HomeMy WebLinkAboutCSD-12-106 - Official Plan Amandment & Zone Change ApplicationStaff Report
Kl~rc,H~:r~'~:R Commcrnrry Services Department www.kitthenerta
REPORT TO: Planning & Strategic Initiatives Committee
DATE OF MEETING: August 13, 2012
SUBMITTED BY: Alain Pinard, Director of Planning
PREPARED BY: Juliane von Westerholt, Senior Planner, 519-741-2776
WARD(S) INVOLVED: Ward 3
DATE OF REPORT: July 31, 2012
REPORT NO.: CSD-12-106
SUBJECT: OFFICIAL PLAN AMENDMENT OP11/02/H/JVW
ZONING BY-LAW AMENDMENT ZC11/08/H/JVW
1011 HOMER WATSON BOULEVARD
1473450 ONTARIO LIMITED (KITCHENER FRAME)
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RECOMMENDATION:
A. That Official Plan Amendment Application OP11/02/H/JVW (1011 Homer Watson
Boulevard) requesting a change in designation from General Industrial to Mixed
Use Node with a Special Policy Provision, to permit an expanded range of
commercial uses, including retail and service commercial uses as well as
neighbourhood entertainment uses and free standing office on an 11.46 hectare
portion of the property, be refused; and further
B. That Zone Change Application ZC11/08/H/JVW (1011 Homer Watson Boulevard)
requesting a change from General Industrial (M-2) with Special Use Provision 22U
to Community Shopping Centre Zone (C-3) on an 11.46 hectare portion of the
property, be refused.
EXECUTIVE SUMMARY:
1473450 Ontario Limited has applied for amendments to Kitchener's Official Plan and Zoning
By-law to permit an expanded range of commercial uses on an 11.46 hectares portion of the
property at 1011 Homer Watson Boulevard. This property was formerly occupied by large
industrial uses, the most recent being the Kitchener Frame manufacturing facility. The applicant
intends to redevelop this portion of the property with a broad range of commercial uses that
would include a grocery store of approximately 4645 square metres. Staff recommends that the
proposed Official Plan Amendment and Zone Change be refused and accordingly that the
Official Plan Amendment not be forwarded to the Region of Waterloo for approval.
REPORT:
The Site
The subject lands total approximately 49.85 ha (123.18 ac.) and are bounded by Bleams Road
to the north, Homer Watson Boulevard to the west and south, and by a rail spur to the east.
The majority of the subject lands (32.27 ha) are the site of the former Kitchener Frame
(previously Thyssen Krupp Budd Canada Inc.) facility, which prior to its closure in 2009,
manufactured automotive parts. Most of the previous industrial buildings are in the process of
being demolished. The balance of the lands are occupied by Budd Park which contains soccer
fields, ball diamonds, tennis courts and a field house of which 6.5 ha (16.07 ac.) are under
short term lease and 9.46 ha (23.37 ac.) are under long term lease, with the City of Kitchener.
(See Appendix A)
The surrounding land uses are industrial to the east and to the west with the exception of
Steckle Woods located at the southwest corner of the intersection of Homer Watson Boulevard
and Bleams Road. North of the subject lands is an assortment of neighbourhood retail
commercial uses flanking Bleams Road, and residential neighbourhoods interface with the
southerly portion of the site that is occupied by Budd Park.
The Proposal
The applicant's ultimate objective is to redevelop the entire property, with the exception of the
portion of Budd Park that is under long term lease with the City of Kitchener. The
redevelopment would have two major components. One component is to redevelop an 11.46 ha
parcel at the southwest corner of Bleams Road and Homer Watson Boulevard for approximately
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28, 515 square metres of commercial uses. A grocery store of approximately 4645 square
metres would be one of the anchors.
The other component is to redevelop the balance of the lands for new industrial uses, largely or
entirely in new buildings depending if there is interest in adapting some of the remaining
buildings on site. New internal roadways that would be established through a subsequent
approval process would be required to achieve the intended industrial redevelopment. The
applicant is of the opinion that there is immediate demand for retail space at this location, and
explains that the income generated from the commercial redevelopment would help fund and
stimulate the industrial redevelopment. The redevelopment is expected to occur in phases
moving from north to south. A conceptual drawing that illustrates the applicant's proposed vision
is attached as Appendix B.
The Applications
The applicant has requested amendments to Kitchener's Official Plan and Zoning By-law. The
subject applications apply only to the 11.46 hectare parcel that is intended for new commercial
uses.
The proposed Official Plan Amendment would change the land use designation from "General
Industrial" to "Mixed Use Node" with a special policy provision that would recognize the parcel
as a distinctive "Mixed Use Node" within a comprehensively planned employment district. The
proposed amendment to Zoning By-law 85-1 would change the zoning from General Industrial
(M-2) Zone with special use provision 22U to the Community Commercial (C-3) Zone. While the
current official plan designation and zoning allow some of the potential commercial uses, they
do not allow the full range of commercial uses contemplated. The amendments are required in
order to allow free standing retail and offices, some service commercial uses and
neighbourhood entertainment.
In support of the applications the following studies were submitted:
• Planning Justification Report Prepared by Zelinka Priamo Ltd. for 2242133 Ontario Inc.
dated June 20, 2011;
• Urban Design Guidelines and Demonstration Concept Plan Prepared by Zelinka Priamo,
Turner Fleischer and Ron Koudys dated June 2011;
• Employment Land Needs Analysis Kitchener Ontario prepared by Urban Metrics Inc. dated
June 17, 2011;
• Functional Servicing Report Prepared by Odan Detech Group Inc. for 2242133 Ontario Inc.
dated May 24, 2011;
• Traffic Impact Study for 1011 and 1111 Homer Watson Boulevard for prepared by Lea
Consulting Ltd. for 2242133 Ontario Inc. dated June 17t", 2011; and,
• South Kitchener Retail Market Demand and Impact Analysis prepared by Kircher Research
Associates Ltd. for 2242133 Ontario Inc. dated January 17t", 2011.
Policy Framework
The relevant policies that apply to these applications are listed below. A detailed analysis of the
policies and how they apply to these applications for the land conversion will be made in the
analysis section of the report.
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Places to Grow Act and Growth Plan for the Greater Golden Horseshoe (2006)
The Growth Plan for the Greater Golden Horseshoe 2006 derives its authority from the Places
to Growth Act, 2005 which requires that all official plans and planning decisions under the
Planning Act conform to the Growth Plan. In addition to encouraging the building of compact
communities and focussing growth to intensification areas, the Growth Plan contains specific
policy requirements related to employment lands.
Section 2.2.6 of the Growth Plan directs municipalities to maintain an adequate supply and
variety of lands for employment uses to accommodate growth forecasts. Municipalities are
further required to promote economic development by:
• providing for an appropriate mix of employment uses including industrial, commercial
and institutional uses to meet long term needs;
• provide opportunities for a diversified economic base, including maintaining a range and
choice of suitable sites for employment uses which support a wide range of economic
activities and ancillary uses and take into account the needs of existing and future
business;
• planning for, protecting and preserving employment areas for current and future uses;
• ensuring the necessary infrastructure is provided to support current and forecasted
employment needs
Major office and major institutional uses are directed to urban growth centres, major transit
station areas or areas with frequent transit service or existing or planned higher order transit
service.
The Growth Plan also stipulates that the conversion of employment areas to non-employment
uses, can only be considered through a municipal comprehensive review where it has been
demonstrated that:
• there is a need for the conversion;
• the municipality will meet the employment forecasts allocated to the municipality
pursuant to the 2006 Growth Plan;
• the conversion will not adversely affect the overall viability of the employment area, and
achievement of the intensification target, density targets, and other policies of the
Growth Plan;
• there is existing or planned infrastructure to accommodate the proposed conversion;
• the lands are not required over the long term for the employment purposes for which
they are designated;
• cross jurisdictional uses have been considered
The Growth Plan also clarifies that for the purposes of this policy, major retail uses are
considered for non-employment areas. For Council's reference Section 2.2.6 of the Growth
Plan in its entirety is attached as Appendix "C".
It is staff's position that the subject lands are employment lands and that many of the proposed
commercial uses represent a conversion to non-employment uses that is contrary to the Growth
Plan.
Provincial Policy Statement (PPS)
The Provincial Policy Statement is issued under the authority of the Planning Act and provides
policy direction on matters of provincial interest related to land use planning and development.
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The Planning Act requires that decisions affecting planning matters "shall be consistent with"
policy statements issued under the Act.
Section 1.3.1 of the PPS directs municipalities to promote economic development and
competiveness by providing for a mix and range of employment uses to meet the long-term
needs, by providing opportunities for a diverse economic base and by ensuring that there is
sufficient infrastructure in place to support current and future needs. This section of the PPS
also requires municipalities to plan for, protect and preserve employment areas for current and
future uses. Employment areas are defined as "those areas designated in an official plan for
clusters of business and economic activities including but not limited to manufacturing,
warehousing, offices and associated retail and ancillary facilities. "
Section 1.3.2 goes on to state that planning authorities may permit the conversion of
employment lands to non-employment uses only through a comprehensive review and only
where it has been demonstrated that the land is not required for employment purposes over the
long term and that there is sufficient need for the conversion. "Comprehensive review" is
defined as "an official plan review which is initiated by a planning authority, or an official plan
amendment which is initiated or adopted by a planning authority which follows a prescribed
approach. For Council's reference, sections 1.3.1 and 1.3.2 in their entirety are attached as
Appendix "D".
Under the PPS, the subject applications would require a comprehensive review to convert these
lands to non-employment uses. It is staff's position that the lands are employment lands which
should be protected and not considered for conversion.
Comprehensive Review of Employment Lands (CREL)
As directed by the PPS and the Growth Plan, the City of Kitchener conducted a Comprehensive
Review of Employment Lands (CREL) that was approved by Kitchener City Council on March
22, 2010. The CREL was prepared by a project team of staff from the Planning and Economic
Development divisions in consultation with staff from the Region of Waterloo and the City's
Economic Development Advisory Committee. The CREL calculated the city's long-term needs
for employment lands as defined by the PPS and the Growth Plan, and assessed all lands that
are currently occupied by employment uses and/or where the Official Plan and/or the Zoning
By-law permit employment uses.
The CREL identifies which employment lands are suitable for conversion to non-employment
uses and those that are not. The latter are referred to as "Protected Employment" lands in the
CREL and generally satisfy several of the preferred criteria for this use: contiguous with other
employment lands or part of a viable cluster, convenient access to highway, primary/secondary
arterial road access, rail service available or possible, separate from sensitive uses, large parcel
size etc. To help implement the Provincial land conversion policies, the CREL also defines
major retail and clarifies that this use should not be permitted on "Protected Employment" lands.
Major Retail is defined as a development containing retail floor area of 5,000 square metres or
greater and any individual outlet cannot exceed 2,500 square metres.
The subject lands are identified as "Protected Employment" lands in the CREL and the
proposed commercial development clearly qualifies as Major Retail which is deemed to be not
supportive of employment lands. The subject lands are in fact the prototypical "Protected
Employment" lands, having many of the attributes (preferred criteria) that are desirable for this
use. The lands are part of a viable and vibrant employment lands cluster that is well separated
from residential uses. The site has frontage onto two arterials roads, one of which (Homer
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Watson Boulevard) connects directly to Highway 401 and Highway 7/8. The site is also
immediately adjacent to a rail spur, the land is flat and this is the largest industrial property
remaining in the City of Kitchener.
The subject lands are identified as protected employment lands in the CREL. Staff is of the
opinion that the proposed redevelopment, which will include major retail uses, is not consistent
with the CREL as the lands will not remain as protected employment lands.
Regional Official Policies Plan (1998) and Regional Official Plan (2009 -adopted)
These applications are subject to the policies of the Regional Official Policies Plan (ROPP). In
June of 2009, Regional Council adopted its new Regional Official Plan (ROP) which reflects and
is consistent with the PPS and the Growth Plan. Regional staff has indicated that the ROPP
does not speak to conversion issues and so the Region relies on provincial policies in this
regard.
The New ROP is currently under appeal and is therefore not in full force and effect. However,
the applications were reviewed in the context of the new ROP policies, as these best represent
Regional Council's interpretation of the PPS and Growth Plan. In addition, the applicant's
supporting documents submitted with the applications also referenced the new ROP policies.
The ROP considers a retail commercial centre as "a group of stores planned and developed as
a unit and having a minimum gross leasable area of 10,000 square metres". As the application
under consideration is contemplating 28,515 square metres of commercial space, this
development would be considered a retail commercial centre under current ROP policy. ROP
policy 2.G.4 then states that "new retail commercial centres will be required to locate in Urban
Growth Centres, Township Growth Centres, Major Transit Station Areas, Reurbanization
Corridors or Major Local Nodes. These lands are not proposed for designation to a Major Local
Node in the (Draft) City of Kitchener Official Plan.
Consistent with the Growth Plan, ROP policy 4.A.3 encourages municipalities to designate and
preserve lands within the Urban Area and Township Urban Areas in the vicinity of existing major
highway interchanges, rail yards or the Region of Waterloo International Airport as employment
areas where appropriate. This site is located within close proximity to existing major highways
and is located adjacent to a major arterial road connecting to Provincial Highway 7/8 and
provincial Highway 401. In addition, these lands are also serviced by an existing rail line. Based
on these locational criteria, these lands meet the ROP criteria for lands that should be
preserved for employment uses.
It is staff's position that the proposed uses are contrary to the intent of the ROP and this is
supported by comments from Regional staff.
City of Kitchener Official Plan
The subject lands are currently designated General Industrial, which consists of a broad range
of industrial uses such as manufacturing, warehousing, technical/scientific businesses, and
uses that require large areas for the storage of goods. General Industrial areas are often
located in industrial parks and along arterial roads.
As part of the conformity exercise with the development of the New Draft Official Plan for The
City of Kitchener, the subject lands are proposed to the designated as General Industrial
Employment, which would protect these lands as a future employment area. The new Official
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Plan designation of "General Industrial Employment" would implement the Growth Plan policy
direction, as well as the direction in the CREL.
The General Industrial designation does permit some ancillary service commercial uses as The
Growth Plan recognizes the need for some ancillary commercial uses in employment areas.
Ancillary should be sub-ordinate to the primary function of providing employment and should
serve the direct needs of people working in the employment areas. It is staff's opinion that a
grocery store of approximately 4645 square metres meets the needs beyond those of the
employees that would be generated from this site. These buildings are not subordinate in scale,
are not ancillary retail and would therefore not conform to the existing General Industrial
designation or the proposed General Industrial Employment designation.
The applicant has proposed a Mixed Use Node designation for the subject lands. Typically, a
Mixed Use Node is located near or around major intersections of arterial roads and is intended
to serve an inter-neighbourhood function that will allow for intensive, transit supportive
development in a compact form. Mixed Use Nodes provide a balanced distribution of
commercial, multiple residential and institutional uses and are zoned accordingly. Generally,
nodes are developed with a built form that is pedestrian oriented and have strong pedestrian
linkages to the surrounding neighbourhoods. Often reduced parking is permitted in these areas
to encourage the use of transit, cycling or other means of transportation besides the automobile.
Certain retail uses such as grocery stores are limited to a maximum of 5000 square metres to
achieve the built form that is compatible with residential areas and that is pedestrian oriented.
This site is not a suitable site for a node and this has been reflected in the draft Official Plan.
Although the corner is at the intersection of two arterial roads, Homer Watson is a controlled
access Community Connector Road in the Regional Transportation Master Plan, which
connects to the 400 series highway and is therefore unlikely to be pedestrian oriented or transit
supportive.
In addition, nodes are generally areas that have a mix of residential and commercial/institutional
uses and the application for the subject lands includes no residential component to the
redevelopment. Development at a node is often more compact in form, and not the big box
format style retail with hundreds of surface parking spaces and a low density of persons and
jobs versus the large floor area of the commercial buildings.
The Mixed Use Node designation is not appropriate for the subject lands. The proposed
development is not mixed use, is not compact in form or pedestrian oriented and may
undermine the planned function of other Mixed Use Nodes in the vicinity.
Proposed Zoning By-law Amendment:
The subject lands are zoned General Industrial (M-2) with Special Use provision 22U which
allows metal blanking and pressing. The current zoning permits individual uses that are
collectively housed in a home builder's supply store, such as sale of motor vehicle accessories,
tools and business machines. This is because the zoning has not been updated to reflect the
current policy direction of the City, Region or Province. It is worthy of noting that many of these
uses currently permitted will likely not be permitted once the zoning by-law is brought into
conformity with the New Official Plan, as they are considered to be major retail. The Places to
Grow Act 14(2) provides that in circumstances where local official plans and zoning by-laws
contain provisions that are contrary to the policies of the Growth Plan and, despite such
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planning documents being in full force and effect, as is the case with the subject lands, the
policies of the Growth Plan take precedence over the planning documents.
The applicant is proposing to rezone the lands to Community Shopping Centre Zone (C-3) along
with the proposed Official Plan Amendment to allow for the Mixed Use Node. The Community
Shopping Centre Zone permits a broad range of commercial uses. This would not be the
appropriate zone at a Mixed Use Node as it does not encourage the desired intensification, mix
of uses and compact built form intended in a mixed use node. The C-3 zone also allows a car
wash and a gas station as permitted uses and due to the proximity of these lands to a well head
protection area, the uses would have to be prohibited through a special regulation.
AGENCY COMMENTS:
Commenting agencies and City departments provided their comments which are attached as
Appendix "E". The Region of Waterloo had substantive comments and concerns with this
application. Regional staff indicated that this application constitutes an employment area
conversion to "Major Retail" uses which are considered non-employment uses in the Growth
Plan and would therefore require a municipal comprehensive review. Staff at the Region
indicated that the ROP best describes Regional Council's position on the PPS and Growth Plan
which direct retail commercial centres to Major Local Nodes, among other areas, and this area
is not identified as a node in the new draft Official Plan. In addition, Regional staff stated that the
City of Kitchener had completed its municipal comprehensive review of employment lands
(CREL) and these lands were identified as a protected employment area and there was no
justification provided that demonstrated the need for the conversion. Regional staff
recommended that the lands remain in an employment area designation in the new City of
Kitchener Official Plan as the applications do not comply with Provincial policy and Regional
Official Plan policy.
In addition, Kitchener's Economic Development department staff expressed concern over the
loss of these prime employment lands to retail commercial uses. They indicated that once lost
to retail uses these lands would be difficult to replicate elsewhere in the City. If the City gives up
the potential to support industrial uses on this site, the City may give up further growth in our
manufacturing economy.
Other comments from internal city departments and external agencies generally had no
objection to the development. Comments were provided that site upgrades to accommodate
the development, such as road improvements, may be required at the site plan stage. A
capacity analysis for sanitary flows was requested and had subsequently indicated that there is
adequate capacity to service these lands for the proposed development. The GRCA Staff has
reviewed the servicing reports and have no objection to the development proposals. City Parks
Staff wanted confirmation that the subject applications would not impact the short and long term
leases on the Budd Park lands. It is staffs understanding that the long term lease with the City of
Kitchener will not be affected by these applications at this time and use of the park can
continue.
NEIGHBOURHOOD COMMENTS
As a result of the preliminary circulation of the Official Plan Amendment and Zone Change
applications, staff received one written response from a neighbouring property owner. (See
Appendix F). The concerns raised relate to the need for additional commercial space when the
neighbourhood convenience plaza across the road from this site struggles to keep the tenants in
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its buildings. According to the respondent, the proposed use would create unhealthy competition
with existing retail in area. There was support for medical offices, entertainment and food
manufacturers. The land owner also stated that without the employment use on this site, it is
difficult to sustain retail uses within the area.
Planning Analysis
Economic Development Objectives
The subject lands are identified in the CREL as a protected employment area and as one of the
largest remaining industrial properties within The City of Kitchener. Along with its proximity to
the 400 series Highway, Highway 7/8 as well as major arterial roads and the rail line, this site
has ideal locational and size requirements to be a protected employment area that would be
difficult if not impossible to replicate elsewhere in the City.
The applicant has proposed retail commercial uses for a portion of the subject lands. Major
retail uses are not considered appropriate in a protected employment area. While retail
provides an important role in the distribution of goods in the community, it does not export
goods or services from the community and therefore plays a secondary role in the economic
base. Also, retail uses generally provide lower value employment and have other locational
options not currently available to manufacturing businesses. Retail uses should be directed to
those areas of the city that are already designated to support these uses such as the mixed use
nodes and corridors where retail commercial uses including the grocery component is permitted.
Kitchener's Economic Development Department is also very supportive of retaining lands for
manufacturing uses and has been working with the property owner to market the property to
industrial end users. The retention of these lands for employment uses will provide future
support to our manufacturing economy, particularly industrial uses that require a large land
area. The long term benefits of maintaining or growing our manufacturing and export economy
far outweighs the short term benefit of retail sector jobs and new property tax revenue.
Land Conversion
Both the Provincial Policy Statement (PPS) and the Growth Plan for the Greater Golden
Horseshoe (Growth Plan) contain policies that are directly relevant to these applications. Both
documents define employment lands and specify the conditions under which employment lands
can be converted to non-employment uses. It is staff's position that the subject lands are
employment lands and that many of the proposed commercial uses represent a conversion to
non-employment uses, contrary to the PPS and the Growth Plan. Furthermore, the proposed
conversion is not supported by the City's Comprehensive Review of Employment Lands (CREL)
which was completed in 2010, specifically to address the employment land policy requirements
of the PPS and the Growth Plan.
There is no intention to complete another comprehensive review of employment lands until at
least 2015, and conversions are only permitted if supported by a comprehensive municipal
review. Given that the subject lands have so many attributes that are favourable for employment
uses, there is no expectation that a future comprehensive municipal review or an update to the
CREL, carried out in accordance with the current policy framework, would ever support a land
use conversion to non-employment uses on this site.
It is noted that the applicant submitted a study by Urban Metrics which concluded that given the
new manufacturing trends, coupled with supply of employment lands in Kitchener, the decrease
of 11.46 hectares for retail commercial purposes will not have a substantive impact on the City's
ability to meet future demands for employment lands. It is agreed that 11.46 hectares is a small
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area relative to the entire amount of lands identified as protected in the CREL (49.71 total ha).
However, this does not change the fact that the subject lands are part of a larger employment
lands cluster that have an excellent combination of attributes for employment uses.
The applicant has also provided supporting documents to demonstrate the need for the
proposed retail uses entitled "South Kitchener Retail Market Demand and Impact Analysis" by
Kircher Research Associates Limited dated January 17, 2011 and an "Employment Land Needs
Analysis" by Urban Metrics Inc. dated June 17, 2011. The retail analysis focussed on a limited
number of uses including a supermarket, and home improvement centre. It concluded among
other things, that an additional 250,000 to 300,000 square feet of retail and related service
space is warranted in the south Kitchener Area. Staff does not dispute this finding. Retail and
service uses have the potential to thrive at this location from a business viability standpoint.
This does not however, justify the need to convert valuable employment lands to satisfy this
retail market need, which could likely be satisfied elsewhere in the City in areas designated for
this use.
Impact on planned function of other areas
The proposed commercial development was not planned and there could be an impact on the
planned function of other areas, particularly areas that permit similar commercial uses. Planned
commercial areas in the general vicinity include developed sites such as the Mixed Use Nodes
at Pioneer Drive and Homer Watson Boulevard and at Blockline Road and Homer Watson
Boulevard and undeveloped sites such as the Mixed Use Nodes at Huron Road and Strasburg
Road and at Huron Road and Fischer Hallman Road. Because grocery stores are often the
anchors of these planned commercial areas, the continued viability of existing and approved
grocery stores could be negatively impacted by the proposed development.
The Kircher study, mentioned previously, concluded that additional retail and related uses,
including a grocery store, can be accommodated in the south Kitchener area without impacting
planned commercial areas. If this were the only outstanding question, the City would have
asked for an expert in this field of work to peer review the document for the City to ensure that
the methodology, calculations and conclusions are sound. However, the land conversion issue
and economic development considerations are deemed so significant that a peer review of the
Kircher market study was not requested at this time.
Site Development
Urban Design
The applicants submitted Urban Design Guidelines and a Concept Plan which depicts the vision
for the redevelopment of the site. The Urban Design principles suggested in this report
represent relatively good urban design although, due to the nature of the developments, a large
area is reserved for surface parking.
Servicing
In support of the applications, the applicant submitted a functional servicing report prepared by
Odan/Detech Group which concludes that the site is serviceable with sanitary, storm sewer and
water and has sufficient capacity to service the development and to provide for fire-fighting
purposes. Gas and hydro services are also available.
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Traffic
A traffic impact study was submitted with the development applications prepared by Lea
Consulting which indicates external roads will generally be able to accommodate the Phase 1
development with some upgrades/improvements. Homer Watson is aRegionally-controlled
access road and the details of the improvements necessary will be determined by the Region.
The report also details a number of improvements to accommodate the second phase of the
development, which would include the redevelopment of the industrial lands and are not subject
to these development applications.
ALIGNMENT WITH CITY OF KITCHENER STRATEGIC PLAN:
The City of Kitchener's Strategic Plan identifies Development as a strategic community priority.
Although development is an objective of the Strategic plan, the vision for the City is to be a well
planned community by managing growth and trying to attract specific types of growth even if it
means restricting some new developments. Re-development of this property could revitalize the
subject lands which have been vacant since 2009. However, the strategic plan also gives
priority to manufacturing and new employment opportunities. The proposed applications for
commercial uses will only provide short term gains and will not meet this objective of the
Strategic Plan.
FINANCIAL IMPLICATIONS:
The property has been vacant since the closure of the Kitchener Frame plant, and as a result
there has been no employment and reduced property tax revenue generated from the lands.
This trend will continue until manufacturing uses operate again on the site. The approval of
these applications and subsequent retail development may provide more immediate property
tax revenue and retail sector jobs, if the applicant's demand projections for these uses at this
location are realized. However, retail/commercial development would preclude new
manufacturing/industrial uses, which ultimately would add more value to the local economy, and
this opportunity would be lost on one of the best sites for this use in the City of Kitchener.
COMMUNITY ENGAGEMENT:
Preliminary circulation of the Official Plan Amendment and Zone Change was undertaken on
August 9th, 2011 to agencies and to all property owners within 120 metres of the subject lands.
As a result of this circulation, staff received a written response from one property owner. Notice
of these applications appeared in the Record on July 20, 2012. (See Appendix G).
CONCLUSION:
When staff initially met with the applicant and their consultants, scenarios were presented that
were in conformity with the CREL and the Official Plan, that included smaller scale commercial
retail and office uses. The applications submitted propose commercial retail uses in excess of
5000 square metres which are not ancillary uses to the Employment Area. The uses proposed
do not serve the needs of those employees in the immediate area, but are rather large scale
retail uses.
These applications propose the conversion of employment lands to non-employment lands. It is
staff's opinion that there are other more suitable sites in the city that have been identified in the
city-initiated municipal Comprehensive Review of Employment Lands (CREL) for conversion,
and that these lands should remain protected employment lands.
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The requested Official Plan Amendment and Zoning Bylaw Amendment are not in conformity
with the Planning Act, Provincial Policy Statement, Growth Plan for the Greater Golden
Horseshoe, the Regional Official Plan, the CREL study, the new Draft City of Kitchener Official
Plan for the City of Kitchener, or the City of Kitchener Strategic Plan and are contrary to the
current policy direction for employment lands. Planning staff recommend that Official Plan
Amendment application OP11/02/H/JVW and Zoning By-law Amendment application
ZC11/08/H/JVW be refused.
REVIEWED BY: Della Ross, Manager of Development Review
ACKNOWLEDGED BY: Alain Pinard, Acting Interim Deputy CAO
Attachments:
Appendix "A" Site Map
Appendix "B" Conceptual Vision Plan
Appendix "C" Growth Plan Excerpts
Appendix "D" PPS Excerpts
Appendix "E" Department/Agency Comments
Appendix "F" Neighbourhood Comment
Appendix "G" Notice of the Statutory Public Meeting
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Report 6da. CS®-12- t Q6
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Area Subject to Application
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Long Term Lease
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p,ppendix "C," -- I
c) 150 residents and jobs combined per hectare for each of the Do`
Downtown Brantford, Downtown Cambridge, Downtown Guel
Peterborough and Downtown St. Catharines urban growth centres.
6. If at the time this Plan comes into effect, an urban growth centre is already planned
to achieve, or has already achieved, a gross density that exceeds the minimum
density target established in Policy 2.2.4.5, this higher density will be considered
the minimum density target for that urban growth centre. ~
2.2.5 Major Transit Station Areas and Intensification Corridors a
1. Major transit station areas and intensification corridors will be designated in official ~.
0
plans and planned to achieve - ~'
f
a) increased residential and employment densities that support and ensure the
viability of existing and planned transit service levels
b) a mix of residential, office, institutional, and commercial development
wherever appropriate.
2. Major transit station areas will be planned and designed to provide access from
various transportation modes to the transit facility, including consideration of ~;~~
pedestrians, bicycle parking and commuter pick-up/drop-off areas. ~~~,,
~_~:.,
3. Intensification corridors will generally be planned to accommodate local services, ~~`~~~`~
including recreational, cultural and entertainment uses.
2.2.s Employment Lands
1. An adequate supply of lands providing locations for a variety of appropriate --
employment uses will be maintained to accommodate the growth forecasts in
Schedule 3.
2. Municipalities will promote economic development and competitiveness by -
a) providing for an appropriate mix of employment uses including industrial,
commercial and institutional uses to meet long-term needs
b) providing opportunities for a diversified economic base, including maintaining a
range and choice of suitable sites for employment uses which support a wide
range of economic activities and ancillary uses, and take into account the needs
of existing and future businesses
c) planning for, protecting and preserving employment areas for current and future uses
d) ensuring the necessary infrastructure is provided to support current and
forecasted employment needs.
Places to Grow -Better Choices. Brighter Future. Q Ontario
Report No. CSD-12- ~t~(v
Appendix «~~~ ._ 2.
3. The downtown Toronto office core will continue to be the primary centre for
international finance and commerce of the GGH.
4. Major o~ce and appropriate major institutional development should be located
in urban growth centres, major transit station areas, or areas with existing frequent
transit service, or existing or planned higher order transit service.
e3
a
3
a
d„t_:s3~3
- a
5. Municipalities may permit conversion of lands within employment areas, to
non-employment uses, only through a municipal comprehensive review where
it has been demonstrated that -
a) there is a need for the conversion
b) the municipality will meet the employment forecasts allocated to the
municipality pursuant to this Plan
c) the conversion will not adversely affect the overall viability of the employment
area, and achievement of the intens~cation target, density targets, and other
policies of this Plan
d) there is existing or planned infrastructure to accommodate the proposed
conversion
e) the lands are not required over the long term for the employment purposes
for which they are designated
urisdictional issues have been considered.
For the purposes of this policy, major retail uses are considered non-employment uses.
6. Policy 2.2.6.5 only applies to employment areas that are not downtown areas or
regeneration areas. For those employment areas that are downtown areas or
regeneration areas, Policy 1.3.2 of the PPS, 2005 continues to apply.
7. In recognition of the importance of cross-border trade with the United States,
this Plan recognizes a Gateway Economic Zone and Gateway Economic Centre near
the Niagara-US border. Planning and economic development in these areas will
support economic diversity and promote increased opportunities far cross-border
trade, movement of goods and tourism.
8. Through sub-area assessment, the Minister of Public Infrastructure Renewal,
in consultation with other Ministers of the Crown, municipalities and other
stakeholders will identify provincially significant employment areas including
prime industrial lands.
t S Q Ontario Growth Plan for the Greater Golden Horseshoe A
16
Report No. CSD-1 Z- ivw
Appendix "~" '' ?j'
9. Municipalities are encouraged to designate and preserve lands within settlement
areas in the vicinity of existing major highway interchanges,. ports, rail yards and
airports as areas. for manufacturing, warehousing, and associated retail, office and
ancillary facilities, where appropriate.
10. In planning lands for employment, municipalities will facilitate the development
of transit-supportive, compact built form and minimize surface parking.
2.2.7 Designated Greenfield Areas
1. New development taking place in designated greenfield areas will be planned, _
0
designated, zoned and designed in a manner that - ~
a
a) contributes to creating complete communities
b) creates street configurations, densities, and an urban form that support walking,
cycling, and the early integration and sustained viability of transit services
c) provides a diverse mix of land uses, including residential and employment uses,
to support vibrant neighbourhoods
d) creates high quality public open spaces with site design and urban design ~~°~~
standards that support opportunities for transit, walking and cycling. `=
2. The designated greenfield area of each upper- or single-tier municipality will be ~~}~
planned to achieve a minimum density target that is not less than 50 residents
and jobs combined per hectare.
3. This, density target will be measured over the entire designated greenfield area of
each upper- or single-tier rr~unicipalty; excluding.. the following features where the
features are both identified in any applicable official plan or provincial plan, and
where the applicable provincial plan or policy statement prohibits development in
the features: wetlands, coastal wetlands, woodlands, valley lands, areas of natural
and scientific interest; habitat of endangered species and threatened species,
wildlife habitat, and fish habitat. The area of the features will be defined in
accordance with the applicable provincial plan or policy statement that prohibits
development in the features.
4. Policy 2.2.7.3 is provided for the purpose of measuring the minimum density
target for designated green~eld areas, and is not intended to provide policy direction
for the protection of natural heritage features; areas and systems.
5. The Minister of Public Infrastructure Renewal may review and permit an alternative
density target for an upper- or single-tier municipality that is located in the outer ring,
and that does not have an urban growth centre, to ensure the density target is
appropriate given the characteristics of the municipality and adjacent communities.
Places to Grow -Better Choices. Brighter Future. ®Ontario 19
~.,~__~~-~ ~1 ~ -~
PROVINCIAL POLICY STATEMENT ~ ~
~ ~
~ ~s
~ o
~ ~
c) identify targets for intensification and redevelopment within all or any ~:
of the lower-tier municipalities, including minimum targets that should be met ~
before expansion of the boundaries of settlement areas is permitted in ~ ~
accordance with policy 1.1.39; p
d) where transit corridors exist ar are to be developed, identify density N
targets for areas adjacent or in proximity to these corridors, including minimum ,^,.
targets that should be met before expansion of the boundaries of settlement ~
areas is permitted in accordance with policy 1.1.3.9; and 6'
e) identify and provide policy direction for the lower-tier municipalities on matters
that cross municipal boundaries.
1.2.3 Where there is no upper-tier municipality, planning authorities shall ensure that policy
1.2.2 is addressed as part of the planning process, and should coordinate these matters
with adjacent planning authorities.
1.3 EMPLOYMENT AREAS
1.3.1 Planning authorities shall promote economic development and competitiveness by:
a) providing for an appropriate mix and range of employment (including industrial,
commercial and institutional uses) to meet long-term needs;
b) providing opportunities for a diversified economic base, including maintaining a
range and choice of suitable sites for employment uses which support a wide
range of economic activities and ancillary uses, and take into account the needs.
of existing and future businesses;
c) planning for, protecting and preserving employment areas for current and future
,w,ses; and
d) ensuring the necessary infrastructure is provided to support current and
projected needs.
1.3.2 Planning authorities may permit conversion of lands within employment areas to non-
employmentuses through a comprehensive review, only where it has been
demonstrated that the land is not required for employment purposes over the long term
and that there is a need for the conversion.
1.4 HOUSING
1.4.1 To provide for an appropriate range of housing types and densities required to meet
projected requirements of current and future residents of the regional market area
identified in policy 1.4.3, planning authorities shall:
a) maintain at all times the ability to accommodate residential growth for a
minimum of 10 years through residential intensification and redevelopment and,
if necessary, lands which are designated and available for residential
development; and
8
4-18
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4 - 35
Report No. CSD-12- ~O~O
Appertc4ix "~" --~
Juliane vonWesterholt
From: Eli Lubinsky (lubinsky@rogers.com)
Sent: Thursday, August 25, 2011 1:47 PM
To: Juliane vonWesterholt
Subject: Re: 1011 Homer Watson
Attachments: 1011Homer Watson Rezoning objection.pdf
Enclosed please our comments relating to the above captioned application.
Would kindly acknowledge receipt of this email and note our objection on record.
Sincerely
Kiryat Developments Inc.
per:
Eli Lubinsky, CA
19 Murray Road
Toronto, Ontario
M3K1 T1
(416)630-4600 Phone
(416)630-5753 Fax
lubinsky@rogers.com
The information contained in this a-mail is intended only for the individual or entity to whom it is
addressed. Its contents (including any attachments) may contain confidential and/or privileged
information. If you are not an intended recipient you must not use, disclose, disseminate, copy or print its
contents. If you receive this a-mail in error, please notify the sender by reply e-mail and permanently
delete the message.
From: "Juliane.vonWesterholt@kitchenecca" <Juliane.vonWesterholt@kitchenerca>
To: lubinsky@rogers. com
Sent: Thursday, August 25, 2011 1:26:20 PM
Subject: 1 ~' 1 Homer Watson
HeIIo Mr. Lubinsky,
You had requested that I contact you. You can certainly send me your comments
via email. My email address will be shown in you mail when you receive my
email. The fax number is shown below if you choose to fax me the comments.
TrLSting that this will be of assistance,
Juliane
Juliane von Westerholt, B.E.s., MCIP, RPP
Senior Planner
Community Services Department
City of Kitchener
200 King Street West
P.O. [iox 1118
Kitchener, N2G 4G7
(519)741-2776 (phone)
(519) 741-2624 (fax)
9izgi2o 11 4 - 3 6
Comments regarding: Official Plan Amendment OP11102/H/JVC
Zone change application ZC11/0814/JVW
1011 and 1111 Homer Watton Boulevard
Southwest corner of Homer Watson and Bleams Road
Report No. CSD-12- ~ (?(~
Appendix " ~" -
We are the owners of the plaza located on Bleams road (approximately 15 acres)
situated directly across the subject property.
-We strongly object to a change from M2 to a change that permits - "any -restaurants,
gas bars, or other such neighborhood service uses. This would be contrary to the
original planned uses and would only serve to eliminate existing neighbouring tenants in
favour of a larger enclosed self serving development.
We developed this our lands in 1981 and have been the owners since.
Our site was selected primarily due to its proximity to the Budd's manufacturing plant
and nearby industrial plazas. Our development complied with the intended zoning and
needs of the community.
We paid a premium price for the land given its permitted uses and proximity to the
surrounding draw.
During the course of the 30 plus years, we have seen an unusual increase in changes to
commercial zoning within the 3-5 mile radius. This has resulted in an abundance of
gasoline retail outlets, restaurants, and other retail type uses -causing business
failures striving for a shrinking consumer base..
Within the last few years the major draw being the Budd's closure has been devastating
to our tenants and to neighbouring plazas.
We have had an unusual failure of Noley's restaurant, Kebab House, Walesa meat, etc.
The variety store has suffered including the reduction in sales of Taka restaurant. Our
most recent tenant A&W has fell well short of its projected sales.
Given the gradual reduction of the workforce in the Budd's plant over the years coupled
with the ever increasing commercial property taxes has made it difficult to retain tenants
Over the past few years we have anxiously and patiently awaited the return of the 1500
plus employee workforce to ensure tenant survival. The proposed request for zoning
change will hinder rather than help relieve the existing situation.
We believe that the intended use of the subject land be retained as M2.
We are not adverse to allowing industrial retailers of a "box" nature.
We encourage office., medical, entertainment, and. recreational type uses....
However:
- 'We hope that this purchase was not a back door ploy to obtain yet another
commercial zoning as apposed to providing a development consistent with the intended
plan and needs of the community.
The community needs uses to encourage skilled labour and facilities that provide much
needed infrastructure services -medical, education, recreational, production and
research. We do not need another neighbourhood plaza. There is insufficient
consumers to fill the existing established retailers.
In lieu of restaurant - possibly a food manufacturer or distributor.
In lieu of grocery stores -daycare facilities, educational facilities, etc.
We are hopeful that any effort to introduce the aforementioned neighbourhood
commercial uses be absolutely declined and more effort be made to comply with the
existing intended uses.
Kiryat Development Inc.
19 Murray Road
Toronto M3K 1T1
Per: Eli Lubinsky
phone 416-630-4600
fax 416-630-5753
Email lubinsky@rogers.com
4 - 37
Report No. CSD-'! 2- I O~
Appendix "~"
Placed in The Record -July 20, 2012
PLANNING MATTERS:
PROPERTY OWNERS AND INTERESTED PARTIES ARE INVITED
TO ATTEND A PUBLIC MEETING TO DISCUSS
PROPOSED AMENDMENTS TO THE KITCHENER OFFICIAL PLAN AND ZONING BY-LAW
UNDER SECTIONS 17, 22, & 34 OF THE PLANNING ACT
1011 Homer Watson Boulevard
The City of Kitchener has received applications for an Official Plan Amendment and Zone Change proposing the
re-development of 11.46 hectares in the northwest corner of the site for a broad range of commercial retail uses
including a grocery store. The subject lands are designated General Industrial in the City of Kitchener Official Plan
and are proposed to be designated Mixed Use Node. The lands are proposed to be rezoned from General
Industrial (M-2) with Special Use Provision 22U to Community Shopping Centre Zone (C-3) to implement the
proposed re-development.
The public meeting will be held by the Planning & Strategic Initiatives Committee, a Committee of Council
which deals with planning matters on:
MONDAY, August 13, 2012 at 7 PM
COUNCIL CHAMBERS, 2"d FLOOR, CITY HALL
200 KING STREET WEST, KITCHENER.
Any person may attend the Public Meeting and make written and/or verbal representation either in support of, or
in opposition, to the above noted proposal. If a person or public body that files a notice of appeal of a
decision, does not make oral submissions at this public meeting or make a written submission prior to
approval/refusal of this proposal, the Ontario Municipal Board may dismiss all or part of a subsequent
appeal.
ADDITIONAL INFORMATION is available by contacting the appropriate staff person noted below, viewing the report
contained in the meeting agenda (available at www.kitchener.ca on the Wednesday evening prior to the meeting -
King Street West,
8:30 a.m. - 5:00 p.m. (Monday to Friday).
Juliane von Westerholt, Senior Planner - 519-741-2776 (TTY: 1-866-969-9994),
juliane.vonwesterholt@kitchener.ca
4 - 38