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HALTON HILLS

INTENSIFICATION

OPPORTUNITIES STUDY

Intensification Strategy

Planning, Development and Sustainability Department December 2009

The Gallery at Bennett Village, Georgetown

Cote Terrace, Georgetown Village Terraces, Georgetown

Victoria Terrace, Georgetown Legion Terrace, Acton

December 2009 (DRAFT) 1

Halton Hills Intensification Opportunities Study INTENSIFICATION STRATEGY

1.0 INTRODUCTION

1.1 MUNICIPAL SITUATION/OVERVIEW

Council of the Town of Halton Hills adopted a new Official Plan in September 2006. The Official Plan implemented Regional Official Plan Amendment No. 25, based upon a 2021 planning horizon, population and employment of 70,000 and 29,400 respectively, and no change to the boundaries of the Georgetown and Acton Urban Areas. The Official Plan was prepared to achieve conformity with the new Regional Official Plan (ROPA 25) and the 2005 Provincial Policy Statement. Subject to a number of mostly technical modifications, the Region of Halton approved the Halton Hills Official Plan, and the Plan came into force and effect on March 28, 2008. The Regional Official Plan and Halton Hills Official Plan must still be brought into conformity to Places to Grow, the Greater Golden Horseshoe Growth Plan, which came into effect in June 2006. In order to address conformity to Places to Grow and address the many issues related to future growth, the Region of Halton is nearing the completion of the Sustainable Halton Plan process. Places to Grow is based upon a 2031 planning horizon and requires the Region of Halton to accommodate 36,000 more people and 32,000 more jobs by the year 2021 than in the current Regional Official Plan, and an additional 130,000 people and 50,000 jobs between 2021 and 2031.1 Places to Grow also requires that, by the year 2015, 40 percent of annual residential development must occur through intensification within the urban areas existing in June 2006. In order to implement this intensification target, Places to Grow requires all Greater Golden Horseshoe municipalities to develop an intensification strategy and implement the strategy through amendments to their official plans. The Region of Halton, with the participation of the local municipalities, is addressing this requirement through Sustainable Halton. In September 2009, the Region released Regional Official Plan Amendment (ROPA) No. 38, which implemented the Preferred Growth Option to 2031 resulting from the Sustainable Halton Process. ROPA No. 38 contains a 2031 planning horizon for urban boundaries and associated population and employment targets consistent with the GGH Growth Plan. Population and employment has been allocated to the four local municipalities in keeping with the Sustainable Halton Preferred Growth Option. In ROPA No. 38 the Town has been allocated population and employment of 94,000 and 43,000 respectively to the 2031 planning horizon, involving an expansion to the Georgetown and 401/407 Employment Corridor Urban Areas. Table 2 of ROPA No. 38 contains an overall intensification target to achieve the 40 percent requirement of 32,200 housing units between 2015 and 2031. Based upon the Reference Scenario of intensification unit potential provided by the Halton Hills Intensification Opportunities Study, and the Preferred Land Use Alternative of the GO Station Area Land Use Study, the Region has set a minimum target for Halton Hills of 5,100 housing units

1 These population numbers are based on the Total Population (including Census undercount)

numbers in the GGH Growth Plan (650,000 in 2021), which differ from the Census Population numbers contained in the Region Best Planning Estimates (628,900 in 2021).


through intensification between 2015 and 2031. The other detailed intensification policies proposed in ROPA No. 38 are not addressed in the Intensification Strategy, but upon the adoption of ROPA No. 38 by Regional Council, will be addressed in the Amendment to the Halton Hills Official Plan that will implement the Intensification Strategy for the Town.

1.2 BASIS FOR STUDY

The Intensification Opportunities Study is an important component of a Halton Hills strategy for growth management linked to the Region-wide Sustainable Halton Plan, which in turn is a response to Places to Grow, the Greater Golden Horseshoe (GGH) Growth Plan. The GGH Growth Plan requires all municipalities to prepare an intensification strategy to phase in and achieve intensification and the intensification target. The Study has contributed to the development of a policy framework (i.e. intensification strategy) that will form a component of a growth management strategy for Halton Hills, which provides input to the Sustainable Halton Plan process. Subsequently, the Sustainable Halton process will result in updated Official Plans for the Region of Halton and Town of Halton Hills (see Schedule One). The objective is to provide for residential and mixed-use intensification opportunities, while ensuring that the character and stability of established residential neighbourhoods and commercial areas is maintained and enhanced.

1.3 STUDY OVERVIEW The purpose of the Intensification Opportunities Study is to critically assess the capability of the Town to address the intensification policies contained in Places to Grow. This included evaluating the role Halton Hills should play in achieving the Halton Region-wide 40 percent intensification target contained in the GGH Growth Plan. In particular, the Study identifies intensification areas, in keeping with the policy direction of Places to Grow, where residential and mixed use development should be directed within the established urban areas of Georgetown and Acton. In addition, the Study updates the current inventory of individual intensification sites in Halton Hills, including a re-assessment of the intensification potential of those sites. Specifically, the Study:

1. Identifies intensification areas as the focus for intensification efforts, as well as

areas where intensification should not be directed.

2. Updates the inventory originally prepared for the 1999 Housing Intensification Opportunities Study and updated through the 2002 Municipal Housing Statement Update and ROPA 25 Ontario Municipal Board hearing preparations.

3. Conducts a review of the policies of the GGH Growth Plan, and determines the need for policy changes to the Halton Hills Official Plan to achieve conformity with the GGH Growth Plan.

4. Identifies successful Halton Hills examples of intensification.



5. Prepares a Halton Hills Intensification Strategy, which will subsequently be implemented through an amendment to the Halton Hills Official Plan.

The main tasks of the Study included the following;

• Review of the current Provincial (in particular Places to Grow) and Regional

planning context, and application of this policy framework to Halton Hills; • Provision of examples of successful intensification projects in the Town, which

may serve as models for future efforts; • Identification of an appropriate number and variety of intensification areas as the

focus for intensification efforts, based upon the policy framework of the Official Plan (2006) and Places to Grow;

• Update of the inventory of intensification sites in the Town, and identification of new intensification sites, as appropriate;

• Assessment of the physical potential of individual sites and areas to accommodate intensification (e.g. site configuration, existing uses);

• Assessment of the market potential (i.e. housing demand/demographics) to accommodate intensification in Halton Hills;

• Provision of opportunities for public input to the process; and, • Development of an Intensification Strategy as input to the Sustainable Halton

Plan process, and as the basis for amendments to the Halton Hills Official Plan.

A number of the above aspects of the Study were completed through the Background Report (February 2009), and in particular the Reference Scenario for intensification, which forms the basis for the intensification unit potential contained in this Strategy. Aspects of the Intensification Strategy that require ongoing work include:

• Assessment of the adequacy of physical and community infrastructure for an individual site or area (e.g. road network, water/wastewater, parks, schools, community centres, etc.); and,

• Identification of the appropriate scale and type of development in intensification areas (i.e. built form, density, uses).

1.4 STUDY PROCESS This Study has been guided by input provided by a Steering Committee comprised of Town Councillors, residents of Acton and Georgetown, and a representative from Heritage Halton Hills. As well, a Technical Advisory Committee comprised of Town and Regional Planning staff, as well as Town Recreation and Parks and Infrastructure Services staff has provided technical input. The Steering Committee met on five occasions to: review the GGH Growth Plan and Halton Hills Official Plan policy context for intensification, discuss the principles guiding intensification and the criteria for evaluating intensification sites and potential, provide input to, and review intensification site mapping, and review the draft Intensification Strategy document. The meeting dates were:

• April 24, 2008;



• July 8, 2008; • November 3, 2008; • February 11, 2009; and, • September 28, 2009.



2.0 PLANNING POLICY REVIEW

2.1 RECOMMENDATIONS FOR CHANGES TO THE OFFICIAL PLAN The Official Plan does not formally address the policy framework contained in Places to Grow, due to the timing of the approval of the Growth Plan relative to approval of Regional Official Plan Amendment 25. Section G2.3 of the Official Plan (2006) does address conformity with Places to Grow, including the examination of opportunities for intensification. The following table outlines the policies regarding intensification in the Growth Plan, and recommends changes to the Halton Hills Official Plan to implement the Growth Plan as part of a Halton Hills Intensification Strategy. These recommended changes also respond to Regional Official Plan Amendment No. 37, the Region of Halton basic requirements of the Growth Plan conformity amendment. The Strategy does not yet completely address proposed Regional Official Plan Amendment No. 38, although the implications of ROPA 38 are discussed. The Official Plan Amendment to implement the Intensification Strategy will systematically address the proposed intensification policies of ROPA 38, which is the Regional Plan amendment that completes the Region’s Growth Plan conformity exercise. Table 2.1: Growth Plan and Halton Hills Official Plan/Intensification Strategy

GGH GROWTH PLAN Recommendations for Changes to the Official Plan

2.2.2 Managing Growth

Population and employment growth will be accommodated by –

• directing a significant portion of new growth to the built-up areas of the community through intensification

• focusing intensification in intensification areas

• reducing dependence on the automobile through the development of mixed-use, transit-supportive, pedestrian-friendly urban environments

• The Halton Hills Intensification Strategy, which will be implemented through amendment to the Official Plan, will meet this requirement.

• This Intensification Strategy outlines a policy framework for incorporation into the Official Plan.

2.2.3 General Intensification

1. By the year 2015 and for each year thereafter, a minimum of 40 per cent of all residential development occurring annually within each upper- and single-tier municipality will be within the built-up area.

• The 40% target is applied across the Region of Halton as a whole, not lower-tier municipalities (i.e. Halton Hills), and is implemented through the allocation of intensification units to each local municipality after 2015 by the Region of Halton through Regional Official Plan Amendment No. 38.

• Therefore, it is not necessary to reference the 40% target in the Halton Hills Official Plan.



GGH GROWTH PLAN Recommendations for Changes to the Official Plan


6. All municipalities will develop and implement through their official plans and other supporting documents, a strategy and policies to phase in and achieve intensification and the intensification target.

• The Halton Hills Intensification Strategy, which will be implemented through amendment to the Official Plan, will meet this requirement.

• This Intensification Strategy outlines a policy framework for incorporation into the Official Plan.

This strategy and policies will –

a) be based on the growth forecasts contained in Schedule 3, as allocated to lower-tier municipalities in accordance with policy 5.4.2.2;

• The Sustainable Halton process at the Region of Halton has determined the allocation of the Schedule 3 2031 population and employment forecast to the lower-tier municipalities, including Halton Hills, and it is contained in proposed Regional Official Plan Amendment No. 38.

• ROPA 38 includes a table allocating intensification units to each local municipality from 2015 to 2031, in order to meet the 40% intensification target.

• The Halton Hills Official Plan will be amended to include a table allocating the local share of intensification between Georgetown and Acton, and generally describing the distribution of units among Intensification Areas, according to the Reference Scenario contained in the Background Intensification Report, adopted by Council, augmented by the residential unit potential in the Preferred Land Use Alternative of the Georgetown GO Station Area Study.

b) encourage intensification generally throughout the built-up area;

• Section D1 of the HHOP states the objective of the Plan to create the opportunity for various forms of residential intensification, where appropriate.

• Section D1.4.2 of the HHOP encourages infill development in established residential neighbourhoods, which is compatible with the neighbourhood character.

• The HHOP will be amended to reference the Built-Up Area as defined in the Growth Plan with respect to intensification.



GGH GROWTH PLAN

Recommendations for Changes to the Official Plan

c) identify intensification areas to support achievement of the intensification target;

• The Official Plan will be amended to identify the framework of Intensification Areas contained in the strategy.

• The framework will consist of: 1) Major Transit Station Area – Georgetown GO

Station Area/Mill Street Corridor;

2) Intensification Corridor – Guelph Street from Main Street to Sinclair Avenue, including Community Node, GO Station Area and Downtown Area land use designations;

3) Redevelopment Areas – Civic Centre District, South Acton Special Study Area, Acton Downtown East, Georgetown Downtown North, etc.

4) Other Areas – Downtown Areas.

d) incorporate the built boundary delineated in accordance with Policy 2.2.3.5;

• The Official Plan will be amended to reference the Built Boundary, and show the Built Boundary on the Town-wide, Acton and Georgetown land use schedules.

Note: Due to the incorporation of the Hamlet of Stewarttown into the Georgetown Urban Area, the Built Boundary may be revised by the Province to include the existing built-up area of Stewarttown.

e) recognize urban growth centres, intensification corridors and major transit station areas as a key focus for development to accommodate intensification;

• The Georgetown GO Station Area will be defined as a Major Transit Station Area, and shown on the Town-wide land use schedule as a Major Transit Station, with objectives and policy directing intensification to this area, and cross-referencing the Secondary Plan contained in Section H of the HHOP.

• The Guelph Street Corridor will be recognized as an Intensification Corridor, which is implemented in policy through the Community Node, Downtown Area, and GO Station Area HHOP policies.

f) facilitate and promote intensification;

• The Town’s Community Improvement Strategy is expected to result in a Town-wide Community Improvement Plan, with complementary Official Plan policies, which will offer financial incentives within the financial capability of the Town to facilitate intensification in the key Intensification Areas identified by the Strategy;



GGH GROWTH PLAN


• Minor revisions to the HHOP policies that enhance as necessary the policies contained in Section D1 of the Official Plan will be made (e.g. use of Growth Plan terminology).

g) identify the appropriate type and scale of development in intensification areas;

• The appropriate type and scale of development in individual Intensification Areas will be addressed through detailed Secondary Plans (e.g. GO Station Area) or Comprehensive Development Plans addressing detailed urban design (e.g. Downtown Areas, Civic Centre District, South Acton Special Study Area). The Background Report general conclusions will provide a foundation for these exercises.

h) include … minimum density targets for other intensification areas consistent with the planned transit service levels, and any transit-supportive land-use guidelines established by the Government of Ontario;

• Minimum densities/FSI should be introduced through the GO Station Area Secondary Plan process. They do not appear in the current Draft Secondary Plan due to a lack of information on planned transit service levels, and the timing of the introduction of full-day 2-way service to the Georgetown GO Station.

• With the exception of the Downtown Areas, the other Intensification Areas already contain minimum densities. Minimum densities are not recommended for the Downtowns due to their character, with the exception of a specific area of the Georgetown Downtown adjacent to Guelph Street, and possibly the current Acton Tourist Sub-Area that is the subject of a detailed review.

i) plan for a range and mix of housing, taking into account affordable housing needs;

• Planning staff are also participating in a Joint Municipal Housing Statement with the Region of Halton and other local municipalities.

• New housing policies to implement ROPA 38 affordable housing and range of housing targets will be developed as a separate amendment to the HHOP, as an update to the Municipal Housing Statement, and preparation of a Halton Hills Housing Strategy (applying to both Built-up Area and Designated Greenfield Area).



GGH GROWTH PLAN


j) encourage the creation of secondary suites throughout the built-up area.

• Section D1.3.1.6 of the HHOP establishes “as of right” permission for secondary suites/ accessory apartments in low density residential areas of the Town, subject to certain planning criteria. The new Comprehensive Zoning By-law will contain the zoning regulations necessary to implement this policy direction.

• No additional changes are recommended as part of this strategy.


7. All intensification areas will be planned and designed to –

a) cumulatively attract a significant portion of population and employment growth;

b) provide a diverse and compatible mix of land uses, including residential and employment uses, to support vibrant neighbourhoods;

c) provide high quality public open spaces with site design and urban design standards that create attractive and vibrant places;

d) support transit, walking and cycling for everyday activities;

e) generally achieve higher densities than the surrounding areas;

f) achieve an appropriate transition of built form to adjacent areas.

• These general intensification policies will be added in a new “Intensification Areas” section of the Official Plan, to achieve conformity with the Growth Plan and Regional Plan ROPA 37 and/or ROPA 38.

2.2.5 Major Transit Station Areas and Intensification Corridors 1. Major transit station areas and

intensification corridors will be designated in official plans and planned to achieve –

a) increased residential and employment

densities that support and ensure the viability of existing and planned transit

• Major Transit Station Area policies are to be addressed through the GO Station Area Secondary Plan. The Secondary Plan is expected to be implemented by separate amendment into the Official Plan in early 2010.

• The Draft GO Station Area Secondary Plan contains policies addressing pedestrian, bicycle and commuter access to the station.



GGH GROWTH PLAN


service levels; b) a mix of residential, office,

institutional, and commercial development wherever appropriate.

2. Major transit station areas will be

planned and designed to provide access from various transportation modes to the transit facility, including consideration of pedestrians, bicycle parking and commuter pick-up/drop-off areas.

3. Intensification corridors will generally be planned to accommodate local services, including recreational, cultural and entertainment uses.

• Intensification Corridors are addressed through policies in the HHOP for the Community Node. Downtown Area and GO Station Area.

This section of the Strategy has compared the policy framework of the GGH Growth Plan with respect to intensification to the Halton Hills Official Plan, and recommended policy changes to address conformity to the GGH Growth Plan, which would form part of the amendment to the Official Plan to implement the Intensification Strategy.



3.0 IDENTIFICATION OF INTENSIFICATION AREAS

3.1 BUILT BOUNDARY (BUILT-UP AREA) As addressed in detail in the Background Intensification Report (February 2009), the Province has delineated a Built Boundary for the Region of Halton. This boundary generally encompasses the limits of the existing urban areas in the Region as of June 2006, and defines the Built-Up Area that is to be the focus for intensification over the 2031 planning horizon of the Growth Plan. This Built Boundary delineates the Built-Up Area of Acton and Georgetown as shown on Schedules Two and Three. Town planning staff provided detailed input to the Province in the development of the Built Boundary to ensure the planning objectives of the Town were considered. As noted in Section 2.0 of the Strategy, the Town-wide, Acton and Georgetown land use schedules of the Official Plan will need to be revised to show the Built Boundary. In addition, the existing general objectives and policies of the Official Plan regarding intensification will be revised to refer to the Built Boundary or Built-Up Area, rather than the urban area as a whole.

3.2 INTENSIFICATION AREAS PLANNING FRAMEWORK The Town’s Intensification Strategy is based upon the planning framework of priority areas to focus intensification presented in Figure 3.1, as outlined in the Background Intensification Report (February 2009). The planning framework is also outlined from a spatial perspective on Schedule Four. The remainder of this Strategy document contains an explanation of the policy changes recommended to implement the planning framework.

Figure 3.1: Intensification Areas Planning Framework

Georgetown GO Station Area

South Acton Special Study Area; Civic Centre District;

Georgetown Downtown Area

Acton Downtown Area; Community Node

Other Brownfield Sites; Greyfield/Redevelopment

Sites

Vacant/Infill Sites

Accessory Apartments




3.2.1 Sustainable Halton Preferred Growth Option In June 2009, Regional Council approved a Preferred Growth Option for the Region of Halton to 2031. This concluded the Sustainable Halton Plan exercise to achieve GGH Growth Plan conformity, included the expansion of the Georgetown Urban Area of up to 20,000 people, and was also predicated on 5,100 units within the Built-Up Area of Halton Hills as the Town’s share of the 40 percent intensification target. Regional Official Plan Amendment No. 38 is now implementing the Preferred Growth Option into the Regional Official Plan. As shown in Table 3.1, the Halton Hills share of intensification reflects the Reference Scenario of intensification developed through this Study, and described in the Background Report (February 2009), combined with the intensification potential identified in the Preferred Land Use Alternative of the GO Station Area Land Use Study. 3.2.2 Water and Wastewater Servicing As noted in the Background Report (February 2009), in order to deliver intensification, viable servicing solutions for the Georgetown and Acton Urban Areas must be found. The Region currently has servicing investigations underway for both urban areas relative to previously planned growth to 2021. The Region of Halton is also undertaking work based upon the intensification potential to 2031 identified by the Local Municipalities. Proposed ROPA No. 38 contains policies intended to ensure that Intensification Areas are “development-ready”, by making water, wastewater servicing available to support local intensification strategies. Upon adoption of ROPA No. 38, Water/Wastewater Servicing Master Plans will begin. Table 3.1: Town-wide Intensification (2006-2031)

Intensification Area

Low Density Medium Density High Density Acc. Apts.

Total

2006-2014 Total 265 280 285 110 940

Georgetown 130 280 285 100 795

Acton 10 0 0 10 20

Hamlets 125 0 0 0 125

2015-2031 Total 1,065 1,350 2,440 245 5,100

Georgetown 210 585 2,180 225 3,200

Acton 745 765 260 20 1,790

Hamlets2 110 0 0 0 110

2 The Hamlets of Glen Williams, Norval and Stewarttown are considered part of the Built-Up Area,

but are not within the Built Boundary. Therefore, residential development within these areas is considered intensification, but they are not the focus of intensification in the Intensification Strategy. Through ROPA No. 38, Stewarttown becomes part of the Georgetown Urban Area.


3.3 GEORGETOWN URBAN AREA As shown in Table 3.1, the Georgetown Urban Area offers the greatest potential for intensification in Halton Hills, representing over 60 percent of the potential intensification units in the Town between 2015 and 2031. This potential intensification is concentrated in the GO Station Area and Civic Centre District, with additional potential in the Downtown Area, and Community Node (i.e. Guelph Street). Individual vacant or redevelopment sites, and accessory apartments also provide some intensification potential. Table 3.2 shows the intensification unit potential for the short-term (2006-2014), and long-term (2015-2031) when the Growth Plan intensification target is applied, for the Georgetown Urban Area. 3.3.1 GO Station Area/Mill Street Corridor The Preferred Land Use Alternative of the GO Station Area Land Use Study has informed the development of this strategy, in terms of the intensification potential of the area and its role in meeting overall intensification targets for the Town. The study provides an opportunity for the Town to identify, in consultation with the community, appropriate locations and development criteria for intensification. The end-product of the study will be a Secondary Plan in accordance with the requirements of the Halton Hills Official Plan to guide future redevelopment proposals within this area. The Secondary Plan, together with an Official Plan Amendment implementing the Intensification Strategy, and amendments respecting the new growth areas to 2031, will constitute the Town responsibilities in implementing the Growth Plan.

As recognized through the GO Station Area Land Use Study, the opportunity presented by certain strategic locations in the proximity of the Georgetown GO Station, as well as the findings of the Discussion Paper prepared as part of the Community Improvement Plan Program, demonstrate that the Georgetown GO Station Area should be a top priority for intensification, and in particular higher density intensification, in Halton Hills. In fact, the conclusions of the Preferred Land Use Alternative Report of the GO Station Area Land Use Study resulted in a significant increase in the intensification unit potential of the area as compared to the conclusions of the Intensification Study Background Report. As shown in Table 3.2, the unit potential of the GO Station Area (including the Mill Street Corridor) has been increased from 700 to 1,500 units after 2015. Therefore, the development of a Secondary Plan for the GO Station Area is a key component of the Halton Hills Intensification Strategy. A Draft GO Station Area Secondary Plan (August 2009) has been prepared for public consultation and agency review. 3.3.2 Georgetown Downtown Area The vision for the Downtown Core of the larger Downtown Area, as articulated in the Official Plan, is that it continue to function as a focal point for commerce and hospitality in the Town, accommodating a diverse mix of commercial, residential, cultural and social uses and opportunities. The scale and location of development is to maintain and/or enhance the existing character of the Downtown.



Table 3.2: Georgetown Intensification (2006-2031)

Intensification Area Low Density Medium Density High Density Total

2006-2014 TOTAL 130 280 285 795

GO Station Area 0 0 0 0

Downtown Area 0 0 0 0

Community Node 0 0 10 10

Civic Centre District 0 0 105 105

General Sites 130 280 170 580

Accessory Apartments N/A N/A N/A 100

2015-2031 TOTAL 210 585 2,180 3,200

GO Station Area 0 150 1,390 1,540

Downtown Area 5 30 305 340

Community Node 0 0 170 170

Civic Centre District 0 380 140 520

General Sites 205 25 175 405

Accessory Apartments N/A N/A N/A 225

2006-2031 TOTAL 340 865 2,465 3,995

The Georgetown Downtown Area represents an opportunity for appropriate mixed-use infill and redevelopment that will enhance its role as a focal point for the community. The necessity for land assembly or redevelopment in most cases, and the priority to maintain the



heritage character of the area, are significant factors that must be considered in any scenario for intensification. This Strategy also recognizes the opportunity to guide development of the Guelph Street corridor as an Intensification Corridor as articulated in the Growth Plan. Policies contained in the draft GO Station Area Secondary Plan, combined with policy changes specific to the Downtown Area and Community Node, can further this component of the Strategy.

3.3.2.1 Georgetown Downtown North Redevelopment Area This Strategy recommends an approach which builds upon the existing policy framework by focusing intensification opportunities in the portion of the Georgetown Downtown Area in proximity to Guelph Street. It is recommended that the area generally bounded by Guelph Street and Back Street, Silver Creek and Main Street, bisected by Cross and Mill Streets, be identified in the Official Plan, and specific policies, including the use of a Comprehensive Development Plan or Block Plan approach to encourage a comprehensive planning vision for the area, be incorporated into the Official Plan (see Map 1). It is also recommended that consideration be given to increasing the maximum density for residential uses in the area covered by the CDP from 100 units per net hectare to 150 units per net hectare, or use a Floor Space Index/Floor Area Ratio approach to controlling density. The current Official Plan maximum height of 8 storeys with the opportunity to go to 12 storeys through the bonusing provisions of the Official Plan is considered appropriate, and is not recommended for change. The intersection of Guelph and Mill Streets should also be recognized as a focal point for intensification, similar to Guelph/Maple and Guelph/Mountainview intersections in the Community Node designation, in reference to the policies for this intersection in the GO Station Area Secondary Plan and the recommended Official Plan policies for the Downtown Area. 3.3.3 Civic Centre District This intensification area is comprised of the Civic Centre Area designation and Residential Special Policy Area 5 in the Official Plan.

The Civic Centre District given its large vacant or redevelopment parcels and amenity value, recommend it as another priority for intensification. This priority depends on the direction of Halton Hills Council with respect to the future use of the Town-owned lands. It is recommended that Council fully participate in a Comprehensive Development Plan (CDP) for the Civic Centre Area, to develop a land use vision for the area consisting of a mixed-use node, containing enhanced community facilities and amenities, together with residential intensification. Residential Special Policy Area 5 also has a requirement for a CDP. It is recommended that the planning for these 2 adjacent areas be complementary in order to achieve a coherent land use vision for the area as a concentration of institutional, community and residential uses. Consideration should also be given to re-designation of a portion of the RSPA 5 lands for high density residential uses, given that the area generally meets the Official Plan criteria for re-designation, including arterial road access.



3.3.4 Community Node In the Official Plan, the Community Node designation applies to the portion of the Guelph Street corridor focused on the Guelph Street/Mountainview Road and Guelph Street/Maple Avenue intersections. The Community Node is intended to function as the major multi-use, multi-purpose commercial area of the Town. The designation is intended to foster development and redevelopment that provides a diverse range of retail, service, community, institutional and recreational uses serving the Town as a whole; encourage the consolidation, redevelopment, intensification and expansion of major commercial uses, to foster a more pedestrian-oriented environment; and, encourage the development of complementary residential and institutional uses to capitalize on the location and existing infrastructure of the area.

In keeping with the emphasis in the Growth Plan on Intensification Corridors, it is recommended that the Community Node designation, together with the area of Guelph Street within the Downtown Area and GO Station Area of the Official Plan, be recognized as an Intensification Corridor. Within this corridor, the intersections of Guelph and Maple Avenue (High Density Residential Sub-Area) and Guelph and Mountainview Road (together with Guelph and Mill Street) should be recognized as “nodes” where intensification should be focused. No change to the detailed policy framework for these areas is recommended. 3.3.4 Other Georgetown Sites Through the GO Station Area Land Use Study Preferred Alternative it was recommended that current ADM Cocoa industrial site be re-designated from Low Density Residential to Medium Density Residential, in order to permit a townhouse development, which would be integrated with the development of the former Hammond Manufacturing site for low density residential use. It is recommended that the implementing Official Plan amendment for the Strategy include this re-designation (see Map 2). A property owner has also requested that the property at 127 Mountainview Road, immediately adjacent to the GO Station Area, has also been recommended for re-designation to High Density Residential from Medium Density Residential. Acknowledging that the property generally meets the Official Plan criteria for re-designation to Medium or High Density Residential, including arterial road access and proximity to an Intensification Area (i.e. GO Station Area); it is recommended for re-designation to High Density Residential (see Map 3). This recommendation has been endorsed by the Study Steering Committee.

3.4 ACTON URBAN AREA The Greenbelt Plan (2005) identified Acton as a Town/Village and placed all of the rural lands surrounding the Acton Urban Area in the Protected Countryside designation. According to the Greenbelt Plan, Towns/Villages in the Protected Countryside continue to be governed by municipal official plans within their approved settlement area boundaries, but intensification within these communities is limited to modest growth compatible with the long term role of these settlements as part of the Protected Countryside and the capacity to provide locally based sewage and water services.



Notwithstanding the above, according to the Places to Grow Act the entire area of the Town of Halton Hills is included within the GGH Growth Plan area, and as explained previously the majority of the Acton Urban Area has been included within the Built Boundary. Notwithstanding the limitations placed on the intensification of Acton by the Greenbelt Plan, the Official Plan recognizes the role of some level of intensification to the continued vitality and community development of Acton. In addition, the largest area of vacant land within the Built Boundary of Halton Hills is located in the community of Acton (i.e. Maple Leaf lands). 3.4.1 Acton Downtown Area

The vision for the Downtown Core of the larger Downtown Area is identical to that related to the Georgetown Downtown Core, as articulated in the Official Plan, and is that it continue to function as a focal point for commerce and hospitality in the Town, accommodating a diverse mix of commercial, residential, cultural and social uses and opportunities. The scale and location of development is to maintain and/or enhance the existing character of the Downtown. Table 3.3: Acton Intensification (2006-2031)

Intensification Area

Low Density

Medium Density

High Density

Acc. Apts.

Total

2006-2014 TOTAL 10 0 0 10 20

Downtown Area 0 0 0 N/A 0

South Acton Special Study Area

0 0 0 N/A 0

General Sites 10 0 0 N/A 10

2015-2031 TOTAL 745 765 260 20 1,790

Downtown Area 0 80 10 N/A 90

South Acton Special Study Area

700 400 140 N/A 1,240

General Sites 45 285 110 N/A 440

TOTAL: 2006-2031 755 765 260 30 1,810



3.4.1.1 Acton Downtown East Redevelopment Area (Tourist Sub-Area) The Official Plan vision for the Acton Tourist Commercial Sub-Area is that it continue to function and evolve as a major tourist area in the Town, the Region and beyond, by building on the success of this existing use and permitting development of additional uses that complement the existing use. Also, given the location of the Acton Tourist Commercial Sub-Area at the eastern Gateway into downtown Acton, development in the area is to be designed to be an attractive entry feature into the downtown area. Permitted uses in the Acton Tourist Commercial Sub-Area are limited to: retail specialty goods such as apparel and accessories; hotels and inns; places of entertainment; museums and art galleries; and restaurants. In recognition of changing circumstances in the east downtown area, the Official Plan was subsequently modified to indicate that the Town will monitor development activity within the Acton Tourist Commercial Sub-Area designation. If development opportunities appeared to be too limited to ensure the viability of the entire designation or part of it, the Town would consider alternative land uses that would be appropriate given the location of these lands at the eastern Gateway to the Downtown Acton as part of the next review of the Official Plan or through a comprehensive study of the Acton Downtown Area. In the meantime, the Official Plan requires the preparation and approval of a Comprehensive Development Plan (CDP) for all contiguous lands in the area, before the approval of individual development applications. Based upon the conclusions with respect to the intensification potential of the Tourist Sub-Area contained in the Background Intensification Report (February 2009), the Strategy has identified the area as a potential focus for intensification which will complement the commercial function of the Downtown Area, and take advantage of the potential future location of a GO station in the area (see Map 4). Therefore, an important element of an Intensification Strategy for the Town should include a review of the Acton Downtown Area, and in particular the Acton Tourist Sub-Area, and that this review take into consideration the conclusions of the Intensification Opportunities Study Background Report. The Town has initiated the Acton Downtown Land Use Policy Review, in keeping with this recommendation. 3.4.2 South Acton Special Study Area The South Acton Special Study Area (Maple Leaf lands) is most likely the largest intensification site and brownfield in the Region of Halton at approximately 71 ha of gross developable area. The area represents a significant opportunity for a new comprehensively planned neighbourhood, which will enhance the community of Acton, if the significant servicing constraints of Acton can be resolved. The appropriate types and mix of land uses for this site remain to be determined, but this Strategy has assumed that residential uses are most likely to be the predominant use in any redevelopment situation. The land use assumptions that were the basis for the Reference Scenario in the Background Intensification Report generated 1,200 residential units as shown in Table 3.3. A municipally-led Comprehensive Development Plan or Secondary Plan process is recommended, as directed in the Official Plan, to develop a land use vision for the area, with residential/mixed use intensification as an important component. An approved land use



plan for the area is needed in order to provide a policy basis for the intensification potential of the area. A key issue that the comprehensive planning exercise would need to address is water and wastewater servicing.

3.4.3 Other Acton Sites While the number and size of potential intensification sites in Acton are generally small, there are a few sites that are an exception. A relatively large 3.7 hectare site on Wallace Street in Acton was re-designated to Medium Density Residential through the last Official Plan Review, in recognition that the site was in an area in transition to residential uses. Other industrial and low-intensity residential properties in this area also exhibit some intensification potential. This area is in close proximity to the Downtown Area and the potential Acton GO station. In recognition of the intensification potential found in the Background Intensification Report, it is recommended that an adjacent Low Density Residential area also be re-designated to Medium Density Residential in order to permit townhouses (see Map 5). A request was also received to re-designate the property at 97 Bower Street from Low Density Residential to High Density Residential (see Map 5). The Intensification Opportunities Steering Committee considered the request, and advised that the property was more appropriate for medium density housing or some form of senior’s housing. There may be some merit to considering medium density or low-rise seniors housing on the property, given its proximity to the Downtown Area, notwithstanding that location does not meet all of the criteria for re-designation contained in the Official Plan (e.g. collector road access). However, in order to permit more detailed consideration of the planning merit of the re-designation, it is recommended that this matter be addressed through the recently initiated Acton Downtown Land Use Policy Review.

3.5 ACCESSORY APARTMENTS The GGH Growth Plan directs that a municipal Intensification Strategy will include policies to encourage the creation of secondary suites (i.e. accessory apartments) through-out the built-up area. The Halton Hills Official Plan, in conformity with the Regional Official Plan, contains a policy that permits accessory apartments in single detached or semi-detached dwellings in the Low Density Residential designation, subject to the regulations of the zoning by-law, compliance with the Building and Fire Codes, adequate parking, site design in order not to have a negative impact on the character of the surrounding area, and adequacy and availability of water/wastewater servicing. The Draft Comprehensive Zoning By-law (November 2009) proposes to implement the Official Plan by permitting accessory apartments “as of right” (without zoning by-law amendment) in Low Density Residential zones, only in single-detached dwellings having a lot frontage of 11 metres (36 feet) or greater, and the accessory dwelling occupies no more than 70 square metres of floor area. The planning rationale for these zoning regulations is the need to ensure parking arrangements that provide sufficient space and an appropriate configuration that recognizes the existence of two distinctly separate dwelling units.



4.0 ISSUES ASSOCIATED WITH INTENSIFICATION

4.1 ADEQUACY OF PHYSICAL INFRASTRUCTURE/ WATER AND WASTEWATER SERVICING Physical infrastructure, sometimes called “hard infrastructure” refers to the water, wastewater, stormwater management, and Regional and local transportation infrastructure, necessary to service urban development. The broader level analysis of the Intensification Study did not permit a detailed evaluation of the adequacy of local water/wastewater and storm water infrastructure, or the capacity of the transportation network to accommodate intensification, within individual Intensification Areas, or at the site level. The Study did have the benefit of the water/wastewater and transportation assessment completed for the GO Station Area Land Use Study. Therefore, In order to effectively implement the Intensification Strategy, detailed work will need to be completed to determine the infrastructure improvements required to support the Strategy. The Region of Halton is undertaking work from the standpoint of water/wastewater servicing and the Regional road network, based upon the intensification potential identified in the intensification strategies of the Local Municipalities. Proposed Regional Official Plan Amendment No. 38 contains policies intended to ensure that Intensification Areas are “development-ready”, by making water, wastewater and transportation service capacities available at the earliest opportunity to support the level of development contemplated in the local municipal intensification strategies. In addition, ROPA 38 also requires Local Municipalities to specify development phasing strategies that give priority to Intensification Areas and employment lands over Greenfield development. ROPA 38 also directs the preparation of a Joint Infrastructure Staging Plan, in conjunction with the Local Municipalities, the School Boards and Provincial agencies, to ensure that the infrastructure required to support intensification and Greenfield development is planned, and financing is secured, before it is needed. The Staging Plan would then be updated when required to assist in setting development charges and preparing Water/Wastewater Servicing and Transportation Master Plans in accordance with the Provincial Class Environmental Assessment process. Upon adoption of ROPA No. 38, expected in December 2009, Water/Wastewater Servicing and Transportation Master Plans will begin. This will be followed by preparation of a Financial Plan, and an update to the Regional Development Charges By-law.

Analysis with respect to the local road network and local servicing will need to be undertaken by the Town at the Secondary Plan level (e.g. GO Station Area Secondary Plan) or Comprehensive Development Plan level (e.g. Civic Centre Area, South Acton Special Study Area) of Intensification Strategy implementation. An assessment completed as part of Phase 1 of the GO Station Area Land Use Study concluded that significant intensification could be supported by the current level of physical infrastructure, notwithstanding that water capacity is unavailable to allocate to intensification or Greenfield development in Georgetown at present. Certain improvements to the road and cycling network in the GO Station Area are recommended in the Draft GO Station Area Secondary Plan (August 2009).



4.2 ADEQUACY OF COMMUNITY INFRASTRUCTURE Community infrastructure is defined in the GGH Growth Plan as “lands, buildings, and structures that support the quality of life for people and communities by providing public services for health, education, recreation, socio-cultural activities, security and safety, and affordable housing.” This extends beyond physical or “hard infrastructure” to so-called “soft infrastructure, such as health care, education and recreation programming, which also requires physical infrastructure such as hospitals, schools, parks, and community centres. Also included in this is affordable housing in order to meet the housing needs of the community as a whole. The GGH Growth Plan directs that an appropriate amount of community infrastructure be planned in order to meet the needs of residents and foster complete communities. It encourages both residential and mixed-use intensification, as well as the provision of a full range of community infrastructure, in order to create “complete communities.” It is important to note that the 70,000 planned population in the Official Plan already assumes that a considerable amount of population growth occurs through intensification, as estimated by previous inventory work (i.e. Best Planning Estimates, April 2007). The definition of community infrastructure includes a number of essential human or social services that are not administered by Regional or local municipalities, including hospitals, health clinics and schools. The Growth Plan recognizes this through a policy encouraging services planning, funding and delivery sectors (e.g. school boards, local health agencies, community groups) to develop a community infrastructure strategy through collaboration and consultation that facilitates coordination between land use and community infrastructure planning. The Intensification Inventory completed for this Study has been evaluated at the level of intensification areas in terms of its implications for providing adequate parkland. Given that intensification is being directed to areas that may already have parkland deficiencies, or could experience deficiencies if additional population is added to the area, solutions such as on-site amenity spaces will need to be provided. Depending on the level of intensification, Recreation and Parks staff is concerned about the potential for a strain on the capacity of community centres, seniors centres and youth facilities. They note that needs assessments for indoor and outdoor recreation facilities, as outlined in the Recreation and Parks Strategic Action Plan will need to be tested against the population forecast generated by the Intensification Inventory, given that the Strategic Action Plan is based upon a 2021 population of 70,000 people in Halton Hills. ROPA 38 proposes to introduce a requirement that secondary plans, prepared by local municipalities, contain a Community Infrastructure Plan and implementation strategy. This Community Infrastructure Plan would be prepared based on Regional Guidelines (to be completed after approval of ROPA 38), and would describe where, how and when public services for health, education, recreation, socio-cultural activities, safety and security and affordable housing will be provided to serve the area subject to the secondary plan. The Town already plans and budgets for local community infrastructure needs, and consults with relevant agencies such as the school boards and Region when preparing secondary plans, in order to plan for adequate community infrastructure within or accessible to the area covered by the secondary plan. However, the local land use



planning process could clearly benefit from better coordination of community infrastructure development (e.g. the development of “community hubs” containing school and municipal recreation facilities). Town staff has recommended that any plan requirements related to community infrastructure in the Regional Official Plan should focus on Provincial (including educational facilities) and Regional infrastructure. The Region intends to provide more details on what a Community Infrastructure Plan will entail, after consultation with the public, local municipalities and community services stakeholders. 4.3 HERITAGE CONSERVATION AND CULTURE The conservation of built heritage resources is an important objective of the Town articulated in the Official Plan. As intensification opportunities tend to be situated in the older areas of communities, in which there may be a concentration of built heritage structures, this study has taken into consideration the location of these structures by overlaying the location of all properties on the Town’s Heritage Register with the intensification mapping. The Heritage Register is a tool mandated under the Ontario Heritage Act whereby a municipality can prepare an inventory of built heritage resources, which includes properties designated under Parts IV and V of the Act, but also properties that the municipality considers to have heritage value, and which may or may not be worthy of designation. The “listing” of these properties on the Heritage Register gives the municipality the authority to delay issuance of a building permit for any proposed demolition of the structures on the property for 60 days, while the municipality examines if designation or other heritage conservation measures are appropriate. The Town is also currently expanding the scope of the Heritage Register, in order to ensure that heritage resources are identified before development pressure occurs. Phase 1 of a process to create a comprehensive Heritage Register for the Town is nearing completion. This initial phase focused efforts to inventory heritage resources on several priority areas, identified by the municipal heritage committee, Heritage Halton Hills. Once adopted by Council, the mapping for the Heritage Register will be updated, and compared to the Intensification Inventory mapping, to identify any potential conflicts between the Intensification Strategy and heritage resources. Phase 2 of the project will further expand the extent of the Heritage Register. Besides the usefulness of the built heritage inventory contained in the Heritage Register, it is also recommended that the Official Plan amendment that implements the Intensification Strategy contain details, as appropriate, pertaining to the conservation of heritage resources within intensification areas, using such planning approaches as adaptive re-use and density transfers. 4.4 URBAN/COMMUNITY DESIGN Recognizing the importance of good urban and community design to the successful integration of intensification projects into existing urban neighbourhoods, as well as Greenfield situations, the Halton Hills Official Plan contains detailed urban design policies for both intensification/redevelopment and Greenfield development situations.



In addition, matters of urban design were an important element of the Georgetown GO Station Area Land Use Study. Conceptual built form models were prepared to assist in the development of a Preferred Land Use Alternative for the GO Station Area. The Draft Secondary Plan (August 2009) also contains urban design policies that build upon the policies of the parent Official Plan. The Intensification Study Background Report (February 2009) contains some local intensification examples that may serve as models from a built form (e.g. height, massing, architectural design) perspective for future intensification in the various distinct Intensification Areas of the community. However, it is recommended that detailed urban design guidelines form an integral part of the Secondary Plans or Comprehensive Development Plans prepared for individual Intensification Areas, in keeping with Section G3.3 of the Official Plan.

4.5 INCENTIVES TO FACILITATE INTENSIFICATION Halton Hills Council recently endorsed the Halton Hills Community Improvement Strategy as the basis for the preparation of a Community Improvement Plan (CIP) for Halton Hills, to be comprised of area-specific CIP provisions for priority areas in the Town, including several of the Intensification Areas identified through this Study. Community Improvement Plans can be prepared by municipalities under Part IV of the Planning Act in order to permit municipalities to offer financial incentives to landowners through various mechanisms, to encourage further private investment to bring about area revitalization. The Halton Hills Community Improvement Strategy recommends the use of various mechanisms, such as brownfield redevelopment grants and tax increment programs, and heritage building grants, as well as reduction in parkland dedication and development charges, to be implemented through changes to the Town’s parkland dedication and development charges by-laws, respectively. Table 4.1 summarizes the recommended incentive programs, as well as municipal leadership actions most relevant to the Intensification Strategy. It is expected that policies flowing from the Town’s Community Improvement Plan, once completed, will be incorporated into the Official Plan, and thereby complement the intensification policies of the Official Plan in order to meet the objectives of the Community Improvement Plan, as well as facilitate implementation of the Intensification Strategy.



Table 4.1: Summary of Municipal Leadership Actions and Recommended Incentive Programs by Study Area

Study Area Recommended Municipal Leadership Actions

Recommended Incentive Programs

Guelph Street Retail Area (i.e. Community Node)

• Work with private sector in preparing Comprehensive Development Plans

• Ensure Draft Zoning By-law is supportive of renewal

• Advocate for Regional participation in Tax Increment Programs

• Building and Façade Improvement Grant

• Revitalization Grant • Comprehensive Planning

Grant

Downtown Georgetown

• Residential Conversion or Rehabilitation Grant

• Revitalization Grant • Heritage Building and

Façade Improvement Grant

Downtown Acton • Revisit “Acton Tourist Area” in Official Plan

• Building and Façade Improvement Grant

• Residential Conversion or Rehabilitation Grant

• Revitalization Grant

Brownfield Sites (including GO Station Area and South Acton Special Study Area site)

• Continue Georgetown GO Station Study

• Initiate similar study for the South Acton Special Study Area

• Advocate for Regional participation in the development charge reduction/deferral program

• Consider other intensification sites as appropriate

• Environmental Site Assessment Grant

• Brownfields Tax Assistance • Brownfields Redevelopment

Grant • Parkland Dedication

Reduction • Development Charge

Reduction/Deferral

Source: Halton Hills Community Improvement Strategy (April 2009).



5.0 CONCLUSION

The Intensification Opportunities Study is an important component of a Halton Hills strategy for growth management linked to the Region-wide Sustainable Halton Plan, which in turn is a response to Places to Grow, the Greater Golden Horseshoe (GGH) Growth Plan. The GGH Growth Plan requires all municipalities to prepare an intensification strategy to phase in and achieve intensification and the intensification target.

The Study has produced a Background Intensification Report (February 2009), and developed this Intensification Strategy, which will form a component of a growth management strategy for Halton Hills. This included evaluating the role Halton Hills should play in achieving the Halton Region-wide 40 percent intensification target contained in the GGH Growth Plan. The objective is to provide for residential and mixed-use intensification opportunities, while ensuring that the character and stability of established residential neighbourhoods and commercial areas is maintained and enhanced. In particular, the Intensification Strategy identifies intensification areas, in keeping with the policy direction of Places to Grow, where residential and mixed use development should be directed within the established urban areas of Georgetown and Acton. Specifically, the Study:

1. Identifies intensification areas as the focus for intensification efforts, as well as

areas where intensification should not be directed.

2. Updates the Town’s intensification inventory and mapping.

3. Conducts a review of the policies of the GGH Growth Plan, and determines the need for policy changes to the Halton Hills Official Plan to achieve conformity with the GGH Growth Plan.

4. Identifies successful Halton Hills examples of intensification.

5. Prepares a Halton Hills Intensification Strategy, which will subsequently be implemented through an amendment to the Halton Hills Official Plan.

A number of the above aspects of the Study were completed through the Background Report (February 2009), and in particular the Reference Scenario for intensification, which forms the basis for the intensification unit potential contained in this Strategy. Aspects of the Intensification Strategy that require ongoing work include:

• Assessment of the adequacy of physical and community infrastructure for an individual site or area (e.g. road network, water/wastewater, parks, schools, community centres, etc.); and,

• Identification of the appropriate scale and type of development in intensification areas (i.e. built form, density, uses).



Schedule One: Intensification Opportunities Study Process Flow Diagram



Schedule Two: Georgetown Growth Plan and Intensification Areas



Schedule Three: Acton Growth Plan and Intensification Areas



Schedule Four: Intensification Planning Framework


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