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HomeMy WebLinkAboutCSD-11-035 - Southwest Urban Area Community Master PlanStaff Re ort I~TC~~nT~~ CommunrtySer~rcesDepar~ment www.kitchenerca REPORT TO: Planning & Strategic Initiatives Committee DATE OF MEETING: February 28th, 2011 SUBMITTED BY: Alain Pinard, Director of Planning PREPARED BY: Brandon Sloan, Interim Manager, Long Range & Policy Planning (519-741-2648) Juliane vonWesterholt, Senior Planner (519-741-2776) WARD(S) INVOLVED: Wards 5 and 6 DATE OF REPORT: February 17, 2011 REPORT NO.: CSD-11-035 SUBJECT: Southwest Urban Area Studies Community Master Plan RECOMMENDATION: A. That the Community Master Plan for the Southwest Urban Area, prepared by The Planning Partnership and supporting consultants, attached to report CSD-11-035 be received for review, discussion and public input, and returned with any necessary revisions and supporting recommendations for approval at the March 21, 2011 meeting of the Planning and Strategic Initiatives Committee. B. That staff be directed to prepare Official Plan policies, land use designations and a Secondary Plan for the entire Southwest Urban Area based on the direction of the Community Master Plan and including the following: That additional work to further refine technical requirements (such as stormwater management/groundwater facilities and the transportation network analysis) be completed as part of the Secondary Plan process and subsequent development applications where appropriate; and • That the Secondary Plan and new Official Plan policies identify the lands on either side of Fischer Hallman Road generally between Bleams Road and Huron Road as a Mixed Use Corridor with a Mixed Use Node near Fischer Hallman Road/Huron Road. C. That the significant cultural heritage resources identified in the Community Master Plan for the Southwest Urban Area, Cultural Heritage Background Study: Built Heritage and Cultural Landscapes report prepared by Nancy Z. Tausky be referred to Heritage Kitchener for their consideration of Steps 3 and 4 of the Municipal Heritage Register review process for potential listing as non-designated properties of cultural heritage value or interest. D. That a Class Environmental Assessment be undertaken for a proposed north-south collector street (for the portion of the proposed road outside of any plan of subdivision) that would connect the Southwest Urban Area and that the timing be referred to next year's Capital Budget process and the next Development Charges Background Study and By-law. 5-1 Staff Re ort ~ITCH~I`r?E~ X01111'1']~1111~~'$E1'V1[QS~~pQ~'~~T?~Q1~ w~+w.kitthenerca E. That the Secondary Plan process for the entire Southwest Urban Area include public and stakeholder involvement and provide recommendations for the June 20th, 2011 meeting of the Planning and Strategic Initiatives Committee. BACKGROUND: The Community Master Plan attached to this report implements specific actions of the Kitchener Growth Management Strategy (KGMS) and the Kitchener Growth Management Plan 2009-Post 2010 (KGMP), that were approved by Council in 2009. The KGMS (Goal 2 Creating Vibrant Urban Places, Action 3) gives direction to investigate the establishment of a new mixed used node or corridor along Fisher-Hallman Road, south of Bleams Road. The KGMP identifies comprehensive planning initiatives that need to be completed prior to giving consideration to individual development applications for the Southwest Urban Area. The list of comprehensive planning initiatives includes a community master plan and supporting studies. On November 2, 2009 Council received Report DTS-09-157 which provided an outline of the process for completing the comprehensive planning initiatives studies required for the Southwest Urban Area. On January 25, 2010, Council authorized the hiring of a consulting team led by The Planning Partnership, to prepare Phases 1 and 2 of the studies -the Community Master Plan. The Community Master Plan and supporting technical work is now ready for review and is further outlined in this staff report and the attached document. REPORT: The Southwest Urban Area is approximately 430 hectares in area and generally includes lands on either side of Fischer Hallman Road from Bleams Road to just south of Huron Road. The study area includes a large portion of lands that were added to the City Urban Area in the Region of Waterloo Official Policies Plan through ROPP Amendment No. 16. A Community Plan is a widely used planning tool that guides future development by establishing broad land uses and the general locations of new collector streets, and community amenities such as parks and schools. It is supported with environmental, heritage and engineering studies and policies. A Community Master Plan is an evolved version of the community planning tool where the scope and scale of the issues require more study and co-ordination as is the case for the Southwest Urban Area. The Community Master Plan for the Southwest Urban Area will provide direction to prepare a Secondary Plan which will formally establish the land uses and associated policies for this area in the City's Official Plan. This is an important step to ensure that the community expectations are met. Southwest Community Master Plan Process (Phases 1 & 2) A Community Master Plan and Secondary Plan process includes a significant amount of technical work and often takes many years to complete. The process for the Southwest Urban Area was designed to be as comprehensive and inclusive as possible given the agreed upon timelines. The major steps for the overall Southwest Urban Area Studies work program were outlined in DTS Report 09-157. Generally the project includes four phases. The tasks required 5-2 Staff Re ort ~ITCH~I`r?E~ X01111'1']~1111~~'$E1'V1[QS~~pQ~'~~T?~Q1~ w~+w.kitthenerca to complete the Community Master Plan (Phases 1 and 2) were outlined in the Terms of Reference dated November 2009. Generally, this component of the project included: • Reviewing, selecting and hiring consultants. • Undertaking background and contextual work to understand the existing conditions and the various interrelated planning, engineering, environment and parks and recreation components. • Preparing technical studies, such as a cultural heritage review, archaeological assessment, species at risk field work and study, comprehensive stormwater management analysis and groundwater infiltration implications, etc. • Convening meetings (approx. seven in total) with the project Executive Group and Internal Working Team, including a design workshop. In addition, numerous members of the project team contributed a significant amount of expertise and review in a very expedient manner outside of formal meetings. • Preparing and discuss draft community design principles and design givens. • Designing approximately six land use options. • Developing and review detailed evaluation criteria • Undertaking a comprehensive review of the various land use options. • Conducting several stakeholder sessions with the major land owners and their representatives, including joint meetings and presentations along with two separate individual interview feedback sessions. • Holding two public input sessions including a workshop and an open house (additional notice and involvement opportunities for surrounding property owners and the general public is further described in the Community Engagement section of the report below). • Developing and reviewing stormwater management options, specialized modeling and impact assessment. • Resolving significant issues. • Reviewing various options and materials. • Determining strategic directions for the project; confirm project budgeting and other project management aspects. • Preparing a preferred Community Master Plan, final supporting studies and associated reports. Key Issues There are a number of design challenges within the study area. Many of these issues are highlighted within the attached Community Master Plan document. Briefly, the study area contains the largest, remaining greenfield area that does not have an urban land use designation nor approved comprehensive planning. The westerly boundary is the proposed Countryside Line. Through the Region's Transportation Master Plan work a fairly aggressive transit modal split target (more transit riders than typical for greenfield development) was established for the Fischer Hallman corridor. It was also necessary to address new provincial direction on planning for new greenfield areas that includes achieving minimum density requirements, contributing to "complete communities" and having a higher standard of design for public areas. All of this represents an evolution of the way that these communities are designed and developed in Kitchener. 5-3 Staff Re ort ~ITCH~I`r?E~ X01111'1']~1111~~'$E1'V1[QS~~pQ~'~~T?~Q1~ w~+w.kitthenerca One of the most vital issues that evolved through the Community Master Plan process is the implementation of rigorous targets set through the Alder and Upper Strasburg Subwatershed Studies/Plan. This necessitated the hiring of a complementary consultant to prepare specific, detailed modeling of comprehensive stormwater management options. These options then have to be tested and modelled to ensure that groundwater infiltration targets can be achieved (or in this case find ways to exceed the targets). Other issues addressed through the Community Master Plan process include: sorting out transportation/road network options; establishing a focal point for southwest Kitchener and an appropriate gateway to the city; identifying the necessity and locations of community amenities such as schools, parks, trails, and community centre; the conservation of cultural heritage resources; and the study and review of a threatened species habitat. The Community Master Plan The Community Master Plan document contains a significant body of work that includes the following components: • Overview Background Report (physical and multi-disciplinary context) • Design Givens, Land Use Options and Evaluation Review • Recommended Community Master Plan, including vision, design and guiding principles and the structure of the community, land use, natural heritage system and roads • Strategies for contributing towards Sustainability • Transportation System recommendations • Archaeological Assessment • Cultural Heritage Study • Functional Servicing • Comprehensive stormwater Management and Groundwater Infiltration • Species at Risk Study • Commercial/Market Needs Analysis • Public Workshop and Stakeholders Presentation Summary The impact of the preferred Community Master Plan on the surrounding transportation system is currently under review as part of the Southwest Transportation Network Study. This component of work is expected to be completed shortly and will be an important consideration of the Secondary Plan process. Overall, the Community Master Plan is based on the City's design guidelines for suburban development. More specifically, Fischer Hallman Road south of Bleams Road would be the community's transit-oriented "spine" with higher densities and mixed uses oriented towards that main transit route. This area could potentially accommodate at least 25,000 persons and jobs. The community structure of the preferred Master Plan includes four, walkable neighbourhoods to the west of the Fischer Hallman mixed use corridor. The design of each neighbourhood is based on the "5-minute walk-rule" to a central gathering point such as a neighbourhood park or other community feature. Within each neighbourhood, a small park space would be within a 2- minute walk. This design, coupled with the conservation of a significant amount of natural heritage features (such as woodlands, wetlands, creek floodplains and groundwater infiltration locations that is more than any other community in the city), contributes towards planning for a 5-4 Staff Re ort ~ITCH~I`r?E~ X01111'1']~1111~~'$E1'V1[QS~~pQ~'~~T?~Q1~ w~+w.kitthenerca healthy Kitchener. The technical analysis yields that the recommended plan could achieve better groundwater infiltration than leaving the land in its current state. Ultimately, the plan will reflect a modified, grid network with multiple connections and route options to the surrounding arterial road system. The evolution of the surrounding roads and subdivisions within the south and west portions of the city has provided challenges to establish a well-connected and efficient system in this area. Notwithstanding, significant attempt is made to have transit as a viable option, along with the provision of a trail and bike system. As the community develops it will be necessary to establish both anorth-south and an east-west collector street to offset Fischer Hallman and Bleams Roads along with providing a vital connection link between neighbourhoods. Establishing multiple route options means that future residents and employees would not all have to utilize the same points on the arterial roads and intersections. Another key feature of the Community Master Plan design is a "green" system along anorth- south route that is interior to the neighbourhoods with a future community centre/branch library at the north (adjacent to a future community trail along the hydro corridor) and a future District Park to the south. The plan includes three potential public elementary school sites, one catholic school site, and two existing sites for religious institutions along with one new one near Trussler Road. Special Policy considerations will have to be included within the Community Master Plan and potentially the pending Secondary Plan in order to allow for the continual refinement of the best possible water management and natural heritage system. Additional land uses and design elements are further described in the Community Master Plan, prepared by The Planning Partnership, which is attached to this report. Southwest Secondary Plan (Phases 3 & 4) The overall work program summary and process hierarchy for the Southwest Urban Area Studies was outlined in DTS Report 09-157. Steps 1-9 on the original work program summary have now been undertaken. The updated general work program is attached to this report as Appendix "A". One of the requirements of Phases 1 and 2 of the study was to define the area required for a Secondary Plan. Through the community master planning process it was determined that the neighbourhoods have many strong relationship with each other as well as the Fischer Hallman mixed use corridor so it is recommended that one Secondary Plan be prepared for the entire Southwest Urban Area (instead of developing additional, separate policy planning frameworks for the three neighbourhoods). This holistic approach should simplify phases 3 and 4 and do not impact the original June 2011 deadline. Therefore, city staff will now be preparing an Official Plan Amendment, including new land use designations, policies and a Secondary Plan for the entire study area. This represents Phases 3 and 4 of the Study (also shown as Steps 10-14 on the general work program in Appendix "A"). These steps will include the following: 5-5 Staff Re ort ~ITCH~I`r?E~ X01111'1']~1111~~'$E1'V1[QS~~pQ~'~~T?~Q1~ w~+w.kitthenerca • Official Plan Amendment and new Secondary Plan • In addition to typical land use policies and mapping will include objectives and policies regarding Transportation Demand Management, Energy/Water/Waste Conservation, and Air Quality • Supplementary Design Guidelines • Includes identification of existing City and Region guidelines that apply to this area and any supplemental context specific guidelines • Includes a Streetscape Plan for Fischer Hallman Road • Includes a Built Form Plan/Sketch • Municipal Financial Impact Assessment (next level of work) • Potential refinement of land use and policies for natural heritage, stormwater management and groundwater infiltration • Preliminary Noise Impact Assessment • Conceptual Plan for Neighbourhood Parks and Community Trails • Deferral of Concept Master Plan for South District Park until approximately 2013 • Public and Stakeholder engagement ALIGNMENT WITH CITY OF KITCHENER STRATEGIC PLAN: The Community Master Plan for the Southwest Urban Area is being prepared with the Community Vision in mind. The plan is to build an innovative and vibrant community with safe and thriving neighbourhoods. The Community Master Plan also implements Kitchener's Growth Management Strategy and Growth Management Plan which were developed in response to Strategic Directions Nos. 1, 2 and 3 of the `Development" Community Priority. Other Community priorities such as "Leadership and Engagement" and "Environment" were addressed in the preparation of this community master plan and supporting materials. FINANCIAL IMPLICATIONS: This component of the study was funded through an existing Capital -Development Charges account. The project was completed within the original amount approved by Council. There will be both revenues and expenditures associated with land use decisions and development of the subject area that will impact both the Capital and Operating budgets. The following tables outline the high-level financial implications known at this time: • Development Charges • Property tax • Future user fees • Application and permit fees • Utility fees 5-6 Staff Re opt ~ommunrtySer~ices Department www.kitchenerca res Major Engineering Infrastructure Requirements • Middle Strasburg Trunk Sanitary Sewer (required for the majority of lands) • South Strasburg Trunk Sanitary Sewer (required for a portion of the lands) • Huron Road widening (Fischer Hallman to Trussler) • New North-South Collector Street (a portion would be outside of development) Region of Waterloo requirements include arterial road improvements, intersection improvements, watermains and provisions for additional sewage treatment capacity. Major Community Infrastructure Requirements Additional capacity will be required for the following: • Community Centre (including one new standard size centre and one potential small centre in the SWUA) • Library Services (including a new branch in the SWUA) • Parks (including 4-5 neighbourhood parks and additional village greens in the SWUA) • Trails • Cemeteries (including an expansion to the existing cemetery in the SWUA) • Arenas, Pools, District Sportsfields (outside SWUA) * Primarily funded from Development Charges Reserves Most other infrastructure and amenities are primarily constructed and initially paid for by developers as part of the development approval process. These assets include local roads, stormwater management facilities, groundwater infiltration facilities, bike lanes, street trees and natural heritage (open space) areas. In addition, the two major school boards require a potential total of 4 elementary schools in the SWUA and additional high school capacity (beyond that currently available) will be required outside of SWUA. The school boards have not yet received any funding from the Province for these schools. Operating and maintenance costs All of the above assets, including infrastructure and amenities constructed and initially paid for by developers require staffing, equipment, maintenance and eventual replacement (lifecycle costs) in order to add value to the community. Roads (two major Collector Streets, minor collector and local streets) Laneways (potential for limited number of rear lanes in appropriate locations) stormwater Management and Groundwater Infiltration Facilities Bike lanes Street trees, streetscape elements and landscaping Natural Heritage lands The recommended 2011 Capital Budget and Forecast has been presented but not approved. Several engineering and community infrastructure facilities are identified near the end of the 10- year Capital Forecast. The ability to fund the construction and operation of the facilities required 5-7 Staff Re ort ~ITCH~I`r?E~ X01111'1']~1111~~'$E1'V1[QS~~pQ~'~~T?~Q1~ w~+w.kitthenerca for this community will be important consideration in the preparation and approval of future Capital Forecasts. As the planning and development process moves from the master plan stage to construction and occupancy there should be a greater understanding of specific costs and benefits. Efforts are being made through the planning process to anticipate and reduce where possible the potential maintenance obligations. In that regard, one option to consider is to establish a common element condominium within the study area to assist with maintenance obligations of design elements. A portion of the next phase of work (Secondary Plan process) will include further refinement of financial considerations including the addition of operating cost estimates (i.e. the potential length of new roads, sidewalks or area of park will be added along with an average cost/km or 1ha for maintenance will be added). Any requirements for funding the components of the Secondary Plan process will continue to be through the existing Capital -Development Charges account. COMMUNITY ENGAGEMENT: Phases 1 and 2 of the project primarily utilized the themes of `Inform' and `Collaborate' with respect to the City's community engagement strategy. A public workshop was held in June 2010 that provided excellent dialogue and involvement with members of the surrounding neighbourhoods and helped guide the preparation of the Community Master Plan. A public open house was held in January 2011. This was an opportunity to provide an update on the project and illustrate the draft structure of the community, neighbourhood and natural heritage system along with the preferred land use plan. Notification of the public sessions was given through direct mailings to the surrounding property owners, postings on the City's website, advertising in print media, road signs, email notice and verbal communication. Approximately 50 people attended each public session. A project fact sheet and frequently asked questions and answers were also available at the sessions and on the City's website. Numerous sessions were also held throughout the project with the major land owners and their consultants. A further summary of the community engagement is outlined as an attachment to the Community Master Plan document. The February 28t" meeting of the Planning & Strategic Initiatives Committee is a formal public meeting. Notice was given in The Record along with the City's website, at the most recent public and stakeholder sessions and this report will be sent via email (and mail if necessary) to the project's public and stakeholder circulation list. This report recommends that community and stakeholder involvement be an important component of the Secondary Plan process. If approved, this will include both informal and formal public meetings. A statutory public meeting will be required before the adoption of the Secondary Plan. 5-8 CONCLUSION: Staff Re opt ~ommunrtySer~ices Department www.kitchenerca The built environment must reduce its impact on the natural environment. The direction that this Community Master Plan (and other higher level initiatives) provides is that throughout the next phases of the planning and design process as many "green" building/development techniques must be utilized as possible. The preferred Community Master Plan would provide for the conservation of a significant amount of natural heritage features and water management facilities along with a hierarchy of parks and other community facilities. The Plan delivers amixed-use, transit supportive community that is oriented to Fischer Hallman Road with a community focal point/node near Huron Road. It is based on walkable neighbourhoods and would achieve numerous planning objectives. The Community Master Plan document includes a significant amount of supporting study and information. In order to ensure there is review time for certain agencies, stakeholders and the public, staff recommend that the Plan be received for discussion and that any comments be submitted to the project managers by March 7t". Any necessary revisions and supporting recommendations will be provided to the March 21St meeting of the Planning and Strategic Initiatives Committee. This report includes additional recommendations to ensure that work proceeds on the next phases of the Southwest Urban Area Studies so that an Official Plan Amendment and Secondary Plan can be delivered in June 2011. ACKNOWLEDGED BY: Jeff Willmer, Deputy CAO Community Services Department Attachments: Appendix `A" -Updated SUAS General Work Program Summary and Process Hierarchy Appendix "8"-Preferred Community Master Plan Drawing Community Master Plan for the Southwest Urban Area (entire document to be posted on the City's website at http://www.kitchener. ca/en/insidecityhall/opreviewdocs. asp) 5-9 Appendix "A" GENERAL WORK PROGRAM SUMMARY (Jan. 2010-June 2011) Q STEP 1 -Prepare and finalize Terms of Reference d STEP 2 -Request and review "Expressions of Interest" Q STEP 3 -Request and review detailed proposals from consultants Q STEP 4 -Interview and select consultant team. Approval by Council. Q STEP 5 -Agreement with consultant and begin project. Q STEP 6 -Undertake Phase 1: Context. Review background, existing studies, opportunities and constraints. Consultant to complete Background Report/ Technical Memo. Q STEP 7 -Undertake Phase 2: Community Concepts. Prepare conceptual land use options, first component of supporting studies/plans (i.e. Southwest Kitchener Transportation Network Study) and identify planning and design principles. d STEP 8 -Landowner and public consultation on Phase 2. Q STEP 9 -Consultant to provide report to Council on analysis, consultation and recommendations for Phase 2. Request authorization to prepare detailed Secondary/Community/Master Plans based on preferred option. STEP 10 (revised) -Undertake Phase 3: Secondary Plan. Staff to prepare Secondary Plan for the Southwest Urban Area. Consultants and staff to complete supporting studies/plans. STEP 11 -Landowner and public consultation on Phase 3. STEP 12 -Revisions. STEP 13 -Staff to prepare Phase 4: Final Report. Includes recommendations on land use for all of study area and final Secondary/Community/Master Plans. STEP 14 (revised) -Consideration of land use designations, supporting policies and Secondary Plan as part of an Official Plan Amendment by end of June 2011 (to be eventually incorporated into the new Official Plan). STEP 15 -Regional consideration. 5-10 MUNICIPAL PLANNING HIERARCHY Southwest Kitchener Process Regional Official Plan (ROPPA #16 and ROP 2009) City Official Plan (direction to prepare Subwatershed Study) Subwatershed Master Plan (Alder Creek Watershed Study and Upper Strasburg Creek Subwatershed Plan Update) Secondary Plan (Phase 3) ^ Urban Design Guidelines ^ Built Form Plan ^ Streetscape Plan ^ TDM Policies ^ Energy Conservation Policies ^ Noise Impact Analysis ^ Master Planning of Parks (deferral of District Park concept plan to 2013+) ^ Continuation of next level of analysis of Community Master Official Plan Amendment/Secondary Plan (Phase 4) Community Master Planning (Phases 1 & 2) ^ Transportation Network Study ^ Land Use Needs ^ Residential, Employment ^ Connectivity Plan ^ Parks and Recreation ^ School Accommodation ^ Master Drainage/SWM/groundwater plan ^ Sanitary Servicing Analysis ^ Threatened Species Study ^ Cultural Heritage Survey ^ Air Quality Impact Analysis ^ Financial Impact Analysis Plan of Subdivision/Zone Change/Site Plan *Italics denotes updated from previous chart Denotes current phase of work ^ Implementation of Community Master Plan and Secondary Plan recommendations ^ Environmental Impact Study ^ Other supporting site specific technical studies/plans, including Implementation plans Development 5-11 n ~ .~. 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