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Home My WebLink AboutCSD-12-134 - Addendum to CSD-12-106 -1011 Homer Watson Blvd (Kitchener Frame)Staff Report Kl~rc,H~:r~'~:R Commcrnrry Services Department www.kitthenerta REPORT TO: Planning & Strategic Initiatives Committee DATE OF MEETING: September 24, 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: August 30, 2012 REPORT NO.: CSD-12-134 (Addendum to 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) .~, -. __, ` 5~ 1 S (~ \ ~ \\ \~ \~ CJ g~~p,M D ubject Property Q tea Subject t Offical Plan ~ .. h A e `n nd Zone hange ~ N O '1 a a ~ 2 D `/ RECOMMENDATION: For information. 1- 1 REPORT: Background On August 13t", 2012 staff presented Report CSD12-106 to the Planning and Strategic Initiatives Committee. The report recommended refusal of the applications for Official Plan Amendment and Zone Change on lands at 1011 Homer Watson Boulevard. The applicant's consultants made a presentation in support of the applications. After the presentations, a number of questions were raised by the Committee. The applications were deferred to allow staff an opportunity to respond back to the Committee on the presentation made by the applicant, to consider whether staff's opinion about the applications would differ should the development be re-oriented to front onto Bleams Road as opposed to Homer Watson Boulevard, and to provide clarification on some terminology used in the Provincial Policy. The Committee also requested staff to obtain cost information associated with conducting a peer review of the South Kitchener Retail Market Demand and Impact Analysis prepared by Kircher Research on behalf of the applicants in support of their applications. Response to applicant's presentation The applicant's consultants submitted a very detailed presentation in support of their application to the Committee for their consideration. As this was a significant amount of new information to the Committee that was received the afternoon of the meeting, the Committee wanted staff to have an opportunity to review the material and provide a response to the statements made in the presentation. A detailed review of each slide of the presentation was conducted by staff and the responses thereto are attached as Appendix "B". Reorientation of the Proposal along Bleams When staff initially met with the proponent about their redevelopment intentions, staff indicated that small scale retail service uses that were oriented along Bleams Road might be supported as these would mirror similar uses located on the north side of Bleams Road in the neighbourhood scaled plaza. Staff support of this was based less on the location of the uses than the scale of the proposed retail service uses. The intent of the CREL is to allow ancillary commercial uses that support industrial uses and are of a scale that is smaller than 5000 square metres, with individual retail outlets within a plaza not exceeding 2500 square metres. The applicant is proposing 28,515 square metres of retail commercial space. A commercial development of this scale will become a primary destination and will draw people to the site from beyond the immediate area as opposed to the supportive planned function of the commercial uses permitted by the CREL. The proposed development would not be supported by staff regardless of the orientation of the uses along Bleams Road if the scale of the development remains the same as this does not meet the objectives of the CREL, the Provincial Policy Statement, the Growth Plan or the Regional and City Official Plans. This would still constitute a conversion of employment lands that have been identified through a municipal comprehensive review for protection. It would also be important to note that development along the Bleams frontage may frustrate the efficient use of the railway access. In short, re-orienting this development at this scale would not be supported by staff if the scale of the commercial development remains unchanged. 1-2 Clarification of Provincial Policy Terminology Some specific questions on some of the terminology referenced by the applicant's consultant will be clarified in the section below. Employment Area The Growth Plan and the PPS define an Employment Area as an area 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. Employment This term is not defined in the Provincial policies but references are made in 2.2.6.2 a) of the Growth Plan which lists a mix of employment uses including industrial, commercial and institutional uses to meet long term needs. Regeneration Areas This term is not defined in the Provincial policies but is referred to in Policy 2.2.6.6. It is generally accepted that regeneration refers to areas in a municipality that have been identified as being suitable for redevelopment to a use other than the current permitted industrial use because industrial uses are no longer viable or desirable in a given area. These areas are called Community Development Areas in The City of Kitchener's Official Plan. An example of this would be the 1 Adam Street site which was a Community Development Area that was identified in our Official Plan as an area where re-development to a use other than industrial is promoted. Other industrial lands identified in the CREL as being suitable for conversion (Warehouse District and industrial properties near Schneider Creek in the Central Transit Corridor) are candidate regeneration areas. Conversion Although not defined in the policies either, the term is referenced in Section 2.2.6 of the Growth Plan and is used to describe a change in a designation of employment area lands to a non- employment use. The applicants are claiming that commercial uses are employment uses and therefore there is no conversion. City staff is of the opinion that this is a conversion of employment lands and the policy is clear that in employment areas, major retail uses are not considered employment uses and therefore a change in land use designation to allow major retail such as that proposed by the applicant, would constitute a conversion and would therefore require a municipal comprehensive review. The City just completed the municipal comprehensive review in 2010 (CREL) and has no intention to do another review until 2015. Major Retail Major retail is not defined in the Provincial policies or in the ROP. Major office is defined in the PPS and the PTG as freestanding offices of 10,000 square metres or greater, with 500 jobs or more. This similar approach was taken by City staff to define major retail in the CREL. A retail development of 10,000 square metres or greater would permit a large grocery store or department store. The CREL defines major retail as retail uses over 5000 square metres or more. The CREL also restricts other individual retail outlets to a maximum of 2500 square metres in order to ensure that these uses maintain a supportive role to the industrial or employment use. Cost estimate for Peer Review of Retail Demand and Impact Analysis The Committee requested that staff provide cost estimates for the peer review of the Kircher Report, should the City decide to retain a consultant. Staff prepared a Request for Quote for the Peer Review of the Retail Demand and Impact Analysis that was sent out to seven known 1-3 consultants in the field of economics and retail analysis that had no conflict of interest. Seven consultants responded to the City's Request for Quotes. Based on the responses received, the cost for a peer review would be in the range of $6,000.00 to $15,000.00 dollars not including HST. It is important to note that these figures are estimates that cannot be finalized as the details of a work plan have not been determined, as the City has not yet decided whether they will engage the services of a consultant for this work. There may be incidental fees that may also need to be considered, such as attendance at Council meeting(s) if required. Also as there is a cost range provided, this does not ensure that the lowest bid on the work will be the successful consultant team if the City proceeds with the peer review. Preliminary timelines for the completion of this work was estimated at between 4 to 6 weeks. It is noted that the staff recommendation would remain the same irrespective of the outcome of the peer review. FINANCIAL IMPLICATIONS: In addition to the financial implications mentioned in Report CSD12-106, there may be legal costs associated with Ontario Municipal Board proceedings should the applications be appealed to the OMB. Also, depending on whether Council decides to retain a consultant to conduct a peer review of the Retail Demand and Impact Analysis and associated costs of the peer review. CONCLUSION: This report has been provided by staff as information and clarification of issues that were raised on August 13, 2012. Staff's recommendation of refusal discussed in CSD 12-106 remains unchanged. Staff is of the opinion that 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 for large scale commercial development and that these lands should remain protected employment lands. 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. REVIEWED BY: Della Ross, Manager of Development Review ACKNOWLEDGED BY: Michael May ,Deputy CAO Community Services Department Attachments: Appendix "A" Report CSD-12-106 Appendix "B" Response to Applicant's Presentation (includes Slides 1-24) 1-4 Staff 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) .~~, .- __~ ` ,} 5ti (~ 1 ~ \\ ~\~ \~ e~-~PMS D ubject Property ® tea Subject t Offical Plan A e m nd Zone hange ~ l N ~ '~ _~ a Q ff _ ~- d 1-5 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 1-6 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. 1-7 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. 1-8 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 1-9 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 1-10 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 1-11 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 1-12 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 1-13 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. 1-14 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. 1-15 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 1-16 Report 6da. CS®-12- t Q6 Appendix `%~, '~ ~~Subject Property Area Subject to Application ® Short Term Lease City Owned Property Long Term Lease 0 100 200 Meters 1-17 '`. - ~~ RETAIL ~ v: 1 ~+ ~ ~~ ~ ~-~ INDUSTRIAL ~~ ~£ ~` _~~, ~~w_ .~ REFERENCE: Proposed buildings ba: Ftep®~t rv®. cs®-~2- ~p~ Appendix "~" lines &;Demo Concept Plan N O`=, o' 2 'm `v 1-18 Report No. CSD-12- ! ®~ 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 ~ ~ '10 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 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 1-22 ~~ m Q7 Y O~ O~ T 'O ~ m Q m ~ N C 3~~~ N O m m- o m a rn. 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N F (~ vM1 c cn~\SG ~ Y 4-LL. 111 It Vf F ~ ~ -~ ~ -O. in V y ~ a QU Na Ya LLE- - A i lL V} F 1-39 N " N G~ 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) 9izgi2o11 1 - 40 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 1-41 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 1 - 42 Appendix B- CSD-12-134 Response to Kitchener Frame Presentation Planningand Design Slide 1 • The proponent is describing the requested Official Plan and Zone Change Amendments as a catalyst to the regeneration of the site and stresses that only 28.31 acres of the larger 121 acres site is subject to the applications. • While staff agrees that just a portion of the lands are subject to applications, the lands are protected employment lands and should not be converted as these are integral to a larger employment area and are ideally situated for employment uses. • Regeneration is a term, although not defined in the PPS or Growth Plan that is used to describe when a site is no longer suitable for the use that it was originally designated for, and requires a new designation to stimulate its re-development. • Staff is of the opinion that these lands have been and continue to be well suited for industrial uses and that regeneration is not appropriate here. Regeneration areas are identified in Kitchener's Official Plan as a Comprehensive Development Area. These areas are no longer suitable for industrial uses and therefore these sites area considered appropriate sites for land conversion and new development. • The CREL made recommendations for additional lands to be converted and available for redevelopment. They have not been re-designated yet as this will be done as part of the Official Plan Review which is still ongoing. • In staffs opinion, this site could still be redeveloped for industrial uses and to justify a conversion of employment lands simply to act as a catalyst of industrial re-development is not sufficient to rationalize the need for the conversion. • This is also not like other areas of the city where it was considered appropriate to use former industrial sites for other uses such as Kaufman Rubber Plant (lofts) or the Uniroyal Plant (School of Pharmacy) 1 Adam Street and Glasgow Street (remain undeveloped although application recently approved for 1 Adam the latter two sites are Community Development Areas in our Official Plan). Slide 2 • Many of the original buildings on the site have been or are in the process of being demolished, so it appears as though there will be little opportunity to use existing buildings as only one office building is still remaining. 1 - 43 Appendix B- ~„ CSD-12-134 Slide 3 • Staff has no issue with the 67 acres that are being redeveloped for industrial uses. Slide 4 • With regards to the overall proposed conceptual layout of the site as a campus complete with a road and multiple blocks for redevelopment, staff has no issue as the proposal appears to apply good urban design principles. Slide 5 • In staff's opinion the Provincial, Regional and local policies are not being respected as this request for re-designation constitutes a conversion of employment lands which can only be done after a municipal comprehensive review. Staff has a difference of opinion than that of the proponent on this issue. • While the application was complete with all the supporting information, staff is of the opinion that the need to convert a portion of these lands from employment uses to commercial uses was not justified and requires a municipal comprehensive review, which is not scheduled until 2015, as one was just completed in 2010. • While Section 3.3 of the Official Plan contemplates the possible introduction of new mixed use nodes, the city recently completed its CRIA project which studied the existing intensification areas within the city comprising the mixed use nodes and corridors and made recommendations as to where to designate new areas for intensification. The Fischer Hallman Corridor is a new Mixed Use Corridor. It was determined that a new node at Bleams Road and Homer Watson Boulevard was not desirable, as it did .not meet some of the locational criteria for a new node. This was discussed in our staff report on page 7. • Staff had. not conducted a retail commercial analysis to determine the need for these uses or to assess the impact of an additional node on the planned function of existing nodes in the area, as there were other issues around the conversion of these employment lands that were so significant that assessing this was secondary. If determining whether retail uses such as those proposed are needed in south Kitchener was the only issue, then a peer review would likely have been done by the City. • The CREL identified a surplus of employment lands and indicated that the city could meet its employment needs until 2029. The CREL also identified areas within the city that were appropriate to convert to non-employment uses and this 1 - 44 Appendix B-3 CSD-12-134 was not one of those areas as this was recommended for protection for future employment uses. • The additional 27 acres that could revert back to employment lands if Budd Park leases were terminated is an unknown at the present time in terms of the timing. This may take several years to come to fruition. Slide 6 • Staff has no specific comment about this slide. The site concept appears well planned however, this area was not contemplated for a future mixed use node during the recent Official Plan Review process. Slide 7 • The uses listed by the proponent are permitted in the M2- General Industrial zone. The proposed retail commercial use is not a permitted. use. The proponent is suggesting that all uses that they -are requesting are permitted today. The proposed home improvement store is considered a retail use, even though some to the items sold may be uses individually permitted in the zoning today. • The grocery store is also retail which is not currently permitted in the zoning. • The CREL permitted a limited amount of commercial -uses under 5000 square metres in size and uses that are incidental or ancillary to the employment uses. This means that the retail will serve the immediate employment area users. The proponent is proposing to create retail uses of a size that will draw people to the site, thus suggesting that the use is not incidental to the employment use, but a principal use on its own that is an incentive for people to come from a broader area to the site. • Major Retail uses are a form of employment, but they are not considered appropriate uses for employment .areas within the current Provincial Policy Framework. This site is a protected employment area and major retail uses such those proposed would not be appropriate for this site. • With respect to the tax benefit, staff has discussed this in the staff report on page 9. The development may provide more tax revenue than what the vacant site is now generating. The benefits of having primary industries in a community would better serve the local economy in the long term. Slide 8 • Staff does not. agree with this statement as discussed in the staff report it is staff's opinion that the applications before the Committee and Council do not conform to current Provincial, Regional or City policy direction. 1 - 45 Appendix B- ~- CSD-12-134 2005 Provincial Policy Statement Slide 9 • Section1.3.1 is appropriately referenced from the PPS and commercial uses are listed among employment uses. However, the policy goes on to say that employment areas are to be protected for current and future uses. • Employment Area is defined in Places to Grow as "Areas designated in an Official Plan for clusters of businesses and economic activities, including but not limited to, manufacturing, warehousing, offices, and associated retail and ancillary uses." • The proponent has not proposed retail uses that are associated or ancillary to the main employment (industrial) use, but rather has proposed retail uses that because of their scale, will be drivers of the re-development of the remainder of the site and will draw people to the site as opposed to serving the needs of the local immediate area. • Major retail uses are considered non-employment uses by the Places to Grow - Growth Plan Section 2.2.6.5 • The relevance of previous OMB cases is not clear and does not influence staff's analysis and recommendations. • Staff has a difference of opinion as staff feels this is a conversion under the 2005 PPS and this is for the OMB to determine. Slide 10 • The relevance of the case law is not clear. At any rate, case law is not an overriding consideration. Each case is reviewed on its own merits (hearing de novo) and the circumstances to this site may be different than the sites mentioned in the case law. Retail versus Industrial Employment Slide 11 • The relevance of this case is not clear. At any rate, case law is not an overriding consideration. Each case is reviewed on its own merits (hearing de novo) and the circumstances to this site may be different than the sites mentioned in the case law. 1 - 46 Appendix B-)r CSD-12-134 Growth Plan Slide 12 • Only subsection 2.2.6.2 a) is being referenced by the proponent and the entire section 2.2.6.2 is applicable including c) which directs municipalities to plan and protect for employment areas. • Staff also disagrees with the proponent that this site constitutes a conversion of employment lands and therefore 2.2.6.5 applies and this section specifically states that major retail is considered anon-employment use. Slide 13 • Major retail is not permitted in this zone. The M2 zone on the site does not permit free standing retail uses and would therefore be a conversion. Many of the uses that are currently permitted in this zone will not likely be permitted once a conformity exercise is completed as part of a comprehensive review of the Zoning By-lavv following the adoption of the new Official Plan. Major Retail Slide 14 • The relevance of this case is not clear. At any rate, case law is not an overriding consideration. Each case is reviewed on its own merits (hearing de novo) and the circumstances to this site may be different than the sites mentioned in the case law. Slide 15 • This site is not in the downtown, nor is it a regeneration area (Community Development Area) and not identified as suitable for. conversion in the CREL. Therefore, staff feels that 2.2.6.5 of the Growth Plan applies and this would constitute a conversion from employment area uses to non-employment area uses (major retailj. Staff has a differing opinion than the proponent as to whether this is a conversion. Staff is of the opinion that certain. policies apply whereas the proponent feels they do not apply. 1 - 47 Appendix B-~ CSD-12-134 Employment Land Needs Slide 16 • The slide states that many of the uses proposed for the site are permitted in the M2 zone with the exception of retail commercial uses. This is a point of clarification as the proponent indicated that many commercial uses are permitted and commercial retail is not permitted in the current zone. Also, many of the permitted uses today may not be permitted in the M2 zone once the Official Plan review is completed and the zoning by-law is brought into conformity with the New Official Plan. Slide 17 • The City's study of employment lands, the CREL, did indicate a surplus in employment lands and had identified areas for conversion. This was not one of the areas identified for conversion, but was rather intended for protection as it has all the attributes that make it attractive for employment uses. Slide 18 • Staff does not dispute these benefits of the proposal, but feel that these may be short term and not long term benefits to the local economy. Slides 19 & 20 • No comment or disputes on the proponent's findings. The Staff recommendation gave more weight to other considerations. Retail Demand and Impact Analysis Slides 21 to 24 • No comment on the proponent's findings as we have not done a peer review of this work. Staff has been directed to find cost estimates to have this work done. It is noted however, that the staff recommendation would remain the same irrespective of the outcome of the peer review. 1 - 48 FI>;v:5ED CC!.YJ.EFC~Al~28'vt ACPES O E%~STiM^. iHDUSTPiAL-6].36 AGFES ~cP"eEh SPACE-2].14ACPE5 SITE PLAN PHASE IIII ~G*„~?gETE OEVEi~?th'eNT • OPA & ZBA to permit the development of medium size commercial centre at the corner of Hamer Watson & Bleams. The amendments are a necessary step in a broader strategy to establish a showcase mixed use district in this area. • The plan would not only create a new commercial centre but facilitate and expedite the regeneration and revitalization of close to 70 acres of industrial land currently constrained by the encumbrances inherent in the former automotive plant land use. • While Council is being asked to consider an amendment to only 28.31 acres of a site in excess of 121 acres, your support for our submissions, will be the catalyst for the creation of a significant municipal resource. S~tO~.~t; - r, 5~-t DE's 2 1 - 49 t • Site Design Characteristics: - High quality of finishes such as Architectural Block, Brick, Metal and Stucco on Buildings. - Main entrances generally oriented towards the street or flanking the street where possible - Building features at key corners to emphasize prominent street intersections. - Smaller buildings oriented at the street - Parking broken up into smaller pools within the site. - landscape islands and walkways are incorporated into the parking areas to further break up large areas of parking and reduce the heat island effect. Suoe~4• 1-50 • Development and marketing of over 67 acres of revitalized and fully serviced employment lands. SITE PLAN PRASE IIfI ~~: GOR4PLETE DEVELQPMENT J/ (_..(OC ~. 3 ' TURNER FLEISCHER du~rai; anz +cRCKer~:a+r. • Provincial Policies, and Regional and local Official Plan goals and objectives are respected. • Location, design and need issues have all been justified in our submission materials. • Questions raised by staff are properly addressed in our submission. • Kitchener Official Plan; in Section 3.3, contemplates the possible introductions of new mixed use nodes and sets out the informational requirements to assess such requests. • Our submissions are a comprehensive response to those requirements and effectively demonstrate the proposal is needed, compliant, and beneficial. • Staff submission do not quantify the alleged impacts on other existing or planned nodes nor the comparative value of various job categories. • City study clearly demonstrates an abundant supply of employment lands. Regional policies do not include these lands as their Prime Industrial Strategic Reserve for Employment Lands designation. • The proposal protects over 67 acres for employment land uses with a further 27 acres available should the City relocate the park and recreational facilities currently operated at Budd Park. This represents many years of industrial land resources based on historic employment land consumption rates for this site alone. `.rPAOPOSED COMMERGAI.--28.37 ACP,ES EXISTING INDUSTAIA~.-67.36 ACRES ®GREEN SPACE-27.i5ACRES SLt DE ~`S • The development as proposed will, site specifically, be mixed use in nature, including commercial, service, office, industrial and open space land uses. While residential is not proposed on the subject lands they will service existing as well as emerging neighbourhoods and therefore function as an efficient mixed use node as envisioned by the Official Plan. • The site concept has been carefully planned to promote strong pedestrian features, allowing for well integrated transit services, integration of various land uses and a high degree of contemporary urban design elements. We believe through subsequent plan of subdivision and site plan approval processes, these features can be further refined to ensure full compliance with the goals and objectives of the mixed use node policies of the Official Plan. LIDE~(, 1-51 • Sample of uses permitted under current M-2 Zone: - Building material and Decorating Supply Sales - Carwash - Commercial Recreation - Day Care Facility - Educational Establishment - Garden Centre and Nursery - Health Clinic/Office - Office - Sale, Rental or Service of Business Machines and Office Supplies - Automobile Dealership - Surveying, Engineering, Planning or Design Business - Financial Establishment - Gas Station - Religious Institution c ~ ~ n c ,x.'~, The proposal before this Committee and Council represents an opportunity to develop a showcase mixed use area which will develop comprehensively and maximize the overall value of the land resource to the City of Kitchener in a balanced, thoughtful manner which complies with and implements Provincial, Regional, and Local land use policies. The existing zoning on the entire site already permits a notable range of the uses contemplated by our proposal. The proposed amendment will simply allow for a superior execution of this commercial precinct, ensuring maximum benefits with respect to employment, taxes, and service to both the nearby residential neighbourhoods and the broader industrial area. Furthermore it will remove the market pressure for the remaining land to develop for non-industrial uses as permitted in the zoning and provide the best opportunity for them to deliver traditional employment uses. 1-52 ;~ PE~,,,.EO~=ES .._ Es~vaaE~.~.~o.oEww,n~~ • OMB has repeatedly interpreted "employment" under the 2005 PPS as including retail and service commercial uses. • The subject proposal does not constitute a "conversion" under the 2005 PPS. SLIDE ~~ • The intention of the Provincial planning system is to optimize the use of land, resources and public investment in infrastructure and public service facilities. • OMB found that this intention is better achieved by fostering industrial and commercial development in business and economic "clusters" rather than through the segregation of employment uses into higher-order versus Lower-order uses. 5~! bE ~ [o, 1-53 • Section 1.3.1(1) references "employment" as including industrial, commercial and institutional uses (commonly referred to as "ICI" uses). • North American Acquisition Inc. a Barrie (City), [2006] O.M.B.D. No. 1183 (Former Molson Park) • "Any comment on the nature of j°etail employment and its qualitative aspects, if it is to be taken even half seriously, must acknowledge both the subjectiveness of the topic as well as its own value-laden underpinnings. For all of the above reasons, the Board will not contribute to the stigmatization or denigration of retail employment by making any ruling on its nature and qualitative aspects." • -Unless otherwise directed by Provincial policies, a iob is a job. 5~t DE ~ (( . • Retail and service commercial jobs are included in-the Growth Plan's Schedule 3 "Employment" numbers for the Greater Golden Horseshoe. • It is only in the situation of a proposed "conversion" from employment land to non-employment land that "major retail uses" are defined to be "non-employment". • In all other situations, retail jobs are employ. ~pE 3~t2 1-54 • Sma~tCentYes Inc. a Toronto (City), [2009] O.M.B.D. No. 202(Eastern Avenue) • Section 2.2.6.2: "Municipalities will promote economic development and competitiveness by - a) providing for an appropf°iate mix of employment uses including industrial, commercial and institutional uses to meet long-term needs." • Section LL "This Plan does not j°eplace municipal Official Plans, but works within the existing planning f amewo~°k to provide growth management policy direction for the GGH". • Ministry of Public Infrastructure Renewal, Planning for Employment in the Greater Golden Horseshoe,2008: "The Growth Plan clarifies that where major retail is not ab°ead~permitted in an employment area, it is considered a conversion of useand must meet certain policy tests before a conversion can occur°" • The Growth Plan does not require employment areas to be purged of their existing retail permissions. • Staff acknowledge that this site is presently zoned for retail uses (pg. 7). Sit DC# l3 • Section 2.2.6.5 of the Growth Plan only applies where the permission fora "major retail use" is not already "established, authorized or contemplated." • If a development proposal is seeking to implement (in whole or in part) an existing retail permission, it is not a "conversion". • To the extent the within proposal is implementing retail and commercial uses already "established, authorized ar contemplated" for this site, the proposal is not a "conversion". Su~~ ~'~ 1-55 • City of Toronto a Home Depot ~oZdings Inc., 2010 ONSC 6071 (Ont. Div. Ct.). • Section 2.2.6.6: "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 o~ regeneration areas, Policy 1.3.2 of tl7e PPS, 2005 continues to apply " • "Regeneration area" is not defined by the Growth Plan. • Subject site should be deemed to be a "regeneration area" and therefore exempt from the Growth Plan's conversion policy. • As discussed, this proposal complies with Policy 1.3.2 of the 2005 PPS. Su~~ts. • Purpose- to evaluate Kitchener's employment land needs and the suitability of the Kitchener Frame site for mixed use development, including 11.5 hectares of retail commercial • Only 23.0% of the site will be retaiUservice uses, with the balance remaining as new industrial employment uses • The site is currently void of productive uses and unmarketable in its current state to a new occupant Many of the commercial uses proposed are already permitted, and the entire 11.5 ha could be developed as commercial under the current designation • The City's own employment land needs study concludes that there is sufficient employment land to meet the City's needs to 2029 and well beyond. We agree and in fact used many of the City's inputs in our analysis. • The City's analysis indicates that there is excess capacity for employment on employment land of more than 17,000 jobs by 2029 • Our own analysis though more optimistic confirms this surplus Sit pE,~- t~, 1-56 • Why this surplus? - relative decline in the manufacturing sector - a shift towards more advanced forms of manufacturing, with less land required - diversification of regional economy to businesses that do not need employment land - more demand for office type and supporting uses • The Gity's own study confirms these trends • Over last 8 years almost no absorption or development of manufacturing space • In fact, the City report forecasts that the amount of available employment land will actually increase as existing businesses close • It appears that any recent industrial development has been located near Breslau/Region of Waterloo Airport • The Benefits of the Subject Proposal - immediate initiation of development on an underutilized site - provision of infrastructure to help initiate development of the entire property - enhanced commercial service to a currently underserved community - a catalyst for development of the remainder of the site - synergy of uses proposed, creating an attractive competitive advantage - over 2,300 new jobs - a balance of job opportunities are important to any municipality sic DE ~ 19 . 1-57 36.1 cenario3-,Newil;es@ndustrial,Offi_eandRetal) ,; ,. '. 1,164,867'" ~./;,. ...'500= -.. `2'3z9'`'., Industrial2 761,410 -/ Ell = 1,246 ~ Office 95,400 / 305 = 313 s Retail 308,057 / 400 770 17.6 46.7 'Areas based on the following: Scenarios i & 2: known floor area of existing industrial facility on subject site. Scenario 3: floor areas of proposed redevelopment concept buildings. Industrial employment de nsity fortaditional employmenC uses based on known employment and floor area of Thyssenkrupp Budd Canada Inc. facility when fully operational in 2004. alndustrial empl oymen[ density for distri6u[ionarid ware housing type employment uses basetl on conservative urbanMetri cs estimate. °Offi<e employment densiTy based on estimates from SGS Economics and Planning. "ftetail em ployment density ba sod on International Council of Sh opping Ce nter(1 CSC) estimate of 2.5 employees per 1,000 square feet of retail space. S~-1 t7E'3~ t4 Building PermitFees $ 1,047,459 $ - $ - $ Development Charges $ 1,758,949 $ 6,278,633 $ - $ Property Tax $ - $ - $ 818,008 $ 1,230,110 TOTAL $ 2,%2,523 $ 6;278,633' J$ 818,008 $ , 1,230,110,: TOTALlNITIALBENEFtT: $ 9,241,156 TOTALANNURLBENEFlT: $ 2,048,118 SOURCE'. urbanMetr:cs inc 'AII initial benefit estimates based on Cny of Kitchener antl Region of Waterloo rates for site plan approvals, building pemi[s, and development Charges- Floor areas used in conjunction with these rates were based on the proposed devleepment concept for the site- `Fnnualbenefits are based on City of Kitchener and Region of Waterloo grope rty tax rates, a5 well as estimated propertyvalues for ea rh of the property types included in the proposed evelopmeni bye h2ve estimated propertyvalues forihe site using average sales per square foot(SPSF) data for similarpropertles to the Giy of Ktchener, which were obtained from CB Richard Ellis (f6REj. SuoE~2o. 1-58 EMPLOYMENT G EN ERATED BY PROPOSED DEVELOPMENT EMPLOYMENT DENSITY TOTAL SITE DENSITY Option AREA (sq ft)t (sq ft/employee} EMPLOYMENT (jobs/ha) FISCAL BENEFITS OF PROPOSED DEVELOPMENT INITIALBENEFITt ANNUALBENEFITZ Source of Benefit City Region City Region Site Approval Plan $ 156,115 $ - $ - $ - Future Retail Space Demand • The Trade Area for the proposed retail development comprises south Kitchener, south of Conestoga Parkway, West of Highway 8, and north of Highway 401. • The Trade Area population was 81,300 in 2011 and is projected at 119,700 in 2021, indicating a net growth of 38,400 persons. • Trade Area Retail Expenditure Volame Growth between 2011 and 2021 (2012 $ values): a) Total Food store volume $ 82.1 million @ $ 525lsq.ft. warrants an additional 156,000 sq.ft. b) GAFO (non-food stores) $ 211.4 million @ $ 325/sq.ft warrants an additional 650,000 sq.ft. c) Pharmacy & Personal Care $ 61.1 million @ $ 800/sq.ft warrants an additional 76,000 sq.ft. d) Beer, Wine & Liquor $ 23.5 million @ $1,100/sq.ft. warrants an additional 21,000 sq.ft. e) Bldg. & Outdoor Home Sup. $ 45.2 million @ $ 250/sq.ft. warrants an additional 180,000 sq.ft. Total warranted new retail space (excluding services), for the next ten years, on a residual basis, with no inflow: 1,083,000 sq.ft. S~tt~E~k21. The market analysis was based on a residual study method including inflow and impact assessments, by mayor retail group. It is our finding that the proposed retail development comprising 250,000- 300,000 square feet of retail and associated service space is warranted, assuming 2014 as its opening year. It would comprise less than a quarter of the total retail space demand during the study period, recognizing the service space component. Regarding the conclusion of our market study, the Staff Report of July 31, 2012 states: "Staff does not dispute this Ending. Retail and service uses have the potential to thrive at this location from a business viability point of view". • It is our professional opinion that the proposed retail development will be very supportive of the planned industrial employment use which will comprise about 75% of the remaining industrial land parcel. In fact, present economic conditions require a catalyst to initiate the redevelopment of such a large industrial parcel and the proposed retail development could be that catalyst. S~f13E'~`2Z, 1-59 • The Commercial Policy Review>, Phase 3B, September 2010, suggests that a planning ratio of about 36 square feet per capita would be appropriate. This would result in a total Trade Area demand of 1,382,000 sq.ft. of new retail space during the study period. Retail Snace • The Trade Area Inventory of retail and related service space totals: 4,265,000 sq.ft. • Overall Trade Area vacant retail space, is about 260,000 sq.ft. which is equal to 6.1 % of total space, This ratio lies in the nornlal vacancy range (5.0%-7.5%) • The proposed retail development would be equal to 5.9%-7.0% of the existing inventory, thus being of little overall signif canoe in the Trade Area. • The Commercial Policy Review Phase (CPR) 3A, Revised September 2010 includes a list of approved developments assumed to be in operation by 2029: - Ira Needles Mixed-Use Complex, now known as `The Boardwalk` is nearing completion with all of the major tenants and many of the small stores already in operation. - 235 Ira Needles Boulevard, now kno~~n as `Highland Market :Place' is complete and open. - 1845 Strasburg Road, a small. neighbourhood centre; planned for 90,000 sq.ft. has not been built. It is our conclusion that the denzand for retail space in Kitchener, and its absorption period, were much greater and more rapzd than expected in the CPR. Su pG~23, Pioneer Drive and Homer Watson. It should be noted that there is an adjacent existing shopping centre, Pioneer Plaza, with an existing Zehrs Supermarket. We question the need of this site for as an additional retail development, although this site may be suitable for non-retail uses. • Block Line Road and Homer Watson. This site is very close to Forest Glen Plaza which includes a No-Frills Supermarket and notable vacancies. There appears to be no demand for more retail space at that location. • Huron Road and Fisher Hallman Road. It is our understanding that a proposal for a retail development at that location by Rio-Can has been withdrawn. Nevertheless, we expect that a different proposal for a retail development will come forward for that location in the future.. • Our ]mpact Analysis indicates that the proposed retail development will have no Tong term detrimental impact on any of the existing retail centres. There is more then enough market potential to support all realistic future retail sites as well as the proposed development. • In the CPR, Background Study, June 2010, it is stated that there was normal demolition of some 569,000 sq.ft of retail space between 1999 and 2009 comprised of outdated and uneconomic space. There is no reason to assume that this trend would not continue into the future. However, the CPR does not recognize the replacement demand in the future. Therefore, the projected future retail space demand identified by the CPR study, for the next 10 years, is likely understated by some 500,000 sq.ft of retail space. Sl.[. D~~' cZ~, • 1-60 • The Staff Report dated July 31, 2012 lists additional potential future Mixed -Use nodes: