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Home My WebLink AboutDSD-2025-318 - Kitchener 2051 - Preferred Approach to GrowthStaff Report J IKgc.;i' r� R Development Services Department www.kitchener.ca REPORT TO: Planning and Strategic Initiatives Committee DATE OF MEETING: August 11, 2025 SUBMITTED BY: Rosa Bustamante, Director Planning and Housing Policy/City Planner, 519-783-8929 PREPARED BY: John Zunic, Senior Planner, 519-789-8952 Tim Donegani, Senior Planner, 519-783-8932 Gaurang Khandelwal, Senior Planner, 519-783-8937 WARD(S) INVOLVED: All Wards DATE OF REPORT: July 30, 2025 REPORT NO.: DSD -2025-318 SUBJECT: Kitchener 2051 - Preferred Approach to Growth RECOMMENDATION: That the Preferred Approach to Growth as presented in Report DSD -2025-318 be used to inform the development of a draft Official Plan (Kitchener 2051). REPORT HIGHLIGHTS: • The purpose of this report is to seek Council's endorsement of the Preferred Approach to Growth to be used to inform the development of a draft Official Plan. • There are no financial implications arising from this report. • Kitchener 2051 includes a robust 4 -phase community engagement process that builds on the Strategic Plan. The development of the Preferred Approach to Growth is the result of the evaluation of three approaches to growth based on a set of Community Parameters, shaped by the Kitchener 2051 Community Working Group, Council, community and collaborator input as well as Technical Evaluation Criteria. • The preferred approach to growth: o Makes efficient use of existing infrastructure; o Builds on existing strategic areas of growth including around the City's ION LRT stations (Protected Major Transit Station Areas) and nodes and corridors; o Continues to protect the natural heritage system and prime agricultural lands; o Continues to recognize and plan for growth in all neighbourhoods across the City, including the new community being planned through the Dundee Secondary Plan; o Plans for people living closer to community facilities like parks, community centres, grocery stores, and frequent transit stops; and *** This information is available in accessible formats upon request. *** Please call 519-741-2345 or TTY 1-866-969-9994 for assistance. Page 254 of 321 o Leverages opportunities to plan for new community facilities through 4 new urban centres through tools such as Community Planning Permit Systems and Community Improvement Plans. • This report supports Building a Connected City Together: Focuses on neighbourhoods; housing and ensuring secure, affordable homes; getting around easily, sustainably and safely to the places and spaces that matter. EXECUTIVE SUMMARY: As Kitchener grows to become a city of up to 450,000 residents by 2051, a new Official Plan is needed. A new Official Plan will guide where people live and work and shape the way that neighbourhoods evolve and change over time. As part of the development of a new Official Plan, three approaches to growth were developed using a set of core assumptions (outlined in DSD -2025-091). 35 technical evaluation criteria were developed that were used to analyze each approach to growth. Additionally, a series of Community Parameters were developed with input and collaboration by the Kitchener 2051 Community Working Group and informed by the Community Values. The Community Parameters were used by the community through an interactive approaches to growth event, to evaluate the approaches to growth. All three approaches to growth had similar technical evaluation results and feedback from the community showed an almost equal preference across the three approaches. Based on the technical analysis and community input, each approach to growth works for Kitchener and positions the City well for the future. Since each approach performed similarly and had support from the community, the best elements of each of the approaches are recommended to be combined into a Preferred Approach. The Preferred Approach directs the most people and jobs to four new "urban centres" across the city (River Road East/Ottawa Street North; Block Line Road/Strasburg Road; Highland Road West/Fischer Hallman Road; land within the Dundee Secondary Plan area). The Preferred Approach also directs people and jobs to lands on the periphery of the city's Protected Major Transit Station Areas, as well as along new and existing intensification corridors along Ottawa Street, Weber Street East, and Fischer Hallman Road, and existing and new intensification area nodes near Conestoga College Doon Campus and Homer Watson Boulevard/Pioneer Drive. Directing people and jobs to these areas reflects the evaluation results by enabling more homes in areas where people are close to community facilities and amenities, contributing to a high quality of life, minimizes potential land use compatibility issues, and directs people and jobs to areas with existing or planned frequent transit service. While the areas outlined above are proposed to accommodate a significant share of growth, all neighbourhoods will continue to grow and change to meet the needs of the people who live, or who may want to live there. The Preferred Approach will inform the ongoing development of a draft Official Plan which will be the focus of engagement this fall. Page 255 of 321 BACKGROUND: As Kitchener grows to become a city of up to 450,000 residents by 2051, a new Official Plan is needed. A new Official Plan will guide where people live and work and shape the way that neighbourhoods evolve and change over time. It will be ambitious and intentional as we plan for the Kitchener of 2051. On March 17, 2025, two reports were brought forward to the Planning and Strategic Initiatives Committee: • DSD -2025-084 "Evaluating Approaches to Growth" presented the Community Parameters and Technical Evaluation Criteria; and, • DSD -2025-91 "What We Heard in Fall 2024 and Upcoming Engagement on Approaches to Growth" highlighted the key takeaways from community and collaborator engagement that occurred in 2024 and further engagement that were to occur on three approaches to growth. Engagement was undertaken on approaches to growth through the Speaker Series Event at St. Mary's High School on April 5th, the Approaches to Growth Event at City Hall Rotunda on May 1st, the interactive Community Conversation Kits, and the EngageWR online survey which ran from April 17th to June 8th The three approaches to growth included in DSD -2025-091 have been evaluated based on the criteria outlined in DSD -2025-084. The best elements of all of the three approaches to growth were selected to shape the Preferred Approach to Growth (Preferred Approach), along with an assessment of the trade-offs between different elements of each approach. This Report provides an overview of the Preferred Approach, how it was derived, and seeks Council's endorsement of it to inform the development of a draft Official Plan. REPORT: Approaches to Growth Three approaches to growth were developed as part of this exercise using a set of core assumptions included in DSD -2025-091. The three approaches are illustrated in Figure 1 and include: • Supporting Transit Approach — emphasizing growth generally within Kitchener's existing mixed use Nodes & Corridors structure from the 2014 Official Plan; • New Urban Centres Approach — focusing growth within four new urban centres, generally at the intersections of Ottawa St. N & River Rd. E, Strasburg Rd. & Block Line Rd., and Highland Rd. W. & Fischer -Hallman Rd, and on the periphery of Major Transit Station Areas; and • Evolving Neighbourhoods Approach — enabling growth on properties within neighbourhoods where it can fit comfortably from a built -form perspective and without the need to assemble too many lots to make a new building happen. Page 256 of 321 Supporting Transit New Urban Centres Evolving Neighbourhoods Figure 1: Three approaches to growth that were developed and evaluated Evaluating Approaches to Growth The Preferred Approach has been shaped by multiple inputs, including community parameters, technical evaluation criteria, Council direction & cross -divisional staff priorities, and feedback from the community. The Community Parameters were prepared with direct input and collaboration with the Kitchener 2051 Community Working Group and informed by the Community Values. The Community Parameters served as the basis for the Phase 3 community and collaborator engagement activities, including: • Approaches to Growth Event & Speaker Series at St. Mary's High School on April 5, 2025; • Approaches to Growth Event at City Hall Rotunda on May 1, 2025; • Interactive Community Conversation Kits; and • Online approaches to growth engagement survey. The Phase 3 Engagement Summary will be available on the Kitchener 2051 EngageWR protect webpage in August. The initial set of core assumptions used to develop the approaches to growth were refined to develop a series of five objectives reflecting community priorities: 1. Be future focused; 2. Support Kitchener's economy; 3. Minimize impacts to Source Water Protection Areas (groundwater); 4. Plan for change across the City; and 5. Greater integration of places, systems, and networks. These objectives, along with Kitchener 2051 technical studies and modelling, were used to define the technical evaluation criteria. 35 criteria were developed to align with the objectives. The criteria enabled analysis of each approach to growth and identification of opportunities or constraints needing to be addressed. The focus was to discuss trade-offs between the three approaches to develop a composite Preferred Approach, rather than selecting one of the three approaches. Page 257 of 321 Evaluation Results The evaluation of the three approaches showed that they performed similarly across most criteria and broadly align with the evaluation objectives outlined below. This was likely as a result of the core assumptions that were the same across all approaches, with those assumptions having a significant impact on determining where and how new people and jobs will be accommodated in the city. However, there were also some notable differences between the approaches. The following provides an overview of the evaluation results summarized by the five objectives focusing on the criteria where notable differences were observed. Detailed evaluation results are included in Attachment A. Be future focused The objective of being future focused assessed how the City's existing water, wastewater, and transportation infrastructure would be able to support more people and jobs. It also looked at how each approach could make use of existing community facilities such as schools, parks and sports fields, libraries, and community centres. And finally, this objective looked at how much energy would be used for each approach if we were to grow that way. The three approaches were comparable in their ability to have planned people and jobs supported by existing infrastructure. The Evolving Neighbourhoods approach had the lowest amount (91%) of planned people and jobs able to be supported by existing water infrastructure, compared to 98% for the other two approaches. The Evolving Neighbourhoods approach would be the most likely to require infrastructure investment to accommodate planned people and jobs. From a community facilities standpoint, the New Urban Centres and Evolving Neighbourhoods approaches broadly plan for more people and jobs to be close to existing and planned community facilities, relative to the Supporting Transit approach. Finally, all three approaches had negligible differences in energy consumption and efficiency as well as the split between different ways that people can travel. Support Kitchener's economy The criteria that were assessed as part of supporting Kitchener's economy broadly looked at land use compatibility, the distribution of jobs across the city, the ability for people to get to employment areas by transit and identify impacts on truck routes based on where growth is planned across the city. Among the criteria assessed, there was a significant difference between the approaches in terms of the planned growth within 300m of Industrial Areas. For this criteria, fewer people living close to Industrial Areas is preferred in order to minimize land use compatibility issues, such as people being exposed to industrial noise, odours, vibrations, and accompanying truck traffic. More people living close to Industrial Areas can also negatively impact the ability for the businesses to operate effectively, knowing that certain uses may result in noise, odours, and vibrations. The Supporting Transit approach directs more people to areas within 300m of designated Industrial Areas (16,148), compared to the New Urban Centres approach which directs the fewest people (3,060), followed by the Evolving Neighbourhoods approach (3,181). Page 258 of 321 For the other criteria, the results were very similar across the three approaches, with the New Urban Centres approach performing slightly better than the others. Minimize impacts to Source Water Protection Areas (groundwater) The objective of minimizing impacts to source water protection areas assessed each approach to growth against the amount of growth within Surface Water Intake Protection Zones and each Wellhead Protection Sensitivity Area (WPSA) zone. Minimizing the amount of people and jobs and industrial and manufacturing uses in these areas is important to protecting our shared groundwater resources. The Evolving Neighbourhoods approach directs the least amount of people and jobs, particularly industrial manufacturing jobs, to Surface Water Intake Protection Zones and the New Urban Centres approach directs the least amount of growth to WPSAs. The New Urban Centres performed the best overall as it redirects jobs away from the most sensitive surface and groundwater areas. Plan for change across the City The objective of planning for change across the City evaluated criteria focusing on areas of the city that can support a grocery store and the amount of people that live close to community facilities and amenities. The Supporting Transit approach results in more areas of the city having enough people within a neighbourhood to support a grocery store, compared to the other approaches. Living close to a grocery store contributes to a high quality of life by having access to fresh foods and minimizing the time it takes to access food. The New Urban Centres approach plans for more people being located close to existing community facilities and amenities such as places of employment, transit stops, childcare, grocery stores, health services, libraries, pharmacies, schools, and parks. Greater integration of places, systems, and networks The objective of planning for greater integration of places, systems and networks across the City assessed criteria focused on proximity to transit stops, express transit routes, all ages and abilities trail network identified in the Cycling and Trails Master Plan, total vehicle - kilometres travelled, access to the Kitchener GO station, and proximity to existing commercial nodes in the City. The Supporting Transit and New Urban Centres approaches to growth were most preferred across most of the assessed criteria. These two approaches place the most people and jobs closer to existing transit, high -frequency transit, and the all ages and abilities transportation network. The New Urban Centres approach plans for the least amount of car usage (183,475 vehicle kms) compared to the Supporting Transit approach (185,098 vehicle kms) and Evolving Neighbourhoods (187,629 vehicle kms). Page 259 of 321 Community Engagement Results As part of the approaches to growth workshops in April and May, community members were asked to provide input on the three approaches to growth through an interactive "Choose Your Own Adventure" style activity offering a chance to navigate a set of eight short `day -in - the -life' scenarios — making decisions based on the future city they most wanted to experience. In order to have participants consider the needs and/or choices of community members who may experience the city in a different way, each participant was also assigned an 'Avatar' or alternate persona to consider as they complete the activity. Feedback from the community through the approaches to growth workshop revealed that overall, there was almost equal support for the three approaches to growth. When community members completed the exercise as themselves there was slightly stronger support for the Supporting Transit approach and slightly less support for the Evolving Neighbourhoods approach. Whereas when asked to adopt an `Avatar' to experience the future of the city in someone else's shoes there was almost equal support for all three approaches. Insight gained through this exercise revealed that people experience the city in many different ways depending on their abilities, preferences and desires. To achieve a city for everyone there needs to be flexibility and choice across the city in where and how we live, shop, work, and play. Key themes that emerged were: • Mobility and Accessibility — many expressed a desire for more transportation options, specifically frequent public transit and safe, convenient active transportation routes, as part of how they move around the city. • Mixed-use neighbourhoods & Small Businesses — There was support for neighbourhoods that bring homes, shops, and services closer together. • Housing Affordability — a call for a wider range of housing types to meet diverse individual and household needs ensuring that housing remains accessible for people at different life stages and income levels. • Greenspace — the importance of having accessible parks and natural areas nearby. • Change — there was an openness to new ways to add more homes and people across the city together with a feeling of uneasiness about what this may change about neighbourhoods and the city. • Equity across communities — it is important to distribute amenities, services and investments equitably across the city so that all neighbourhoods, regardless of location, can thrive. Page 260 of 321 Key Takeaways All of the three approaches to growth had similar evaluation results and broadly align with the objectives. The following table shows the best performing approach for each of the objectives. Objective Best performing approach 1. Be future focused. Evolving Neighbourhoods/New Urban Centres 2. Support Kitchener's economy New Urban Centres 3. Minimize impacts to Source Water Protection Areas; New Urban Centres 4. Plan for change across the City Supporting Transit/New Urban Centres 5. Greater integration of places, systems, and networks Supporting Transit/New Urban Centres Feedback from the community showed an almost equal preference for all three approaches to growth. There was an overwhelming desire for more frequent public transit and active transportation options and not wanting to feel dependant on a car. As a result, the Supporting Transit and New Urban Centres approaches were preferred by 35% and 34% of participants, respectively, because of new people and jobs being located closer to public transit and active transportation routes. Being able to access services, amenities, and community facilities easily and quickly was also an important theme shared throughout the engagement, which also translated to support for the Supporting Transit and New Urban Centres approaches, due to those approaches placing more people, jobs, amenities, and services close to public transit routes. Based on the technical analysis, and community input, each approach to growth works for Kitchener and positions the City well for the future. Preferred Approach to Growth Developing the Preferred Approach began by understanding the evaluation results and identifying the best performing components of each approach, particularly as they respond to the big ideas that will form the new Official Plan: our neighbourhoods; our economy; and our environment. This included reviewing what we heard from the community as part of the Approaches to Growth workshop exercise, which embedded the Community Parameters in a number of "day in the life" scenarios where participants made decisions over the course of a day that aligned with how they may experience the City in the future based on the different approaches. Since each approach performed similarly and had support from the community, the best elements of each of the approaches are recommended to be combined into the Preferred Approach. The best elements include: from the Supporting Transit approach, allowing people to more easily access a wide variety of services, amenities, and community facilities quickly, by public transit and active transportation by enabling more homes close to transit and active transportation routes. Page 261 of 321 • from the New Urban Centres approach, the urban centers themselves as they are aligned with all of the objectives providing access to a broad range of amenities, services, and community facilities to many people by transit and active transportation, and directs people and jobs away from sensitive groundwater areas and industrial areas. • From the Evolving Neighbourhoods approach enabling more housing throughout the city allowing people to access services and amenities close to where they live. A map of the Preferred Approach is included in Attachment B. The Preferred Approach broadly directs the most people and jobs to the following areas: • Four new "urban centres" at: o River Road East and Ottawa Street North; o Block Line Road and Strasburg Road; o Highland Road West and Fischer Hallman Road; and o Lands within the Dundee Secondary Plan area. • Lands on the periphery of the City's Protected Major Transit Station Areas; • Along the Ottawa Street Regional Intensification Corridor, Weber Street East, and Fischer Hallman Road; • Homer Watson Boulevard and Pioneer Drive; • Conestoga College Doon campus; and • Homer Watson Boulevard and Conestoga College Boulevard. Directing people and jobs to these areas reflects the evaluation results by enabling more homes in areas where people are close to community facilities and amenities, contributing to a high quality of life. The Preferred Approach supports Kitchener's economy by directing new people away from Industrial Areas, minimizing potential land use compatibility issues. It also directs people and jobs to areas with existing or planned frequent transit service, providing people with options on how they ultimately move around the city. While the areas identified above are proposed to accommodate a significant share of growth, all neighbourhoods of the City will continue to grow and change to meet the needs of the people who live, or who may want to live there. The Preferred Approach to growth supports the big ideas that form the foundation of the new Official Plan by: • Making efficient use of existing infrastructure; • Building on existing strategic areas of growth including around the City's ION LRT stations (Protected Major Transit Station Areas) and nodes and corridors; • Continuing to protect the natural heritage system and prime agricultural lands; • Continuing to recognize and plan for growth in all neighbourhoods across the City, including the new community being planned through the Dundee Secondary Plan; • Planning for people living closer to community facilities like parks, community centres, grocery stores, and frequent transit stops; and • Leveraging opportunities to plan for new community facilities through 4 new urban centres through tools such as Community Planning Permit Systems and Community Improvement Plans. Page 262 of 321 Next Steps Building on the work completed to date, the Preferred Approach will inform the ongoing development of a draft Official Plan. Preferred Approach will guide where and Kitchener will grow to 2051. Supporting policies and land uses that implement the Preferred Approach will be developed as part of the draft Official Plan and will integrate the Big Ideas, Focus Areas, Community Values, and Community Parameters. The draft Official Plan that incorporates all of these components will be the focus of engagement this Fall. STRATEGIC PLAN ALIGNMENT: This report supports Building a Connected City Together: Focuses on neighbourhoods; housing and ensuring secure, affordable homes; getting around easily, sustainably and safely to the places and spaces that matter. FINANCIAL IMPLICATIONS: Capital Budget — The recommendation has no impact on the Capital Budget. Operating Budget — The recommendation has no impact on the Operating Budget. COMMUNITY ENGAGEMENT: INFORM — This report has been posted to the City's website with the agenda in advance of the Council / Committee meeting. Regular project updates are posted to Engage Kitchener. CONSULT and COLLABORATE — Kitchener 2051 includes a robust 4 -phase community engagement process that builds on the Strategic Plan. The Kitchener 2051 Community Working Group, alongside other Council, community, and collaborator input has helped to shape Community Parameters and Technical Evaluation Criteria which formed the basis of community engagement in Spring 2025 as part of evaluating approaches to growth. Collaboration on Kitchener 2051 continues to occur regularly with the Community Working Group (CWG). The CWG includes a diverse group of individuals that represent the demographics of Kitchener (and look like the Kitchener of tomorrow). The CWG is learning about what the City needs to consider through a new Official Plan and collaborating with staff and consultants to meaningfully shape all aspects of the plan. Engagement as part of the development of the Preferred Approach to growth included two in-person events on April 5th and on May 1 st, as well as an online survey available from April 17th through June 8th that replicated the in-person events. Additionally, the development of a Community Conversation Kit was used to gauge the community's thoughts on the Big Ideas that will be used to inform the development of a new Official Plan, as well as a priority allocation exercise. This exercise saw participants distribute 100 points across 18 emerging policy directions as a means of identifying policy priority areas. In doing so, participants had to think about the trade-offs of allocating their points and considering what mattered most to them and their communities. Page 263 of 321 PREVIOUS REPORTS/AUTHORITIES: • DSD -2024-077 — Building a Connected City Together: New Official Plan Launch • DSD -2025-061 — Council Strategic Session — Kitchener 2051 • DSD -2025-084 — Kitchener 2051 — Evaluating Approaches to Growth • DSD -2025-091 — Kitchener 2051 — Engagement on Approaches to Growth REVIEWED BY: Natalie Goss, Manager, Policy & Research APPROVED BY: Justin Readman, General Manager, Development Services ATTACHMENTS: Attachment A — Growth Scenarios Study Report Attachment B — Preferred Approach to Growth Map Page 264 of 321 00 "ONSULTI ]N('', Growth Scenarios Study Report MMMEIMM July 2025 — 24-8581 Page 265 of 321 Page 266 of 321 Document Release and Revision Tracking u DOCUMENT RELEASE AND REVISION TRACKING 0 2025-07-25 Issued for approval A 2025-06-27 Initial draft issued for review Revision Number Date (YYYY-MM-DD) Description Prepared by Dillon Consulting Limited Project 24-8581 51 Breithaupt Street Suite 200 Kitchener, Ontario Canada N2H 5G5 www.dilllon.ca Kitchener 2051: Growth Scenarios Study Growth Scenarios Study Ilf epoiirt - Revision 0 July 202 ......... 24-8531 ��_ 67 of 321 W#1 W Table of Contents ii 1.1 Kitchener 2051................................................................................................1 1.2 Growth Scenarios Study Overview..................................................................2 1.3 Purpose of Report...........................................................................................3 1.4 Structure of Report.........................................................................................3 C! 2.1 Scenario Development....................................................................................4 2.2 Evaluation Framework..................................................................................11 2.2.1 Objective 1: Support Kitchener's economy..................................................12 2.2.2 Objective 2: Protect and enhance the Natural Heritage System..................12 2.2.3 Objective 3: Be future focused.....................................................................13 2.2.4 Objective 4: Plan for change across the city.................................................14 2.2.5 Objective 5: Greater integration of places, systems and networks .............14 2.2.6 Summary of Key Findings..............................................................................15 2.3 Preferred Composite Growth Scenario.........................................................16 3.0 Preliminary ity Structure and Policyit c i s 19 3.1 Preliminary City Structure.............................................................................19 3.2 Policy Directions............................................................................................20 3.2.1 Achieving Intensification Targets..................................................................20 3.2.2 Enabling Complete Communities..................................................................22 3.2.3 Missing Middle Housing................................................................................23 3.2.4 Enhanced Monitoring and Evaluation..........................................................25 Kitchener 2051: Growth Scenarios Study Growth Scenarios Study lReport - Revision 0 July 2025 24-8581 p V�,a 68 of 321 Table of Contents iii Figure 2-1: Map figure depicting layout of Approach 1 ................................................8 Figure 2-2: Map figure depicting layout of Approach 2 ................................................9 Figure 2-3: Map figure depicting layout of Approach 3 ..............................................10 Figure 2-4: List of objectives used in the evaluation framework................................11 Figure 2-5: Map figure depicting layout of the preferred composite growth scenario.........................................................................................................18 Figure 3-1: Preliminary Urban Structure......................................................................20 Table 2-1: List of preliminary objectives and assumptions used to develop the approaches to growth.....................................................................................4 Appendices A Evaluation Matrix Kitchener 2051: Growth Scenarios Study Growth Scenarios Stu'd'y Ilf epoirt - Revision 0 Dully 202,' ......... 24-858 .. ��_ 69 of 321 M, W .1.0 Introduction 1 The City of Kitchener is preparing a new Official Plan (OP) — known as Kitchener 2051. An OP is a document that shapes the way a city grows and develops. A Provincial law called the Planning Act sets out what an OP can do, including: • Directing growth and change, mostly related to how land and buildings are used; • Guiding decisions on land use, development, transportation, physical and community infrastructure, and more; • Implementing the City's vision, established through the Strategic Plan; and • Providing direction for implementing tools like the Zoning By-law. The existing City of Kitchener OP was adopted in 2014 and has positively shaped growth and development across the City over the last decade. A new OP is needed to respond to current and future conditions and trends. Kitchener is growing fast and facing city - building challenges like the housing crisis, pedestrian and cyclist deaths and injuries, inequity, climate change, social isolation and how to pay for aging infrastructure and city services. The City is also presented with opportunities like new mobility technologies, a young and highly skilled workforce, strong neighbourhoods and communities, a rich and diverse culture, and a growing desire for urban connection. Kitchener 2051 presents an opportunity to tackle these issues head-on, ask big questions, and prepare for an uncertain future. It should reflect the City's values and aspirations for what it can become — a thriving city that offers well-being, potential and quality of life, for everyone. Kitchener 2051 will address conformity with Provincial policy and legislation and the Region of Waterloo Official Plan', alongside recently completed plans for the City, such as Housing for All, Places & Spaces, and Cycling & Trails Master Plan, to set out a forward -thinking and contemporary city-wide policy framework. ' Which is now the Official Plan of the City. Kitchener 1Study Growth Scenarios Study lReport - Revision 0 Jul�y 2025 24-8581 p V�,a 70 of 321 .1.0 Introduction 2 1.2 Growth Scenarios Study Overview The Growth Scenarios Study (the "Study") is a critical component of the broader Kitchener 2051 program. The Growth Scenarios Study will: • Establish the framework and priority areas for growth within the City, including a plan to achieve the 60% intensification target established through Region of Waterloo Official Plan Amendment 6 (ROPA 6), which directs 60% of growth and development to existing built up areas; • Establish a clear and transparent process to evaluate growth options, built on industry best practices (nationally and internationally); • Be informed by other technical studies that are currently underway, including the Kitchener Utilities Clean Energy Strategy, Population and Employment Forecasts to 2051, and Non -Residential Technical Background Study; • Identify a preferred composite growth scenario that can accommodate the amount and type of growth needed, while addressing the housing crisis, mitigating against climate change, and advancing equity; • Analyze how each approach to growth performs in relation to transportation and infrastructure needs, as well as assess the municipal financial implications and long-term sustainability of growth; • Be informed by community and collaborator input on a preferred composite growth scenario; and • Identify policy tools that can be used to direct built form typologies in different locations across the City and guide growth and change within and outside of intensification areas. The Growth Scenarios Study is being completed in three phases: • Phase 1: Background and Existing Conditions provides an overview of the context for intensification and evaluation of the City's existing urban structure; • Phase 2: Growth Scenarios Review includes the review of city -developed approaches to growth, including transportation, water, wastewater and fiscal impact analysis, and the preparation of an evaluation framework; and • Phase 3: Evaluation and Preferred Composite Growth Scenario which includes a peer review of the proposed urban structure/hierarchy of intensification areas, development of policy directions and a Growth Scenarios Study Report. Kitchener Growth Scenarios Study • Growth Scenarios Study Illlepoirt - Revision 0 Dully 2025 ......... 24-8581 ,, 71 of 321 FE .1.0 Introduction 3 This report is being prepared as part of Phase 3 of the Study. The purpose of this report is to: • Provide an overview of the approaches to growth that were developed and evaluated as part of the Growth Scenarios Study; • Summarize the outcomes of the objectives -based evaluation framework; • Provide an overview of the preferred composite growth scenario; • Provide recommendations on the proposed urban structure elements; and • Provide direction on policy measures which can be used to develop the OP. This document is structured as follows: • Section 2.0 provides an overview of how the three approaches to growth were developed and evaluated, including details regarding the preferred composite growth scenario. • Section 3.0 provides a summary of the preliminary urban structure reflected in the preferred composite growth scenario and a series of high-level policy recommendations for making the preferred composite growth scenario a reality. The following content is included in the appendices: • Appendix A: Detailed tables listing the results of the evaluation exercise. Kitchener 2051: Growth Scenarios Study Growth Scenarios Study Illeport - Revision 0 Jul�y 2025 24-8581 ,a 72 of 321 W, 2.0 Growth Scenarios 4 The City undertook a modelling exercise to evaluate different potential approaches to distributing housing and job growth. Three approaches to growth were developed as part of this exercise. Each approach to growth was developed using an initial set of base assumptions listed in Table 2-1. II"'able 2,,,.1m Dist of preHminair°y objectives and assumptions used to develllop the approaches to growth Preliminary i Objectives ..................................................................................................................................................................................................................................................................................................................................................................................................................................................................................................... Support • Protect existing and plan for new jobs by assuming 15% Kitchener's growth in jobs within Kitchener's employment areas. economy . Foster economic development by supporting job growth outside of employment areas. Conserve and • Protect and enhance our natural areas including protect the Natural greenspaces and waterways, by carrying forward the Heritage System natural heritage and floodway mapping. Be future focused • Accommodate a future population of approximately 450,000 residents by 2051. Maintain growth • Growth to 2051 is planned within our existing urban area within the existing boundary. Urban Area . Plan for new and more compact greenfield development, Boundary primarily within Southwest Kitchener. • Direct at least 60% of new growth to already built-up areas. Plan for change • Plan for change across the city's neighbourhoods in ways across the city that support current and future residents by dispersing 5,000 units of future residential growth broadly throughout Kitchener's existing low-rise neighbourhoods. Kitchener 2051: Growth Scenarios Study Growth Scenarios Study Illeport - Revision 0 July 2025 24-8581 p V�,a 73 of 321 2.0 Growth Scenarios S Preliminary i Objectives Greater integration • Plan for significant growth within our Major Transit of places, systems Station Areas by carrying forward the Growing Together and networks planning framework. • Connect more people and jobs to mobility networks such as transit and complete streets. Building off of the base assumptions that were consistent for all approaches to growth, the following scenarios were developed to identify choices around how the City grows: • Approach 1: Supporting Transit; • Approach 2: New Urban Centres; and • Approach 3: Evolving Neighbourhoods. Approach 1: Supporting Transit (depicted in Figure 2-1) included the following elements: • Emphasizes growth generally within the City's existing Mixed -Use Nodes & Corridors structure from the 2014 Official Plan. • Assumes updated development permissions within existing nodes and corridors to promote more housing supply and choice, support a variety of uses, and better match what is being built today. • Continues to encourage low-density commercial properties to evolve overtime into higher -density neighbourhood focal points. This approach included the following trade-offs: • Some change in several neighbourhoods. • A larger number of small, less active community and public spaces. • Moderate public transit and active transportation options serving several neighbourhoods. • More neighbourhood retail at key intersections and along corridors. Kitchener Scenarios • Growth Scenarios Study IlRepoirt -IRevision 0 Dully 2025......... 24-8581 ,,�74 of 321 2.0 Growth Scenarios Approach 2: New Urban Centres (depicted in Figure 2-2) included the following key elements: • Focuses on growth within new urban centres, specifically: o Ottawa St. N. & River Rd. E. o Strasburg Rd. & Block Line Rd. o Highland Rd. W. & Fischer -Hallman Rd. • Focal areas identified based on their capacity to grow, proximity to frequent transit (e.g., iXpress routes) and community infrastructure (parks, trails, schools, community centres, libraries). • Examines growth in transit -supportive neighbourhoods on the periphery of MTSAs. This approach included the following trade-offs: • More change in a small number of neighbourhoods. • A smaller number of large, more active community and public spaces. • Higher frequency, better service of public transit and active transportation infrastructure serving a smaller geographic area. • More neighbourhood retail in specific locations. Approach 3: Evolving Neighbourhoods (depicted in Figure 2-3) included the following key elements: • Enables more growth within neighbourhoods which fits comfortably with existing built form and without the need for substantial lot assembly. Examples include: o Allowing places of worship to develop with a mix of uses. o Small commercial plazas. o Wider and/or deeper residential lots that back onto parks, open spaces, natural areas, school grounds and other non-residential properties which provide greater opportunities to achieve built -form transition. This approach included the following trade-offs: • Less change, but spread across all neighbourhoods. • Community and public spaces largely depend on evolution of sites with existing community infrastructure (e.g. places of worship). Kitchener Scenarios • "U\\4\4tgCWW� Growth Scenarios Study Illepoirt - Revision Dully 202' ......... 24-853 .. � ��_ 75 of 321 2.0 Growth Scenarios .7 • Lower public transit and active transportation service levels spread across all neighbourhoods. • Some change to neighbourhood retail across all neighbourhoods. Kitchener Scenarios • Growth Scenarios Study IlRepo rt -Ill Revision Ju�ll 2025 ......... 24-858 i.. , ��_� 76 of 321 Less Population and „....,.. Employment Growth Lege Ic is P' Fi ° (E P . 2.0 Growth Scenarios 8 Figure ,-1,: IMapfigtire depictfinglayout of AIIpproach 1. Kitchener Scenarios • Growth Scenarios fain' IlRepo rt - Revision Jul2025 ......... 24- 581.. i� 77 of 321 Less Population and Employment Growth More Population and Employment Growth 2.0 Growth Scenarios 9 Ion Station Employment Area Ion Light Rail Transit Dundee Secondary Plan Ion Light Rail Transit - Boundary Planned Extension Urban Area etw) FreqUent TransNork Natural Heritage c d Proit powd Conservation Land ( �D Protected Major Transit Grand River , Station Area Figure 2-2: Iiapfigtire depictfing layout of AIpproach 2 Kitchener 2051: Growth Scenarios Study Growth enarios tud IlReport - IReviiisiiion 0 July 2025 24-8581., OK 78 of 321 Less Population and Employment Growth More Population and Employment Growth 2.0 Growth Scenarios 10 Ion Station Employment Area ^IV Ion Light Rail Transit Ion Light Rail Transit - 3 Dundee Secondary Plan Boundary Planned Extension Urban Area Frequent Transit Network E.i,flng.nd Proposed) N Itural Heritage C) Protected Major Transit " Station Area ConservaUon Land Grand River Figure 2-3: IMapfigtire depictfing layout of AIpproach 3 Kitchener 2051: Growth Scenarios Study Growth Senarios Study IlRepoirt - IReviiisiiion 0 July 2025 24-8581., ,�79of321 2.0 Growth Scenarios 11. The project team used an objectives -based framework to compare and evaluate the approaches to growth. An objectives -based framework starts with the desired outcome and examines how each approach to growth contributes to the objective. The most desirable factors in each scenario are identified and can then be combined into a preferred composite growth scenario. The City defined a series of five objectives to reflect policy and community and stakeholder priorities. The finalized objectives represented refined versions of the assumptions used to develop the approaches to growth earlier on in the study process (see Table 2-1). The finalized objectives listed in Figure 2-4 were then used to define specific evaluation criteria. Figure 2..,4: Illliist of objectives used liirm tlhe evaluation franne or°Ik A total of thirty-three criteria were developed to align with the five objectives. The criteria were constructed to allow for evaluation of the degree to which each approach to growth achieved specific objectives relative to the other approaches. The following sections offer a summary of the criteria used to evaluate each objective and the key findings from the evaluation exercise. Specific details relating to the measures associated with each of the criteria and the evaluation outputs can be found in Appendix A. Kitchener Growth Scenarios Study • Growth Scenarios Study IlRepoirt - IRevision July 2025......... 24-8581 OK ,,�80 of 321 2.0 Growth Scenarios 12 III1111.73111110111C U1 Objective 1 was defined as follows: Lands within the Regional Employment Area will remain protected for employment functions over the long-term. Growth scenarios will consider the opportunity for economic diversification outside of employment areas and how strategic locations can serve as economic hubs. The following criteria were used to evaluate alignment with this objective: • Criterion 1-1: Protects or enhances the Regional Employment Areas (identified in the ROPA 6) and supports the longevity of these areas for continued job growth. • Criterion 1-2: Enables job growth outside of defined employment areas to help the city adapt to the future of work. • Criterion 1-3: Supports a better balance of jobs and housing across the City to reduce long distance and automobile -based commuting and greenhouse gas emissions. • Criterion 1-4: Minimizes congestion on truck routes. Objective 2 was defined as follows: The delineation of Kitchener"s natural heritage system as shown in the 2014 OP will remain unchanged through Kitchener 2051. Through the growth scenarios, there may be opportunities to identify ways to increase connectivity (e.g., through utility and transportation rights-of-way) and make Kitchener's green spaces more accessible to residents. The following criteria were used to evaluate alignment with this objective: • Criterion 2-1: Protects the City's ground water and surface water features, including significant ground water recharge areas. • Criterion 2-2: Protects and preserves the urban tree canopy. Kitchener 2051: Growth Scenarios Study Growth Scenarios Study lReport - Revision 0 Jul�y 2025 24-8581 V ,a 81 of 321 2.0 Growth Scenarios 13 2.2.3 Objective 3: Be future focusee,,,, Objective 3 was defined as follows: The growth scenarios should reflect a Kitchener of up to 450,000 residents by 2051 that serves as a strategic decision-making tool that provides benefits to the community. The following criteria were used to evaluate alignment with this objective: • Criterion 3-1: Optimizes the use of existing and planned water/wastewater infrastructure. • Criterion 3-2: Optimizes the use of existing and planned road infrastructure. • Criterion 3-3: Reduces costs of new infrastructure. • Criterion 3-4: Minimizes long term operations and maintenance costs. • Criterion 3-5: Optimizes the use of existing and planned schools. • Criterion 3-6: Optimizes the use of existing parks and sports fields. • Criterion 3-7: Optimizes the use of existing and planned libraries and community centres. • Criterion 3-8: Optimizes the use of existing and planned retail food uses. • Criterion 3-9: Minimizes carbon emissions through support for a variety of built forms, compact growth and intensification. • Criterion 3-10: Maximizes the energy efficiency associated with the built environment. • Criterion 3-11: Maximizes energy efficiency associated with transportation activities. • Criterion 3-12: Maximizes energy efficiency associated with building heating/cooling activities. • Criterion 3-13: Provides an opportunity for alternate energy opportunities, such as district energy. • Criterion 3-14: Addresses risk and vulnerability of the built environment to extreme weather and changing climate patterns, including heat, precipitation and flooding/property damage. • Criterion 3-15: Influences household energy costs and vulnerability to energy system change. • Criterion 3-16: Enables opportunities for renewable energy generation. • Criterion 3-17: Requires a shift in mode share beyond what is being planned for. Kitchener Growth Scenarios Study • Growth Scenarios Study IlRepoirt - Revision 0 July 202'5 ......... 24-8.581.. ��_ 82 of 321 2.0 Growth Scenarios 14 Objective 4 was defined as follows: The growth scenarios will recognize that all areas of Kitchener are and will continue to change in different ways over the long-term, with a consistent population and employment forecast. The following criteria were used to evaluate alignment with this objective: • Criterion 4-1: Supports the objective of enabling development of additional neighbourhood retail and grocery store uses. • Criterion 4-2: Accommodates growth within the city's most situationally vulnerable areas. • Criterion 4-3: Allocates new growth in the context of the City's Demographic (Inequity) Index classes. • Criterion 4-4: Allocates new growth in the context of the City's CMHC (Proximity) Index classes. Objective 5 was defined as follows: Provincial and Regional policy provides strong basis for connecting more people and jobs to mobility networks. The growth scenarios will consider how growth can be allocated and organized to support and leverage investment, operations, and services. The following criteria were used to evaluate alignment with this objective: • Criterion 5-1: Allows for easy access to public transit. • Criterion 5-2: Allows for growth to be efficiently serviced by expansions to the transit network. • Criterion 5-3: Allows for easy access to places of work via public transit. • Criterion 5-4: Allows for easy access to frequent public transit. • Criterion 5-5: Maximizes access to active transportation routes. • Criterion 5-6: Minimizes vehicle kilometres traveled. • Criterion 5-7: Supports multi -modal access and connectivity outside of the City and to other regions. Kitchener Growth Scenarios Study • Growth Scenarios Study Ilftepoirt - Ileviiisiiion July 202'5 ......... 24-8.53 i.. ��_ 83 of 321 2. 2.6 2.0 Growth Scenarios 15 • Criterion 5-8: Provides access to commercial areas. The evaluation exercise revealed that the three approaches to growth were very similar across most evaluation criteria and that all three approaches to growth generally met the objectives established. In most cases, there were minimal or negligible differences between scenarios. This was not surprising, as the three approaches to growth all contained several core elements and assumptions, as previously outlined in Table 2-1. The instances where the evaluation results indicated substantial differences between the three approaches to growth can be summarized as follows: • Protecting or enhancing Regional Employment Areas and supporting the longevity of these areas for continued job growth: Approach 2 and Approach 3 showed the greatest degree of alignment with the objective. • Optimizing the use of existing and planned schools: Approach 2 showed the greatest degree of alignment with the objective. • Optimizing the use of existing parks and sports fields: Approach 3 showed the greatest degree of alignment with the objective. • Optimizing the use of existing and planned libraries and community centres: Approach 2 showed the greatest degree of alignment with the objective. • Providing access to commercial areas: Approach 1 showed the greatest degree of alignment with the objective. The instances where the evaluation results indicated notable or moderate differences between the three approaches to growth can be summarized as follows: • Protecting the City's ground water and surface water features (including significant ground water recharge areas): Approach 2 showed the greatest degree of alignment with this objective. • Optimizing the use of existing and planned water/wastewater infrastructure: Approach 1 and Approach 2 showed the greatest degree of alignment with this objective. • Reducing the costs associated with new infrastructure: Approach 3 showed the greatest degree of alignment with this objective. Kitchener 2051: Growth Scenarios Study Growth Scenarios Study Illeport - Revision 0 July 2025 24-8581 ,a 84 of 321 2.0 Growth Scenarios 1 • Minimizing long term operations and maintenance costs: Approach 1 and Approach 2 showed the greatest degree of alignment with this objective. • With respect to how new growth would be allocated in the context of the proximity to community assets, Approach 1 allocated the most amount of people and jobs in areas with the least proximity to community assets, while Approach 2 allocated the most amount of people and jobs in areas with the most proximity to community assets.2 • Allowing for easy access to public transit: Approach 1 showed the greatest degree of alignment with this objective. • Providing access to commercial areas: Approach 1 showed the greatest degree of alignment with this objective. Detailed evaluation results are included in tabular form in Appendix A. 11111 FBANNE =02 - ti Following the evaluation of each approach to growth, the project team held a workshop with City staff to review the results and define a preliminary preferred approach. City staff then integrated the stakeholder feedback collected earlier in the project alongside the evaluation results to define a preferred composite growth scenario. Instead of being constrained to having to choose between the three approaches to growth, the team sought to combine the most desirable aspects of each approach into a single, preferred composite growth scenario. This approach to planning was taken in keeping with the objectives -based approach to evaluation. The preferred composite growth scenario draws on components found across all three approaches to growth. It carries forward the following key elements from the original approaches to growth: • Elements of Approach 2 ("New Urban Centres Approach") that sees growth and change being directed to transit -supportive neighbourhoods on the periphery of Kitchener's Major Transit Station Areas. These areas are generally within Z This refers to a variation of the Proximity Measures Database developed by Statistics Canada and the Canada Mortgage and Housing Corporation. Refer to Appendix A for details of how this criterion was constructed. Further details are included in the Population and Employment Forecast Update and Housing Needs Assessment Report prepared by Watson and Dillon as part of the Kitchener 2051 project. Kitchener Growth Scenarios Study • "U\\4\4tgCWW� Growth Scenarios Study Illepoirt - IRevision July 2025......... 24-8581 OK 85 of 321 2.0 Growth Scenarios 11 Kitchener's central neighbourhoods north and west of the expressway and in growing main streets already seeing new mixed-use development, such as near Weber Street East and Franklin Street North. They are also generally located close to important community features such as parks, trails, frequent transit routes (e.g., iXpress routes), schools, community centres and libraries. • New "urban centres" identified in Approach 2 ("New Urban Centres Approach") are also proposed to be carried forward in the preferred composite growth scenario. These new urban centres are located near the following intersections: o Highland Road West and Fisher Hallman Boulevard; o Strasburg Road and Block Line Road; o Ottawa Street North and River Road; and o In the Dundee Secondary Plan Area. • Elements of Approach 1 ("Supporting Transit Approach") were carried forward in the form of additional growth and change being directed along Ottawa Street North and Ottawa Street South, Highland Road West, Weber Street East, Fisher Hallman Boulevard, and along Homer Watson Blvd near Pioneer Park Plaza, and around Conestoga College's Doon campus. The overall configuration of the preferred composite growth scenario is depicted in Figure 2-5. Kitchener Scenarios • Growth Scenarios Study IlRepoirt - Revision Dully 2025......... 24-858 i.. ,,�86 of 321 2.0 Growth Scenarios 18 Preferred Scenario Le Populibbon and Employment Growth More PoipulaUon and Employment Growth ]on Ught Ranh Transit - won Light Rad Transit ,.,. Planned Extension Proposed Frequent r Transit Network Protected Major Transit Station Area Emp1loyment Area Dundee, " e Secondary Paan r Boundary 21 I J Urbain Area Natural Heritage Conservation Land r r ,�w Grand River S� W AP Vu y uhff/' fi T s / % d if„i ur ,,,,.5: MaI fii uro depicting Ilayout of the I r f nr d composite row th scenario Kitchener Scenarios • irow th Scenarios Study IlRe oirt - IRevision July 2025 ......... 24-8581.. � �n�� , ,,, 87 of 321 M .0 Preliminary City Stiructu ire and policy Directions "i. Preliminary City Structure and Policy Directions •rRIMUMOM, The preferred composite growth scenario includes a number of city structure elements that define priority areas to grow and protect, as depicted on Figure 3-1. The Places to grow hierarchy includes the following urban structure elements: • Strategic Growth Areas: this includes the City's 10 PMTSAs as well as refined Intensification Areas where most of the planned growth is intended to be focussed. • Employment Growth Areas: this is where the majority of industrial and logistics employment growth is intended to be accommodated and is comprised of typical industrial uses. • Neighbourhood Growth Areas: this is comprised of lands within the settlement area where a range of residential, institutional, commercial, and parks and open space uses will be permitted. will contribute to creating vibrant communities at the neighbourhood level. Historic employment lands that do not fit within the definition of "employment lands" in the PPS (also referred to as "Innovation Employment") will accommodate a broad range on non-residential uses to support complete communities in neighbourhoods. The Places to Protect hierarchy includes the following broad urban structure elements: • Natural Heritage: this reflects the boundaries of the natural heritage system and is intended to support the City's biodiversity and be protected for the long term. • Protected Agricultural: this is comprised of prime agriculture lands and other rural lands and is intended to be protected for agricultural uses for the long term. Kitchener 2051: Growth Scenarios Study Growth Scenarios Study lRepoirt - Revision 0 July 2025 24-8581 ��ar- 88 of 321 IM .0 Preliminary Doty Structu ire and policy Directions 29 (Figure 3,,,.I„: Preliminary Urban Structure Places to Grow 0 Strategic Growth Areas (D Neighbourhood Growth Areas Employment Growth Areas Places to Protect Natural Heritage Prime Agricultural This section offers a high-level overview of recommended policy directions relating to the following specific topics: • Achieving intensification targets; • Enabling complete communities; • Missing middle housing; and • Opportunities for enhanced monitoring and evaluation. A sizeable portion of the planned future growth envisioned in the preferred scenario will be directed to the Strategic Growth Areas, which are comprised of PMTSAs and other designated intensification areas. While the PMTSAs are intended to accommodate the Kitchener 2051: Growth Scenarios Study Growth Scenarios Study lRepoirt - Revision 0 July 2025 24-8581 ,a 89 of 321 .0 Preliminary City Structure and Policy Directions 21 highest levels of growth in close proximity to ION stations, the intensification areas have been identified to align with Grand River Transit's (GRT) existing and planned frequent transit routes, as illustrated in the 2025 GRT Business Plan, and provide broader options for a cluster of amenities throughout different quadrants of the city. Achieving broader intensification goals requires that other intensification areas—such as those along major corridors and in mixed-use nodes—also develop at an appropriate urban scale. The City should consider the following key directions when crafting policies and implementing by-laws intended to facilitate achieving intensification targets on which the preferred composite growth scenario is premised: • Establish a Minimum Density Target: Establish a minimum density target of 100 people and jobs per hectare or greater for all new development and redevelopment within the designated Intensification Areas outside of the PMTSAs. This will also require updating the corresponding implementing by-law to align. • Facilitate a Broader Range of Uses, Heights, and Densities: To support the minimum density target and encourage a wider range of housing types, the OP must enable a greater scale and mix of development than may be currently permitted. This includes policies that permit a broad range of residential, commercial, office, and institutional uses. This should be achieved by regulating development through objective built form standards (e.g., building height, massing, setbacks, etc.) rather than floor space ratio, with a focus on enabling mid -rise forms and permitting a broad mix of uses. This will require updating the corresponding land use provisions in the implementing by-law to align. • Identify the Need for Area -specific Planning and update land use regulations to implement the OP policies for intensification in priority areas: A "one -size -fits - all" policy approach may not be suitable for all strategic growth areas. Certain areas, such as those with complex land assembly challenges or significant public realm opportunities, may benefit from a more detailed, area -specific planning process to facilitate intensification. While the City has already gone through extensive area -specific planning for PMTSAs, a number of new areas have been identified as Intensification Areas within the new OP framework and would benefit from further area -specific planning. For lands that are newly identified Intensification Areas, or those that have had permissions for some time but have Kitchener Scenarios • Growth Scenarios Study IlRepoirt - IRevision 0 July 202' ......... 24-858 i.. ��_ 90 of 321 HIM 3.0 Preliminary City Structu ire and Policy Directions not had the market uptick, the City should assess whether some degree of City - led area -specific planning is warranted. In addition, the City should update the land use regulations that implement the priority areas for intensification; this could include updating the City's zoning by-law or through the preparation of a community planning permit by-law to support a streamlined development approval process. The new OP will need to integrate the policy direction included in ROPA 6 regarding the creation of complete communities. This concept refers to compact, well-connected places where people can meet their daily needs for goods, services and employment by methods of active transportation, and where other needs can be met by using direct, frequent and convenient transit. This kind of development pattern requires neighbourhoods to be designed with a diverse mix of land uses, to provide a full range of housing to accommodate a range of incomes and household sizes. This requires sufficient population and employment density such that a broad range of services can be supported. To implement the complete community concept, the new OP must include a comprehensive suite of integrated policy measures. The City should consider the following key elements when crafting the related policy framework: • Recalibrate land use permissions to permit a fine-grained mix of daily -need uses (e.g., small-scale retail, services) within residential land use designations. • Facilitate gentle intensification by removing regulatory barriers to a full range of "missing middle" housing types in all residential areas. This could include carrying forward existing permissions for "missing middle housing" (e.g., duplexes, triplexes, fourplexes, stacked and back-to-back townhouses) and additional residential units (up to three per lot for single detached, semi-detached, or street -townhouse dwellings) across residential designations. • Mandate active, pedestrian -oriented ground floors and a mix of uses for new developments within all Strategic Growth Areas, including PMTSAs and other designated Intensification Areas. Kitchener 2051: Growth Scenarios Study Growth Scenarios Study lRepoirt - Revision 0 July 2025 24-8581 V ,a 91 of 321 .0 Preliminary City Structu ire and Policy Directions 2 • Prioritize active transportation (walking, cycling) and public transit in transportation planning frameworks. This could include integrating new measures or otherwise carrying forward existing measures such as modernizing parking standards to emphasize parking maximums over minimums in transit - served areas and emphasizing the importance of transportation demand management (TDM) measures for new development. • Require highly connected street and pathway networks in new development and seek opportunities to improve connectivity in existing areas. • Incorporate policies that target the co -location of public services (e.g., libraries, childcare, community centres) and recreation assets (e.g., parks, playgrounds or open space) near residential uses. This could include some form of quantifiable standard to guide site selection (e.g., within 400 metres). • Integrate policies that support local food systems to increase access to healthy, local and affordable food. This could include carrying forward existing permissions for community gardens and farmers' markets within residential designations. The new OP will need to continue to integrate and carry forward the policy direction included in ROPA 6 regarding "missing middle housing". This concept refers to development typified by multiple unit housing, such as multiplexes, stacked townhouses, apartments, and other low-rise housing options. The intent is to facilitate "gentle density" and the provision of a diverse range and mix of housing options across the city, especially in areas well -supported by transit and with strong access to amenities. Such policies are a direct complement to those which support development of complete communities. The successful integration of missing middle housing requires a policy framework that moves beyond simply permitting new housing types to actively enabling their construction. That framework must be grounded in the practical realities of market demand and financial feasibility. The City should consider the following key elements when crafting the related policy framework: • Establish Broad Permissions: Carry forward permissions for a range of gentle density housing forms - including duplexes, triplexes, and semi-detached Kitchener Growth Scenarios Study • "U\\4\4tgCWW� Growth Scenarios Study Illepoirt - Revision 0 July 2025 ......... 24-8581 ,,�92 of 321 .0 Preliminary City Structure and Policy Directions 24. dwellings or denser forms of development - within all areas designated as Neighbourhoods. A key point here is that while higher -density forms of intensification may be directed to certain areas, gentle density should be reflected across all neighbourhood areas as a means of supporting growth in an appropriate manner. • Guide Intensification to Secondary Streets: Identify secondary and collector streets within Neighbourhoods as appropriate locations for a greater scale of missing middle housing (alongside the more general approach of seeing gentle density reflected across all neighbourhood areas). Explicitly permit more intensive building types, such as fourplexes, stacked townhouses, and small- scale, low-rise walk-up apartments, on lots fronting onto these streets. This approach should be viewed as an extension of the previous bullet point regarding the establishment of broad permissions for gentle density housing forms. • Revise Parking Standards: Review the existing parking zones framework in alignment with the updated urban structure and reduce or eliminate minimum parking requirements for projects near transit in priority intensification areas, particularly for missing middle housing typologies. • Develop Context -Sensitive and Flexible Built Form Policies: Direct the creation of objective and clear built form standards that regulate the physical configuration of missing middle development. These policies should focus on massing and other built form elements (e.g., building height, setbacks, and landscape design) to see that new development is compatible with its surrounding context without being unduly restrictive. The policies should allow for flexibility to respond to diverse market needs and household types. • Modernize Lot Requirements: Review and update implementing by-laws to identify and remove restrictive minimum lot size and frontage requirements that may preclude the development of multiplexes on existing urban lots. • Streamline Development Approvals: Continue to build on the successes of the Development Services review and include policies that support the creation of a streamlined and predictable development approvals process for missing middle housing projects, which are often smaller in scale and complexity than high-rise development. • Enable Financial Incentives: Consider ways to establish a policy framework that enables the use of financial tools to stimulate the creation of missing middle and Kitchener Scenarios • "U\\4\4tgCWW� Growth Scenarios Study IlRepoirt -IRevision C July 2025 ......... 24-858 .. ,,�93 of 321 3.0 preliminary City Structuire and policy (Directions 25 affordable housing. This could include Development Charge exemptions or deferrals for certain unit types or affordable housing projects, or other approaches recommended by the City's Enabling Missing Middle and Affordable Housing Feasibility Study. Evaluation3.2.4 Enhanced Monitoring and While the City already has a robust approach to monitoring a variety of growth indicators (e.g., the Kitchener Growth Monitoring Strategy and Kitchener Growth Monitoring Plan), there are opportunities to enhance this approach by including certain social planning indicators. The intent would be to measure growth in terms of equity, access, and community well-being. Examples include the following themes or specific indicators: • Community Characteristics Index: This index could be used to monitor and evaluate policy outcomes at the neighbourhood level. This would help in taking a targeted approach to addressing housing issues. • Housing Equity and Affordability: A key risk to monitor is displacement and renovictions due to rising housing costs, particularly in areas near the ION system and in the Downtown. • Accessible Housing: Monitoring the growth of accessible housing supply and engaging with people with lived experience to confirm the adequacy of these units for occupant needs. Further details and recommendations are included in the Population and Employment Forecast Update and Housing Needs Assessment Report prepared by Watson and Dillon as part of the Kitchener 2051 project. 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