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HomeMy WebLinkAboutDTS-08-198 - Kitchener Growth Management Strategy - Draft Master Report~, ^ ~~~~~ ~ev~~o~r~err~r T~c~r~~~aJ 5e~~rrc~s Report To: Development and Technical Services Committee Date of Meeting: December 1, 2008 Submitted By: Jeff Willmer, Interim General Manager, DTS Department Prepared By: Alain Pinard, Interim Director of Planning (519-741-2319) Brandon Sloan, Senior Planner (519-741-2648) Ward(s) Involved: All Date of Report: November 26, 2008 Report No.: DTS-08-198 Subject: Kitchener Growth Management Strategy (KGMS) RECOMMENDATION: 1. That DTS Report 08-198 and supporting documents titled, Draft Kitchener Growth Management Strategy (KGMS) and Draft KGMS Implementation Program -Phase I Framework, be received for information; and 2. That the draft Kitchener Growth Management Strategy (KGMS) and supporting draft documents be referred to the KGMS Task Force for discussion and comment and returned, with any necessary changes and with supporting recommendations, to the January 19t", 2009 Development & Technical Services Committee meeting for consideration; and further 3. That, pending approval of the Kitchener Growth Management Strategy (KGMS) at the January 26t" Council meeting, the KGMS Implementation Program -Phase I Growth Management Plan be presented to the February 9t", 2009 Development & Technical Services Committee for information and public review with a final version directed to March 2nd DTS Committee for consideration. BACKGROUND: On June 25, 2007, Council approved the terms of reference for the Kitchener Growth Management Strategy (KGMS) as outlined in Report DTS-07-103. On March 17, 2008, Council directed staff to target the completion of the KGMS by the end of 2008. A draft of the KGMS is now complete and ready for review by the Task Force and the broader public. The draft strategy gives direction on the evolved staging of development process. It is proposed that the staging of development process be replaced with an annual monitoring report and a biannual growth management plan that addresses both greenfield and intensification development opportunities. The draft framework of the new process is also complete and ready for review by the Task Force and the broader public. It is estimated that the growth management plan that is populated with data, analysis and recommendations will be available in late January, immediately after approval of the strategy. REPORT: Context Kitchener is a successful community that will continue to grow. Kitchener is the largest city in Waterloo Region, an area that has one of the most robust economies in Canada. Kitchener has been a leader in managing growth in the past and it is now necessary to be even more strategic about it. A comprehensive Kitchener Growth Management Strategy is needed in order to address a new provincial planning framework, updated growth projections, higher public expectations and an expanding list of competing choices for growth-related services and resources. Between 2005 and 2007 the Government of Ontario enacted a series of land use planning reforms that changed the way that cities are expected to plan and to grow. Amendments to the Ontario Planning Act, updates to the Provincial Policy Statement (2005 and the release of Places to Grow: Growth Plan for the Greater Golden Horseshoe 2006 outline new objectives and set out new future growth targets for Kitchener and other urban centres. The growth projections in Places to Grow are higher than those that guide Kitchener's current planning framework. Places to Grow also mandates compact urban development by requiring municipalities to comply with intensification and density targets that go beyond levels contemplated in any of Kitchener's planning documents. In 2003, the Region of Waterloo adopted a Regional Growth Management Strategy (RGMS) that identifies a central transit corridor, a primary re-urbanization area, future greenfield development areas and a countryside line within Kitchener. The KGMS outlines a plan of what Kitchener needs to do in order to align with Places to Grow and the RGMS. In 2007 Council approved A Plan for a Healthy Kitchener, a community plan that was prepared through Compass Kitchener, a public advisory group that carried out extensive public consultation. Survey results indicated that 89% of Kitchener residents want the city to focus significant resources on becoming more environmentally friendly through investments in bike trails, transit, environmental laws, and growth management policies. Accordingly, the community plan directs Kitchener to focus even more on growth management and to further engage the public on growth and development matters. There are tremendous growth pressures in all areas of Kitchener. Much of this growth requires major investments in infrastructure and all requires the provision of social and recreational services. It is not possible to develop in all candidate growth areas at once. The coordination, timing and associated cost of growth-related services needs to be clearly understood before making decisions. New approaches and new tools are needed. Kitchener's staging of development process needs to evolve so that opportunities for growth through intensification are identified and considered in addition to greenfield development, which had been the focus. The evolved staging of development process then needs to be better linked with the development charges process and the capital growth forecast. A comprehensive Kitchener Growth Management Strategy also provides the opportunity to align growth and development activities with other corporate initiatives such as A Plan for a Healthy Kitchener, the Strategic Plan for the Environment, and Kitchener's Economic Development Strate 2 A roach The KGMS is a collaborative effort that was developed in consultation with a Task Force, community groups and the general public. The community engagement process included the development of a dedicated web page, production of a video, meetings, round-table discussions, open houses, stakeholder interviews and presentations to groups followed by question and answer sessions. However, the Task Force and the community at large have not yet had the opportunity to review and provide input on a complete draft of the KGMS and it is proposed that this take place during the next 4-6 weeks before moving forward. A comprehensive Background Study helped focus the direction to the KGMS. The Background Study comprises three documents: Context Report (Parts 1-5), Current Baseline Report (Parts 6-9) and an Executive Summary. The Background Study was completed by City staff over the course of one year. The Task Force reviewed and provided input on the Background Study during the summer of 2008. The three-part document was released to the public in the September of 2009. The Context Report explains why growth management is important and why Kitchener is developing its own growth management strategy. The Context Report describes the legislative parameters of what municipalities are mandated to do and provides an overview of the challenges facing Kitchener. The Current Baseline Report presents information on existing development patterns and growth opportunities so as to provide a basis for future strategic directions. Specifically, the report identifies Kitchener's development rates, current and past intensification levels, land capacity estimates in both intensification and greenfield areas, and compares the estimated capacity for growth with Provincial growth projections. KGMS Document and Implementation Program The KGMS is organized into five main parts: Summary, Major Findings, Vision and Strategic Direction, KGMS Goals and Kitchener Tomorrow. The Summary explains why Kitchener developed its own Growth Management Strategy and provides an overview of the major steps of the project. The Major Findings outlined in the Strategy document where identified during the research and phases of the study or through community engagement. It is noted that Kitchener is well positioned to achieve intensification targets and to accommodate projected growth. The Vision and Strategic Direction section identifies the higher level documents that provided the strategic basis for preparing the KGMS. The KGMS Goals section outlines a series of growth management objectives, ongoing initiatives and recommended new actions that are grouped into 6 broad categories of goals: (1) Enhance our Valued Natural and Cultural Heritage Resources; (2) Create Vibrant Urban Places; (3) Ensure Greater Transportation Choice; (4) Foster a Strong Economy; (5) Strengthen Communities; and (6) Manage Change in an Effective and Coordinated Manner. The recommended new actions are arguably the most significant components of the KGMS. The 3 new actions include proposed improvements and changes to Kitchener's growth management program to address the challenges that have been identified. The Kitchener Tomorrow section describes a planning vision of Kitchener in the future where growth has been well managed according to the goals identified in the KGMS. This vision will form the basis for the direction of Kitchener's new Official Plan. In support of the Strategy document is a framework for Phase 1 of the Implementation Program. The Implementation Program provides a framework for an Annual Growth Management Monitoring Report and a Biannual Growth Management Plan. These initiatives would help implement three of the recommended new actions in the Strategy document. Report Recommendations The recommendations of this report are to receive the draft Strategy and Implementation Program Framework for information, refer them to the KGMS Task Force and present any revisions to the documents along with the recommendations to supplement the new actions from the KGMS to a January DTS Committee meeting. FINANCIAL IMPLICATIONS: A primary purpose and outcome of growth management is to link decisions on development with decisions on infrastructure and services, and whenever possible to maximize the use of existing infrastructure and services. The KGMS is proposing a biannual growth management plan that will allow for Capital Budget growth-related items to be part of a city-wide strategic plan, to relate to the Budget and Development Charges processes more clearly and for the operations and maintenance implications of growth areas to be considered. COMMUNICATIONS: Growth management in Kitchener will be an ongoing initiative. Communication prior to, throughout and after the approval of the Strategy is important to the community. The forecasted population growth including the location and implications thereof mean change. Phases I and II of the KGMS Communications Plan attempted to help communicate to interested individuals and groups what the provincial and regional growth plans mean for us and that Kitchener is preparing a strategy to effectively plan and manage growth. Phase III will be conducted in 2009 and beyond as a mechanism to engage two-way communication between the City and citizens on the implications of a growing city, the initiatives the City is undertaking, and to better inform residents within and adjacent to identified growth areas. To date, the communication tools utilized include: informational DVD, workshops, Council Strategy Session, City staff presentations, dedicated website, Community Newspaper ads, Your Kitchener articles, Waterloo Region Record ads, 570 News coverage, comment sheets, FAQs, Citizens Assembly (public open house), email-blasts (neighbourhood associations, development industry, etc), informal, stakeholder interviews and the Task Force. Summary of KGMS Task Force To ensure proper input and co-ordination, the KGMS was prepared in consultation with a Task Force that includes representation from a broad range of stakeholders. The Task Force is comprised of two groups: a Community Advisory Group (includes representatives from the development industry, advisory committees, other stakeholder groups and citizens at large) and a Technical Working Group (includes primarily City staff and representatives from agencies). Appendix A includes a summary of Task Force meetings and will be expanded to include the 4 next scheduled meeting to discuss the draft Strategy, input received and implementation framework. Summar of Additional Stakeholder In ut and Public Comments Appendix B includes a summary of additional stakeholder input Regional Councillors from Kitchener, environmental interest group} and comments received from the initial project workshop held in 2401 and the Citizens' Assembly on Growth Management held in Gctober Z00$. Notice: Notice of the December ~ $~ DTS Committee meeting is not mandatory. Notwithstanding, notice was provided in the vllaterloo Region Record, the website, at the public open house, stakeholder interviews and through direct circulation of this report. CONCLUSI~3N: The Kitchener Growth Management Strategy is a comprehensive project aimed at providing an updated strategy and implementation framework for effectively managing a growing city, improving our business processes, and contributing to healthy and complete communities. This report provides a draft version of the Strategy document for consideration along with the framework for implementing two of the recommended actions in the Strategy. Staff recommend that the report and supporting documents be received at the December 1 ~t, DTS Committee meeting far information and referred to the KGMS Task Farce for consideration, and returned to DTS Committee on January 9t~, Z4o9. This provides the opportunity for Committee of Council to review the documents, hear delegations and provide comments at the December meeting and for staff to consider the comments any revisions suggested by the Task Force. Pending direction and approval of the strategy, the implementation initiative - Zo49-2014 Growth Management Plan -can then be presented. ~. _ .. ~u.`.- ........... ,. Brandon SI~~;.~Cfi- ,RPP Senior Planner ~~ il, er, MCIP, RPP Interim General Manager, DTS Department Alain Pinard, MA, MCIP, RPP Interim Director of Planning Attachments: Appendix A -Summary of KGMS Task Force Appendix B -Summary of Summary of Additional Stakeholder Input and Public Comments Kitchener Growth Management Strategy -DRAFT (www.kitchener.ca/kgms) KGMS Implementation Program Phase I (www.kitchener.ca/kcLms) - Summary -Annual Growth Management Monitoring Report -FRAMEWORK-- - Biannual Growth Management Plan -FRAMEWORK-- 5 Appendix A - Summary of Task Force and Comments Community Advisory Group (CAG) Members: Councillor Christina Weylie, Alain Pinard -Chair (City-Planning) Shelley Adams (City-Community/Corp. Planning), Laura-Lee Dam (Compass Kitchener), Kevin Eby (Region), Daniel Glenn-Graham (Public), Mark Hildebrand (City-Community Services), Bob McColl (Environment Committee), Sue Morgan (Public), Grant Murphy (City-Engineering), Peter Armbruster (WRHBA), Paul Britton (WRHBA), Dan Chapman (City-Finance), Ian Cook (Economic Development Committee), Rod Regier (City-Economic Development), Della Ross (City-Planning), Mark Seasons (University of Waterloo), Brandon Sloan (City-Planning) Meeting # 1: October 24, 2007 The initial meeting consisted of a presentation by the Project Managers of why Kitchener is working on a growth management strategy and what the project will involve. Initial discussion from all members included the following summary: ^ There must be a balance of growth between intensification and greenfield development. ^ New housing types are also an issue that must be looked at. ^ Two key factors for housing must be considered: choice and affordability. ^ Growth in Kitchener should be thought of in the context of the Region and coordinate with other initiatives and be implemented at the local level. ^ There needs to be a focus on complete communities and sustainable neighbourhoods. ^ The natural environment must also be considered, including water supply and quality, wetlands, air quality, traffic congestion, smog, etc. ^ Need direction on where to allocate City resources and to look at schools and infrastructure. Meeting # 2: June 3, 2008 The second meeting included a project update, a review of what was presented at the Council Strategy Session and a presentation on the Background Study -Current Baseline information. A summary of comments includes: ^ Impressive amount of information that has been gained. ^ The strategy itself should not be based solely on numbers/calculations. ^ There is a need to accommodate a range of unit types and not just population. ^ Growth will affect location of schools and there are concerns whether the hard and soft services will be available for greenfield areas. Also, will there be the necessary infrastructure capacity to accommodate intensification areas. ^ Kitchener must plan at a regional scale, since it has the highest capacity for growth in the region. ^ Whatwill the implications be for new people coming into the community? ^ Growth should be more focused on the rapid transit routes and should be denser within the Urban Growth Centre. Meeting # 3: June 17, 2008 The third meeting included a presentation of the early findings of the KGMS Background Study and implications for moving forward with the strategy. Phase II of the Communications Strategy/community engagement was discussed along with several focus questions. From the discussion, the following summary of comments were noted: ^ What are the motivations for owners in intensification areas to redevelopment? ^ The background information is based on current zoning and not market trends. ^ There is a need to investigate engineering infrastructure capacity. ^ Housing types in intensification areas are likely to be multiple dwellings and there is still a demand for single detached, therefore greenfield is still needed. Choice is needed. ^ Greenfield development can be walkable and transit supportive. ^ Rapid transit locations could change dynamics of an area. Meeting # 4: September 25, 2008 The fourth CAG meeting focused on the project timelines and approach, Kitchener's strategic position and the framework for the draft strategy document and the evolved staging of development program. A summary of comments includes: ^ We need a better handle on how the process redevelopment opportunities works and to improve the measure of true capacity for growth in these areas. ^ The infrastructure to support intensification growth and the payment thereof was identified as a need item to further understand and plan for. ^ How growth is directed to certain areas was also a concern and how it would tie to the market demand. ^ The City should utilize "good planning" techniques to directlorient built form and density to appropriate locations, such as transit routes. Meeting # 5: December 2008 (pending) Technical Working Group (TWG) Members: Dave Bennett (WCDSB), Shawn Callon (WRDSB), Nancy Davy (GRCA), Ruth-Anne Goetz (City-Finance), Greg Hummel (City-Community Services), Binu Korah (City-Engineering), Janette McDonald (City-Economic Development), John McBride (City-Transportation Planning), Barry Musselman (City-CSD Operations), Margaret Parkin (Region), Alain Pinard (City-Planning), Martina Schneider (City-Building), Brandon Sloan -Chair (City-Planning), Barbara Steiner (City-Planning), Nancy Steinfield (City-IT), Meeting # 1: November 14, 2007 The first meeting focused on presenting the purpose and terms of reference for the project. On outline of the process was identified. From the initial discussion, the following is a summary of comments: Some of the main concerns included infrastructure, integration of various master plans and initiatives, having complete communities, Capital Budget and funding, the environment and transportation. The concern with infrastructure and transportation is that there it will not be able to keep up with growth and current problems will only get worse. Also there needs to be a transportation master plan to show existing and proposed transportation routes, this includes throughout proposed subdivisions to show at they are interconnected. This interconnectedness is part of what the concern with having a complete community. There needs to be complete or sustainable communities which have all the necessary amenities which will also help eliminate the use of cars. Having the financial ability to fund and coordinate the necessary projects is also a concern. Environmental issues are also a concern. These issues include air quality, energy provision, water resources, environmental literacy, and the relation to new development/growth management. The plans that the City, Region and Province have should be integratedllinked with each other so that we have the best outcome. Meeting # 2: Joint meeting with CAG -June 2008 Appendix B - Summary of Community Engagement Comments The main purpose was to develop public awareness of what the provincial and regional growth plans mean for Kitchener and awareness of some of the key terms and implications. The informational DVD was shown and focused roundtable discussions were conducted. The main points raised through the comments at the session included: ^ Focus on enhancing downtown by creating a strong and vibrant core with adjacent livable and walkable communities ^ Encourage sustainable growth and mix use opportunities. ^ Locating growth in the existing built-up area could be done with Public projects similar to new loft conversions, by offering more financial Workshop I incentives to developers, providing more public amenities in April 2007 growth areas, allow high densities as an incentive, and enhance art, culture and heritage and limit further development of new suburbs. ^ A major concern was that transit is not supportive enough at its current state, however with the addition of new rapid transit this would likely help. ^ Another concern was for infrastructure and amenities and how the City would not be able to keep up with the expected growth. ^ The natural environment was cited as an important consideration, especially with respect to ground water and sustainability. The first Citizens' Assembly on Growth Management was held to inform residents about the KGMS project, to develop an understanding of what the implications of growth are in our community, what approach the City is taking to proactively plan for this growth and how citizens can get further involved. The intent is to build on this session for future communication endeavors. At the session, and on the City's website, comment sheets were provided and received from a number of individuals. A summary of the comments includes: Citizens' Assembly One of the main focuses of the comments relates to the concerns on Growth of infrastructure and transportation and they may not meet the Management needs of the future populations. Oct. 2008) Improving the transit system was a concern in order to reduce car use, improve walkability and linkages between communities and to minimize the impact of growth on the environment. ^ The downtown was again a main area that was highlighted for future development by creating a vibrant and livable place with lots of jobs and recreation amenities in order to keep people healthy and happy. ^ It was evident that people believe that there needs to be a strong balance between development of brownfields/intensification areas and greenfield subdivisions. ^ It was noted that greater intensification in the built area of the city should be accommodated to appropriate locations. This could take the form of taller 4-8 storey buildings to accommodate future growth, while maintaining the character, heritage, culture and affordability of existing neighbourhoods. ^ The other types of housing cited to accommodate for future growth includes townhouses, apartments and mixed use buildings. In addition to the KGMS Task Force and public session, consultations were held with a few additional stakeholders to inform them of the project and to gain their input. The Regional Councillors (from Kitchener} provided excellent feedback and generally noted the following: ^ Need to follow the provincial and regional plans; however Kitchener needs to figure out its own balance between intensification of brownfield and employment lands and greenfield development. ^ Development in greenfield areas and reurbanization areas should be controlled. ^ Growth management should respect the natural and cultural Additional as ects of the communit , as well as water conservation concerns. p Y Stakeholder The central transit corridor should be more hi hli hted and used g g Input. . as a catal st for redevelo ment, as well as create a more Y p Regional desirable service that is edestrian oriented. p Councillors The downtown should have more cultural and herita a tannin to gp g from create a more vibrant atmos here. p Kitchener To accommodate for future rowth different housin t es must be g g Yp considered, in greenfield and built up areas. Housing types such as units above commercial spaces are welcomed and a better use of land, as well as apartments and artist lofts/studios. ^ Affordable housing was the forefront of housing type concerns fit was noted Kitchener has done a great part of this provision and it should be distributed more widely throughout the region}. ^ Kitchener should plan for attracting the `creative class'. Additional communication of the KGMS project and input was obtained through meetings with several members of the Kitchener community that Additional have a strong interest in natural environment issues. The feedback Stakeholder includes extensive comments and excellent suggestions for further In ut: p investigating or addressing several matters related to the natural Environment environment. Briefly, some of the comments include: Interest Concerns for how rowth will im act the environment, s ecificall g p p Y Group air ualit , round water su I ,water ualit and uantit and q Y g ppY q Y q Y~ improvement and additional green spaces. ^ New development in intensification areas should have access to natural amenity areas. ^ Hidden Valley environmental area should be conserved. ^ New development should be required to have additional tree planting. ^ Transportation was another main issue in that reducing the use of cars is better for the environment, transit could help with this as well as having more mixed use buildings which is better for the pedestrian environment. ^ There needs to be greenfield and intensification areas under development or else the balance will be lost and one will take over, most likely greenfield development. However, we should not fully develop greenfield areas yet as it is the only undeveloped land left for the future. ^ We need to have self-sustaining communities that are interconnected by trails, bike paths, roads and transit routes. A summary of the KGMS project and directions was presented to a joint meeting of City Advisory Committees organized by Compass Kitchener. Joint The feedback on the presentation included that it is good to see the links Adviso ~ with the Plan for a Healthy Kitchener, that more should be done to Committee conserve the natural environment/air ualit a reciation for the q y' pp Session magnitude for potential growth in Kitchener butthatwe are coming up Oct. 2008 ~ ) with a proactive plan, and that affordable housing and culture should be included in the strategy consideration.