commitment. Town Staff and legal counsel are working with representatives of the Foundation to finalize the terms and conditions. The Draft Agreement outlines a payment schedule, with the first payment of $1.75M to be received by the end of 2012. Sponsorship Agreement The Columbus Corporation (The Mattamy Corporation is a wholly owned subsidiary of Columbus) - Legal Counsel for The Columbus Corporation have prepared a Draft Sponsorship Agreement. The Sponsorship Agreement provides the proposed Naming Rights for the Velodrome. Naming 13
Rights require approval of Toronto 2015 and are specifically outlined in both the MPA and the MOU. Further work is ongoing to verify the process, timing and expectations regarding Naming rights. 3.2 Project Description The proposed Velodrome is approximately 11,425 square metres (123,000 square feet) in size. The Velodrome track and seating will be a permanent facility, and the project will include various additional recreational facilities primarily within the infield of the Velodrome. Change rooms, administrative offices, meeting space, storage and provision for the Canadian Cycling Association are components of the facility. The Velodrome track will be an International standard (UCI), 250 metre Homologated Tier 1 cycling track. The proposed functional program for the Velodrome also includes: 300m walking/jogging track that encircles the spectator concourse; Infield of the track is a multi-purpose sport floor equivalent to the size of 3 basketball courts. Intended uses include but not limited to basketball, volleyball, badminton, futsal, trade shows, graduation ceremonies, concerts etc.; 3000 square foot Fitness Centre; Fitness studio for yoga, aerobics, spinning etc.; Storage space for both cycling and infield related equipment; Individual change room facilities for both cycling and infield users; Meeting Room (10-15 people); and, 1750 permanent seats that can be utilized for viewing infield activities. 3.3 Transportation It is critical that the Velodrome be easily accessible by all modes of transportation. The following outlines access provisions: 3.3.1 Site Access Site access will be provided by way of the proposed future Louis Saint Laurent Avenue extension and will consist of an east-west, two-lane collector roadway that extends westerly from Tremaine Road (approximately 300 meters west of Tremaine Road), connecting to a north-south roadway that provides direct access to the Velodrome. The future intersection of Tremaine Road and Louis Saint Laurent Avenue has been identified as the primary gateway into the Milton Education Village area and as such, has been selected as the preferred access location for the proposed Velodrome facility. 14
As per the recommended improvements made as part of the Tremaine Road Corridor Improvements Class EA Study, the ultimate traffic control at this intersection has yet to be confirmed. The final recommendation of either a roundabout or traffic signalization will be determined as part of the Milton Education Village Secondary Plan. Tremaine Road will serve as a key corridor that will provide inter-regional access to the facility from the north gateway via Highway 401, as well as provide regional access from the south by way of Regional Road 5 (Dundas Street). 3.3.2 Parking Ultimate parking generation has not yet been determined. As a basis for this assessment Paradigm are carrying out a survey of a surrogate site, the Forest City Velodrome in London, Ontario. This work is ongoing. However, there is an allowance for approximately 150 parking stalls within the Velodrome portion of the subject site. This area will provide parking for the velodrome and other recreation uses / ancillary uses of the facility. Additional event parking will be provided to the east of the Velodrome parcel. 3.3.3 Transit Municipal transit service is not currently provided within the Milton Education Village, nor is transit service provided along Tremaine Road or Louis Saint Laurent Avenue, west of Regional Road 25. It is anticipated that special municipal service will be provided during the Pan Am Games which will consist of direct shuttle service by way of the Milton GO Station. Inter-regional transport needs during the Pan/Parapan American Games are currently being examined by the MTO. In the long-term, the development of a transit hub has been proposed within the Milton Education Village which will also serve the Velodrome. The transit hub will serve as a location where a variety of transportation modes including local transit, cycling and pedestrians, converge - allowing for easier transfer between modes and routes, all provided at a centralized location which is supported by surrounding and compatible land uses. 3.3.4 Pedestrian and Cyclist Access Pedestrian and Cyclist facilities are not currently provided within the Milton Education Village. However, existing facilities are provided along Derry Road, east of Tremaine Road, and along Tremaine Road, between Main Street and Derry Road. The inclusion of dedicated bike lanes and 3.0 metre multi-use pathway/sidewalk have been recommended as part of the Tremaine Road and Britannia Road Class Environmental Assessment Studies which will result in the development of a sustainable multi-modal transportation system that provides direct access to the Velodrome site while 15
promoting the use of active transportation to and within the Milton Education Village lands. 3.4 Servicing 7 3.4.1 Water Existing Conditions The Regional Municipality of Halton produces and distributes clean and safe drinking water in the Town of Milton. The Velodrome site is in Milton Pressure Zone 4. An existing 300 mm diameter watermain is located at the Dymott Avenue and Tremaine Road area. In addition, a 750 mm watermain is under construction on Louis St. Laurent Avenue from Bronte Street to Tremaine Road, with 400 mm extending both south of and north of Louis St. Laurent Avenue. Water Demand Calculation In absence of input from architectural and mechanical engineers, water demand in the Velodrome site is estimated indirectly by counting water utilities in each room and based on information in Part 7, Plumbing, Ontario Building Code (Calculation sheet attached). The estimated design water demand peak flow is 28 L/s. Estimation from facility mechanical engineers is likely to be less than this flowrate, however 28 L/s is suggested to be adopted as the design peak water demand for the Velodrome site. Watermain Layout A 250 mm diameter PVC watermain pipe is proposed from the Louis St. Laurent and Tremaine Road area to the Velodrome site connection point along the proposed access road. The 400 mm diameter stub extending south of Louis St. Laurent is the proposed connection point. The estimated pipe length is 770 meters. A general description, such as sizes, depths and locations of hydrants and valves, is shown on the Servicing Plan (See Figure 2). Design Requirements and Approval The design of water facilities follows recognized standards and Planning documents, including: Design Guidelines for Drinking Water Systems, MOE Sustainable Halton Water & Wastewater Master Plan, Region of Halton Water & Wastewater Facilities Design Manual, Region of Halton Linear Design Criteria, Contract Specifications and Standard Drawings, Region of Halton Ontario Building Codes, Government of Ontario 7 This section has been prepared by AMEC based on a review of the proposed application and servicing work prepared in support of the Boyne Secondary Plan. 16
The water facilities are under the jurisdiction of Halton Region. The connection points demand and design details will require approval from the Region. 3.4.2 Wastewater Existing Conditions There is no existing sanitary sewer that is able to convey the Velodrome site wastewater flows. Wastewater generated from the Velodrome facility will be discharged to a sanitary sewage pipe to be constructed and connected to the Tremaine Road Sewage Pumping Station. The Tremaine Sewage Pumping Station is located east of Tremaine Road on the south side of Louis St. Laurent Avenue. The pumping station has an ultimate capacity of 550 L/s and a current capacity of 366 L/s. The sanitary sewer design sheet for the Velodrome has been developed for discharge to the proposed Boyne Neighborhood wastewater system. Wastewater Calculation The peak drinking water supply flowrate (28 L/s) is used for the peak sanitary wastewater flowrate in the wastewater flow calculation. Infiltration allowance in this calculation is 0.286 L/hectares). In absence of sewershed information along the proposed sewer, a 17.2 hectares (42.4 acre) infiltration drainage area is estimated in the calculation. As stated above, capacity exists at the Tremaine Road Pumping Station. The total wastewater flow from the Velodrome site discharging into the Tremaine Road Pumping Station is 33 L/s. Capacity at the Tremaine Road Pumping Station needs to be confirmed through Halton Region. Sewer Layout A 250 mm diameter PVC sewer pipe is proposed on the center of the right way from the Velodrome site connection point to MH 150 near the intersection of Tremaine Road and Louis St. Laurent Avenue and ultimately to the pumping station. The estimated length is 770 meters. A minimum slope of 1% is reserved for the sewer pipe from the Velodrome facility sewer connection point (basement level mechanical room) to the northeast corner of the proposed site (ground elevation 185.20 m, invert elevation 181.48 m). The elevation of the top of the connection sewer should be 1 meter lower than the estimated basement level, which is 5.2 meters lower than ground level. The sanitary sewer from the site shall have a slope of 0.3% and the depth of all proposed manholes is greater than 7.5 meters. 17