GENERAL TERMS OF REFERENCE FOR BOLTON RESIDENTIAL EXPANSION STUDY (BOLTON SETTLEMENT AREA EXPANSION 2021 2031) APRIL 2012 DEVELOPMENT APPROVAL & PLANNING POLICY DEPARTMENT 1 General Terms of Reference
GENERAL TERMS OF REFERENCE FOR BOLTON RESIDENTIAL EXPANSION STUDY (BOLTON SETTLEMENT AREA EXPANSION 2021 2031) 1. Introduction Caledon s growth management strategy established through Official Plan Amendment (OPA) 114 sets the tri-nodal development concept whereby new growth will be concentrated in the three Rural Service Centres: Bolton, Mayfield West and Caledon East. Rural Service Centres are compact, well integrated rural communities which are planned to have full municipal services, and provide a wide range of commercial, employment, recreational, institutional and community services to all residents of Caledon. Since OPA114 was approved, the Town has carried out a number of studies in these communities to implement the growth strategy. The 2006 Population and Employment Forecasts and Allocations Study, which was part of the South Albion-Bolton (SAB) Community Plan, led to the new population and employment forecasts in Official Plan Amendment (OPA) 203. OPA 203, endorsed by Council in 2006, allocated the majority of the post-2021 population growth evenly to Mayfield West and Bolton. The growth numbers in OPA 203 became the basis of the growth forecast contained in the Town s Provincial Policy Conformity exercise, known as Official Plan Amendment (OPA) 226. OPA 226 was adopted by Council on June 8, 2010. In 2008 the Town initiated a process to expand Bolton settlement area to meet the employment land need in Bolton, as identified in an Employment Land Needs Study. The 2008 settlement expansion study did not consider a residential expansion for Bolton as the population growth allocated to Bolton in OPA 203 did not warrant a residential expansion until after 2021. The pre- 2021 growth can be accommodated in the existing settlement area. OPA 226, as adopted by Council, requires a Bolton settlement boundary expansion for residential growth after 2021 to reach a total population of 38,889 by 2031. OPA 226, and the related Regional Official Plan Amendment number 24 (ROPA 24), have been appealed to the Ontario Municipal Board (OMB). The hearing on ROPA 24 has been scheduled to start later in June 2012. No hearing date has been set for OPA 226. On December 6, 2011, Council approved the Town s 2012 Capital Budget which directs staff to initiate the Bolton Residential Expansion Study in 2012. This study will determine the direction of growth and address a full range of development related issues. This General Terms of Reference sets out a road map for the planning study to determine how to accommodate the residential growth projected for Bolton. The Terms of Reference describes the objectives, scope and deliverables, the roles and responsibilities of the consultants and stakeholders, and the resources, work program and schedules for the study. Detailed Terms of Reference for subsequent studies will be prepared later. 2 General Terms of Reference
2. Purpose and Objectives This General Terms of Reference will: - Establish a planning process to develop an evaluation criteria and select a preferred boundary expansion area(s) for residential development in Bolton after 2021; - Determine steps to take to complete the Bolton Residential Expansion Study that fulfill the requirements of the Planning Act; and - Establish a process for members of the public to provide comments and input throughout the Bolton Residential Expansion Study process. 3. Policy Context The Bolton Residential Expansion Study will be undertaken in accordance with provincial legislation, policies, and plans including the Planning Act, the Provincial Policy Statement 2005 ( PPS, 2005 ), the Greenbelt Plan 2005 ( Greenbelt Plan, 2005 ), and the Growth Plan for the Greater Golden Horseshoe 2006 ( Growth Plan, 2006 ). The Study will be undertaken concurrently with the OMB process on ROPA 24 and OPA 226 appeals. Necessary adjustments to the Study will be made to reflect any OMB decision that may affect the growth distribution in Bolton. The Planning Act establishes the rules for land use planning in Ontario. Quality land use planning contributes to the social, economic and environmental well-being of Ontario s communities. The Provincial Policy Statement (PPS) 2005 provides policy directions on matters of provincial interest related to land use planning and development with the objective of building and sustaining healthy, liveable and safe communities. The PPS recognizes that efficient development patterns optimize the use of land, resources and public investment in infrastructure and public service facilities. The PPS 2005 directs that planning authorities provide for land use patterns that promote a mix of housing, employment (including industrial, commercial and institutional uses) parks and open spaces, and transportation choices that facilitate pedestrian mobility and other modes of travel. The Greenbelt Plan 2005 identifies where urbanization should not occur in order to provide permanent protection to the agricultural land base and the ecological features and functions occurring with the Greenbelt. The Growth Plan 2006 is a framework for implementing the province s vision for building stronger and prosperous communities. While building on other key provincial initiatives including the PPS 2005 and the Greenbelt Plan 2005, the Growth Plan 2006 provides growth management policy direction and population and employment forecasts for the Greater Golden Horseshoe area, including the Region of Peel. With an emphasis on building more compact, transit-supportive communities in designated Greenfield areas, the Growth Plan encourages the development of complete communities with a diverse mix of land uses, a range and mix of employment and housing types, high quality public open space and easy access to local stores and services. 3 General Terms of Reference
Bill 136, the Places to Grow Act, which received Royal Assent on June 13, 2005, required municipalities to bring their Official Plans into conformity with the Growth Plan. The Region of Peel has undertaken a provincial policy conformity exercise known as the Peel Region Official Plan Review (PROPR). The Managing Growth focus area of the PROPR has identified how the population and employment forecasts in the Growth Plan for the Region of Peel will be allocated to the City of Brampton, the City of Mississauga and the Town of Caledon. The revised Regional and area municipal forecasts are contained in Regional Official Plan Amendment 24 (ROPA 24): Growth Management, Employment and Employment Land and Greenbelt Conformity. ROPA 24 was adopted by Regional Council on April 22, 2010, but has been appealed to the Ontario Municipal Board (OMB). An expansion to a Rural Service Centre settlement boundary will require an amendment to the Regional Plan to amend Schedule D, Regional Structure, Schedule B, Prime Agricultural Areas and Schedule D4, Growth Plan Policy Areas. The Growth Plan states that a settlement expansion can only be undertaken through a municipal comprehensive review. Caledon s pro-active approach to growth management the tri-nodal growth strategy directs the majority of new population and employment growth in Caledon to the Rural Service Centre settlements of Mayfield West, Bolton and Caledon East. This pattern of growth focuses development in the south of Caledon, away from sensitive environmental areas and heritage settlements, minimizes interference with agricultural activity and concentrates new demands for services in locations where this demand can be most readily met. The established settlement pattern in Caledon also reinforces the concept of Caledon continuing to be a community of communities. Caledon has proposed growth forecasts for 2021 and 2031 in Official Plan Amendment (OPA) 226. Caledon s provincial policy conformity exercise has proportionally adjusted the population forecasts and allocations from Official Plan Amendment (OPA) 203 to conform to ROPA 24. OPA 226 was adopted by Caledon Council on June 8, 2010. Through OPA 226, the Caledon Official Plan has incorporated a number of policies relevant to the expansion of Rural Service Centres. These policies will apply to the settlement area expansion to accommodate residential growth in Bolton beyond 2021. 4. Population and Employment Allocations The Population and Employment Forecasting and Allocations Study and the resulting OPA 203 allocated the majority of the post-2021 population growth in Caledon evenly to Mayfield West and Bolton. In the Town s subsequent provincial policy conformity amendment, OPA 226, the population growth in Bolton between 2021 and 2031 is 10,041 (with the census undercount), which includes population growth within the Built-up Area for infill and intensification. The Bolton Residential Expansion Study will also accommodate a population-related employment growth including commercial, institutional, other office employment and work at home. The Population and Employment Forecasting and Allocations Study projected growth in the work at home, commercial and institutional sectors between 2021 and 2031 at 2,565 jobs. The Employment Land Needs Study indicated that 25% the commercial employment growth and 10% of the institutional employment growth would occur on employment lands. The study further indicated that 3% of the industrial employment would be located outside of employment lands. These calculations result in an estimate of the non-employment lands employment growth between 2021 and 2031 of about 2,400 jobs. 4 General Terms of Reference
Since OPA 226 and ROPA 24 are under appeal at the Ontario Municipal Board, Planning staff is working with the parties (associated with the OMB process) to clarify issues and narrow differences, which may result in some fine-tuning of Caledon s population and employment distribution in both ROPA 24 and OPA 226. The Bolton Residential Expansion Study will rely on the OPA 226 growth numbers for Bolton, as modified based on the Minutes of Settlement among the five government parties through the OMB process of ROPA 24. The Study will be updated to reflect any OMB decision on ROPA 24 and OPA 226 that may affect growth distribution to Bolton. 5. Study Area and Scope The study will examine potential settlement expansion area(s) for Bolton within the area delineated in Figure 1 attached. Both the Region of Peel and Town of Caledon Official Plans identify issues that must be addressed to expand the existing settlement boundary. The Study will also consider the following planning criteria in developing the preferred plan for the selected boundary expansion area(s), the protection and enhancement of environmental and cultural resources; the potential impact of the expansion on the function and character of the community; and, the contextual fit addressing whether the expansion is logical and a contiguous addition to the existing settlement. 6. Study Approach and Structure The study will consist of five phases as summarized in Table 1. 1) Development of selection criteria for boundary expansion alternatives Phase 1 of the Study will identify potential boundary expansion alternatives in the Bolton area, and develop an evaluation matrix, with input from landowners/residents, Council, interested parties, and government agencies. The evaluation matrix will be based on the SWOT (Strength, Weakness, Opportunities and Threats) approach to help identify a preferred boundary expansion area(s). 2) Selection of preferred boundary expansion area(s) Phase 2 of the Study will evaluate all the boundary expansion alternatives using the evaluation matrix developed in Phase 1. Preferred boundary expansion area(s) will be identified and recommended to Council for endorsement. Ample opportunities will be provided for all interested parties and individuals to participate and contribute to the Study. 5 General Terms of Reference
3) Component studies on the preferred boundary expansion area(s) With the preferred boundary expansion area(s) endorsed by Council, Phase 3 of the Study will consist of a number of detailed studies which will help in developing community plan concepts and support the final recommended community plan. These studies will include, but not be limited to, a detailed transportation study, infrastructure studies, environmental and agricultural impact studies, an archeological study, and a fiscal impact analysis. Details of these studies will be determined prior to the start of Phase 3. 4) Plan development In Phase 4 of the Study, a set of planning and design principles will be established for the community plan that reflect the Town s growth objectives and meets the requirements of the Growth Plan for the Greater Golden Horseshoe. A number of community plan concepts will be developed and evaluated based on a new set of evaluation criteria that addresses issues such as community value, cost, infrastructure, healthy built environment, and sustainability. Input from members of the public will be continuously sought. A preferred community plan will be identified in Phase 4 of the Study and presented to Council for endorsement. A draft Master Environmental Servicing Plan will also be prepared. 5) Official Plan Amendments Phase 5 of the Study will finalize the community plan at the Secondary Plan level, and prepare policies to be submitted for both a regional and local Official Plan amendments. 6 General Terms of Reference
Table 1: The Planning Stages Project Phase Activities Public Participation & Reporting Phase 1: - Retain a principal consulting firm; - Public Open House; Development - Identify alternative boundary - Consultation with of site expansion area(s) for the Study; landowners/residents selection and, and stakeholders; and criteria - Develop an evaluation matrix to - Council workshop. select preferred boundary expansion area(s). Phase 2: Selection of preferred site(s) Phase 3: Component studies on the preferred site(s) Phase 4: Plan development Phase 5: Official Plan Amendments - Evaluate alternative sites based on the SWOT approach; and - Select the preferred site, or sites, for settlement expansion. - Component studies may include: Environmental, Traffic, Financial, Agricultural, and Noise Impact assessments Water & Wastewater Servicing Study Built Environment and Cultural Heritage Landscape Studies Environmental Management Plan - Develop community plan concepts - Prepare draft secondary plan - Prepare draft Implementation documents - Prepare draft of secondary plan - Finalize Community Plan - Prepare Summary Justification Report as per Regional Official Plan - Public Open House; - Consultation with Council, landowners and stakeholders; and, - Staff report. - Consultation with residents and stakeholders. - Design Charrette; - Council Workshop; - Consultation with landowners/residents and stakeholders; and - Staff report. - Statutory Public Meeting - Staff recommendation report Deliverables 1. Evaluation Matrix 2. Council endorsement of the Evaluation Matrix - Council endorsement of the preferred boundary expansion area(s) - Draft study reports - Community plan concepts - Draft Secondary Plan - draft Master Environmental & Servicing Plan - Summary Justification Report - Council adoption of OPA 7. Technical Studies A set of technical studies will be completed by the consultants retained by the Town of Caledon through its Purchasing Policies By-law No. 2004-148, as amended. Detailed Terms of Reference for the component studies will be prepared with input from other relevant Town of Caledon departments and agencies such as Toronto Region Conservation Authority (TRCA) and the Region of Peel. 7 General Terms of Reference
Comprehensive Environmental Impact Study (EIS) and Management Plan (MP) The Comprehensive EIS & MP will identify, describe and delineate the ecological systems (form and function) and features within the study area. Through an analysis of the ecosystem with consideration for the supporting lands and natural system that may be outside of the study area, the study will assess the potential environmental impacts of locating urban land uses and infrastructure within the study area. The study will recommend environmental protection and enhancement targets. The study will outline an environmental management plan (a comprehensive adaptive management plan) with recommended measures for the management, enhancement and restoration of the ecosystem for the proposed Secondary Plan. Agricultural Impact Assessment Certain lands within Bolton planning area are designated Prime Agricultural Area in the Regional and Caledon Official Plans. The Regional Official Plan requires that proposals to expand a Rural Service Centre settlement boundary address issues related to agriculture. It is expected that justification for the proposed expansion includes considerations of alternatives that avoid prime agricultural areas, compliance with the minimum distance separation formulae, population and employment forecasts and opportunities for efficient use of land within the existing settlement area. Caledon s Official Plan settlement policies related to settlement boundary expansion include requirement to demonstrate that: (i) the expansion is a logical and contiguous addition to the existing settlement; (ii) there is need and demand for the development; (iii) there are no reasonable alternative locations which avoid prime agricultural areas; and, (iv) the proposed expansion complies with the minimum distance separation formulae. Water & Wastewater Servicing Study Future development in Bolton will be serviced by municipal water and wastewater services provided by the Region of Peel. The Water and Wastewater Servicing Study will include a full description and analysis of the capacity of the existing infrastructure and the opportunities and constraints to servicing expected growth. The study will identify the new infrastructure that would be required for new growth and the timing and financial implications of servicing the preferred land use option developed during the secondary planning exercise. Cultural Heritage Survey Caledon seeks to wisely manage cultural heritage resources within its municipal boundaries. The Official Plan contains policies for the preservation of resources which have been determined to have historical, architectural and archaeological value. Accordingly, a Cultural Heritage Survey (CHS) will be part of the component study for a settlement expansion. The CHS will identify the level of significance of any cultural heritage and archaeological resources in the Study area and make recommendations for their conservation. Transportation/Traffic Impact Study A Transportation/Traffic Impact Study (TIS) will be undertaken to provide an understanding of existing and potential transportation issues, linkages (pedestrian, vehicular and transit) that could contribute to an effective and efficient transportation network that supports mobility, accessibility of services and economic viability of the Bolton Rural Service Centre. 8 General Terms of Reference
The TIS will include a description and analysis of the capacity of the existing infrastructure, an analysis of future infrastructure proposed by other jurisdictions, opportunities and constraints applicable to planning for growth in the Bolton Area. The study will also identify transportation infrastructure that would be required for growth and the timing and financial implications of servicing the preferred boundary expansion area(s). Noise Impact Study A Noise Impact Study will be completed to determine noise sources exist within the study area. The Ministry of the Environment environmental noise guidelines for road, rail and other sources of noise as well as the Region of Peel guidelines will be used to access noise impact on the preferred site for settlement expansion. Financial Impact Analysis The Bolton Rural Service Centre is an important contributor to the Town s fiscal health. The goal of the Town is to continue to enhance and build on factors that contribute to the financial sustainability of Bolton. A Financial Impact Analysis will be undertaken to examine the fiscal implications of the preferred site for settlement expansion. Successful implementation of the Official Plan requires that Caledon, in the context of its overall objectives, monitor and anticipate the financial impacts of development to avoid negative fiscal impacts. 8. Implementation Documents Prior to Caledon Council s consideration of a local Official Plan Amendment, a set of implementation documents will be completed, to assist in the implementation of the planning objectives and policies contained in the Secondary Plan. Community Phasing Plan A Community Phasing Plan will describe the intended sequence of development within the proposed boundary expanded area(s) by addressing the following: (a) (b) (c) (d) (e) The construction and operation of major infrastructure for servicing (e.g. water, wastewater and storm water management); The environmental assessment, construction, reconstruction or improvements of major internal and external roads; The construction and operation of major utility facilities (e.g. gas, hydro and cable service); Community and public facilities and services (e.g. schools, parks and recreation facilities); and The preservation/enhancement/restoration of significant natural features and systems. 9 General Terms of Reference
Transportation Management Plan Lively, safe, pedestrian-friendly public spaces are components of healthy, sustainable communities. An integrated multi-modal transportation network system that include arterial, collector and local road connections, together with pedestrian and cycling facilities and potential transit routes is needed to support an expanded community. The Transportation Management Plan will provide recommendations related to the widths of road rights-of-way, traffic calming measures, school and park zone treatments, potential transit routes, sidewalk locations and parking prohibitions and restrictions. A detailed pedestrian and cycling network plan will also be prepared as part of the Transportation management Plan. Community Design Plan Good community design is important to successfully integrate the growth projected for the Bolton Rural Service Centre. The Community Design Plan will contribute to the achievement of the planning objectives and policies contained in the Secondary Plan through the establishment of more specific design principles and guidelines for all aspects of the community s physical development. 9. Project Management The successful principal consulting firm shall appoint one person as Project Manager, who shall report to the Town s Project Manager. This consultant Project Manager will liaise with the Technical Advisory Team (TAT), agency staff and key stakeholders for the purpose of completing specific tasks. The consultant Project Manager shall: Keep the Town s Project Manager informed of progress on a regular basis; Provide the Town s Project Manager with copies of all correspondence; Consult with the Town s Project Manager on potentially significant or controversial issues, options considered and solutions adopted; Consult with the Town s Project Manager prior to deviations from standards, specification and procedures; Consult with the Town s Project Manager prior to any significant schedule changes; and Participate in meetings with stakeholders and others as required. The Technical Advisory Team will provide technical assistance, guidance, and overall direction to smooth collaborations with other studies and ensure a successful completion of the Study. It will be comprised of Caledon staff, relevant agencies (staff from provincial ministries, the Region of Peel, and the conservation authorities) and external consultant(s). The TAT is not intended to be a decision making body. A minimum of four meetings are proposed with the TAT as listed below. Other meetings may be convened as required: Meeting #1 Project start-up meeting Meeting #2 Review of technical studies for the preferred settlement expansion option. Meeting #3 Review of draft secondary plan and implementation documents. Meeting #4 Review of proposed Official Plan Amendments. 10 General Terms of Reference
10. Public Participation Public engagement is a key part of the planning process which will allow participants, at key milestones in the project cycle, to provide input on how the community is planned and developed. Open House Open Houses will be held in the evenings and, where possible, located at either the local school or branch Library in Bolton. Information regarding the date, time and location of the open houses will be advertised in the local newspapers and the Town of Caledon s website. A minimum of three Open Houses are proposed: Open House #1: Introduce the study and its process to landowners, interested parties and stakeholders; Open House #2 Present draft preferred land-use option; and Open House #3 Present draft Secondary Plan including draft Community Design Plan. Council Information Workshop Council Information Workshop sessions will be held at different stages of the Study to review the technical study results, community design and planning principles, evaluation criteria, selection of boundary expansion area(s), and draft community design. Council Meetings Staff will report to Council at key milestones in the planning process. Webpage A project webpage will be dedicated on the Caledon website to provide information about the study. Relevant planning reports, terms of reference for technical studies and implementation documents, project newsletters and notices of open houses/public meetings will be published on the website. The webpage will be updated on a regular basis. 11. Schedule The Bolton Residential Expansion Study commences when the principal consulting firm is retained to undertake the work in Phase 1 of the Study. The target date for a Council consideration of a local Official Plan Amendment is May 2014 (see attached Schedule A: Study Timeline). 12. Budget All costs associated with the Bolton Residential Area Expansion Study including amendment to the Region of Peel Official Plan will be borne by the Town of Caledon. Council approved a total of $350,000 under Bolton Settlement Area Expansion Study in its 2012 Capital Budget, and committed an additional total of $800,000 in 2013 and 2014 Capital Budgets, all to be recovered from future Development Charges. 11 General Terms of Reference
13. Attachment Schedule A: Figure 1: Study Timeline Study Area 12 General Terms of Reference