Planning Justification Report
Luciano Di Leonardo
275 St. Catharines Street - 6063 Highway 20
Township of West Lincoln
March, 2014
File 6402
Planning Justification Report – 275 St. Catharines Street-6063 Highway 20
Table of Contents
1
Introduction.............................................................................................................................. 1
2
Context and Site Description ................................................................................................. 1
2.1 Subject Lands .................................................................................................................... 1
2.2 Context .............................................................................................................................. 1
3
Proposed Development .......................................................................................................... 3
3.1 Supporting Studies ............................................................................................................ 4
4
Planning Policy Context ......................................................................................................... 4
4.1 Ministry of Envrionment D-6 Guidelines ............................................................................ 5
4.2 Provincial Policy Statement ............................................................................................... 5
4.3 Growth Plan for the Greater Golden Horseshoe ............................................................... 9
4.4 Niagara Regional Policy Plan .......................................................................................... 10
4.5 Township of West Lincoln Official Plan ........................................................................... 11
4.6 Township of West Lincoln Zoning By-law No. 79-14 ...................................................... 17
5
Urban Design ......................................................................................................................... 17
5.1 Connectivity ..................................................................................................................... 18
5.2 Walkability and Accessibility............................................................................................ 19
5.3 Variety in Built Form and Transition in Scale .................................................................. 19
5.4 Community Edges, Buffers, & Gateways ........................................................................ 19
6
Proposed Official Plan Amendment & Zoning By-law Amendment ................................ 20
6.1 Proposed Official Plan Amendment ................................................................................ 20
6.2 Proposed Zoning By-law Amendment............................................................................. 21
7
Planning Analysis and Justification ................................................................................... 22
8
Conclusion ............................................................................................................................. 23
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Planning Justification Report – 275 St. Catharines Street-6063 Highway 20
List of Tables and Figures
Figure 1 – Air Photo of Subject Lands ............................................................................................ 2
Figure 2 – Proposed Development of the Subject Lands ............................................................... 3
Figure 3 – Township of West Lincoln Official Plan, Schedule 2 Map ‘A’ ...................................... 12
Figure 4 – Schedule B-4 – Land Use Smithville, from Draft OPA 38 ........................................... 13
Figure 5 – Proposed Settlement Boundary Expansion, based on Draft OPA 38 ......................... 15
Figure 6 – Map 2 to Schedule A, Zoning By-law No. 79-14.......................................................... 17
Figure 7 – Concept Plan Showing Connections and Circulation Routes...................................... 18
Figure 8 – Example of Live-work Units along a Main Street ......................................................... 19
Figure 9 – Example of a Linear Park System................................................................................ 20
Figure 10 – Current (left) and Proposed (right) Land Use Designation in OPA 38 ...................... 21
Figure 11 – Current (left) and Proposed (right) Zoning ................................................................. 21
Table 1 – Supporting Studies/Plans Included with Submission ...................................................... 4
Appendix
Development Concept
ii
Planning Justification Report – 275 St. Catharines Street-6063 Highway 20
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1 Introduction
Weston Consulting is the planner for the owner of lands located at Concession 9, Lot 4, in the
Smithville community, Township of West Lincoln. Development is proposed that requires an
Official Plan Amendment and Zoning By-law Amendment. The proposed amendments are
submitted in the context of a comprehensive municipal review of the Township of West Lincoln
Official Plan, and propose to designate the subject lands “Residential/Mixed Use Area” and
“Medium Density Residential Area”. The application also includes an expansion to the Smithville
“Urban Settlement Area Boundary”. It is our opinion that the proposed development is
appropriate as the draft Official Plan includes additional employment lands at the north end of
Smithville, which will function better than the subject lands as a comprehensive employment
district. The proposed Urban Settlement Area Boundary expansion will facilitate medium density
development, whereas other expansion areas included in OPA 38 will only accommodate low
density development. This report includes a description of the subject lands and their physical
context, an overview of the applicable policy regime, and planning analysis and justification in
support of the proposed amendments and future development of the subject lands.
2 Context and Site Description
2.1
Subject Lands
The proposed development applications apply to all lands within the area bounded by
Industrial Park Road to the West, the Canadian Pacific Railway to the North, an unopened
right of way to the east, and a combination of Highway 20 and an unopened right of way to the
south. The applicant is the registered owner of properties located at 6087 & 6063 Highway 20,
which are located in the easterly portion of the subject lands. Other lands have been included
in the proposed amendments, as it is good planning to consider the entire area as a district to
be converted to permit more appropriate land uses given the area context.
The subject lands have an area of 31.9 ha (76.6 ac) and have frontage of approximately 785 m
(2,575 ft) on Highway 20, and 397 m (1,302 ft) on Industrial Park Road. The current land uses
include agriculture on the majority of subject lands and two detached dwellings, both of which
have access from Highway 20. There are several minor watercourses on the subject lands,
which the conservation authority has indicated are not significant and could be realigned to
accommodate the proposed development, subject to the necessary review.
2.2
Context
The subject lands are located at the eastern edge of the Smithville Urban Area. The lands are
currently undeveloped and there is limited urban development in the near vicinity. Specific land
uses include:
North – The subject lands abut the CN rail corridor. North of the tracks along Industrial Park
Road is the existing Smithville industrial park with a variety of industrial and other employment
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uses. They are characterized by large parcels with manufacturing, outdoor storage, or other
industrial operations. East of the industrial area the lands are used primarily for agriculture.
South – There are several residential lots on the south side of Highway 20, however the
Smithville Urban Boundary follows Highway 20 south of the subject lands so there are no
urban directly south. 20 Mile Creek is located on the south side of Highway 20 across from the
subject lands. Southwest is a residential development that is within the Smithville Urban Area.
East – The Smithville Urban Boundary follows the easterly boundary of the subject lands. As
such there is no existing urban development near to the subject lands to the east. The primary
use is agriculture.
West – Across Industrial Park Road is a commercial development that includes a variety of big
box and smaller format retail stores. Further west is residential development containing single
detached dwellings.
Figure 1 – Air Photo of Subject Lands
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3 Proposed Development
Amendments are proposed to the Township of West Lincoln Official Plan and Zoning By-law as
they relate to the subject lands, to provide for the future development with mixed use and
residential components. Specific building designs have not been prepared at this time. Future
development will include areas of residential townhouses; mixed use development that will
include residential, commercial, and employment uses with a significant component of live-work
units; and areas designated as public parks.
A development concept plan has been prepared for the subject lands that includes the proposed
Official Plan designations and road network. In total seven blocks are proposed to be designated
“Residential Medium Density Area” with a combined net area of approximately 9.1 ha (22.5 ac).
Three blocks are proposed to be designated “Residential/Mixed Use Area” with a combined net
area of approximately 15.2 ha (37.6 ac). There is also a “Public Park” component of the plan with
community parks at the central and southerly areas of the subject lands and a linear park system
with a proposed multiuse trail along the rail corridor. The net area for all park lands is 2.1 ha (5.2
ac).
Figure 2 – Proposed Development of the Subject Lands
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Given the maximum residential density permitted in the proposed “Medium Density Residential
Area” and “Residential/Mixed Use Area” designation is 40 units per hectare, it is anticipated that
up to 972 residential units could be accommodated on the subject lands. Commercial and
employment uses permitted in the mixed use are not subject to a density cap, however through
Site Plan Control the Township would have the opportunity to ensure that future development is
consistent with the surrounding area and planned character of the community.
The proposed road network includes four north-south roads with 20 m right of way widths, two of
which are proposed to intersect with Highway 20. Three east-west roads are proposed, two with
right of way widths of 20 m and one with a width of 9 m. Roadways occupy a total land area of
5.5 ha (13.6 ac). An additional 12 m wide berm is provided adjacent to the northerrnmost road
for noise attenuation adjacent to the rail corridor. The Development Concept is depicted in
Figure 2, and a larger version is included in Appendix A.
3.1
Supporting Studies
The following materials have been prepared by qualified professionals in accordance with the
Pre-Consultation Certification Form signed on November 21, 2013.
Table 1 – Supporting Studies/Plans Included with Submission
Submitted Materials
Planning Justification Report including
description of Urban Design considerations
Site Plan/Development Concept
Draft Official Plan & Zoning By-law
Amendments
Stage 1-2 Archaeological Assessment (study
to be completed when whether permits)
Environmental Noise and Vibration Impact
Study
Air Quality Study
Geotechnical Investigation
Municipal Servicing Study
Storm water Management Plan
Traffic Analysis
Land Use/Market Needs Study
Author
Weston Consulting
Weston Consulting
Weston Consulting
Amick Consultants Ltd.
dBA Environmental Services Inc.
Pollutech Environmental Ltd.
Landtek Ltd.
Ashenhurst Nouwens & Associates Inc
Ashenhurst Nouwens & Associates Inc
Paradigm Transportation Solutions Inc.
To be submitted at a later date
4 Planning Policy Context
Development of the subject lands must comply with the applicable policy regime that includes
provincial, regional, and municipal level policy documents. The proposed Official Plan
Amendment (OPA) and Zoning By-law Amendment (ZBA) are submitted in the context of a
municipal comprehensive review of the Official Plan. The policies that have been considered in
preparing this Planning Justification Report include the MOE D-6 Guidelines, Provincial Policy
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Statement (PPS), Growth Plan for the Greater Golden Horseshoe (Growth Plan), Region of
Niagara Policy Plan, Township of West Lincoln Official Plan, and West Lincoln Zoning By-law
No. 79-14.
4.1
Ministry of Envrionment D-6 Guidelines
The Ontario Ministry of Environment has a series of guidelines intended to ensure appropriate
separation distances between employment areas and sensitive land uses, which includes
residential. Because the proposed development contains residential units on lands that are
currently designated for industrial uses, and due to the proximity of other industrial areas to the
north of the subject lands, the recommendations included in the D-6 Guideline for separation
between industrial and sensitive land uses should be considered when preparing the
development plan for the proposed development.
The D-6 Guidelines identify concerns with regards primarily to dust and noise impacts, and
technical studies may be required to confirm that the impacts are at a satisfactory level for
residential uses. The proposed development includes a berm and sound wall abutting the rail
corridor, which will have the added benefit of mitigating impacts from the industrial uses north
of the railway corridor.
Various technical studies have been prepared including reviews of noise and vibration, traffic,
and air quality. These studies are included in the supporting materials for the proposed
development. All studies and reports have concluded that there are no impacts from the
nearby employment uses that would make residential development inappropriate on the
subject lands. The intent of the D-6 guidelines is to protect sensitive uses from impacts of
industrial uses, and in our opinion the proposed development complies with this intent, since
all studies have found no significant issues with regards to land use conflicts.
4.2
Provincial Policy Statement
The PPS (2005) is issued under Section 3 of the Planning Act and provides policy direction on
matters of provincial interest related to land use planning and development. The PPS includes
general policies to guide development in urban areas, as well as specific requirements of
employment lands and their conversion to non-employment land uses.
General policies and planning principles to be followed in Ontario and included in Section 1 –
“Building Strong Communities” This section states that:
Healthy, liveable and safe communities are sustained by:
a. promoting efficient development and land use patterns which sustain the
financial well-being of the Province and municipalities over the long term;
b. accommodating an appropriate range and mix of residential, employment
(including industrial, commercial and institutional uses), recreational and
open space uses to meet long-term needs;
c. avoiding development and land use patterns which may cause
environmental or public health and safety concerns;
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d. avoiding development and land use patterns that would prevent the
efficient expansion of settlement areas in those areas which are adjacent
or close to settlement areas;
e. promoting cost-effective development standards to minimize land
consumption and servicing costs;
f. improving accessibility for persons with disabilities and the elderly by
removing and/or preventing land use barriers which restrict their full
participation in society; and
g. ensuring that necessary infrastructure and public service facilities are or
will be available to meet current and projected needs (Section 1.1.1).
Through the section quoted above and subsequent sections of the PPS, the province provides
a clear mandate to municipalities to promote quality developments that respect the natural
environment and foster social and economic development. Intensification and redevelopment
are key components of this vision and are encouraged wherever possible and contextually
appropriate. The subject lands are considered to be a “Greenfield” site as there are currently
no established urban land uses. Development of this area should be at sufficient densities to
support efficient servicing and community cohesion. The proposed OPA and ZBA are
consistent with this policy direction as they include medium density residential and mixed land
uses.
Policies for employment areas include:
Planning authorities shall promote economic development and competitiveness
by:
1. providing for an appropriate mix and range of employment (including
industrial, commercial and institutional uses) to meet long-term needs;
2. providing opportunities for a diversified economic base, including
maintaining a range and choice of suitable sites for employment uses
which support a wide range of economic activities and ancillary uses, and
take into account the needs of existing and future businesses;
3. planning for, protecting and preserving employment areas for current and
future uses; and
4. ensuring the necessary infrastructure is provided to support current and
projected needs (Section 1.3.1).
The Township of West Lincoln has taken steps to ensure that sufficient employment lands are
provided to meet future demands. A study was completed for West Lincoln in 2011 to overview
the Employment Lands Development Strategy, and it concluded that there is currently an
undersupply of employment lands to meet the projected future demand. This conclusion is
based on an average employment density in Smithville of 10 jobs per hectare within
employment designations. The report recommends that the shortage of employment lands
could be addressed through the designation of additional employment lands and
implementation of planning policies that require higher intensity land uses.
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Conversion of employment lands is permitted in some instances. Policies for employment land
conversions include:
Planning authorities may permit conversion of lands within employment areas to
non-employment uses through a comprehensive review, only where it has been
demonstrated that the land is not required for employment purposes over the
long term and that there is a need for the conversion (Section 1.3.2).
Based on our review of the subject lands we do not find that they are well suited for
employment uses. It is our opinion that there are other locations in the Smithville Urban Area
that could accommodate the potential job growth that would otherwise be located in the subject
lands. The Township’s Draft OPA 38 includes several “Settlement Boundary Expansion Areas”
that will be incorporated into the built-up portion of Smithville as the community Grows.
Settlement Boundary Expansion Area #1 is north of the current settlement boundary and abuts
the existing Employment Area. These lands should be considered as an expansion to the
existing Employment area and would offset the loss of employment lands that would result
from the proposed OPA.
The parcels that constitute the proposed OPA have a combined gross area of 31.9 ha (76.6
ac), of which approximately 17.6 ha (43.5 ac) is designated employment lands. The gross area
of Settlement Boundary Expansion Area #1 in Draft OPA 38 is 34.6 ha (85.5 ac), and the net
area is 27.5 ha (68.0 ac). Therefore, the potential expansion of the Employment Area, with the
conversion of employment areas on the subject lands, will result in a net increase in
employment lands supply of at least 9.9 ha (24.5 ac) within the municipality. Additional
employment lands could be considered as part of the Municipal Comprehensive Review.
The need for a conversion is a result of the potential negative impacts on the Smithville
community if large scale employment development were to occur on the subject lands. Based
on our review of the subject lands and Draft OPA 38, Urban Expansion Area #1 is a much
better location for employment development. The lands within Urban Expansion Area #1 could
be designated for employment uses, which would allow the conversion of the subject lands
with no loss of employment lands overall. The expansion of the Smithville Urban Settlement
Area Boundary is a result of a need for new residential areas, which could be accommodated
on the subject lands, without the need to introduce new residential areas. This would delay the
requirement more rural lands until such time that growth has occurred requiring those lands for
urban development.
The West Lincoln Employment Lands Development Strategy states that the most likely form of
development on employment lands in Smithville is low-intensity warehouse-type buildings.
That form of employment development does not contribute to an interesting urban environment
and would not have a positive impact on travelers as they enter a major gateway to Smithville.
The Township has identified a need for additional lands for residential development in
Smithville, which is demonstrated by the inclusion of several urban expansion areas in OPA
38. Most of these expansion areas are located near residential areas, with residential
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development being the most appropriate form of growth in these areas. This demand for new
residential lands provides justification for the proposed conversion, as it would allow for the
needed residential growth to occur within the current urban boundary. It is considered to be
good planning practice to intensify and fill the existing urban area prior to expanding the
boundary, and the proposed amendments would facilitate this approach.
The subject lands are physically separated from the main employment district in Smithville by
the rail corridor, which serves as a natural barrier between employment and other land uses.
Relocating employment lands from the subject lands to the north end of the community will
result in a decrease in truck traffic through the community, creates opportunities for residential
and mixed use development near to the community core, and will continue the mixed use
corridor along St. Catharine Street. The nature of mixed use development is that some
employment uses will be included on the subject lands, such as small businesses and
professional offices. Inclusion of these uses in the proposed mixed use designation on the
subject lands, in addition to the designation of Urban Expansion Area #1 as employment lands,
will result in an overall increase in potential jobs in Smithville.
The expansion to the Urban Settlement Area Boundary that is proposed requires that the tests
of the PPS also be considered.
A planning authority may identify a settlement area or allow the expansion of
a settlement area boundary only at the time of a comprehensive review and only
where it has been demonstrated that:
a. sufficient opportunities for growth are not available through
intensification, redevelopment and designated growth areas to
accommodate the projected needs over the identified planning horizon;
b. the infrastructure and public service facilities which are planned or
available are suitable for the development over the long term and protect
public health and safety;
c. in prime agricultural areas:
1. the lands do not comprise specialty crop areas
2. there are no reasonable alternatives which avoid prime
agricultural areas; and
3. there are no reasonable alternatives on lower priority agricultural
lands in prime agricultural areas; and
d. impacts from new or expanding settlement areas on agricultural
operations which are adjacent or close to the settlement area are
mitigated to the extent feasible (Section 1.1.3.9)
The proposed expansion is consistent with these policies as the application is submitted in the
context of a comprehensive review of the official plan, additional lands are needed to
accommodate future urban development as demonstrated by the Township’s plan to expand
the Smithville urban settlement area in other locations, servicing is available to the site, the
subject lands are not a specialty crop area or prime agricultural area, and there will be no
impacts on existing agricultural uses. It is also our opinion that the subject lands are the
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superior site for urban expansion as compared to the other potential locations. The Township
has determined that an expansion to the Smithville Urban Settlement Area Boundary is
needed to accommodate future growth. The applications for the subject lands could be
considered as an alternative option that will result in greater diversity of residential units in
Smithville and achieves higher residential and employment densities.
Based on the information and analysis contained in this section, the proposed OPA that
includes the conversion of the subject lands from employment to mixed use and residential
land use designations and an expansion to the Urban Settlement Area Boundary is consistent
with the PPS. The applications are submitted in the context of a comprehensive Official Plan
review and it has been demonstrated that the land is not required as employment lands due to
the addition of new employment lands through an urban boundary expansion, and the
conversion is needed to enhance a primary gateway into Smithville.
4.3
Growth Plan for the Greater Golden Horseshoe
The Growth Plan for the Greater Golden Horseshoe (Growth Plan) was adopted by the
Province of Ontario in 2006 to provide additional policy direction to upper and lower tier
municipalities in the context of Canada’s most urbanized region. The policies generally
reinforce the principles established in the PPS, but provide more direct requirements for how
development should occur.
As with the PPS, the Growth Plan encourages intensification and infill development wherever
possible and contextually appropriate. The Growth Plan requires that by 2016, a minimum of
40% of residential development in all municipalities shall be within the established built up area
through infill development (Section 2.2.3.1).
Conversion of employment lands to a non-employment use may only be permitted in the
context of a municipal comprehensive review of the Official Plan, subject to an expanded
series of tests. The Growth Plan states that:
Municipalities may permit conversion of lands within employment areas, to nonemployment uses, only through a municipal comprehensive review where it has
been demonstrated that –
a. there is a need for the conversion
b. the municipality will meet the employment forecasts allocated to the
municipality pursuant to this Plan
c. the conversion will not adversely affect the overall viability of
the employment area, and achievement of the intensification
target, density targets, and other policies of this Plan
d. there is existing or planned infrastructure to accommodate the proposed
conversion
e. the lands are not required over the long term for the employment
purposes for which they are designated
f. cross-jurisdictional issues have been considered (Section 2.2.6.5).
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The proposed OPA is consistent with this section as it has been established in the previous
section that a conversion is needed and that the loss of employment land area will be
compensated through the designation of Urban Expansion Area #1 as employment lands. The
proposal meets the intent of section c) as there is no potential impacts on nearby employment
lands due to the existing rail corridor that provides a barrier between the subject lands and
other employment areas. Due to the Greenfield status of the subject lands there are no
concerns with regards to infrastructure as new facilities would be required for any development
category. Servicing is currently available to the intersection of Highway 20 and Industrial Park
Road. The subject lands could be accommodated with an extension to these services along
Highway 20.
The lands will not be required for employment uses when new employment lands are
designated at the north end of Smithville, and the inclusion of employment uses in the
proposed mixed use designation will facilitate a level of employment that will help meet the
long term needs of the Township. Cross-jurisdictional issues are not of concern in this instance
as no adjacent municipalities will be impacted by the location of employment lands in
Smithville.
The Growth Plan also includes a list of requirements in Section 2.2.8 for municipalities to
consider when contemplating an expansion to a settlement area boundary. The proposed
expansion is considered to meet the Growth Plan requirements as the Township of West
Lincoln has already determined that expansion is warranted and necessary. The proposed
development is the superior location for future urban development that would include
residential and mixed land uses. It is therefore appropriate under the provisions of the Growth
Plan to permit the expansion of the Urban Settlement Area Boundary to include all of the
subject lands.
Based on the above the proposed OPA is consistent with the employment lands conversion
and settlement boundary expansion requirements of the Growth Plan. Because the future
development includes medium density residential and mixed use designations, the subject
lands will contribute to the Township achieving its density and infill development objectives,
which is consistent with the Growth Plan. Overall the applications comply with the policy
direction established for the subject lands in the Growth Plan.
4.4
Niagara Regional Policy Plan
The Regional Policy Plan for the Regional Municipality of Niagara provides further policy
direction to all lands included in the lower tier municipalities that make up the region. The
Regional Policy Plan dictates that the primary responsibility for determining the locations and
sizes of land use designations lies with local municipalities; as such the Plan does not
designate the subject lands for any particular land use. The Plan requires that adequate
housing, employment opportunities, and services be provided within the local official plans to
meet demand for these uses.
Among the objectives for urban areas is “To increase the number and type of employment
opportunities throughout the Region” (Objective 5.5) and “To assist and encourage the
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traditional existing businesses and industries in the Region” (Objective 5.6). The proposed
development is consistent with these objectives because it preserves the current level of
traditional employment lands with the addition of lands to the urban area north of the existing
industrial area, and also incorporates a mixed use designation that will include additional
employment uses and opportunities. The end result will be greater employment diversity in the
Township of West Lincoln.
Objectives for residential development include “To contribute to the overall goal of providing a
sufficient supply of housing which is affordable, accessible, adequate and suited to the needs
of the full range of types of households and income groups in Niagara” (Objective 5.11). The
proposed development contributes to this objective by including new residential opportunities
at medium densities. Mixed use areas will also include residential opportunities that will
contribute to the diversification of the housing market in Smithville.
An amendment to the Regional Policy Plan (Amendment 2-2009) was approved by Regional
Council in May, 2009 and provides updated policies that comply with the current PPS and
Growth Plan policy directions. This plan is currently under appeal to the OMB and therefore not
in force. However, it provides insight in to the future policy direction for Niagara Region. This
amendment requires that a 10 year supply of employment lands be designated in local official
plans. Given that there is a net increase in employment lands in Smithville of 9.9 ha (24.5 ac)
after the urban area expansion and conversion of the subject lands, the proposed development
can permitted under the employment policies of the Regional Policy Plan. OPA 2-2009 also
provides additional policies for urban settlement area boundary expansions, which reiterate the
requirements of the Growth Plan. These policies are met for the reasons described in Section
4.3 of this report.
4.5
Township of West Lincoln Official Plan
The Township of West Lincoln is in the process of updating its Official Plan, including the
location and supply of employment lands and the Urban Settlement Area Boundary. This
process opens a window in which the Township can consider the conversion of employment
lands if it meets the provincial and regional policy requirements. Based on the analysis above
the proposed conversion of the subject lands is consistent with the PPS, Growth Plan, and
Regional Policy Plan and may be considered by the Township of West Lincoln.
Proposed Land Use Designations
The subject lands are currently designated “Industrial” and “Prestige Industrial” in the Official
Plan. Draft OPA 38 will designate the subject lands “Service Commercial”, “Employment Area”,
and a small area of “Natural Heritage System”.
The current West Lincoln Official Plan was approved by the Region of Niagara in 1998, an is
intended to provide development policies for the Township that implement the directions from
higher levels of government and provide for appropriate development given the local context.
The vision established in the Plan includes continued viability of farming, protection of the
natural environment, recognition of existing rural communities, recognition of Smithville as the
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centre of growth in the Township, and a focus on opportunities for economic growth. While this
is the current in-force policy, Draft OPA 38 includes new policies that are intended to
modernize the planning policies and ensure conformity to provincial and regional polices that
have come into effect since the current Official Plan was prepared. The OPA for the subject
lands is submitted for the proposed policies of Draft OPA 38.
Lands Subject to
Proposed OPA
Figure 3 – Township of West Lincoln Official Plan, Schedule 2 Map ‘A’
The current “Employment Area” designation occupies a 17.6 ha (43.5 ac) portion of the subject
lands and would permit the development of various employment uses including manufacturing,
processing, offices, ancillary retail sales, etc. The Township’s Employment Land Development
Strategy includes the finding that uses in employment designations in Smithville provide an
average of 10 jobs per hectare. Based on this anticipated employment density, removal of the
employment designation from the subject lands will result in a need to accommodate 176 jobs
elsewhere in Smithville. The proposed mixed use designation includes an opportunity for a
significant employment component, which reduces the need for jobs to be accommodated
elsewhere. The proposed Settlement Boundary Expansion Area #1 in Draft OPA 38 includes
34.6 ha (85.5 ac), which will accommodated 346 jobs according to the same average density.
The area along Highway 20 is proposed to be designated “Service Commercial” in OPA 38.
Permitted uses in this designation include various low-intensity commercial uses such as
automobile related uses, hotels and motels, restaurants, garden centers, and retail warehouse
stores. This designation would be appropriate adjacent to an employment zone but not
adjacent to the proposed residential development on the northerly portion of the subject lands.
OPA 38 includes a new Official Plan category called “Residential/Mixed Use Area” that is
appropriate along the Highway 20 Corridor and abutting medium density residential uses.
Permitted uses in the Residential/Mixed Use Area designation include residential townhouses
and stacked townhouse units, live-work units, and mixed use buildings with commercial uses
on the ground floor and residential units on upper floors. Through the inclusion of live-work
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units a level of employment will remain on the subject lands, which will contribute to the overall
level of employment opportunities in Smithville.
Lands Subject to
Proposed OPA
Figure 4 – Schedule B-4 – Land Use Smithville, from Draft OPA 38
OPA 38 introduces requirements for employment lands conversions to the Official Plan, which
mirror the conversion requirements included in the Growth Plan. Because it has been
demonstrated in the previous section of this report that the proposed conversion meets the
requirements of the Growth Plan, the Township of West Lincoln may consider the proposed
OPA in the context of its comprehensive review of the Official Plan.
Overall, OPA 38 is proposed for adoption by Township Council for compliance with new policy
directions from the province and region. Key features of the OPA include:
a) Encourage infill and intensification within the built boundary;
b) Encourage that green field lands be developed at a density of 50 people plus
jobs per hectare; and
c) Encourage that sufficient lands are available for employment growth in order
to achieve a complete community (Report No. PD-027-14, p. 3).
The proposed development applications maintain these objectives by:


Including infill development within the current built boundary at a much higher
level of intensity that would be achieved under the proposed land use
designations.
Includes Greenfield development at medium densities (20-40 residential units
per hectare), which will meet or exceed the Growth Plan objective of 50
residents and jobs combined per hectare. New jobs are also proposed on the
subject lands included through live-work units and mixed use development.
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
14
Includes the conversion of employment lands to a non-employment use, but
ensure that there is a net increase in employment areas in Smithville through
live-work units and the designation of Settlement Boundary Expansion Area #1
as employment lands.
The proposed development is consistent with the future policy direction for the Smithville as
outlined in Draft OPA 38. The application includes new residential opportunities, provides
alternate residential forms, and will provide high quality development at the primary eastern
entrance to Smithville. Lands located north of the existing industrial park in Settlement
Boundary Expansion Area #1 are better suited for traditional employment development, and
there is good reason to re-designate the subject lands per the proposed OPA. Attributes of the
proposed expansion area that make it a better candidate for employment uses include:



The greater degree of separation from sensitive land uses such as residential
neighbourhoods. This results in lower potential for land use conflicts in the future;
Less traffic infiltration into Smithville due to the location of Urban Expansion Area #1 at
the north end of the urban area; and
Location closer to existing employment lands offers greater opportunity for an
employment district and allows other uses on the subject lands, which is a more
prominent site suitable for a mix of employment, commercial, and residential land uses.
Proposed Urban Settlement Area Boundary Expansion
The proposed OPA includes a revision to the Smithville “Urban Settlement Area Boundary”,
and will result in the addition of 5.2 ha (12.8 ac) to the Smithville urban area. This expansion
was requested by the applicant in a submission made to Township of West Lincoln Council on
November 5, 2013. The same expansion area is reflected in the proposed OPA.
Draft OPA 38 includes a recommendation regarding the locations of urban boundary
expansion areas. The proposed OPA includes an alternative option for staff’s consideration.
The alternative proposal is intended to be considered in the context of the proposed
development, which includes the application of the “Residential/Mixed Used Area” and
“Medium Density Residential Area” land use designations to the proposed expansion area.
At present, the areas proposed to be included in the urban boundary expansion are located
predominantly at the north and north-west edges of Smithville. These areas are identified as
Areas 1, 3, 4a, 4c, 6, 7, 8, and 9 on Schedule B of Draft OPA 38.
All of the recommended expansion areas, except for Area 1, are located at the periphery of the
existing urban boundary adjacent to existing low density residential developments consisting of
single detached dwellings. The most appropriate form of residential development on the
proposed expansion areas will likely be a similar form of low density residential development.
Expansion area 1 is appropriate to accommodate Employment uses, and is located adjacent to
existing and designated employment areas. The location of the proposed expansion areas will
Planning Justification Report – 275 St. Catharines Street-6063 Highway 20
15
require the extension of the
municipal servicing system to
ensure full servicing can be
provided to future development.
The locations for the urban
expansion areas in Draft OPA 38
will result in an undesirable form
of urban sprawl in that they
encourage the development of
areas on the fringe of the
Proposed Settlement
community.
The
proposed
Boundary Expansion
expansion areas are located so
that they do not contribute to or
facilitate the development of
vacant and undeveloped lands
that are located within the urban
boundary. The resultant failure to
use the urban expansion process
to facilitate and encourage
development of lands within the
urban
boundary
could
be
detrimental
to
achieving
balanced growth within the
Figure 5 – Proposed Settlement Boundary Expansion,
community as a whole.
based on Draft OPA 38
In addition, we have the following specific concerns with the proposed urban expansion areas:



A study was prepared by AMEC to examine potential improvements and rehabilitation
works necessary to increase capacity of the existing servicing system, identifies
substantial wastewater constraints for new developments occurring in the southwest
area of the existing urban area for Smithville. The report also establishes issues with
respect to existing water pressures for the northwest area of Smithville and identifies
requirements for future upgrades to the watermain system to accommodate future
growth;
The resultant form of development within the proposed expansion areas will likely be in
the form of low density residential development which will do little to achieve a range of
varied housing opportunities within the community; and,
Given the availability of lands located south east within the existing urban area to
accommodate new growth, albeit subject to required planning applications, the
proposed urban expansion areas could be located in close proximity to these lands to
facilitate and compliment infill development within the existing urban area.
As an alternative to the proposed expansion areas in OPA 38, we have respectfully included a
proposed Settlement Area Boundary Expansion Area in the proposed Official Plan
Planning Justification Report – 275 St. Catharines Street-6063 Highway 20
16
Amendment. This alternative Urban Settlement Area Expansion is located on the south side of
Townline Road east of Highway 20. The lands have an area of approximately 5.2 ha (12.8 ac)
and will have frontage on the future extension of Townline Road and Highway 20.
In the context of the pending development applications, which contemplate the inclusion of
higher density and mixed-use development along the Highway 20 corridor at the southeast
corner of Smithville, the proposed alternate expansion area will allow for the continuation of
these higher order uses along this corridor in the expanded settlement area.
There are a number of important planning considerations which lend support to the proposed
alternate expansion area on the subject lands. In this regard we offer the following justification
points for your consideration:






The subject lands, and the proposed alternative expansion area, are located at the
eastern gateway to the Town and will provide an opportunity for an attractive
development which will reinforce the main street character of St. Catherines
Street/Highway 20;
The inclusion of the proposed alternative expansion area will allow for the efficient use
of existing and planned municipal infrastructure in the form of municipal servicing,
roads and land resources;
The development of this subject lands for the intended land uses will provide for a
range of higher density and mixed use land uses which are currently not available
within the municipality;
Agricultural land uses which are located within the proposed alternative expansion
area are not situated on prime agricultural lands and are better suited for the higher
order mixed-use land uses which are being contemplated by our clients;
The development of lands within the existing urban boundary, requires the extension of
municipal servicing to the limits of the existing urban boundary which will provide an
opportunity for shovel ready development lands within the proposed alternative
expansion area; and,
The land owners of subject lands and the proposed alternative expansion area have
the capacity and interest to develop the lands in the immediate future. Other options for
expansion area considerations may not develop as readily and with the range of uses
that are proposed to be developed.
The most compelling consideration regarding the proposed alternative expansion area is the
ability to make efficient use of existing and planned infrastructure. The proposed alternative
expansion area will do so effectively and will support the implementation of infrastructure
improvements in advance of substantial development of the area. We submit that the proposed
alternative expansion area will allow for development of the subject lands in a logical and
efficient manner and one that will allow for development to occur in an expedient timeframe. In
the context of the pending development applications, the proposed alternative expansion area
provides a more favourable option when contemplating urban boundary expansions. It is our
position that the proposed alternative expansion area is a superior location to those locations
included in OPA 38.
Planning Justification Report – 275 St. Catharines Street-6063 Highway 20
4.6
17
Township of West Lincoln Zoning By-law No. 79-14
The subject lands are zoned “Development (D)” and “Agriculture (A1)” in the Township of West
Lincoln Zoning By-law No. 79-14. The D zone is intended to permit only existing uses, certain
agricultural uses and home occupations. It allows the Township an opportunity to review any
proposed development through a Zoning By-law Amendment. The A1 zone permits agricultural
production and related uses.
The proposed development requires that a Zoning By-law Amendment be approved to
implement the proposed Official Plan Amendment. At this time there is no zone that
corresponds to the proposed “Residential/Mixed Use” Official Plan designation. The
appropriate zoning regulations will be developed in collaboration with Township planning staff.
The Zoning By-law includes regulations for Townhouse development, and it is proposed that
the “Residential Multiple (RM2)” zone be applied on the subject lands to correspond with the
“Medium Density Residential Area” Official Plan designation, and the “Open Space (O1)” zone
be applied to the proposed public parks.
Lands Subject to
Proposed ZBA
Figure 6 – Map 2 to Schedule A, Zoning By-law No. 79-14
5 Urban Design
The design vision for the subject lands includes development of a mixed-use, medium density
community with a variety of residential built forms and employment supportive uses, which will
provide opportunities for economic growth. The proposed development will make better use of
underutilized and undeveloped land on the east part of Smithville and establish a neighbourhood
with a sense of place and a positive identity for future residents.
Planning Justification Report – 275 St. Catharines Street-6063 Highway 20
18
The overall development will be based on design principles which ensure high quality urban
design and a coherent built environment. The design objective will be to provide a semi-urban
character to this area that will support the gradual transition towards the more urban character of
downtown Smithville located further west from the subject lands.
The following sections include descriptions of the broader design principles which will govern the
concept of the proposed development.
5.1
Connectivity
The proposed development will have a high level of permeability and connectivity through the
layout of streets and sidewalks providing connections to various parts of the community. The
block sizes will support pedestrians and cyclists providing intersections at convenient locations
and distances. The extension of Townline Road and another access from Highway 20 will
provide connections to the development.
A linear park system/multiuse trail along the north edge of the development will have the future
opportunity to extend east and west and provide connections to neighbouring communities.
Figure 7 – Concept Plan Showing Connections and Circulation Routes
Planning Justification Report – 275 St. Catharines Street-6063 Highway 20
5.2
19
Walkability and Accessibility
An interconnected system of sidewalks and trails within parks will provide the community with
a comfortable pedestrian environment that will connect within and around the development and
encourage people to walk. The street sidewalks will be barrier free and made accessible to all.
The linear park system will be a significant open space feature that will encourage recreational
walking and will be connected to the central open space/park through tree lined sidewalks for
the comfort of pedestrians.
5.3
Variety in Built Form and Transition in Scale
The proposed development envisions a variety in built forms catering to housing needs and
offering a range of employment opportunities. These buildings will be distributed by providing a
gradual transition in scale and height. The medium density development will be in the form of
3-4 storey live-work units and 4 storey mixed use buildings with residential apartments. These
buildings will be located appropriately along the edges of Highway 20 close to the street,
creating appropriate street edges and definition to the community. These buildings will have an
active street-building relationship by facing the retail/store frontages towards the street.
Buildings located at priority locations such as corners and near main entrances will be
accentuated with corner treatments and special articulations to signify these locations. All
parking and services will be located at the rear of the buildings and screened from street view.
Some standalone commercial buildings
may be located at the west side of the
development along Industrial Park
Road in order to accommodate a range
of employment supportive uses as well
as a variety in the built form and an
appropriate transition towards Industrial
Park Road. The townhouses will be 2-3
storeys in height and will be located in
the interior. These townhouses will
carry the same character of the mixedFigure 8 – Example of Live-work Units along a Main
use buildings but the massing, height
Street
and architectural treatment will provide
a different scale. The front facades may include porches, bay windows, dormer windows etc. to
provide a pedestrian scale as well as visual interest. Garages will be integrated with the
townhouse design but will not dominate the front façade.
5.4
Community Edges, Buffers, & Gateways
A proposed future roundabout at the intersection of Highway 20 and Townline Road will mark
an eastern gateway feature to the Town of West Lincoln. This future roundabout will be located
near to the proposed eastern access to the site from Highway 20. This roundabout feature will
provide a big opportunity and exposure to this community as being placed at one of the Town’s
future gateway locations. High quality architecture and urban design of the buildings and public
realm will ensure the correct enhancement of this gateway location.
Planning Justification Report – 275 St. Catharines Street-6063 Highway 20
20
The mixed-use buildings along Regional Road 20 along with a well-designed public realm will
enhance and provide character to the southern edge of the community and support a gradual
transition towards downtown Smithville further west of the subject lands. The Industrial Park
Road frontage will have more standalone
commercial buildings that will reflect the variety in
employment supportive uses and offer an
appropriate transition to the existing neighbouring
land uses to the west.
The linear park system at the northern boundary
not only provides a physical buffer from the
existing railway but also allows residents to make
use of this open space buffer as a multi-use trail
system and provides a distinct definition to the
northern edge of the community.
In summary, it may be said that the proposed
development will provide great opportunities for
creating a community at the east part of West
Lincoln that will include high quality urban design
and architecture characterizing the transition from
rural to semi-urban and urban spaces. The
proposed development will be a positive addition Figure 9 – Example of a Linear Park
to the landscape of West Lincoln that will create a System
sense of place and pride as well as a positive
community identity.
6 Proposed Official Plan Amendment & Zoning By-law Amendment
6.1
Proposed Official Plan Amendment
The proposed OPA includes mapping changes that implementation existing land use
designations from Draft OPA 38. No revisions to any policies are proposed. Amendments
include:






Addition of the “Residential Medium Density Area” designation to the northerly portion
of the property;
Addition of the “Residential/Mixed Use Area” along the southerly and westerly
boundaries at the existing road frontages;
Addition of “Public Park” areas at the southwesterly portion and along the rail corridor;
Revision to the “Urban Settlement Area Boundary” to include lands south of the
Townline Road right of way.
Removal of “Employment Areas” from the northerly portion of the subject lands;
Removal of “Service Commercial” designation from area along Highway 20; and
Planning Justification Report – 275 St. Catharines Street-6063 Highway 20

21
Removal of “Agriculture” designation from southernmost lands along Highway 20.
Figure 10 – Current (left) and Proposed (right) Land Use Designation in OPA 38
6.2
Proposed Zoning By-law Amendment
The proposed Zoning By-law Amendment includes:




Removal of the existing “Development (D)” and “Agricultural (A1)” zones from the
subject lands,
Implementation of a new zone, which will be developed through consultation with
Township planning staff, to correspond to the “Residential/Mixed Use” Official Plan
designation;
Implementation of “Residential Multiple (RM2)” zone to correspond to the proposed
“Residential Medium Density Area” Official Plan designation;
Implementation of the “Open Space (O1)” zone to correspond to the proposed “Public
Parks” Official Plan designation.
Figure 11 – Current (left) and Proposed (right) Zoning
Planning Justification Report – 275 St. Catharines Street-6063 Highway 20
22
7 Planning Analysis and Justification
Based on the information and analysis contained herein with regards to attributes of the subject
lands, their physical context, and the applicable policy regime; it is our opinion that the proposed
Official Plan Amendment and Zoning By-law Amendment is consistent with the applicable
policies, and includes appropriate land uses for the subject lands. The following points are
provided to summarize the information contained in this report and offer clear planning
justification for the approval of the proposed Official Plan Amendment and Zoning By-law
Amendment.
► The proposed development complies with provincial, regional, and municipal
conversion requirements – The subject lands contain 17.6 ha (43.5 ac) of employment
lands, as designated in Draft OPA 38. These lands are proposed to be re-designated to
permit mixed-use and residential development. This conversion meets the requirements
of the applicable policy regime as the Township of West Lincoln will maintain its ability to
meet future employment demand, the conversion is needed to provide an improved
easterly gateway to Smithville, it does not adversely impact any other employment lands,
and there is no net loss of employment lands in the comprehensive official plan review
due to the addition of new employment lands to the north of the Smithville Urban Area.
► The proposed development is consistent with intensification and infill policies – All
levels of government have implemented planning polies that support intensification and
infill development within urban boundaries. The subject lands are within the Smithville
Urban Area, and while they are currently a Greenfield site the proposed development will
increase the average density in Smithville and help West Lincoln fulfill its responsibility
for intensification as described in the Growth Plan. The minimum density for Greenfield
development of 50 residents and jobs combined per hectare will be met in the proposed
development.
► The proposed development contributes to the diversity of Smithville’s housing
supply – Smithville currently has an abundance of single detached dwellings and few
other forms of residential units. The proposed development includes townhouses, livework units, and apartment units included in mixed use buildings. As such housing options
will be improved and a greater variety of residential forms at varying costs will be
available to current and future residents of Smithville.
► The Settlement Area Boundary expansion will allow for development of medium
density uses, where other expansion area could only accommodated low density
land uses – The proposed expansion of the urban boundary on the subject lands will
facilitate medium density residential and mixed use development. All other urban
expansion areas included in Draft OPA 38 abut either employment or low density
residential uses and could therefore not accommodate townhouses or other forms of
medium density development. The subject lands is therefore a better location for an
urban boundary expansion and would benefit Smithville in the long term as it will provide
more variety in housing types to the community and delay the need to convert
agricultural lands to urban development.
Planning Justification Report – 275 St. Catharines Street-6063 Highway 20
23
► The proposed development will improve the primary eastern gateway to Smithville
– Currently, as one drives into Smithville from the east there is a gradual transition from a
rural context to the urban character of Smithville. The transition is characterized by an
increasing number of detached dwellings and commercial uses. The current land use
designation of the subject lands would alter the experience once developed by
encouraging large scale development of low intensity industrial and highway commercial
uses that have low visual interest to travelers. The proposed designations encourage
high quality of urban design that will include a unique and interesting eastern entrance to
the community.
8 Conclusion
The proposed development applications are submitted in the context of the Township’s
comprehensive review of the Official Plan and propose to change the permitted forms of
development from employment and highway commercial land uses to mixed-use and residential
areas. The proposed land use designations are more appropriate for the subject lands, given
their prominence and development potential. Employment lands are better suited for the urban
expansion area north of the existing industrial park, and the subject lands should be considered
for higher order urban land uses. The proposed amendments would facilitate the development of
the subject lands for land uses that attract business and residents to Smithville, improve the
eastern gateway to the community, and provide new housing forms and employment
opportunities to current and future residents of Smithville.
Based on our review of the subject lands, their physical context, and the applicable policy regime
it is our planning opinion that the proposed Official Plan Amendment and Zoning By-law
Amendment are appropriate development for the subject lands and warrant approval by the
Council of the Township of West Lincoln.
Yours truly,
Weston Consulting
Per:
David Capper, BES, MCIP, RPP
Associate
Appendix:
Development Concept
DEVELOPMENT CONCEPT
TOWNSHIP OF WEST LINCOLN
SMITHSVILLE
6m
9m
30
.
0
1
3
0
.
5
20m
ROW
9m
BLOCK E
Area: ±1.4 ha
RO
W
DEVELOPMENT STATISTICS:
30
m
Park
20
m
RO
W
Total Land Area:
Linear Park System/Multiuse Trail
se
t
ba
ck
9m
BLOCK F
Area: ±1.7 ha
9.1 ha
15.2 ha
Total Public Parks Area:
(Blocks K, L and M)
2.1 ha
Total Road Area:
5.5 ha
A
LEGEND
20
m
75
.0
20m
ROW
RO
W
13
9.
7
20
m
Total Residential/Mixed Use Area:
(Blocks A, B and C)
A
RO
W
75
.0
14
2.
5
BLOCK H
Area: ±1.0 ha
31.9 ha
Total Medium Density Residential Area:
(Blocks D, E, F, G, H, I and J)
BLOCK L
Area: ±1.3 ha
75
.0
BLOCK K
Area: ±0.4 ha
PURPOSES ONLY
RO
W
Lands Subject to Official Plan Amendment
30
.0
75
.0
193
.
9
6
0
.
0
BLOCK I
Area: ±1.4 ha
Medium Density Residential Area
9m
75
.0
30
m
BLOCK B
Area: ±2.5 ha
se
t
ba
ck
Residential/Mixed-use Area
BLOCK G
Area: ±1.3 ha
RO
W
20
m
13
1.
5
RO
W
Public Parks
Park
BLOCK M
Area: ±0.4 ha
Primary Access
BLOCK J
Area: ±1.2 ha
Secondary/Service Access
75
.0
BLOCK C
Area: ±6.6 ha
20m
ROW
Future Roundabout
Notes:
All boundaries are approximate based on available mapping
and subject to confirmation by survey.
16
8.
7
20m
RO
W
FOR DISCUSSION
Conceptual Cross Section AA
Not to scale
BLOCK D
Area: ±1.1 ha
BLOCK A
Area: ±6.1 ha
DRAFT
12m
30m
6
0
.
0
1
3
0
.
6
3m
Road layout is conceptual and subject to change.
The Township's road design standards have not been considered.
Environmental constraints have not been considered.
WESTON
Vaughan office
201 Millway Ave. Suite 19
CONSULTING
Vaughan, Ontario L4K 5K8
planning + urban design
Oakville office
T. 905.738.8080 F. 905.738.6637
1660 North Service Rd. E. Suite 114
Oakville, Ontario L6H 7G3
1-800.363.3558 westonconsulting.com
W
O
mR
0
2
T. 905.844.8749 F. 905.738.6637
REVISIONS LIST
File Number: 6402
0
25
50
75
100
125
Drawn By:
Planner:
SCALE
METERS
Drawing Number:
Date Drawn: 17 NOV 13
MH
RG
Scale:
1:2000
CAD:
6402/concepts/C1 Mar 17_14.dgn
C1