U BRAMPTON brampton.ca Flower City KM Report Planning, Design & Development Committee Committee of the Council of The Corporation of the City of Brampton Date: May 14,2014 PLANNING, DESIGN COMMITTEE ESIGN & DEVELOPMENT COMMIT DATE: File: P09QU Subject: Recommendation Report Queen Street West Land Use Study Update Jung lu QaH Wards: 4 and 5 Contact: David VanderBerg, Central Area Planner, Planning and Building Division (905-874-2325) Overview: • The purpose of this report is to provide an update on the Queen Street West Land Use study and next steps regarding implementation. • The Queen Street West Land Use study covers the western portion of downtown Brampton and includes the lands straddling Queen Street between George Street and McLaughlin Road. • The study was initiated to establish a vision for redevelopment in the area, including identifying stable residential neighbourhoods to be protected, and to make recommendations on changes to the planning and urban design policy framework to support that vision. The study is also intended to serve as a background study for establishing a Development Permit System By-law for part of the study area. • The vision for the Queen West area, focused on Queen Street and the stable residential neighbourhoods behind it, is to be a vibrant people-place with a mix of land uses. Queen West will be a desirable place where economic opportunities and innovation are encouraged in parallel with continuing improvements to the public realm. • Work has begun on preparing the Queen Street West Development Permit System By-law and the other recommended policy and regulatory changes. The planned timeline is for the planning amendments to be completed in time for a statutory public meeting in the Fall of 2014. fA-& Recommendations: 1. THAT the report from David VanderBerg, Central Area Planner dated May 14, 2014 to the Planning, Design and Development Committee meeting of June 16, 2014 re: Recommendation Report: Queen Street West Land Use Study Update - Wards 1, 3, 4, 5 (File P09QU) be received; 2. THAT staff be directed to schedule the public information session and statutory public meeting to present the Queen Street West Development Permit System By-law and the other proposed planning amendments to the Downtown Brampton Secondary Plan and Zoning By-law; and, 3. THAT staff report back to Planning, Design and Development Committee with a final recommendation that includes the results of the public consultation, including the statutory meetings. Background: This report presents an update on the Queen Street West Land Use study and seeks direction to initiate the Planning Act process for a new Development Permit System by law that would apply to the lands front Queen Street West and for the other proposed amendments to the Downtown Brampton Secondary Plan and Zoning By-law. The City initiated the study in 2008 to review and recommend changes to the planning and urban design policy framework for the Queen Street West area to guide the form and type of redevelopment in the area, and in particular to serve as a background study for a Development Permit System (DPS) by-law for Queen Street West. Current Situation: The Queen Street West area is the western gateway into downtown Brampton and the Central Area. Existing policies, particularly the inclusion of part of the area in the City's Urban Growth Centre, encourage redevelopment and intensification. The land use study is intended to provide updated policies and regulations to guide and facilitate new development and the redevelopment of existing buildings. Meridian Planning is the planning consultant for the project and DuToit Alsop Hillier is the urban design consultant. Study Area The Queen Street West study area includes the lands straddling Queen Street between George Street and McLaughlin Road. The northern boundary is the CN rail line and Fletcher's Creek. The southern boundary is Wellington Street, Fleming Avenue and the Orangeville rail line. A map of the study area is attached hereto as Appendix 1. R2-£ Study Organization The Queen Street West study is organized into three phases: • Phase 1: Phase 1 reviewed the current land use and policy framework, and identified areas where land use change is considered appropriate and those where it is not. • Phase 2: Phase 2 built on the Phase 1 work by making recommendations on how the study area should develop in the future. • Phase 3: Phase 3 will focus on implementing the recommendations from Phase 2, including the preparation of a Development Permit System by-law and revisions to the Downtown Brampton Secondary Plan and Zoning By-law. Phase 1 identified "change" areas where redevelopment is considered appropriate and stable areas to be protected. Five areas of "change," three areas of "moderate change," and two areas of "no change" were identified. This work served as the basis for Phase 2, which provided more detailed recommendations on the preferred form of redevelopment in the study area. The following is a summary of the study's key findings. A more detailed summary is attached as Appendix 2, which is based on the information boards presented at the third public information session held for the study. Vision for Study Area The following vision statement was created to describe the preferred land use pattern for the area: Queen West willbe a vibrantpeople-place, with a mix of land uses focused on Queen Street and the stable residential neighbourhoods behind it, that provides housing opportunities for a wide range of incomes and ages. Queen West willbe a desirable place where economic opportunities and innovation are encouraged and occur in parallel with continuing improvements to the public realm that establish a strong sense of place and historical continuity. To support achieving this vision, the following were developed: • Goals, objectives and overarching urban design principles that apply to the whole study area and define how the vision would be implemented. • An Urban Structure Plan that identifies: o Character areas where redevelopment is to be focused as identified in o o Stable residential neighbourhoods to be protected. Important structural elements of the neighbourhood. Phase 1. The Urban Structure Plan is attached as Appendix 3. h3-M • A more detailed vision for each character area's future development and urban design principles to guide redevelopment within them. • Recommendations on amendments to the Secondary Plan and Zoning By-law to implement the vision for the non-DPS areas and additional recommendations on parks and open space, transportation and parking strategies to support the planning vision. Lands Fronting Queen Street West The proposed vision for this area directs redevelopment to the lands fronting Queen Street West to strengthen the street's role as the main spine of the district and as a landmark street within Brampton. For most of its length through the study area, the predominant built form for new development is intended to be low and mid-rise buildings. Between downtown and McMurchy Avenue, building heights will range from four to six storeys. Further west, heights will generally be three to four storeys. The sidewalks along the street will be widened to create a strong pedestrian environment. It will be a mixed use area with commercial uses encouraged on the ground floor of buildings. Higher density intensification will be directed to the Georgia Pacific Factory site (north side of Queen Street between McMurchy and Haggert Avenues) and southeast corner of the McLaughlin Road and Queen Street intersection, where larger sites and close proximity to proposed Zum transit stops create an opportunity for more intense development in the longer term. While the Georgia Pacific factory continues to be a functioning employment use, the long term vision is for residential and mixed use development. As proposed by the consultant, the site will be subdivided with a network of intimately scaled, attractive streets, and include a mix of low, mid-rise and tall buildings and new public spaces. It is recommended that the site be included in the DPS area and that the by-law maintain the employment use in the interim as a permitted use for the property. For the southeast comer of the McLaughlin Road and Queen Street West, the long term vision is for this area to become a gateway to the Central Area with the conversion of existing one-storey commercial uses to higher density mixed-use development including high-rise buildings of approximately 25 storeys. Proposed Development Permit System By-law A DPS by-law is new tool under the Ontario Planning Act to regulate land use and is an alternative to a conventional Zoning By-law for regulating land use. The benefit of a DPS is that a municipality can use it to establish a clear planning vision for an area and promote redevelopment by providing a more flexible, streamlined approval process for projects in keeping with that vision. The study recommends that the lands along Queen Street West be established as a DPS area to encourage their redevelopment. Council approved the City's first DPS by law for the Main Street North area in August 2012, which is currently under appeal to F5-S the Ontario Municipal Board. The proposed DPS by-law would include policies, regulations and design guidelines to ensure redevelopment occurs in accordance with the vision for the area and would establish a streamlined approval process to encourage redevelopment. Stable Residential Neighbourhoods The study area is anchored by a number of stable residential neighbourhoods, including areas north and south of Queen Street West. While there is variety in the existing character of each neighbourhood, the emphasis for their future is to protect that character as limited change is expected. Any changes, such as the replacement of older homes with newer homes, must be consistent with the character of the surrounding area. Many of these neighbourhoods are designated "Medium Density Residential" or "Central Area Mixed Use" in the Downtown Brampton Secondary Plan, despite the predominance of single detached residential homes. The "Medium Density Residential" and "Central Area Mixed Use" policies create uncertainty for the neighbourhoods as these designations envision a change to higher density uses and a different built form. It is recommended that a more stable policy framework be provided by amending the Downtown Brampton Secondary Plan so that designations for existing stable residential neighbourhoods match the existing use in the neighbourhoods, and that policies be added to the Secondary Plan to help ensure replacement dwellings are compatible with the character of the host neighbourhood. Other Character Areas The study identifies several other character areas where redevelopment and intensification are considered appropriate. They are: • Gummed Paper Factory and Surrounding Lands: The vision is for a medium density, mid-rise neighbourhood organized around a central park, integrated with the residential neighbourhood to the north. The proposed vision is consistent with existing Secondary Plan designations. It is proposed that redevelopment proceed through a Zoning By-law Amendment application process to ensure that there is an appropriate public review process and a full review of technical issues. • Mill and Nelson Neighbourhood: This neighbourhood is envisioned to include a mix of existing buildings that are retained and improved with modest, sensitive infill redevelopment consistent with the neighbourhood's existing character. It is proposed that a new Secondary Plan designation - the Central Area Transition Area - be developed to establish polices that will help maintain the heritage character of the area while providing some flexibility for modest intensification and in use. • McMurchyAvenue North Apartments: There is some long term potential for intensification, especially of parking areas. If intensification occurs, the vision is to enhance the quality of the built environment and open spaces and better R-(* integrate it with the surrounding neighbourhoods. It could include a range of building types, including townhouse, mid-rise and taller buildings. The study recommends that further study be undertaken before changing the existing Secondary Plan designation and zoning for the area Additional Recommendations The study also makes a number of other recommendations to help support the Queen West vision. These include widening and improving sidewalks on Queen Street West, increasing active transportation opportunities, creating a hierarchy of urban public spaces (public and / or private but publicly accessible), and developing a parking strategy. Possible incentive programs to support the envisioned redevelopment will also be investigated. Work on these additional recommendations will continue in Phase 3 of the study. Public Consultation Three public information sessions have been held for phases 1 and 2 of the study. Two were held for phase 1 in November, 2009 and September, 2011. A third public information session for phase 2 was held in June, 2013. The statutory open house and public meeting to be held for phase 3 will provide two further opportunities for public input. The June 2013 public information session presented the more detailed recommendations from phase 2 on how redevelopment should occur. Approximately 30 people attended the open house. Three people provided written comments. Two of the comments received expressed support for the recommendations and hope that the recommendations proposed through the study would act as an incentive to start revitalizing the area. The other comment focused on the need to consider impacts from traffic infiltration into residential neighbourhoods. Transportation impacts have been an important consideration throughout the process and will continue to be considered carefully in the final phase of the study. Next Steps This report presents the results of the phase 1 and 2 work for the Queen West Study. Work has now begun on phase 3. The focus of phase 3 is on implementing the phase 1 and 2 recommendations, including the preparation of a DPS by-law and revisions to the Downtown Brampton Secondary Plan and Zoning By-law. Consultants have been retained by the City to begin drafting the by-laws. Once the draft by-laws have been completed, the next step is to schedule the statutory public meetings to present the amendments for public comment. Both an open house and public meeting are required by the Planning Act. The planned timeline is for the by laws to be completed in time to be presented to a statutory public meeting in the Fall of 2014. Following that, staff will report back with a final recommendation, including the results of the public consultation, on the planning amendments. This report will also address the recommendations from phase 2 on transportation, public spaces, parking and possible financial incentive programs. fip-3 Corporate Implications: Financial Implications: The budget has for the preparation of the Queen Street West Development Permit System and other amending by-laws has been approved. No financial implications are noted. Other Implications: The implementation of the recommendations from Phase 1 and 2 of the study, particularly those regarding the design of Queen Street West, developing a parking strategy and improving public spaces, will require coordination with various internal departments and external agencies. The consultation required to do so will be completed as part of Phase 3 of the study. Strategic Plan: The recommendations proposed through the Queen West Land Use Study support the "Growth Management" priority of the Strategic Plan by increasing the prominence of the Central Area. Conclusion: This report presents an update on the Queen Street West land use study. The study is intended to establish a planning vision for redevelopment in the area, including protecting stable residential neighbourhoods. It also makes recommendations on changes to the planning and urban design policy framework to support that vision. Key among them is the preparation of a DPS By-law for the lands fronting along Queen Street West. Work on the DPS by-law and other policy and regulatory changes is ongoing and it is recommended that staff be directed to schedule the statutory public meetings to present the draft planning amendments. Respectfully submitted: Central Area Planner teru-wzboqar, MCIP.RPP Aking-EMrecYor, Planning Policy and Planning and Building Division Growth Management David VanderBerg Authored by: David VanderBerg, Central Area Planner CPISO Date \3o\s\7j 1=2-tf Attachments: Appendix 1: Map of Study Area Appendix 2: Detailed Summary of Phase 1 and 2 Findings Appendix 3: Urban Structure Plan 8 £2-<T APPENDIX 1 Map of Study Area PQ-iO QUEEN ST WEST STUDY AREA •bramplon.ca BRAMPTON ] FlOWer City PLANNING, DESIGN & DEVELOPMENT Drawn By: TD Date: 2013 02 22 APPROXIMATE DPS AREA Appendix C: Proposed Development Permit System Area KH» APPENDIX 2 Detailed Summary of Phase 1 and 2 Findings 11 E!™ Queen Street West Land Use Study Background Study Purpose As the western gateway into Downtown Brampton and the Central Area, the Queen Street West area has seen a considerable amount of development pressure for new uses and the redevelopment of existing uses. This trend is expected to continue, especially as part of the area is in the City's Urban Growth Centre. The purpose of the Queen Street West Land Use Study is to review and make recommendations on changes to the planning and urban design policy framework for Queen Street West to guide the form and type of redevelopment in the area. 2J Study Area The Queen Street West study area includes the lands straddling Queen Street between George Street and McLaughlin Road. The northern boundary is the CN rail line and Fletcher's Creek. The southern boundary is Wellington Street, Fleming Avenue and the Orangeville rail line. Project Consultants Meridian Planning is the planning consultant and DTAH is the urban design consultant for the study. MERIDIAN C PLANNING dtah BRAMPTON Flower City Queen Street West Land Use Study Study Organization Project Consultants Meridian Planning is the planning consultant and DTAH is the urban design consultant for the study . Phase 1 • Phase 1 focused on where redevelopment should occur. It reviewed current land use patterns and the planning policy framework to identify "change" areas where redevelopment is considered appropriate. Phase 1 is complete and the findings for it were presented at a Public Information Session in September 2009. • After the first Public Information Session, it was decided to expand the study area and a second Public Information Session was held in November 2011 to present the Phase 1 findings for the expanded area. Phase 2 • Phase 2 builds on the Phase 1 work by making recommendations on how the study area should develop in the future. • This Public Information Session presents the draft Phase 2 findings. Phase 3 • Phase 3 will focus on implementing the recommendations from Phase 2, including revisions to the Downtown Brampton Secondary Plan, Zoning By-law and / or the adoption of a Development Permit System. • Further public consultation will be held for Phase 3. Phase 1: 1st Expanded Study 2nd Identify where redevelopment should Open House September Area Open House Update Phase 1 report November occur 2009 for additional lands 2011 MERIDIAN C j PLANNING dtah Phase 2: Identify how the study area should develop Phase 3: Future Open House Implement phase 2 Open House June 2013 recommendations & Public 3rd Meeting BRAMPTON Flower City Queen Street West Land Use Study Existing Policy Context Official Plan The Queen Street West study area is located within Brampton's "Central Area" as set out in the Official Plan. The existing policies encourage redevelopment and intensification in parts of the study area. The Official Plan states that at appropriate locations in the Central Area, revitalisation, infill and intensification will be encouraged to allow people the opportunity to live and work in the same area. The priority is for transit-supportive development and to create a pedestrian friendly environment. It also states that existing neighbourhoods will be maintained and enhanced. Definitions Urban Growth Centre: Are areas identified in the Growth Plan for the Greater Golden Horseshoe that are mixed-use, transit-oriented and high density in character, and provide a focus for employment and population growth in the region. Part of the study area is also within Brampton's Urban Growth Centre (UGC). The Provincial Growth Plan identifies UGC's as focal areas for intensification and sets a minimum density target of 200 persons plus jobs per hectare. QUCEN WEST IAHD USE STUDY CITY OF BRAMPTON MAPC Downtown Brampton Secondary Plan SlCOHMtt »UI A key objective of the Downtown Brampton Secondary Plan is to promote the intensification and improvement of the downtown as a major focus of commercial and community activity in a manner that is sympathetic to its CD o«—< o '•• • •*.'--.*•....» historic character. '• • - • •>"• The Secondary Plan already encourages intensification in a significant portion of the Queen Street West study area. The primary intensification areas are designated as "Central Area Mixed Use" and shown in red on the map. In addition, most of the existing residential neighbourhoods are designated as "Medium Density Residential" and would allow some E3 CD intensification. Zoning The current zoning generally reflect existing land use. One notable exception is that the lands along Queen Street between George Street and McMurchy Avenue are currently zoned for mixed use development with a permitted height of 3 to 5 storeys. ERIDIAN PLANNING dtah BRAMPTON Flower City Queen Street West Land Use Study Land Use Context Total population in Study Area is approximately 5,720 people QUEEN WEST LAND USE STUDY CITY OF BRAMPTON MAPB CURRENT LAND USE • There are currently about 2,030 people in about 580 single detached dwellings CUJflvtvEDHOV. II. JOOII LEGEND • Also about 3,690 people in 2,432 other dwellings Street West forms ; ; western gateway into downtown Brampton. There is already mixed use and commercial development along Queen Street, especially near downtown. Queen Street West is one of the i m | '! JCOMWHCUU.PIA2A | NOUSntW uiu m| rHVMONMTNTU IOPfM <MCE i I I 1 ttUOCMTLU AMXTMtNT IUtaOfWTUl TOaWOW i msoffui. wax orrioeo J^j MUOOfluu. smut ktao« ccwtmo H s \ 1 • 1 * the \ mint«»[» |H| (<H'."/ >(IUCINTMl i There are also approximately 83 businesses currently operating in the Study Area. Queen I mw I HUXHT1UWIOCUCMS 2 ~| TFjk-rtPO*TATIO>. ^ 0* & major east/west roads in the City. The Fletcher's Creek Valley Corridor is located on the west side of the X Study Area The Study Area is the site of a number of heritage building. A cultural heritage study was prepared by City staff in conjunction with this study. MERIDIAN C j PLANNING dtah 0 MERIDIAN BRAMPTON Queen Street West Land Use Study Flower City Phase 1 Findings Phase 1 included an extensive review of existing land use patterns, a detailed heritage assessment and an evaluation of the current policy framework to make recommendations on where redevelopment should occur. QUEEN WEST LAND USE STUDY CITY OF BRAMPTON MAPF Findings PROPOSED PLANNING POLICY AREA The key outcome for Phase 1 was to identify areas where land use change is expected and should be encouraged. The following factors were used in identifying the areas of change: LEGEHD ® I^V 1 : PLANNIHG POLICY AREAS Ry9 f 9M A-tAO'Cu™ x. ! I jeI^^jjH 5 B6B KuoriioocMncHAWi i 1 1 mocmncc j HlHllVll>l'>'llll>lMMl *-llf C*v*K$c<l :7>' I . core, integration with surrounding lands, and transportation and » j / • Neighbourhood structure, including location in relation to the downtown 9 1 • The area's role within the downtown precinct. >v b traffic. : •'• EH • Land use and character. «*.%• • Cultural heritage context. © •••• \ ——T 1 Based on these factors, the Phase 1 work identified 5 areas of change, 3 areas of moderate change, and 2 areas of no change. X - • IJH I > ( >.=_=j^H / • MERIDIAN C , PLANNING dtah I t K IM l» 3M 3» """ » .... u„ .•- tan 3 6" Queen Street West Land Use Study Phase 2 Overview VISION STATEMENT: What work was done for Phase 2? The key elements of the phase 2 work are: • A vision statement to describe the preferred land use pattern for the area. • Goals, objectives and overarching urban design principles that apply to the whole study area and define how the vision would be implemented. • An Urban Structure Plan that identifies: • Character areas where redevelopment is to be focused as identified in Phase 1. • Stable residential neighbourhoods to be protected. • Important structural elements of the neighbourhood. • A more detailed vision for each character area's future development and urban design principles to guide redevelopment within them. • Demonstration plans to illustrate possible scenarios for redevelopment following the identified planning and urban design principles and objectives. • A recommendation to establish a Development Permit System (DPS) for part of the study area. • Recommendations on revisions to the Secondary Plan and Zoning By-law to implement the vision for the non-DPS areas. • Additional recommendations on parks and open space, transportation and parking strategies to support the planning vision. MERIDIAN C ) PLANNING dtah Queen West will be a vibrant people-place, with a mix of land uses focused on Queen Street and the stable residential neighbourhoods behind it, that provides housing opportunities for a wide range of incomes and ages. Queen West will be a desirable place where economic opportunities and innovation are encouraged and occur in parallel with continuing improvements to the public realm that establish a strong sense of place and historical continuity. BRAMPTON Queen Street West Land Use Study Flower City Goals and Objectives Ten goals have been identified as broad long-term aims that define how the vision will be implemented: 1. Provide greater clarity and certainty to residents, the development community and other key stakeholder groups regarding land use, urban design and parks and public open space planning at the neighbourhood level. 2. Create a compact neighbourhood with a range of services that includes the necessary amenities and transportation options, and affords equitable access required for an economically and socially viable neighbourhood. 3. Encourage a diverse and inclusive social mix that includes families with children, seniors, singles and other lifestyles and family types by ensuring a broad range of housing opportunities and services. 4. Promote Queen West as a creative centre, a liveable place for entertainment, leisure, civic activities, where a variety of experiences, niche market retail uses and a range of residential uses are available. 5. Ensure that the character of existing and well-established residential neighbourhoods is maintained and enhanced by ensuring that development and redevelopment is compatible in terms of built form with the character of adjacent buildings and neighbourhoods. 6. Invest in and optimally maintain a diverse and interconnected system of public spaces that feature convenient and comfortable access, encourage safe and healthy environments, minimize hazards, and attract and appropriately serve all components of the community. 7. Foster a sense of civic identity through a high standard of community design in all future development that considers: 8. a. The appropriate integration of the design of public and private spaces. b. A high degree of visual diversity and aesthetic quality. c. A well-defined public realm, including an interconnected open space network. d. Sustainable and energy efficient building and site design. e. The sensitive integration of new development with existing development. f. A pedestrian oriented development pattern. Integrate built, natural and heritage elements with new development that has a mixed use, midrise street oriented built form with a strong urban character and a high level of design. 9. Encourage the design and distribution of land uses and all types and scales of development that will contribute to making Brampton a more sustainable community 10. Encourage reductions in the use of private automobiles by promoting active transportation and the use of Transportation Demand Management measures, such as public transit, car-pooling, cycling and walking. ERIDIAN PLANNING dtah BRAMPTON Queen Street West Land Use Study Flower City Urban Structure Plan and Character Areas A well articulated Urban Structure Plan is intended to ensure that there is a proper context for planning decisions. The proposed urban structure plan divides the Study Area into eight distinct character \ Urban Structure Plan KEY JI * «Xj[»S':-.,,: areas and stable residential Existing and potential open spaces neighbourhoods. Each character area is Potential tor new open spaces expected to experience some level of change as described in the following Key neighbourhood streets enhanced ••• Improve pedestrian connections Existing trails boards. Stable residential areas are to be Cycle network' pathways protected. WayfinC;ng,' improved pedestrian facilities f—-n--—(r~fit 'I ;; 2;/ 0 i The urban structure plan also contains the following key components: U-ban thresholds Landmark heritage Dji d r.gs ii.p Enhance views c( Church Steeple 1L "_• Corners Opportunity tor new slieet connections A3 jm Sca'e transition to Elizabeth Street a i Queen Street West Important Built Edges are architectural frontages that frame and articulate the spatial edges of the streets and public open HaggeM Avenue North spaces. Potential transit stop Character Areas i • -o - McLaugh'm Gateway c3tav A Built-Form Gateway gives recognition in architectural terms to the sense of entry from one part of the city to another. Gum Paper Factory Area Mill Street North ;/^5^ B Railroad / George Street 7 Mercer Drive S Haugerl Avenue Apartments Urban Thresholds mark other transitional changes and give punctuation along Key Neighbourhood Streets Stable Residential Neighbourhoods (May include some l.-mtted area of moderate change) ?4 Octx»r 2012 ERIDIAN PLANNING dtah 9 Key Neighbourhood Streets are the backbone of the neighbourhood and are to be designed as streets for people with enhanced pedestrian amenities. Bu.lt lorni gateway Important built edge dtah 8 Queen Street West Land Use Study Character Areas • A key part of the Urban Structure Plan is the identification of eight character areas - these are the locations where land use change is expected to take place over time. • For each character area, the study identifies: • The long term vision for the character area. • Principles to guide redevelopment. • Recommended policy changes (if any) to implement the planning vision. • Demonstration plans have also been prepared for selected sites to illustrate the development principles. They are provided for illustrative purposes and are not intended to represent the one potential build-out scenario. MERIDIAN C , PLANNING dtah 33 BRAMPTON Flower City Queen Street West Land Use Study Character Area 1 - Queen Street West Vision: Queen Street West is the main spine of the district and a landmark street within Brampton. It will evolve over time into a mixed-use area lined with low and mid-rise buildings that provides a strong pedestrian environment. Location The character area includes the lands along Queen Street between Elizabeth Street and Fletcher's Creek. Existing Character ipjljj liLZjfs The street includes a mix of commercial and residential uses. Near downtown, there are a number of W&& H b• * -^k ~*~W 3-4 storey commercial buildings. Further west, most buildings are single detached dwellings, some of m 1;1!:' H .. "• which have been converted to commercial uses. JuBialjJ • k-A mi • Principles for Redevelopment 33 I 5b The character of Queen Street West changes as one travels west. Therefore, the character area has been divided into two sub-areas - Near Downtown and Western Section - with the Orangeville rail line as the boundary between the two. Future Land Use • To respond to the changing character of the street from predominantly residential to mixed use, new infill development should have adaptable ground floor spaces suitable for a range of uses such as professional offices, retail, galleries, community space and live/work units that can animate the public realm. • Retail, commercial and office uses are required on the ground floor and permitted on upper floors in the Near Downtown section. They are permitted only on the ground floor, but not required, in the Western section. Residential uses are permitted through out the character area. Built form • Near Downtown: Frame and enclose the street with mid-rise infill buildings, with building heights around 6 storeys including a step back at 4 storeys to create a street wall that fosters a strong pedestrian environment. Potential building massing - View from southeast MERIDIAN C t PLANNING Demonstration plan showing possible redevelopment of north side of Queen dtah Street between Elizabeth and Mill Streets 10 BRAMPTON Flower City Queen Street West Land Use Study Character Area 1 - Queen Street West Principles for Redevelopment (cont.) • Western Section: Building height, massing and setback in infill sites must respect adjacent buildings and residential neighbourhoods - generally three to four storeys in height. • Transitions in scale and use of landscape buffers are required where redevelopment abuts stable residential areas. Street Interface • Near Downtown: Buildings should have minimal front yard setbacks and provide a continuous street wall to create a vibrant streetscape and a pedestrian scaled street. • Western Section: Locate buildings to acknowledge both existing and anticipated setbacks over time with the expectation being that there would be a more varied and articulated street wall. 3 Preservation and Integration of Heritage so • Retain and integrate heritage and/or valued buildings along Queen Street West within redevelopment proposals. Retain views of Christ Church steeple, an important landmark for the street. Potential building massing - View from northeast 1* Public Realm • Widen and improve the pedestrian realm (min. 5.5 m pedestrian boulevard) to achieve good healthy street trees and space for a range of pedestrian activities. Reinforce the identity and character of Queen Street West through a consistent, high quality streetscape. • Create new urban public spaces to support a lively pedestrian environment. Demonstration plan showing the possible amalgamation of several lots on Queen Street between McMurchy and Haggert Avenues. ir^ It shows a 4 storey residential building that could include commercial uses on the ground floor. Parking • Accommodate most parking below grade in the Near Downtown section and to the rear of buildings in the Western section. Additional dwelling units are shown atop a parking deck adjacent to the existing unopened laneway. Comparison with Current Policies The Secondary Plan allows mixed-use development in this area with a maximum density of 2.0 FSI. The proposed land use and densities are in line with these policies. It is recommended that the lands on the north side of Jessie and Byng Streets no longer be designated for higher density mixed-use development but that they be re-designated for low density residential uses to reflect the existing land use. MERIDIAN A PLANNING Definition Floor Space Index (FSI): FSI is a method for measuring density. It is a ratio between building floor area and the area of the property it is on. A FSI of 2.0 means the combined floor area for all storeys of a building can be 2 times as large as the property area. dtah 11 BRAMPTON Flower City Queen Street West Land Use Study Character Area 2 - Georgia Pacific and Surrounding Lands Vision: While existing industrial uses continue to be successful employment uses, the long term vision is for residential and mixed use development. Large parcels would be subdivided with a network of intimately scaled, attractive streets, and include a mix of low, mid-rise and tall buildings and new public spaces. Location The character area includes lands north of Queen Street between McMurchy Avenue and Haggert Avenue and on the north side of Nelson Street and west side of Haggert Avenue. Existing Character so \ The primary existing use is industrial, with the Georgia Pacific factory being the largest use. SO Principles for Redevelopment CjJ • Encourage a broad mix of housing, commercial and employment with active commercial uses on Queen Street and a mix of building types including mid-rise, town houses and tall buildings. • Tall buildings should be sited to minimize impacts on adjacent stable residential neighbourhoods. Transitions in scale are required where redevelopment abuts stable residential neighbourhoods townhouses are preferred interface on local residential streets. • Subdivide large parcels into a series of development blocks defined by a fine-grained network of pedestrian-priority streets. • Frame and animate key neighbourhood streets, parks, urban squares and plazas with active uses at grade to foster a lively and safe environment. • The Queen Street frontage of the Georgia Pacific site is unique on Queen Street - the enlarged setback and trees should be protected. There is an opportunity to integrate the heritage facade of the former Dixie Cup factory with a new public open space. Comparison with Current Policies The proposed land use and densities conform with the current Downtown Secondary Plan policies. Potential building massing -View from southwest Demonstration plan shows possible redevelopment of Georgia Pacific site MERIDIAN A PLANNING dtah 12 BRAMPTON Flower City Queen Street West Land Use Study Character Area 3- McLaughlin Gateway Vision: While the commercial development is fairly recent, there is long term potential for intensification. The long term vision is that it be a gateway to the Central Area with conversion of existing commercial uses to higher density mixed-use development including tall buildings with street-related podiums. Location Includes the land on the east side of the Queen and McLaughlin intersection. Existing Character Commercial plazas south of Queen Street and single detached dwellings north of Queen Street. Principles for Redevelopment • Encourage street-related uses on Queen Street and McLaughlin Road and a broad mix of housing types, including tall buildings south of Queen in support of higher-order transit. • Create a built form gateway with a landmark building at the southeast corner of the intersection • Frame the public realm with mid-rise podium buildings • Tall buildings should be staggered in a non-linear arrangements with a maximum floor plate requirement and minimum separation distance between towers to minimize visual and shadow impacts. Transitions in scale to residential neighbourhoods would be required. • Public space opportunities include a semi-private courtyard central to the site south of Queen Street and a plaza at the intersection of Queen and McLaughlin. • Smaller scale, infill, mixed use development to be located north of Queen Street. Comparison with Current Policies The current designation for the lands in the Downtown Brampton Secondary Plan is "Commercial" and "Service Commercial." The proposed vision is a change from that designation and would allow a higher density of development. The lands in the Brampton South Secondary Plan on the north side of Bufford Drive are designated "Low Density Residential." It is proposed that no change be made to that designation. MERIDIAN A PLANNING dtah Potential building massing -View from northwest Demonstration plan shows possible redevelopment of commercial plaza at Queen and McLaughlin 13 BRAMPTON Flower Gty Queen Street West Land Use Study New Development Permit System (DPS) Area Zoning By-Law Site Plan Control A key recommendation of the study is that Character Area 1 and parts of Character Areas 2 and 3 be established as a Development Permit System area. Minor Variance Site Alteration By-Law Tree Cutting By-Law What is a DPS? The DPS is a new tool under the Planning Act (Ontario Regulation 608/06) that consolidates zoning, minor variances and site plan approval into one process. Recommended DPS Boundaries City Council adopted a DPS for the Main Street North area (currently under appeal to the OMB) in August 2012. The intent is to use the Main Street North DPS as a model and adapt it to fit the unique circumstances on Queen Street West. i, en Why a DPS for Queen Street West? There is a strong desire to stimulate the revitalization and redevelopment of properties on Queen Street West. A DPS would support this desire by establishing a clear planning vision for the study area and creating greater certainty for residents and business owners in the area on how it will develop. The DPSalso benefits people looking to redevelop properties by establishing a streamlined approval process that is also more flexible on the details of development. What areas would be included in the DPS? It is recommended that the DPS be applied in those areas that are expected to experience significant land use change in the future and that it be focused on a contiguous area. The proposed DPS area is focused on the lands along Queen Street West. \ MERIDIAN C > PLANNING ( QUEEN SIWESt S1UDY AREA | | APPROXIMATE DPS AREA dtah 14 BRAMPTON Flower Ofy Queen Street West Land Use Study Development Permit System By-law Expected contents of DPS By-law The Queen Street DPS By-law is expected to include the following main sections: • Vision and Policies: Establishes the vision and main goals and objectives for the DPS area related to land use, development, streetscape and site design and servicing. • Regulations: The DPS area would be divided into several districts and this section would set out the permitted uses and development requirements for each. • Application Processing: Sets out when a permit is required, the required approval process and submission requirements • Design Guidelines: Establishes detailed guidelines for open space, streetscape, landscaping, built form, heritage, sustainability, signage and engineering. The guidelines would work in conjunction with the policies and regulations to achieve development that supports the vision. Numbers in the guideline are intended to be flexible and not prescriptive in the manner of the regulations. 51 Approval process The following flowchart shows the approval process under the Main Street North DPS. While it may need to be modified for the different circumstances on Queen Street West, it is illustrative of the potential approval process. Development Agreement Signed Conditions Satisfied if required Permit Issued ' Notice of Decision Sent Application Considered for Approval by Decision Made Director L_ Plans finalized Conditions outlined (Optional) Refer to or Confer with Council MERIDIAN C j PLANNING dtah 15 BRAMPTON Flower City Queen Street West Land Use Study Character Area 4 -Gummed Paper Factory and Surrounding Lands Vision: Medium density, mid-rise neighbourhood organized around a central park, integrated with the residential neighbourhood to the north Location The character area includes the properties fronting on Sheard Avenue and the southern part of Haggert Avenue. Existing Character The area consists primarily of older industrial uses with some residential uses on Sheard Avenue. Principles for Redevelopment • Mix of mid-rise residential buildings and townhouses, with townhouses adjacent to the neighbourhood to north to provide a built-form transition • Public space opportunities include an open space in the centre of the former Gummed Paper site and new east-west paths to connect to the ravine area • As redevelopment occurs, extend Haggert Avenue and subdivide larger parcels into a series of development blocks defined by a fine-grained network of publicly accessible streets and pedestrian paths. • Encourage entrances at ground floors of mid-rise buildings facing open space to foster a livelyand safe environment. Comparison with Current Policies The Downtown Brampton Secondary Plan designates this area as "Medium High/ High Density Residential" development, which allows townhouses through residential towers at a density of 51 to 241 units per net hectare. The proposed vision would be permitted by these policies. Implementation No changes to the Secondary Plan or Zoning By-law. Proposed residential development would require a Zoning By-law Amendment application and be subject to a public review process and a full review of technical issues. Potential building massing - View from northwest Demonstration plan for former Gummed Paper site MERIDIAN C i PLANNING dtah 16 BRAMPTON Flower City Queen Street West Land Use Study Character Area 5 - Mill and Nelson Neighbourhood Vision: This neighbourhood will include a mix of existing buildings that are retained and improved and modest, sensitive infill redevelopment it with the neighbourhood's existing character Location The character area includes the lands along Mill, Nelson, Elizabeth and Park Streets north of Queen Street. Existing Character An eclectic variety of historic buildings that range from grand estates to more modestly sized houses. It includes a number of significant heritage buildings that are either designated or listed under the Ontario Heritage Act. Principles for Redevelopment • Identified as an area of "Moderate Change" in Phase 1 - the vision is that many of the existing buildings would be retained and improved with some opportunities for modest infill development subject to land assembly. i • Predominantly residential in land use but with some flexibility on use including conversion of larger houses to offices, other appropriate commercial uses or multiple dwellings designed to minimize impact on neighbourhood. • Infill redevelopment must respect the scale of the neighbourhood (2 to 4 storeys) and enhance heritage attributes. • Preserve significant heritage resources and restore their heritage features . • Denser development on east side of Elizabeth Street - 4 to 6 storey maximum - to establish a transition to the backs of buildings on George Street. Comparison with Current Policies The Downtown Brampton Secondary Plan primarily designates this area as " Medium Density Residential" with Elizabeth Street identified as "Central Area Mixed Use." The proposed vision would place a greater emphasis on preserving the character of the area. Implementation Demonstration plan for west side of Elizabeth Street between Queen and Nelson. While most redevelopment would be lower density than shown here, there is an opportunity for mid-rise development at this site to provide a transition to the higher density uses on George Street. New Secondary Plan designation is proposed - "Central Area Transition Area." it is intended to include policies that maintain the heritage character of the area while providing for some flexibility for modest intensification and in use. It is also recommended that consideration be given to amending the current residential zoning to allow flexibility for non residential uses with appropriate review and standards. MERIDIAN A PLANNING dtah 17 BRAMPTON Flower City Queen Street West Land Use Study Other Character Areas Character Area 6 - Railroad St / George A considerable amount of change is expected in this area given its proximity to the Downtown Brampton GO Station. The City has initiated a study to develop a Mobility Hub Urban Design Plan and Design Guidelines to inform how development within the vicinity of the Mobility Hub is intended to occur. Definition Mobility Hub: A Major Transit Station Area that is located at the interchange of two or more regional transit lines. Mobility Hubs are places of connectivity where there is a concentration of employment, living, shopping and recreation. There is some overlap between the study areas for the Mobility Hub study and the Queen Street West study. As this areas is more closely related to the Mobility Hub, that study will be the lead in establishing the vision and design guidelines for this Character Area. Character Area 7 - Mercer Street • Currently a stable residential area but given proximity to areas planned for intensification, there could be pressure for some redevelopment dependent on land assembly. If redevelopment occurs it is expected to be in the form of medium density uses consistent with existing Secondary Plan policies. • It is recommended that whole area be designated Medium Density in Secondary Plancurrently it is a mix of Medium Density and Central Area Mixed Use. No changes are proposed to the existing zoning, which currently permits single detached residential *> jjhfefeg^==jf* ^^^M^.-^fy^^j dwellings. Any development proposal would require a site specific Zoning By-law Amendment. Character Area 8 - McMurchy Ave North Apartments • \ «fc=jaa^ • Some long term potential for intensification, especially of parking areas. • If intensification occurs, the vision is to enhance the quality of the built environment and open spaces and better integrate it with the surrounding neighbourhoods. It could include a range of building types, including townhouse, mid-rise and taller buildings. Vi^f0/? . _ • No recommended changes to Secondary Plan and Zoning By-law at this time - more detailed study is required if and when redevelopment is to occur. MERIDIAN A PLANNING dtah 18 BRAMPTON Flower City Queen Street West Land Use Study Stable Residential Neighbourhoods Phase 1 identified a number of areas of "no change." These are areas that are considered to be stable residential neighbhourhoods where the emphasis should be on protecting the existing character of the area. Location The stable residential areas south of Queen include the lands along Jessie St, Royce Street, Wellington Avenue, Elizabeth Street, Mill Street, Byng Avenue, McMurchy Avenue, Haggert Avenue, Fleming Avenue and Bufford Drive. North of Queen, they include the lands along West Street, Denison Avenue and Nelson Street. Vision • While there is variety in the existing character of each of the different neighbourhoods, for all the emphasis is on protecting that character with limited change expected. • Any changes (e.g. replacement of older homes with newer homes) must be consistent with the 52 character of the surrounding area. Comparison with Current Policies These neighbourhoods are primarily designated "Medium Density Residential" in the Secondary Plan. Some areas are also designated "Central Area Mixed Use" (West St. and north side of Jessie St. and Byng Ave.) and some "Low Density Residential" (Bufford area and Wellington St.). These policies would allow more change than identified in the above vision. Implementation It is recommended that stable residential neighbourhoods be designated as "Low Density Residential" in the Secondary Plan to better protect them. The exception is the recently built town houses along Denison Avenue, which would remain "Medium Density Residential" to reflect the existing land use. It is also recommended that policies be added to the Secondary Plan to help ensure new houses fit with the character of the area. For the Zoning By-law, the study recommends reducing the number of zoning categories in the area and that the primary zoning be for single detached dwellings. MERIDIAN C, PLANNING dtah 19 BRAMPTON Flower City Queen Street West Land Use Study Transportation Recommendations There is a need to consider how the transportation network in the area, particularly for walking and cycling, can be enhanced to support the vision for the study area. Active Transportation Improvements Opportunities for active transportation improvements include: • Extending multi-use path along Fletcher's Creek . • Adding connections from adjacent neighbourhoods to Fletcher's Creek trail. • Improving pedestrian realm on Queen Street West and key neighbourhood streets. • Providing cycling facilities on select streets. • Trail on Orangeville Rail Line (if rail operations cease). Road Network Improvements • A series of cross-sections were prepared for Queen Street West. The key recommendation from those is to widen and improve the pedestrian realm to provide a 6.0 m boulevard (typical) in order to create a pedestrian friendly street that supports the planning vision for the area. • The recommended boulevard is intended to provide generous sidewalks, street-trees and street lights appropriate for the character of the area. • It is recommended that the double row of trees at the Georgia Pacific site be maintained and wider pedestrian boulevard be provided in this area. • Unopened laneway south of Queen between McMurchy and Haggert is an opportunity that could support redevelopment on Queen Street and should be further explored. Work will continue on developing these recommendations in Phase 3 of the study. MERIDIAN C > PLANNING Recommended cross section for Queen Street West between George St and Orangeville Rail Line dtah 20 m BRAMPTON KvmS Flower City Queen Street West Land Use Study Other Recommendations Parks and Open Space • Develop a hierarchy of urban spaces (public and/or private but publicly accessible) to support redevelopment. Potential examples include small urban spaces along Queen Street and a plaza at the McLaughlin and Queen Street. • There is opportunity on larger sites to secure lands through the development process for public parks or ones that are in private ownership but accessible to the public. Possible sites for such spaces include: • Georgia Pacific site (north side of Queen between McMurchy and Haggert) • Gummed Paper site (southern terminus of Haggert) • McLaughlin Gateway (SE corner of Queen and McLaughlin) Parking • Parking is a key issue in being able to achieve the planned vision for Queen Street - cost of providing parking, particularly underground or in a structure, can be very prohibitive and can affect the economic viability of a project • While most parking would be provided on-site, the study recommends developing a public parking strategy (on and off street) for Queen Street. Consideration should be given to adding municipal parking spaces, including off-street parking lots along Queen West and on-street spaces on Queen Street and its side streets. Any on-street parking would need to be coordinated with future transit improvements. • Provide reduced or eliminate minimum parking requirements in DPS as compared to conventional Zoning standards. Sign By-law • Amend Sign By-law so that permitted signs are consistent with vision for study area MERIDIAN C ) PLANNING dtah 21 PS-S3 APPENDIX 3 Urban Structure Plan 13 Urban Structure Plan KEY Existing and potential open spaces Potential for new open spaces ••• Key neighbourhood streets enhanced ••• Improve pedestrian connections Existing trails Cycle network / pathways Wayfinding / improved pedestrian facilities o Urban thresholds 0 Landmark heritage buildings Enhance views of Church Steeple Built form gateway Important built edge S3 Opportunity for new street connections '//, © Scale transition to Elizabeth Potential transit stop Character Areas H 2 Queen Street West Haggert Avenue North 3 McLaughlin Gateway 4 Gum Paper Factory Area 5 Mill Street North 6 Railroad / George Street 7 Mercer Drive 8 Haggert Avenue Apartments 1 Stable Residential Neighbourhoods (May include some limited area of moderate change) 24 October 2012 dtah
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