Background and Assessments Report - Caledon · Background and Assessments Report Final Draft | May...

CALEDON EAST COMMUNITY IMPROVEMENT PLAN STUDY

Background and Assessments Report

Final Draft | May 14, 2013

Final Draft Background and Assessments Discussion Paper

Caledon East Community Improvement Plan Study | i

Table of Contents 1. Introduction ...................................................................................... 1

1.1 Purpose of the Study ....................................................................... 1

1.2 Process ............................................................................................. 2

1.3 Purpose of this Report ..................................................................... 3

2. The Study Area .................................................................................. 4

3. Legislation and Policy Review ............................................................ 8

3.1 Planning Act ..................................................................................... 8

3.2 Other Applicable Legislation .......................................................... 10

3.3 Provincial Policy ............................................................................. 12

3.4 Provincial Plans .............................................................................. 13

3.4.1 Oak Ridges Moraine Plan ........................................................ 13

3.4.2 Greenbelt Plan ........................................................................ 13

3.4.3 Growth Plan for the Greater Golden Horseshoe .................... 14

3.5 Peel Region Official Plan ................................................................ 14

3.6 Town of Caledon Official Plan ........................................................ 15

3.6.1 Land Use Plan.......................................................................... 15

3.6.2 Community Improvement Policies ......................................... 19

3.7 Zoning By‐law ................................................................................ 20

3.8 Town Design Guidelines and Streetscape Studies ......................... 24

3.8.1 Caledon East Streetscape Study Architectural Guidelines

(1994) and Design Concept (1994) ......................................... 24

3.8.2 Caledon East Community Design and Architectural Design

Guidelines (2000) .................................................................... 25

3.8.3 Industrial and Commercial Design Guidelines ........................ 28

3.9 Peel Region Active Transportation Plan ........................................ 28

3.10 Region of Peel Streetscaping Guidelines ....................................... 29

3.11 Peel Regional Road Characterization Study .................................. 30

3.12 Peel Region Healthy Communities ................................................ 30

FINAL DRAFT | May 14, 2013 | MMM Group Limited

3.12.1 Peel Healthy Development Index Report (2009) ....................30

3.12.2 Health Background Study: Development of a Health

Background Study Framework (May 2011) ............................33

3.12.3 The Healthy Development Index Recommendations Report

(October 2011) ........................................................................33

3.12.4 City and Regional Residential Preferences Study ...................34

3.12.5 Changing Course: Creating Environments for Healthy Living in

Peel .........................................................................................34

3.12.6 Healthy Canada by Design ......................................................34

4. SWOT Analysis ................................................................................ 35

5. Other Approaches to Community Revitalization .............................. 43

5.1 Bolton Community Improvement Plan ..........................................43

5.2 Downtown Perth Community Improvement Plan .........................44

5.3 Haldimand County Downtown Areas Community Improvement

Plan ................................................................................................45

5.4 Chatham‐Kent Downtown and Main Street Areas Community

Improvement Plan .........................................................................45

5.5 New Tecumseth Community Improvement Plan ..........................46

5.6 Lessons Learned .............................................................................46

6. Consultation .................................................................................... 48

6.1 Stakeholder Meeting .....................................................................49

6.2 Advisory Committee Meeting ........................................................50

6.3 Public Open House and Workshop ................................................51

6.4 Future Consultation .......................................................................54

7. Basis for the Community Improvement Plan .................................... 55

7.1 Critical Needs and Guiding Principles ............................................55

7.2 Incentive Program Options ............................................................58

7.3 Eligibility for Incentives ..................................................................60

7.4 Municipal Leadership Program Options ........................................61

8. Conclusion and Next Steps .............................................................. 63


Caledon East Community Improvement Plan Study | 1

1. Introduction Caledon East is a picturesque rural community, located in the heart of

Caledon’s rural landscape and at the edges of the Niagara Escarpment and

Oak Ridges Moraine. The community thrives as the Town’s administrative

centre, and as one of the Town’s focal points for growth. However, there is

tremendous potential to revitalize the community’s historic core and to

achieve a unified vision for the community’s public realm. To accomplish

these goals, the Town of Caledon and the Region of Peel have initiated the

preparation of a community improvement plan for the community of

Caledon East. A community improvement plan is a tool that enables a wide

range of programs intended to support revitalization and private

investment, including grants for private property owners and tenants, as

well as municipal property acquisition and improvements. The Town and

the Region have retained the services of MMM Group Limited to assist in

the completion of this important study.

1.1 Purpose of the Study

A community improvement plan is being prepared to promote the

revitalization and improvement of Caledon East. A community

improvement plan can enable the Town to offer financial incentives to

property owners and tenants who wish to make improvements to their

property. Additionally, a community improvement plan can plan a strategy

for municipal leadership in community revitalization, such as streetscape

improvements, additional design studies, or other activities.

Caledon East is guided by a number of planning documents, including a

detailed Secondary Plan, which plans for compatible redevelopment in the

community’s core, encourages conservation of historic buildings, and

supports continued revitalization and improvement. In many respects, the

community improvement plan is an essential tool for achieving the goals of

the Secondary Plan, since a community improvement plan can encourage

investments in the building stock, including compatible redevelopment.

Additionally, the community improvement plan can help to implement

applicable design guidelines, by requiring compliance with the guidelines to

be eligible for financial incentives. The Plan has the potential to bring

together the numerous plans, guidelines, projects and goals, and establish a

clear and coordinated implementation strategy.

Above: Photos of Caledon gateway and Caledon Trailway/Centreville Creek


A community improvement plan is prepared for an area designated by the

Town as a community improvement project area. The community

improvement project area and the plan are prepared and adopted in

accordance with the Planning Act for Ontario. The plan will also need to

have consideration for the policies of the Town of Caledon’s Official Plan,

and other policies, guidelines and regulations that impact the revitalization

of the community and improvement of quality of life and healthy living.

The Town of Caledon has already approved and implemented a Community

Improvement Plan for Bolton, which includes a number of financial

incentives which are available to property owners. The Caledon East

Community Improvement Plan is considered a separate study, which will be

Caledon’s second community improvement plan. It will be important that

the plan specifically address the needs and issues of the community. While

there may be administrative tie‐ins between the Caledon East and Bolton

Plans, the Caledon East Plan should be specific to the context and

circumstances of the community.

1.2 Process

A community improvement plan functions as an integrated community

planning, economic development and urban design tool. It should be based

on a thorough planning analysis, inclusive of a transparent consultation

process with multiple opportunities for public and stakeholder engagement.

The incentives offered to the community and other implementation

programs and projects should directly relate to the community’s needs,

issues and opportunities, so that they may be effectively utilized.

The process for preparing the community improvement plan was broadly

outlined in the Terms of Reference for this study, and refined through initial

discussions between Town staff and the consulting team. The final process

consists of the following steps:

1. Preparation of the Background Data Assessments and Discussion

Paper (this report);

2. Initial consultation with the public and stakeholders (a

public/stakeholder open house and workshop);

3. Initial consultation with Council;

4. Preparation of a draft Community Improvement Plan, including a

plan for marketing the Community Improvement Plan;

5. Further consultation with the public and stakeholders;

6. A workshop with Council to discuss the draft Community

Improvement Plan programs;



7. Finalization of the Community Improvement Plan, based on

consultation and input; and

8. A public meeting required by the Planning Act and adoption of the

Plan by Council.

Upon completion of the Community Improvement Plan, the Town will

assume responsibilities for implementing the plan, including funding the

programs and administration of any financial incentives in the Plan.

1.3 Purpose of this Report

The purpose of this report is to establish a foundation for preparing the

community improvement plan. This report identifies the issues and

opportunities which should be addressed through a community

improvement plan, and describes how a community improvement can be

used to benefit and revitalize Caledon East. It is the intent of this report to

help answer the following questions:

What are the legislation, policies, studies and regulations that are

relevant to preparing a community improvement plan? How can a

community improvement plan complement or help to implement

these studies?

What are Caledon East’s strengths, weaknesses, opportunities and

threats, especially with regard to the matters that could be

addressed by a community improvement plan? This may include

matters such as:

Urban design, built form and streetscapes;

Building and property condition;

Walkability and active transportation;

Amenities, business mix;

Heritage conservation;

Housing availability and affordability; and

Transportation and parking.

What are Caledon East’s critical needs – the key issues and

opportunities that should be addressed through a community

improvement plan?

What types of incentive programs and municipal leadership

strategies should the Town utilize through a community

improvement plan, to help address the community’s critical needs?


2. The Study Area Caledon East is a small urban community located in the geographic heart of

the Town of Caledon. The centre of the community is located about 15 km

from Downtown Bolton and about 12 km from the northern edge of

Brampton’s urban area. The geographic context is shown in Figure 1.

Figure 1 | Study Area



According to the Architectural Guidelines: Caledon East Streetscape Study

(February 1994), the growth of Caledon East occurred in three distinctive

phases:

Once land began to be settled for agricultural uses in the period

between 1820 and 1850, the hamlet was likely established due to

the convergence of the stream, Airport Road and Old Church Road,

as well as the valley setting. Few buildings in Caledon East remain

from this era. According to the Town’s list of historical properties,

only a few properties around this era remain. The properties include

15480 Airport Road (1850 – 1874), the St. James Anglican Cemetery

at 15995 Innis Lake Road (prior to 1850), the James Watson

farmhouse at 15717 Airport Road (1850 – 1874), the Cranston‐

Freeborn House at 9 Antrium Court (1850 – 1874), a farmhouse at

89 Walker Road West (1850‐1874), the Orange Lodge property at 1

Greer Street (prior to 1850), and the Knox Presbyterian Church at

16078 Airport Road (1850 – 1874).

Additional growth took place when the connection to the Hamilton

and North Western Railway was completed, meaning that goods

could be more easily shipped. A number of buildings from this

period, between 1870 and 1914, remain. These buildings include

primarily houses, but several churches, farmhomes, barns,

commercial buildings, and a school have survived from this era. The

buidings are located on Old Church Road, Airport Road,

Mountainview Road, Antrim Court, McCaffery Lane, Walker Road

West, Parsons Avenue, Emma Street, Dufferin Street and Maple

Street.

Significant additional growth did not take place until the 1950s,

coinciding with rapid growth of the Greater Toronto Area in general

and improvements to the highway network and roadways. The

development character of this period is similar to other

communities, with some automobile‐oriented commercial

development and housing subdivisions.

Land continues to be developed and is anticipated to continue in the future

in Caledon East. New residential subdivisions have been built on the north

and south sides of Walker Road, at the northwest corner of the community.

Several new streets and residential uses are being constructed on the north

side of Old Church Road. Projections about future growth are discussed in

Section 2 of this report.

Above: Historic photos of Caledon East, circa 1910 (top), 1915 (upper middle), 1930 (lower middle), and aerial photo of Caledon Trailway and Airport Road area in 1969


Caledon East is distinguished by its location in a valley and its woodland

surroundings. Caledon East is located at the junction of the Oak Ridges

Moraine, Niagara Escarpment and the Peel Plain. Woodlands surround the

community to the north, west and southeast. The east‐west Centreville

Creek corridor, including the Caledon Trailway, bisects the community just

south of the core area. The corridor forms a connection between the

woodlands to the west with the woodlands further to the south east of the

community. These woodlands form clear edges to Caledon East’s urban

area in the north, west and southeast.

The boundaries of Caledon East to the east and south are not as sharply

defined. Rather, there is a transition between the urbanized community into

the rural landscape. The outskirts of the community include several estate

residential subdivisions on the southwest, south and north/northeast sides.

The Old Church Road corridor and Airport Road corridor transitions into a

mix of rural land uses, agriculture, and rural residential lots. As Old Church

Road and Airport Road are Regional roads, it will be important to

collaborate with the Region on community revitalization solutions.

Caledon East functions as an important administrative centre in the Town of

Caledon. The Town’s municipal office, as well as the Caledon East

Community Complex, are located on Old Church Road, east of the historic

core. A fire hall and a former Ontario Provincial Police facility are also

located on Old Church Road. The community has two elementary schools

(Caledon East Public School and St. Cornelius Catholic School) and one

secondary school, Robert F. Hall Catholic Secondary School. St. Cornelius

Catholic and Robert F. Hall Catholic Secondary School are located close to

the Town’s municipal offices, on the north side of Old Church Road, while

Caledon East Public School is accessed from Airport Road and Jean Street,

just south of the historic core.

The core of the Town is generally located along Airport Road, extending

from the Caledon Trailway to just north of Old Church Road. The buildings

in the core consist mainly of one‐ and two‐storey buildings. The built form

character is best described as a “small‐town or village main street”, with

some gabled roofs, and lack of a continuous street wall, as most buildings

have a driveway on one side, and some buildings have parking in the side

yard. The front yard setbacks of buildings vary, though most buildings are

located close to the sidewalk. A few newer commercial buildings are

setback substantially from the sidewalk, with parking in front. This variety

of character creates challenges in terms of defining a very clear vision for

community improvement. Above: Centreville Creek at Airport Road, looking east (top), Old Church Road looking

east (upper middle), Airport Road looking west (lower middle) and Caledon East Gateawy at

Airport Road, looking north (bottom)



There is substantial vegetation in the streetscape, especially south of Old

Church Road, where there are maturing trees planted in the street and

planted in landscape strips in front yards. Pedestrian amenities include

some street furniture, including a few trash receptacles, benches and

planters, as well as a few signs with educational information about

community heritage. The overhead utility wires are located on the east side

of Airport Road. Street light fixtures are provided consistently along Airport

Road and Old Church Road.

The core area includes mostly commercial tenants, as indicated in Figure 2.

The businesses shown to the south are the highway commercial plaza,

which includes the Foodland store. There are two existing development

proposals, related to vacant properties at the corner of Airport Road and

Old Church Road, and further to the north on Old Church Road.

Figure 2 | Business Mix in the Core Area of Caledon East, as of April 2011 (source: Province of Ontario)


3. Legislation and Policy Review

3.1 Planning Act

The Ontario Planning Act, R.S.O. 1990, as amended, is the key piece of

legislation for regulating community planning in Ontario. It outlines the

tools, methods and procedures that municipalities use to manage land use

planning and development in Ontario’s municipalities.

Section 28 of the Planning Act allows municipalities to prepare and adopt

community improvement plans for designated community improvement

project areas. The Act states that municipalities may pass a by‐law to

designate a community improvement project area, provided that the

municipality has an Official Plan in effect which has policies regarding

community improvement in the municipality. The community improvement

project area may apply to the entirety of the municipality or to just a

portion of the municipality (Section 28(2)).

Where a community improvement project area has been designated by by‐

law, Council may:

a) acquire land with the approval of a minister, where a community

improvement plan is not in effect (Minister approval is not required

if a community improvement plan is in effect) (Section 28(3)(a));

b) hold land that has been acquired (Section 28(3)(b));

c) clear, grade or otherwise prepare land for community improvement

(Section 28(3)(c)); or

d) prepare and adopt a community improvement plan (Subsection

28(4)).

The community improvement plan may be used by the municipality to:

a) construct, repair, rehabilitate or improve buildings or land in

conformity with the community improvement plan, and sell, lease

or dispose of such buildings and land in the community

improvement project area (28(6)(a));



b) sell, lease or dispose of land acquired or held by the municipality in

the community improvement project area to any person for use

which conforms to the community improvement plan (28(6)(b));

c) make grants or loans to registered owners, assessed owners or

tenants of land and buildings in the community improvement

project area to pay for the whole or any part of the “eligible costs”

of the community improvement plan (28(7)). Eligible costs include

costs for conducting environmental site assessments,

environmental remediation, as well as the development,

redevelopment, construction, and reconstruction of land and

buildings for rehabilitation purposes or for the provision of energy

efficient uses, buildings, structures, works, improvements or

facilities (28(7.1)). Note that the total amount of grants and loans

and any tax assistance as defined in Section 365.1 of the Municipal

Act, 2001, must not exceed the value of eligible costs (28(7.3)).

Agreements for loans and grants issued under Subsection 28(7) may

be subject to registration against the land, so that the municipality

can enforce the provisions of the agreement to subsequent owners

and tenants, subject to the Registry Act and Land Titles Act.

d) make grants or loans for repairs, where an owner does not comply

with and has been given an order under Section 15.2(2) of the

Building Code Act to repair their building or clear their land (32(1)).

Note that in this case, loans are subject to the provisions of 32(2)

and 32(3), which set out requirements for collection of taxes

through municipal tax collection and registration of certificate of

loan to the land registry office; and

e) enter into agreements with any governmental authority or agency

for the completion or implementation of studies, plans and

programs (with Minster approval) or enter into similar agreements

with other municipalities (Minister approval not required).

The tools that can be utilized by a municipality in conformity with a

community improvement plan above are very broad. The Planning Act

specifies that municipal decisions regarding land acquisition and property

improvements must be in conformity with the adopted community

improvement plan, meaning that the community improvement plan should

establish clear policies and guidelines for the use of these tools.

It is interpreted that the powers to issue grants and loans applies to a very

wide range of issues, given that eligible costs broadly include “development,

redevelopment, construction and reconstruction of lands and buildings for


rehabilitation purposes.” It is intended that the Official Plan can more

specifically outline the intended use of community improvement plans,

which can be further refined by the community improvement plan itself.

Some municipalities have broadly interpreted the application of Subsection

28(7) to include tax increment equivalent grants. If a property owner’s tax

assessment is expected to increase due to eligible community improvement

activities (i.e., the tax increment), the value of that tax increment is granted

to the owner after the full taxes are paid, inclusive of the tax increment.

The municipality may choose to grant the tax increment over a number of

years, usually in decreasing amounts each year. This program is intended to

overcome the notion that tax assessment increases are a barrier to

development or redevelopment. The rebates give the owner time to adjust

to the new tax assessment, where the assessment as increased as a result of

their development project.

3.2 Other Applicable Legislation

Section 365.1 of the Municipal Act allows municipalities to pass by‐laws to

cancel, reduce or refund taxes levied for local municipal and school

purposes for eligible properties. Municipalities are required to give notice

of this decision to the Regional municipality, who may choose to provide a

similar cancellation, reduction or refund of taxes which are levied by the

upper‐tier municipality. However, this applies only to properties classified

in the residential property class, the farm property class or the managed

forests class, which typically would not apply to a community improvement

plan. Therefore, this potential program should not be considered as a

potential incentive program for the Caledon East Community Improvement

Plan.

Similarly, under subsection 365.1(1) taxes may be cancelled by by‐law for

properties which are considered to be contaminated (i.e., a phase two

environmental site assessment has been conducted and which did not meet

the standards specified under Section 168.4(1) of the Environmental

Protection Act). In order for the taxes to be cancelled, the property must be

included in a community improvement project area, and the community

improvement plan must contain provisions to enable this tax assistance.

Additionally, in order to provide tax assistance for the portion of taxes used

for school purposes, approval from the Minister of Finance must be

obtained (365.1(6)). The municipality may outline conditions respecting the

tax assistance, which, if not met, may become payable to the municipality

(365.1(3.1)). The municipality is required to issue notice of tax cancellation

to the upper‐tier municipality, who may choose to cancel upper‐tier taxes.



This program is typically known as the Brownfields Financial Tax Incentive

Program.

Under Section 365.2 of the Municipal Act, a program for tax reductions or

refunds may be developed for eligible heritage properties, including

properties designated under Part IV of the Ontario Heritage Act or Part V of

the Ontario Heritage Act (i.e., within a heritage conservation district), and

which are subject to an easement agreement with the municipality (under

Section 37 of the Ontario Heritage Act) Ontario Heritage Foundation (under

Section 22 of the Ontario Heritage Act), or another agreement with the

municipality respecting its maintenance and preservation. The municipality

may outline additional eligibility criteria to define properties eligible for tax

reductions or refunds. Other requirements under Section 365.2 will apply.

This program is often called the Heritage Property Tax Relief Program and is

often integrated in community improvement plans.

Under Section 39 of the Ontario Heritage Act, municipalities may pass by‐

laws providing grants or loans to the owner of a heritage property

designated under Part IV of the Act, to assist in paying for the alteration of

the property on the terms described by the by‐law. Occasionally,

municipalities implement this program through a community improvement

plan. If such a program is not incorporated in the community improvement

plan, it should be coordinated with the plan, to ensure there is no overlap in

grants. The Town has implemented such a program, which provides for

matching grants of up to 50% of eligible costs, to a maximum of $4,000 per

project, and subject to funding availability. Three of seven designated

properties in Caledon East have received grants under this program,

including 16024 Airport Road – the Cranston‐Moses Graham House, 9

Antrium Court – the Cranston‐Freeborn House, and 15 Emma Street – the

St. James Parsonage/Rectory home.

Some municipalities have incorporated programs to reduce, cancel or

refund fees for planning applications. This is sometimes based in part on

Section 69(2) of the Planning Act, which permits council, committee of

adjustment or planning board to reduce or waive the requirement of a fee

where it is determined that payment would be unreasonable. A planning

fee refund program may also be viewed as an interpretation of the “eligible

costs” under Section 28(7) of the Planning Act. Most municipalities that

have implemented this program fund the fee refund from the annual

budget for community improvement plan incentive programs, so that

expected revenues from planning fees can be maintained. Similarly,

municipalities have interpreted this as a basis for refunding development

charges or building permit fees.


3.3 Provincial Policy

Under Section 3(1) of the Planning Act, the Province may issue policy

statements on municipal planning matters considered to be of Provincial

interest. Decisions by the municipality are to be consistent with the policy

statements (5(1)). The current Provincial Policy Statement came into effect

on March 1, 2005.

Policy 1.1.3.1 promotes the regeneration of settlement areas. Policy 1.1.3.3

states that planning authorities are to promote opportunities for

intensification and redevelopment, including brownfield redevelopment.

Healthy and active communities should be promoted by facilitation of

pedestrian movement and cycling, and providing for a full range of

accessible recreation opportunities (Policy 1.5.1). The revitalization of main

streets is promoted by Policy 1.7.1(b). Section 2.1 provides policies

respecting the long‐term protection of natural features and areas. Policy

2.6.1 requires that significant built heritage resources and significant

cultural heritage landscapes are to be conserved.

The PPS therefore supports the maintenance and revitalization of Caledon

East, which could include the use of a Community Improvement Plan to, for

example:

Promote the economic viability of the main street area;

Promote opportunities for appropriate intensification and

redevelopment;

Help conserve cultural heritage resources;

Help promote protection of natural heritage features; and

Promote or create new active transportation and recreational

opportunities.

The Province is currently undertaking a five‐year review of the 2005

Provincial Policy Statement, which is required by Subsection 3(10) of the

Planning Act. The draft policies build on the policies of the 2005 Provincial

Policy Statement, and are intended to provide clearer direction to

municipalities. There are no specific new policies regarding community

revitalization.

2005 Provincial Policy Statement Cover



3.4 Provincial Plans

3.4.1 Oak Ridges Moraine Plan

The Oak Ridges Moraine Conservation Act, S.O. 2001, provided the basis for

preparing the Oak Ridges Moraine Plan, which went into effect in 2002. The

Plan is intended to protect the Oak Ridges moraine, a significant landform

which has important environmental, geological and hydrological features

and performs important ecological functions. Municipal planning decisions

are to conform to the Plan.

Caledon East is located at the western edge of the Oak Ridges Moraine (see

image at right). A portion of the community is not located in the Moraine.

Lands to the north, west and southeast of the community are designated

Natural Core Area. Lands further to the south and small portions of lands to

the north are designated Natural Linkage Area. The built‐up area of the

community is designated a mix of Settlement Area, while the fringe areas

including some of the estate subdivisions are designated Countryside Area.

Natural Core Areas represent lands with a concentration of natural

heritage features and are critical to the overall integrity of the

Moraine.

Natural Linkage Areas represent open spaces, natural features,

rivers and streams that connect Core Areas.

Countryside Areas transition between settlements, Natural Core

Areas and Natural Linkage Areas.

Settlement Areas include existing and planned urban areas, which

are planned by Official Plans.

The community improvement plan will focus on the revitalization,

regeneration and improvement of the existing Settlement Area. Subsection

18(1) of the Plan intends to focus and contain urban growth by promoting

the efficient use of land, including intensification and redevelopment, and

minimizing the encroachment and impact of development on ecological

functions and hydrological features of the Plan Area. It is intended that

official plans will guide land use and growth management in Settlement

Areas. The Plan also promotes improvement of natural heritage features

and functions, and accommodates a trail system (Subsection 18(2)).

3.4.2 Greenbelt Plan

Like the Oak Ridges Moraine Plan, the Greenbelt Plan (2005) is a Provincial

Plan and municipal decisions must conform to the Plan. Caledon East is

Caledon East in the Oak Ridges Moraine Plan

Caledon East in the Greenbelt Plan


located within the Greenbelt Plan Area (see image at left). Much of the

community is designated Towns and Villages, while a portion of the

Community falls within the Oak Ridges Moraine Area, because it is subject

to the Oak Ridges Moraine Plan. Lands on the south side of the community

is designated Protected Countryside by the Greenbelt Plan. The following

policies apply:

Towns and Villages are subject to the policies of 3.4.2. These

settlements, including Caledon East are intended to be governed

principally by the municipal official plan, and are only subject to the

policies for external connections in 3.2.5, which promotes the

maintenance and improvement of connections between natural

heritage features and ecological/hydrological functions and

processes.

Within the Protected Countryside, lands are intended to support

agricultural uses, but a range of non‐agricultural uses which support

the resource/agricultural sectors or recreational activities are

supported (Section 4.0).

3.4.3 Growth Plan for the Greater Golden Horseshoe

The Growth Plan for the Greater Golden Horseshoe (2006) outlines a policy

framework for managing growth in the Greater Golden Horseshoe. The plan

is intended to be complementary to the policies of the Greenbelt Plan. The

Growth Plan generally encourages the development of complete

communities, higher density development where appropriate, and

promoting and requiring a certain amount of intensification (Section 2.2.2).

The plan recognizes that “Rural Settlement areas are the key to the vitality

and economic well‐being of rural communities”, and “municipalities are

encouraged to plan for a variety of cultural and economic opportunities

within rural settlement areas to serve the needs of rural residents and

businesses.”

3.5 Peel Region Official Plan

The Peel Region Official Plan (November 2008 Office Consolidation)

provides guidance on matters such as management of resources, land use

structure, infrastructure and development policies. It is intended that

municipal official plans are to be in conformity with the Region’s Official

Plan. The Plan promotes restoration of the natural environment (section

2.5) and conservation of heritage resources (section 3.6). It identifies a

Greenlands System, which incorporates the Centreville Creek corridor and

woodlands surrounding Caledon East. Caledon East is designated as one of

Caledon East in the Region of Peel’s Structure Plan (Schedule D of the Offiical Plan)



three Rural Service Centres in the Region, and is located in the heart of the

Rural System (see image at right). It is intended that growth in the Rural

System will be focused in the Rural Service Centres, and a wide range of

uses and activities are contemplated for these settlements (section 5.4.3).

Regional Official Plan Amendment 26 (included in the February 2013 Office

Consolidation) provides polices regarding community improvement plans. It

is intended that plans may address Regional infrastructure, intensification in

association with transit, affordable housing and other matters as prescribed

by the Province. Specific policies regarding incentives for intensification are

under appeal to the Ontario Municipal Board.

3.6 Town of Caledon Official Plan

The Town of Caledon Official Plan (December 31, 2008 Consolidation)

guides municipal decision making with respect to land use, growth and

change.

3.6.1 Land Use Plan

Caledon East is designated as a Rural Service Centre, meaning that Caledon

East is intended to be a focus of growth and service provision in the central

part of the Town of Caledon (Section 5.10.4.4.). Caledon East is subject to a

Comprehensive Secondary Plan (Section 7.7), and the land use is shown in

Schedule D (Figure 3). It is intended that growth will be permitted in

Caledon East, while recognizing its rural setting and role as the Town’s

administrative centre. It is the objective of the plan to promote compact

development, to strengthen the commercial core, to protect cultural

resources, and encourage pedestrian activity.


Figure 3 | Land Use Plan for Caledon East (Schedule D, Caledon Official Plan)

Growth in Caledon East is intended to increase the population to 6,400

before 2016. Further development will occur between 2016 and 2021,

increasing the population to 8,400.

With regard to community design, the Secondary Plan for Caledon East

intends that the commercial core consist of a traditional main street. The

Streetscape Concept and Architectural Guidelines are adopted to guide the

redevelopment of the Commercial Core. Outside of the Commercial Core,

mixed use buildings with commercial uses on the ground floor and

residential units above will be considered on Old Church Road and Airport

Road, but the buildings and lots will be residential in character.



The land use plan illustrates Caledon East’s planned community structure,

permitted land uses and other general policies regarding infrastructure,

development and urban design.

The Commercial Core Area is considered to include properties on Airport

Road, south of Walker Road, extending to the Caledon Trailway in the south.

This includes both existing commercial uses in the core area, as well as

some homes and apartments further north on Airport Road. The land is

designated General Commercial. Permitted uses include a variety of

commercial uses with the exception of automotive related uses and drive‐

through restaurants (7.7.7.3). The redevelopment of this area is

encouraged (7.7.7.5).

Policy 7.7.7.8 supports the designation of a Business Improvement Area for

Caledon East’s commercial area.

A portion of the Commercial Core Area, south of Old Church Road, is

identified as a “Flood Potential Study Area.” The study is currently being

finalized by the Town. At this time, it is anticipated that development may

not be permitted in the high risk flood area. The Flood Risk Study will need

to be reviewed in relation to the Community Improvement Plan.

The area between the Commercial Core Area and South Commercial Area is

designated low density residential on the west side of Airport Road and

Special Use Area on the east side of Airport Road (refer to the discussion on

Special Use Areas below). Currently, these lands are used for single

detached homes.

A South Commercial Area is identified on the east side of Airport Road in the

south side of the community, and is also designated General Commercial.

This is the existing highway commercial plaza, including the Foodland and

other retail stores. It is intended that retail commercial uses will solely be

located in the Commercial Core and the South Commercial Area (7.7.7.2).

Permitted uses are the same as the Commercial Core Area.

The institutional designation includes the Town’s places of worship, located

near the Commercial Core Area, as well as the Town’s schools and

administrative facilities. The Caledon East Community Complex and

associated outdoor recreational facilities are designated Open

Space/Institutional Policy Area.

Planned future development is designated as Policy Area – Residential,

inclusive of conceptual future roadways. These areas are located at the far

northwest and far northeast corners of the community.


Special study areas are located at the northeast of the Community on the

north side of Old Church Road and on the east side of Airport Road at the

north end of the community. The former is subject to further environmental

studies, to determine development constraints. The latter block is being set

aside to be considered for parks and recreational purposes, depending on

future needs.

Four Special Use Areas are also identified on the Plan (refer to Figure 3), and

subject to the following:

Allison’s Grove (A): This area is intended to be an attractive

gateway, which will complement the existing designated heritage

residence on the site.

Airport Road (B): This area includes commercial uses in existing

residences. It is intended that future land use changes will not be

permitted until a more comprehensive study addressing the

transition of this area into a mixed commercial/residential district

can be completed.

Community Focus Area (C): This area is intended to accommodate a

public gathering place which will complement the Town’s

administrative centre and surrounding open space. Permitted uses

will include mixed use buildings up to three storeys. A maximum of

650 square metres of retail commercial use is permitted in this area.

Old Church Road (D): Residential uses, small scale office and

personal services will be permitted, but retail uses will not be

permitted.

The majority of residential areas are designated low density residential, with

a couple of medium density residential blocks that were recently built. A

special residential area located at the south‐west of the community consists

of estate‐like residential lots in a wooded setting.

To date, the Allison’s Grove property (A) has had interest from potential

developers, not an application has not been submitted. The lands north of

the Foodland plaza (B) are not subject to a development application. The

Community Focus Area (C) is intended to be a future commercial block. The

blocks on Old Church Road, north of the Town’s administrative campus (D)

are subject to two site plan applications to permit live/work units, fronting

on Atchison Road and on Old Church Road, with townhouse units proposed

behind the live/work units.



3.6.2 Community Improvement Policies

Section 5.17 of the Town’s Official Plan provides for the selection of

community improvement areas, which may be subject to a community

improvement project area by‐law and a community improvement plan.

A number of objectives are provided for community improvement areas

(5.17.1). It is intended that public infrastructure be maximized in these

areas; that the Town’s physical, social and recreational facilities continue to

be improved, to preserve and enhance commercial and employment areas;

to participate in projects and programs which improve the physical

environment and expand the economic base; to support private initiatives

in property redevelopment or rehabilitation; and to coordinate funding

resources to achieve community improvement.

Community Improvement Areas are selected in accordance with the criteria

outlined in Section 5.17.2. For residential areas, criteria include:

deficiencies in water/wastewater/storm water infrastructure;

a need for substantial maintenance or rehabilitation of the housing

stock;

deficiencies in roads, sidewalks or related transportation

infrastructure;

a lack of recreational facilities; incompatible land uses; and

opportunities for historical preservation.

For commercial areas, criteria include:

deficiencies in water/wastewater/storm water infrastructure;

a need for maintenance, rehabilitation or redevelopment of a

substantial portion of buildings;

deficiencies in roads, sidewalks or related transportation

infrastructure;

a need for aesthetic improvements through landscaping, signage

and façade improvement;

indication of economic decline, such as a declining tax base, retail

sales, or high vacancy rates; and

opportunities for historical preservation.

For industrial areas, criteria include deficiencies in infrastructure and the

transportation network as above, as well as deficiencies in site

usage/parking, building conditions and environmental problems.


Section 5.17.4.1 outlines the activities that the Town may undertake to

support community improvement policies. This includes the designation of

community improvement project areas and preparation of plans detailing

required improvements. Funds may be allocated to acquire lands and

undertake physical improvements, and the Town may participate in federal

or Provincial funding programs which provide assistance to the municipality,

community organizations or to landowners. Passage and enforcement of a

Maintenance and Property Standards By‐law and Zoning restrictions is also

considered to be a means of community improvement. Additionally,

consideration may be given to a mix of land uses and bonus provisions for

infill development, local improvements in accordance with the Local

Improvements Act, and special arrangements with community

organizations. Prior to adopting a Community Improvement Plan, Council is

to be satisfied that it can reasonably finance implementation (5.17.4.2).

3.7 Zoning By-law

Zoning By‐law 2006‐50 for Caledon is prepared to implement the policies of

the Official Plan. It details the permitted uses, lot and building requirements

for all lots in the community. In order to obtain a building permit, a

property owner must be in compliance with the Zoning By‐law. The zoning

for Caledon East is illustrated in Figure 4. This By‐law does not yet

incorporate by‐law 2008‐50, which addresses lands within the Oak Ridges

Moraine Conservation Plan Area. By‐law 2008‐50 is still subject to the

Minister’s approval. Therefore, for lands in the Oak Ridges Moraine, By‐law

87‐250 still applies.

The majority of properties in the Commercial core are zoned Commercial

Village (CV), although some properties are subject to an exception. A

number of commercial uses are permitted in this zone, including:

animal hospitals;

business offices;

clinics;

dry cleaning/laundry facilities;

accessory dwellings (i.e., detached dwellings accessory to a non‐

residential use);

accessory dwelling units (i.e., a dwelling unit contained within and

accessory to a non‐residential use);

financial institutions;

fitness centres;

funeral homes;



merchandise service shops,

motor vehicle gas bars;

motor vehicle rental establishments;

motor vehicle repair facilities;

motor vehicle sales establishments;

farmers markets;

commercial and municipal parking lots;

personal service shops;

places of assembly;

places of entertainment, excluding theatres;

private clubs;

restaurants;

retail stores, not exceeding 925 m2 net floor area per building;

sales, service and repair shops;

training facilities; and

video outlet/rental stores, not exceeding 185 m2 of net floor area.

Note that in the CV zone, one accessory dwelling and one accessory

dwelling unit may be permitted per establishment. It is unclear if dwellings

above commercial uses are permitted; it appears that this type of mixed use

is only permitted in the Village Core Commercial (CCV) zone, which permits

dwelling units in addition to commercial uses. The CCV zone has not been

applied to Caledon East.

These uses are generally consistent with the uses permitted in the Official

Plan, with the exception of motor vehicle uses, which the Official Plan

intends are not permitted. However, this permission may be intended to

recognize the existing gas bar in the core of the community. This permission

would allow further development of motor vehicle related uses in the core

area, which is not consistent with the intent of the Caledon East Secondary

Plan.


Figure 4 | Zoning for Caledon East (under By-law 87-250)



The lot and building standards include:

A minimum lot area of 2,000 m2;

A minimum lot frontage of 30 metres;

A maximum building area (lot coverage) of 25%;

A minimum front yard of 9 metres;

A minimum exterior side yard of 9 metres;

A minimum rear yard of 10.5 metres, abutting a residential zone, or

7.5 metres abutting another zone;

A minimum interior side yard of 4.5 metres;

Planting strips at a minimum of 3 m are required along any portion

of a rear lot line and any portion of an interior lot line which abuts a

residential zone;

A minimum front yard setback of 4.5 metres and minimum sight

triangle setback of 3.5 metres is required for gas bars;

Driveways are to be located a minimum of 4.5 metres from a lot line

abutting a residential zone, and 1.5 metres from all other lot lines;

and

Buildings are a maximum of 10.5 metres.

Some of these standards are not consistent with the established mainstreet

character, where front yard setbacks are between 0 metres and about 3

metres (although there are a few exceptions). Additionally, the existing

core area lots would likely require a higher building area than 25%. In order

to redevelop uses in a manner that is consistent with the existing mainstreet

character in the Commercial Core, a zoning amendment or variance(s) may

be required. A 9 metre front yard setback could permit front yard parking,

which may not be desirable along the mainstreet. Additionally, the

maximum building height of 10.5 metres would permit up to three storeys

as‐of‐right, where much of the established height along the mainstreet is

one to two‐and‐a‐half storeys. The only existing three storey building is the

new commercial building located on the east side of Airport Road, just north

of the Caledon Trailway. It may be appropriate to provide three storeys in

some contexts, where a transition in height can be provided. The existing

one‐storey buildings may not be compatible with an adjacent three storey

building. The design guidelines can be used to supplement the

considerations for contextual appropriateness, and help the Town to limit

development to two storeys where it is appropriate.


The Institutional (I) zone applies to two lots in the core area. It permits a

wide range of institutional type uses, ranging from cemeteries and parks to

hospitals, schools and libraries. The lot standards are somewhat consistent

with the CV zone, except that the minimum front yard is only 3 metres for

serviced lots and 9 metres for unserviced lots. The 10.5 metre maximum

building height also applies, except that it may be increased to 12.2 metres

for Town of Caledon public uses and schools. The other standards are

similar.

There are six CV exceptions on Airport Road, which typically relate to

permissions for higher lot coverage, both smaller and larger front yard

setbacks, and various use permissions. The southern highway commercial

area is also zoned an exception to the Commercial Village (CV) zone. Which

provides for a limited range of commercial and office uses, including retail,

and some reduced lot standards. A minimum front yard of 6.4 metres and

maximum building area of 40% applies.

The majority of residential areas in Caledon East are zoned Rural Residential

(RR), which permits detached dwellings, as well as accessory apartments,

private home day cares and home occupations (with a maximum of 6

students permitted for one lesson in relation to a home occupation

involving instruction, among other criteria).

3.8 Town Design Guidelines and Streetscape Studies

3.8.1 Caledon East Streetscape Study Architectural Guidelines (1994) and Design Concept (1994)

According to the Caledon east Streetscape Study Architectural Guidelines

Report, Caledon East was viewed as entering a new phase of growth,

following the loss of much of the historic buildings, and a new opportunity

for continued evolution and regeneration. It was recognized that future

growth would place pressure on the community to accommodate new

highway commercial development, and there would be challenges regarding

road widenings and the potential for undesirable development. The intent

of this document was to assist in the design of sidewalks, curbs, street

plantings and furniture, and to assist in the design and physical form of the

street, in a manner that is consistent with the vision and spirit of the

community.

Caledon East Architectural Guidelines Cover (top) and example of illustration guiding

appropriate infill development on Airport Road



Section 8 of the document addresses the guideline recommendations. The

guidelines do not just relate to architecture, but apply to streetscape, built

form and character in general. Guidelines are recommended for:

Identification, maintenance, restoration, alterations and expansion

of historic buildings;

Maintenance, alterations and expansion of non‐historic buildings;

Infill development (with specific guidelines for local context

objectives, envelope, height, setbacks, density, design, features and

materials); and

General area policies for the various character areas of the

community.

The Design Concept report provides recommendations for specific public

realm improvements, and provided an analysis of issues with regard to

setbacks, parking, appearance of the streetscape, engineering concerns, and

landscaping. The Plan also provides recommendations respecting

development, to be considered in the site plan review process, such as the

location of parking, access, sight triangles, and other elements.

The authors of the Plan view that Caledon East is at a crossroads, in which

appropriate infill and development and sensitive restoration of the village

core will help to recreate a strong sense of place.

3.8.2 Caledon East Community Design and Architectural Design Guidelines (2000)

The intent of this document was to support the implementation of the

Caledon East Secondary Plan, which was approved in May 2000. The

Guidelines assist in evaluating development proposals for appropriateness

and compatibility. Generally speaking, the guidelines and illustrations apply

primarily to new ground‐level residential uses in the new community areas.

The guidelines address:

Architectural styling, based on historical precedents in the

community (Sections 2.1 – 2.2);

Orientation of buildings on Airport Road, Old Church Road and

Walker Road (Section 2.3);

Special architectural detailing and landscaping for new dwellings at

the new community gateways, which are shown on the Secondary

Plan (Section 2.4);

Architecture of dwellings adjacent to or near parks, trails and open

space (Section 2.5);

Example illustrations showing guidelines for several prominent lots in new communities


Use of Crime Prevention Through Environmental Design

Guidelines for infill development, including having similar

massing/height/orientation of roof gables, setbacks, materials,

proportions of architectural details, etc. (Section 2.7);

Guidelines for the Special Use Areas shown on the Secondary Plan

(section 2.8);

Guidelines for streetscapes, addressing local roads (sidewalks on

one side) and street furniture and mail boxes (Section 3.0);

Guidelines for new neighbourhoods, including street pattern, lot

size and building types, garages, building height, prominent lot

considerations, massing, fencing and variety in housing types

(Section 4.0); and

Guidelines for individual homes, including guidelines for setbacks,

elevations, garages, porches/entries/balconies, roofs, materials,

wall finishes, windows, and special guidelines for townhouse blocks

and general guidelines mixed use buildings, which have non‐

residential uses in singles/semis/townhouses or multi‐storey

buildings.

A few guidelines may have some application to infill development and

redevelopment, which may be promoted through the community

improvement plan. However, the document is largely intended to be

applicable to new, subdivision‐style development in new community areas

in the Town.

The document revisits the recommendations of the original 1994 study. The

2009 study recommends a number of specific improvements, including:

A crosswalk on Airport Road, connecting the Caledon Trailway;

Public art;

Coordinated trash receptacles;

A new seating area at the northwest corner of Airport Road and

Walker Road West;

Replacement of bollards to be consistent with the Plan;

A special sign district should be created to guide store signage and

street signage; and

Municipal signage should be added to indicate locations of parkland

and the Caledon Trail.

Additionally, the study provides detailed recommendations for other

streetscape areas not initially reviewed in the 1994 Study, including design

concepts for each of the five road segments shown in Figure 5. Specific

improvements to streetscapes and the public realm are detailed in Section



3. The Addendum also includes streetscape sections at selected locations in

Appendix F.

Figure 5 | Caledon East Streetscape Study Addendum Study Area


In addition, Section 3.1 provides general requirements for all areas,

including minimum 1.5 metre sidewalks for all mixed‐use and non‐

residential uses, street‐oriented development, implementation of street

trees, coordinated light fixtures matching the 1994 study (with arms for

hanging baskets and banners), improvements to all crosswalks at significant

intersections are recommended (impressed asphalt and additional

landscaping), two‐ or three‐streamed trash receptacles, decorative fencing,

and screened utility boxes.

The Town currently applies these guidelines to development applications,

and implements the proposed improvements through development

applications. At this time, the public spaces intended for Old Church Road

are being designed as part of the applicable development applications,

including the two on‐going site plan applications for live/work units and

townhouses on Old Church Road.

3.8.3 Industrial and Commercial Design Guidelines

The Town has adopted general design guidelines applicable to commercial

and industrial development. The guidelines address building siting, parking,

access, landscaping, loading, outdoor display, lighting, and many other

aspects of commercial and industrial design. The guidelines primarily apply

to greenfield industrial and commercial development, where the context

would differ from Caledon East, where no new commercial and industrial

areas are proposed, and most future commercial development will take

place in the form of redevelopment and infill. However, there are some

transferrable guidelines that may be considered for the eligibility criteria in

the community improvement plan, but they will be subject to considering

the context of the subject property.

3.9 Peel Region Active Transportation Plan

The Active Transportation Plan was prepared to support “a more balanced,

integrated and sustainable transportation system.” This means increasing

the share of trips made by walking, cycling, or other modes of active

transportation, and contributing to a safe, accessible and pedestrian‐

friendly transportation network. The study recommends a vision, goals, as

well as policies, guidelines and programs for achieving the vision and goals.

A long‐term pedestrian and cycling network is recommended as part of the

Plan. The Plan also includes recommendations regarding maintenance and

monitoring/evaluating the implementation of the Active Transportation

Plan.

Long-term pedestrian network (upper image) and long-term cycling network (bottom image)

according to the Region’s Active Transportation Plan



There are some tie‐ins between the recommendations in the Caledon East

Streetscape Study and the Peel Region Active Transportation Plan. While

the Caledon East Streetscape Study makes recommendations for

streetscape improvements, the design and implementation of these

improvements should be made in consideration of the Active

Transportation Plan, which contains recommendations for street

configuration. For example, the recommended street crossing

improvements and Caledon Trailway crossing improvements should have

regard for the suggestions made in Section 8.6 (crossings and intersections),

as well as the local context considerations in the 1994 Caledon East

Streetscape Study. Additionally, the recommendations for an active

transportation network signage strategy would apply to some of the

Caledon East Streetscape Study’s recommendations for signage

improvements. The Active Transportation Plan contains numerous

guidelines for designing streets, neighbourhoods and sites which are

supportive of active transportation (e.g., 8.11 – Site Design for Active

Transportation).

At this time, the Region is developing a pedestrian crossing across Airport

Road to connect the Caledon Trailway, which implements a key initiative

identified in the Active Transportation Plan.

The Peel Safe and Active Routes to School program is managed by the

Region of Peel, and is supported by the Active Transportation Plan. Official

Plan Amendment 226 to the Town of Caledon’s Official Plan promotes the

cooperation of the Town, Region and school boards to support this program

(Policy 5.9.5.9.4). Implementation of the program is sometimes dependent

upon the interest of the individual schools.

3.10 Region of Peel Streetscaping Guidelines

The Region’s Streetscaping Guidelines (2010) is a detailed document with

recommended technical specifications, materials and design requirements

for Regional roadways and related elements and pedestrian amenities. It is

intended that the document will be applied by the Region, municipalities,

developers and other professionals when retrofitting Regional roadways,

designing roadway widenings and other capital projects.

The Regional roads in Caledon East include Airport Road and Old Church

Road. Old Church Road is intended to have a right‐of‐way of 30 metres,

while Airport Road is intended to have a right‐of‐way of between 20 metres

(south of Old Church Road), 26 metres (in the vicinity of the intersection

with Old Church Road), and 36 metres (north of Walker Road and further


south of Old Church Road). Any recommended streetscaping improvements

or related projects will need to have consideration for the Region of Peel

Streetscaping Guidelines as well as the ongoing Regional Road

Characterization Study.

3.11 Peel Regional Road Characterization Study

The Regional Road Characterization Study applies to Regional Roads,

including Airport Road and Old Church Road in Caledon East. The Study

addresses roadway cross‐sections, design guidelines and measures for

access management. The guidelines and measures balance roadway

functionality with the context of the roadway’s character, having regard for

land use planning policy. It is the intent of the report that the roadway

requirements will have ranges, to provide flexibility to suit the individual

circumstances of the community. The report will need to be considered as

part of any programs affecting Airport Road and Old Church Road.

3.12 Peel Region Healthy Communities

Peel Public Health implements a number of studies and a wide range of

services that are intended to promote the development of healthy and

active communities. The Terms of Reference for the Community

Improvement Plan requires that the CIP will contribute to achieving a

sustainable community delivering a high quality of life. Consideration has

been made to integrate the policies and guidelines of the Peel Healthy

Development Index Report, the Health Background Study and the Healthy

Development Index Recommendations Report, to ensure that the CIP is

consistent with the recommendations of these studies for promoting

healthy and active living. These studies are discussed in the following

subsections.

3.12.1 Peel Healthy Development Index Report (2009)

The Peel Healthy Development Index report (December 2009) was prepared

to assist in Peel Public Health’s review of development applications. Since

2005, Peel Public Health had been commenting on development proposals,

providing comments to staff with regard to the design of healthy

communities. The report was prepared to provide clear and consistent

standards that Peel Public Health could apply to its development application

review, and to base these standards on research and evidence. The

framework of development standards for healthy communities are referred

to as the Peel Healthy Development Index (HDI).



The framework addresses specific targets for various design and locational

elements of a development proposal, including density, proximity to

services (including transit), land use mix, street connectivity, road

network/sidewalks, parking and aesthetics and human scale.

Appendix A includes an initial scoring guide (noted that it is for discussion

purposes), which outlines both prerequisite and credit requirements for

each of the seven built environment elements. The Appendix recommends

that developments must meet all prerequisite requirements in order to be

considered minimally supportive of healthy community design principles.

Additionally, developments can obtain additional certifications by meeting a

specified number of credits. The credits and prerequisite requirements are

based on a scientific analysis of the relationship of built form and

community design to health. The following table briefly summarizes the key

prerequisite requirements and credit requirements:

Community Design

Element

Prerequisite Requirements

(Minimum requirements))

Summary of Community Design

Characteristics that Earn Optional Credits

1. Density – Higher density communities are a strong indicator of a walkable, healthy community.

Minimum residential density of 35 units per hectare and minimum floor area ratio of 0.7

Higher density

Higher floor area ratios

2. Service Proximity – Proximity to public services, retail, transit, and employment promotes walking and healthier living.

At least 75% of units must be within less than 800 m of 5 neighbourhood public services, 7 neighbourhood retail services and the centre of residential communities must be within 800 m of jobs equal to 50% of the total number of residential units

Residential units are located within a greater number of neighbourhood services, retail services

Residential units are located within proximity of a transit stop

Residential units are located within a 30 minute transit trip to a large number of jobs

3. Land Use Mix: A heterogeneous mix of residential, service and employment allows residents to fulfill daily needs by walking or cycling, and therefore improves day‐to‐day active living.

None At least 5% of community land use outdoor space, community provides new services to a neighbourhood, and there is a mix of several different housing types

Ground floor pedestrian use along at least 60% of street façade

Less than 30% of units are large lot detached homes (greater than 15 m frontage)


Community Design Element

Prerequisite Requirements (Minimum requirements))

Summary of Community Design Characteristics that Earn Optional Credits

4. Street Connectivity – High connectivity of streets improves the directness of travel and also increases the ease of non‐motorized options for reaching destinations.

Minimum average intersection density must be 75 intersections per km2 and maximum single block size must be 1.5 ha

Higher intersection density

Minimum number of bike lanes on streets, depending on road typology and maximum lane width of 3.2 m

Minimum number of traffic calming measures per hectare (such as speed bumps, pedestrian‐priority streets, specialized crossings, etc.)

At least 10% of local roads are less than 15 km/h with pedestrian‐priority design (more credits for higher proportion)

Average sidewalk widths of 2.5 m on all mixed use streets

Buffer strips and/or curbside parking on both sides of all streets

Cycle‐friendly design measures such as dedicated raised bicycle lanes, bicycle‐priority streets, etc.

Minimum standards for street lighting

6. Parking – Unappealing parking lots can discourage pedestrian activity, and minimum parking standards encourage automobile dependence and reduces housing affordability.

Elimination of minimum parking requirements and use of parking maximums, so that parking matches average demand

Provide unbundled parking for a proportion of multifamily dwellings

Allow shared parking so parking spaces can count towards two separate uses

Measures to control the price of parking based on demand

All driveways a maximum of 3 m wide

Most residences have no parking or rear parking only

All buildings have rear or side parking lots

Most lots do not have garages in front façade

On‐street parking on both sides of most streets

7. Aesthetics and Human Scale – human‐scaled environments (which appeal to senses of people) are perceived as safer, more comfortable, and more inviting and hence encourage pedestrian activity.

Maximum 7.6 m setback of detached buildings, 4.6 m for other residential buildings, 3 m for commercial and light industrial buildings; Most commercial/mixed‐use buildings are flush with sidewalk; Main entrances of all buildings do not front on parking lots

Building height to street width ratio

Larger proportion of commercial buildings are flush with sidewalk

Most commercial lots do not have blank walls and have a maximum frontage of 15 m

Minimum tree planting requirements



This framework may be utilized to support eligibility criteria in the

Community Improvement Plan, particularly in relation to redevelopment

proposals and infill development. Compliance with the criteria (i.e.,

Appendix A – the scoring guide and scorecard, and Table 1, which

summarizes the scoring) may be used as a minimum requirement for

obtaining a grant or loan. Alternatively, proposals that exceed the criteria

could potentially be eligible for a larger grant or loan.

3.12.2 Health Background Study: Development of a Health Background Study Framework (May 2011)

In 2011, the Health Background Study was prepared to build on the work

undertaken for the Healthy Development Index report, and to be a more

user‐friendly evaluation tool. This study was part of the Healthy Canada by

Design work, led by the Heart and Stroke Foundation of Canada and funded

by Health Canada. Again, the intent of the document is to provide a

framework for reviewing development applications in terms of their impact

on health. The report assesses existing efforts by the local municipalities,

the City of Toronto and the Region of Peel to advance healthy development

principles, such as the preparation of the Peel Active Transportation Plan,

local policies and other initiatives. Appended to the report is a User Guide

and Terms of Reference document, which are to be used collectively to

assess the health impacts of a proposed development. Other actions to

implement the study are recommended in the Implementation Strategy.

The report utilizes the same elements as the healthy development index as

described in the previous section, except that it notes that “aesthetics and

human scale” generally overlaps with existing design guidelines and

planning policy. The appendix contains criteria for each of the design

elements. Many of the criteria are similar to the criteria presented in the

Healthy Development Index, but some are adjusted slightly and some new

criteria are introduced. Like the initial Healthy Development Index, this

document may form a basis for eligibility criteria for incentives.

3.12.3 The Healthy Development Index Recommendations Report (October 2011)

The Heart and Stroke Foundation of Canada retained a consulting firm to

refine, evaluate and implement the Region’s Healthy Development Index

Standards. The report tests the HDI against proposed and existing

community developments, and suggests some refinements to the HDI based

on this analysis. In general, the study was supportive of the HDI as a means

of evaluating the health impacts of a community.


3.12.4 City and Regional Residential Preferences Study

The City and Regional Residential Preferences Study was prepared as part of

the Healthy Canada by Design initiative. The study surveyed residents in the

Greater Vancouver Area and Greater Toronto Area to better understand the

preferences of people for factors in neighbourhood selection, home size,

etc. Based on the detail survey and statistical analysis, the study concluded

that residents generally indicate that most people prefer a very walkable

neighbourhood, or a neighbourhood with both characteristics of walkable

and auto‐oriented communities. The survey indicates that there is an

unfulfilled demand for walkable neighbourhoods, given that participants

who live in an auto‐oriented neighbourhood showed desire to live in a more

walkable neighbourhood. Most respondents indicated an alignment of their

neighbourhood preference and the type of neighbourhood they live in. The

survey further indicated that people who already live in a more walkable

neighbourhood are also more active. This study further supports the

importance of designing attractive, walkable communities.

3.12.5 Changing Course: Creating Environments for Healthy Living in Peel

The report entitled Changing Course: Creating Environments for Healthy

Living in Peel (2012) analyzes the obesity epidemic and recommends a

framework for action, to change physical activity and diet behaviors. Of

relevance to the Community Improvement Plan, the report notes that

schools have a major role in ensuring that children develop good physical

activity habits, which could include active transportation to and from

school. The report also supports the Healthy Development Index to ensure

that built environments are supportive of healthy, active lifestyles.

3.12.6 Healthy Canada by Design

The Healthy Canada by Design initiative is a partnership project between the

Urban Public Health Network, the Heart and Stroke Foundation of Canada

and other partners. Through the program, the sponsors are intending to

develop planning tools which will help to promote the design and

development of healthy and active communities, based on the extensive

research available on the links between health and built form. Through this

program, the Region of Peel has been engaged in promoting the

development of healthy communities, and has participated in a number of

symposiums, presentations and prepared reports and planning tools in

support of the initiative, including the Healthy Development Index, for

example.



4. SWOT Analysis The consulting team has undertaken a preliminary strengths, weaknesses,

opportunities and threats (SWOT) analysis to identify the types of issues and

opportunities that the Community Improvement Plan may be able to

address.

Policy/Legislative Framework

Strengths Policy framework provides a detailed structure and planning vision for Caledon East

Extensive urban design/streetscape guidance, including detailed recommendations for streetscape improvements, trail improvements, etc.

Guidance on development of healthy communities

Weaknesses Zoning does not always provide for main‐street character (maximum lot coverage is too low, maximum front yard setback is too high, 3‐storey as‐of‐right may not be appropriate on all lots, especially next to existing one‐storey buildings). This means that a zoning by‐law amendment or variance is required to build consistently with the historic character. Design guidelines can supplement these gaps.

Opportunities Redevelopment and infill is contemplated by the Official Plan, provided it is appropriately scaled in a village mainstreet context

As the community grows out to its settlement area boundary, there may be increased pressure for redevelopment and infill

Policy/guidelines framework forms a good basis for eligibility criteria (i.e., proposals can be evaluated about whether they are consistent with various applicable guidelines)

Community improvement plan can help to coordinate implementation of various plans, projects and guidelines

Threats Need to ensure that Regional Road Characterization Study has consideration for the policy/design framework for Caledon East

Need to ensure that improvement activities, redevelopment and infill is consistent the policy framework, and seeks opportunities to implement the Streetscape Study Addendum


Urban Design, Streetscapes, Pedestrian Network (see Figure 6)

Strengths Generally consistent sidewalk treatments, furniture, lighting, street parking help to distinguish the core area, and a gateway feature is provided on Airport Road at the south side of the community

Caledon trailway provides a pedestrian connection across the community

Some mature street trees on Airport Road, south of Old Church Road, provide an amenity

Some street parking helps to define the pedestrian realm (on portions of Airport Road, and along Old Church Road)

Most main building entrances are accessible, at‐grade (though there are a few exceptions, noted below)

Most residential streets have at least one sidewalk

Weaknesses Somewhat frequent location of driveways and wide driveways can be disruptive to pedestrians

Some residential streets do not have sidewalks

New communities to the northeast are disconnected from the historic grid pattern

Lack of key public gathering space (note that one is proposed north of the Town’s administrative offices)

Some signage and façades are not consistent with historic character or traditional materials. Signage is often designed primarily for driver visibility

Old Church Road/Airport Road intersection is more vehicle oriented, with a wide turning radius for right turns

Lack of pedestrian refuge and safety from vehicles on Airport Road

Opportunities Opportunities to implement the detailed recommendations of the Caledon East Streetscape Study Addendum, for streetscape improvements in the core and in the vicinity of the core

Good opportunity for improved streetscape amenities (trees, furniture) on wide sidewalks, between the curb and the defined ‘pedestrian zone’

Opportunity for façade improvements, streetscape improvements, and other private property improvements (landscaping, paving, parking), which may be incentivized by the community improvement plan

Opportunity for improved crosswalks

Photos illustrating streetscape characteristics and amenities in Caledon East, including Airport Road, near the newer 3-storey commerical building just north of the Caledon Trailway (top), Airport Road at Caledon Trailway looking north (upper middle), Airport Road at Caledon Trailway looking south (lower middle), Airport Road north of Old Church Road looking north (bottom)



Threats Need to ensure that Regional Road Characterization Study has consideration for the policy/design framework for Caledon East

There needs to be coordination with the Region for streetscape solutions on Regional roads (Airport Road and Old Church Street)

Consideration needs to be made to the criteria and targets of the Healthy Development Index and Health Background Study, to ensure continued development and improvement of Caledon East in a manner that supports healthy and active living

Building and Property Condition

Strengths Residential communities and institutional uses are well‐maintained and landscaped

Some examples of well‐maintained commercial properties with landscaped parking

Weaknesses Some buildings, signage, façades would benefit from façade improvements

Many properties would benefit to side yard improvements (side yard landscaping, paving of rear parking access, etc.)

Opportunities Some buildings may be suitable for redevelopment

Façade improvement program would strongly benefit the aesthetics and contribute towards achieving a more consistent character

There are many opportunities for improved front yard landscaping improvements (particularly where there is front yard parking), side yard landscaping and access

Most significant infill or reuse opportunity is the property at the south east corner of Emma Street and Airport Road (north of the Caledon Trailway) – but redevelopment is subject to flood risk issues

Threats It will be important to be strategic about where property improvements are permitted. If a property has substantial redevelopment opportunity, compatible redevelopment of the property should be preferred/prioritized over minor property improvements.

Rising energy costs may affect viability of older buildings

Photos illustrating building and property characteristics in the core. A well maintained commerical building with newer awnings (top) and a vacant commercial building (bottom)


Figure 6 | Existing Streetscape Elements



Recreational Opportunities

Strengths Caledon Trailway is accessible and in walking distance from most residents

Extensive outdoor and indoor recreational amenities on Old Church Road (Caledon East Community Park Caledon East Community Complex, Soccer fields)

Weaknesses Lack of a complete and safe crossing of the Caledon Trailway over Airport Road

Additional cycling facilities could be provided

Need for recreational activities oriented for seniors

Opportunities Public space on the north side of Old Church Road, in accordance with the Secondary Plan, is being developed in association with on‐going development applications

Valleyland setting creates opportunities for trailways around the community

Threats N/A

Parking and Vehicle Access

Strengths Rear parking provided for some properties on Airport Road

Some street parking provided on Airport Road, and on Old Church Road

Weaknesses Some side yard and front yard parking

Some parking areas are not well buffered from the sidewalk

As indicated, there are frequent driveways which interrupts pedestrians

Lack of transit to Caledon East (currently Caledon Village and Bolton have GO Transit service)

Opportunities Some lots provide opportunity for use as municipal parking, should it be required as intensification occurs

As redevelopment occurs, consideration should be made to consolidate driveways for shared access, with shared rear parking, or side yard parking if rear yard parking is not feasible

Threats There is a threat that landowners will not redevelop their properties, but may neglect their properties or demolish their building for parking or other undesirable uses

High parking standards may be influencing auto dominance in the community and impacting health

Caledon East Trailway Crossing over Airport Road

Buffering of side yard parking area (top) and example of driveway and side/rear

yard parking (bottom)


Heritage

Strengths Seven properties designated under the Ontario Heritage Act, five of which are in or near the community’s core area (see Figure 7)

o Three properties have received grants for various improvements

Numerous other properties are listed as being of interest, most of which are located on Airport Road, Old Church Road, and in the older residential area (Parsons Avenue and Emma Street area)

Town maintains detailed inventory and understanding of properties of interest

Weaknesses Many properties of historic interest have not been well‐maintained, or have been modified with non‐historic materials

Opportunities Opportunity to restore some properties of interest, and ensure continued maintenance and adaptive reuse of designated properties

Threats Lack of good maintenance and restoration threatens viability of reusing historical properties

Redevelopment may threaten potential reuse and restoration of properties of interest

Historic signage at trailway (top), designated heritage property, 16024 Airport Road (bottom)



Figure 7 | Designated and Listed Heritage Properties in Caledon East


Businesses, Business Mix, Employment

Strengths Community has access to many essential business services (hardware store, grocery store)

Some unique, local shops

LCBO is an anchor store for the community’s core

Policy framework does not permit further highway commercial development and helps to sustain core‐area businesses as the community grows (and limits amount of retail space)

Many large employers in Caledon East (administrative offices, schools)

Weaknesses Redevelopment or infill will need to occur in order to provide more commercial space

Opportunities Could be opportunity for further small‐scale commercial development as community grows

Opportunity for Business Improvement Area to be formed

Could be opportunity for farmers’ market, recognizing function of Caledon East as a rural service centre

Threats Continued residential growth will create new demand for commercial services, which currently would require redevelopment or infill

Housing Types and Affordability

Strengths Wide variety of housing types and affordability levels in Caledon East

Weaknesses May be a lack of smaller housing units

Opportunities Opportunity for mixed‐use development/redevelopment with housing units above commercial uses, in accordance with the planning policy framework

Threats N/A



5. Other Approaches to Community Revitalization

Many municipalities in Ontario have adopted community improvement

plans to assist in the revitalization of their communities. It is important to

consider other municipal approaches to understand the factors that

influence the success of Community Improvement Plans. Following is a

discussion of several relevant community improvement plans, followed by

an analysis of lessons learned from these case studies in section 5.6.

5.1 Bolton Community Improvement Plan

The Bolton Community Improvement Plan (approved by Council in April

2011) is the Town of Caledon’s only in‐effect community improvement plan.

The Plan applies various incentive programs and municipal leadership

strategies to several ‘precincts’ in the community. Incentive programs

include rebates for application fees/development charges, tax increment

equivalent grants, building and façade improvement grants, landscaping

improvement grants, grants for energy efficiency retrofits, grants for mixed‐

use construction or conversion projects, and grants for environmental

studies (Environmental Site Assessments).

Eligibility for the incentive programs is very detailed, and includes both

general eligibility criteria, as well as program‐specific eligibility criteria.

Detailed urban design guidelines were prepared to complement the

community improvement plan’s eligibility criteria. It is intended that

projects should comply with applicable guidelines in order to be eligible for

incentives.

The municipal leadership strategy enables the Town to undertake a number

of projects to assist in revitalizing the community. The strategy broadly

addresses streetscape improvements, trail/cycling improvements,

improvements to intersections and crossings, and provides for municipal

acquisition of land to reconfigure roads and provide for open space. The

strategy also provides for further studies, including updates to the Town’s

parking study and a transit oriented development strategy.

Bolton Community Improvement Plan Cover


The CIP also provides a strategy for marketing, and evaluating and refining

the programs. The Town currently maintains a dedicated web page for

publishing materials related to the CIP.

Since its adoption, the Town of Caledon has approved eight applications for

incentives. The applications were mostly landscape and building/façade

improvements, but a couple of applications requested application and

permit fee grants, as well as one application for the energy efficiency

retrofit program. In total, the Town has granted $67,702.68, at an average

of $8,462.83 for each application.

5.2 Downtown Perth Community Improvement Plan

The Downtown Perth Community Improvement Plan enables a wide range

of incentive programs for properties located within the Town’s historic

downtown area, including façade improvements, signage improvements,

property improvements, heritage property improvements,

application/permit fee grants, building code/energy efficiency grants and

housing improvement grants (for creation of new housing units or

improvement of housing units in upper storeys). However, the Town has

prioritized its funding for its façade and signage improvement program. The

Plan provides grants equal to the greater of $5,000 or one third of the total

cost of the project.

Due to limited resources and demand, the Town manages planned ‘intake

periods’ when applications are accepted and considered by the Town on a

first‐come, first‐served basis (subject to meeting eligibility requirements).

Under this approach, the Review Panel is able to review all applications

within one meeting following the intake period.

The Town has publicly reported the success of the Plan in 2011. In 2011, the

Plan funded five façade improvement projects, totaling just over $19,000 in

grants, with an average grant value of about $3,800. On average, the cost of

the project was about $12,200, meaning that about $8,400 was invested on

average. This means that every dollar of public investment leveraged about

$2.21 of private investment.

The Town administered the same program in 2012 and has also begun

accepting applications for funding in 2013. Like Caledon, the Town of Perth

also maintains a web site for promoting, marketing and describing the CIP.

Currently, the Town budgets $25,000 per year for its programs.

Photos of historic downtown Perth’s built form and streetscape



5.3 Haldimand County Downtown Areas Community Improvement Plan

The Haldimand County Downtown Areas Community Improvement Plan

enables financial incentives and municipal leadership programs for six

downtown areas in the County. The plan enables a wide variety of incentive

programs, including tax increment equivalent grants, façade improvements,

downtown housing improvements, heritage property improvements and

planning application/building permit fee rebates. Projects which are

located near waterfront areas are eligible for larger incentives.

The County provides an annual budget of $100,000 to support its incentive

programs. The County has experienced general success with its CIP. As of

2012, it had issued over $218,125 in grants resulting in $1.2 million in

private investment. This means that for each $1 in public investment, there

was about $5.42 in private investment.

The success of the Downtown Areas Community Improvement Plan is

considered to be attributed to several factors, including extensive marketing

(which has included the Lieutenant Governor’s Award for Marketing

Excellence in Ontario) and on‐going monitoring and evaluation.

5.4 Chatham-Kent Downtown and Main Street Areas Community Improvement Plan

The Municipality of Chatham‐Kent is a very large, primarily rural

municipality, but it includes several urban settlements and historic main

street areas. The Community Improvement Plan for Downtown and Main

Street Areas enabled a number of incentive programs aimed at revitalizing

the core areas, including heritage tax relief grants, tax increment equivalent

rebates, façade improvements, housing improvements and project

feasibility grants. Like Haldimand, properties near waterfront areas are

eligible for larger incentives.

On average, the Municipality has provided approximately $200,000 in

funding for its financial incentive programs each year, but varies funding

based on the total remaining balance of the CIP funding budget.

Since the implementation of the CIP in 2004, 118 applications have been

approved, resulting in over $1.1 million in grants which leveraged over $4.8

million in private investment. This means that for every $1 in public

spending, approximately $4.36 in private investment was leveraged. The

Haldimand County Community Improvement Plan

Rear laneway and mural in Downtown Chatham, Ontario


Municipality has been committed to CIP monitoring, evaluation and

updates, and has implemented a marketing strategy.

The Municipality has since shifted its focus to implementing the Brownfields

and Bluefields Community Improvement Plan and its new Commercial

Community Improvement Plan.

5.5 New Tecumseth Community Improvement Plan

The Town of New Tecumseth approved a community improvement plan for

its historic downtown (March 2012). The Plan provides for several grant

and loan programs, including façade improvement grants/loans,

signage/awning/lighting grants, parkland dedication fee grants, planning

application/building permit fee grants, and building code upgrade

grants/loans for a wide range of projects. The programs are primarily

intended to help conserve the historic buildings in the core areas of Alliston,

Beeton and Tottenham.

The value of grants range from $2,500 to $20,000 per program, and cover

up to 50% of the eligible costs. As a general policy, the Plan provides small

grant increases for properties which implement design details in accordance

with Barrier Free Design policies, and also for properties which are

designated under Parts IV or V of the Ontario Heritage Act.

5.6 Lessons Learned

Although the Community Improvement Plans highlighted above were

generally successful, their success has been attributed to several key

aspects of the Plan and its administration:

Grants and loans are always capped. It is intended that revitalization is

an effort that is shared the Town and the private sector, in order for the

programs to be sustainable. Typically, the total value of incentives does

not exceed 50% of the cost of the improvement project (or 33% as in

Perth’s case).

The incentive programs relate to the critical needs of the community.

While the community improvement plans above typically offer a wide

range of incentives, the incentives relate to the critical needs of

downtown areas or other areas that are subject to the CIP.

With limited resources available to fund plans, each municipality has

adapted to provide some mechanisms for prioritizing applications for

incentives. Some plans take a strict first‐come, first‐served approach,



while others prioritize specific types of projects. Perth adopted a

limited window of opportunity in which it makes the program available.

Some plans prioritize limited incentives by to provide greater incentives

for certain types of applications (such as mixed use development or

properties near waterfronts).

Eligibility criteria is key to the success of the community improvement

plan. Eligibility criteria enable the Town to be selective about which

projects should receive funding, so that only desirable projects, which

contribute to the vision for the community, are incentivized.

Additionally, eligibility criteria can help the municipality to prioritize

applications for a certain area (such as the Core Area), or prioritize

applications that relate to an urgent issue (such as heritage property

improvement). Alternatively, greater incentives may be provided for

certain application types, such as improvements related to heritage

properties. Eligibility criteria also helps to protect the municipality from

fraudulent applications, by requiring that applicants obtain quotes for

the work, provide photos and plans, as necessary.

Municipalities emphasize the ease of applying for and obtaining

incentives. Members of the public and businesses can have a

perception that obtaining government grants and loans is a difficult

process with high costs. It is important to minimize the costs for

applying for incentives. As the administrator of the Bolton Community

Improvement Plan, the Town should not have difficulty in implementing

an efficient application process while at the same time ensuring that

improvements are high‐quality and desirable for the community.


6. Consultation It is important to have a thorough consultation process as part of the

process for developing a community improvement plan. Ultimately, the

success of the Plan will depend upon the uptake of financial incentive

programs and the commitment by stakeholders to implement the Plan’s

municipal leadership programs. In the course of preparing the Plan, the

following individuals and groups are to be consulted:

Town staff and other public agencies are to be consulted to help identify

the types of issues that can be addressed by the CIP and the

policies/guidelines/regulations that can be implemented through

eligibility criteria.

Business owners, property owners are to be consulted to help

understand the barriers to revitalizing Caledon East, and to identify

which types of incentive programs they might utilize.

The public is to be consulted to help understand issues of aesthetics,

shopping preferences, and other matters that can inform the CIP’s

programs.

Council is to be consulted, as they will be responsible for approving the

Plan and setting forth funding for incentive programs and municipal

leadership projects.

At the time of preparing this report, meetings have been held as follows:

A brief delegation with Council was held on April 16, 2013, to present

the study process, purpose of the study, and to outline preliminary

issues and ideas for consideration in the Community Improvement Plan.

A meeting with Stakeholders was held on March 18, 2013 to identify

how the CIP can help support and implement other initiatives (refer to

Section 6.1). Participants included Town staff, the Region of Peel,

Toronto and Region Conservation Authority, the Peel District School

Board and the Dufferin‐Peel Catholic District School Board.

A meeting with Town staff and the Region was held on April 23, 2013

(see Section 6.2).

A public and stakeholder open house and workshop was held during the

evening on April 23, 2013, to kick‐off the project and seek input on the

issues and opportunities that can be addressed by the Community

Improvement Plan (see Section 6.3).



6.1 Stakeholder Meeting

On March 18, 2013, the consulting team, staff from the Town of Caledon,

the Region of Peel, the Toronto and Region Conservation Authority, the Peel

District School Board and the Dufferin‐Peel Catholic District School Board

participated in a meeting of public agency stakeholders. The primary

purpose of the meeting was to brainstorm opportunities for the CIP to help

implement other studies and projects being considered by the stakeholders.

Additionally, participants were asked to identify issues that may be

addressed by the CIP. A number of potential issues and opportunities were

discussed, including:

Region of Peel Active Transportation Plan: The Active

Transportation Plan, which was approved by Council, promotes the

development of more walkable and bike‐friendly communities. It is

implemented by supportive programs, policies as well as Official

Plan policies (which guide development and municipal decision‐

making). The Region noted that a crossing over Airport Road to

connect the Caledon Trailway is under consideration.

Civic Campus Master Plan: A master plan for the civic campus area

is being prepared, with consideration being made to move the

historic Orange Lodge property to this area. Other configuration

improvements to parking and public spaces may be made.

Walk‐to‐school program (Peel Safe and Active Routes to School):

The Region promotes the development of walking routes to school,

which must be consistent with various criteria. Participation in the

Peel Safe and Active Routes to School Program depends on the

interest of the individual schools. The Committee advocates

Currently, most students are bused or are driven to school by

parents in Caledon East. New opportunities for St. Cornelius

students to walk to school may be created when the nearby park is

completed, to create a connection to the newer subdivision to the

north of the civic campus area.

The Region’s School Travel Planning Pilot Program promotes active

transportation among students, but currently applies to just three

schools in Brampton since it is a pilot program.

Peel Healthy Development Index / Health Background Study:

These tools are used to promote the development of healthy, active

and accessible environments and are generally implemented in the


review of development proposals and infrastructure projects. The

Health Background Study is intended to build upon the Healthy

Development Index and is intended to be a more user‐friendly

document.

Community‐based Social Marketing: This project, in its early stages,

aims to identify a pilot study area in which a marketing strategy will

be used to promote more active living. There was some discussion

as to whether Caledon East should be considered for the pilot

community; however, the criteria for selecting the community has

not yet been prepared.

Caledon East Flood Plain Study: This study, which is being finalized

in the near future, applies to approximately eight properties in the

business area of the Caledon East core. In this area, there will

limitations on property improvements (minor additions will be

subject floodproofing) and no development will be permitted. The

study does not currently address a two‐zone approach, in which

development could be permitted in a flood fringe area, subject to

floodproofing.

There are several potential opportunities for the Community Improvement

Plan to support the studies above. The policies of the Active Transportation

Plan, the Peel Healthy Development Index/Health Background Study can be

implemented as eligibility criteria in the Community Improvement Plan.

This ensures that projects being considered for grants are consistent with

and help to implement the Region’s goal of creating healthier, walkable and

bike‐friendly environments. Additionally, there may be an opportunity to

incent flood proofing projects in the flood risk area around Old Church

Road/Airport Road. However, the potentially cost of such improvements

may mean that the incentives would need to be large in order to be

worthwhile. Guidance for flood proofing will also need to be finalized to

inform the list of eligible projects.

6.2 Advisory Committee Meeting

The consulting team met with the Town and Regional staff to discuss other

studies, projects and potential issues that can be addressed by the

Community Improvement Plan. The following topics were discussed:

Energy Efficiency: There is an opportunity to encourage energy

efficiency improvements through financial incentives, however, it

will be important to ensure that the eligible projects are clear and

easy to administer.



Heritage: Heritage conservation is a major interest for the town,

and the Community Improvement Plan can be used to help owners

restore façades and to adaptively reuse heritage buildings. As

noted previously, a number of properties are designated and listed

in Caledon East, and the Town has previously implemented grants

and taxation incentives to assist in maintaining and restoring

heritage properties.

Development: Ongoing land development projects were discussed

by the committee.

Flood Risks: The flood risk study was also discussed (refer to the

summary as discussed by the Stakeholder Committee above).

Building Code Compliance/Secondary Suites: The committee did

not consider building code compliance and secondary suites to be

an issue in Caledon East. Secondary Suites have been permitted in

Caledon East for many years, so there are not likely any issues of

non‐compliance.

Streetscape: As noted in this report, the Streetscape Study and

Streetscape Study Addendum recommend a wide range of projects.

The Town indicated that these projects are now implemented as

part of development projects, and the Studies are used to review

development applications.

Administration: To be consistent with the Bolton CIP, the Town

generally does not support the administration of loan programs,

and the CIP should only consider grants. The Town currently

administers a development charges exemption in the core business

area, and consideration can be made to extend this exemption to

the highway commercial area.

6.3 Public Open House and Workshop

An open house and workshop was held on April 23, 2013, at the Caledon

East Community Complex. Participants were invited by way of notice in the

newspaper and an online notice. The format of the meeting included:

An open house, in which participants could review display boards or

speak with the Town/consultants;

A presentation, outlining the process for the study and preliminary

findings; and

A workshop, in which participants were asked to discuss their vision

for Caledon East, issues that can be addressed by the Plan, and to

discuss the relative importance of the options for financial incentive

and municipal leadership programs.


In total, 35 persons signed in as they entered (since a few participants may

not have signed in, the total number of participants may have been as high

as 40). Approximately 20‐25 participants stayed to participate in the

workshop. Participants joined one of four workshop tables, and each group

was facilitated by a staff member. The summary of input received at each of

the tables is as follows:

Table 1

Consideration should be made to improve and maintain trails other

than the Caledon Trailway, such as the trails in proximity to the new

subdivision;

Flooding concerns need to be addressed in order for revitalization

and redevelopment to proceed;

Truck traffic represents a concern in the core area;

Adequate parking needs to be considered in the core area, including

the potential for an off‐street parking area;

Nursing homes should be developed in Caledon East;

Support for redevelopment, growth and improvement of main

street into an attractive shopping area;

Support for heritage conservation;

Support for most of the financial incentive programs, especially

façade improvements, heritage improvements, flood proofing

General support for the municipal leadership programs, and

consideration should be made to provide amenities for seniors;

Table 2

Caledon East’s strengths include its proximity to the GTA, its

beautiful setting amongst natural areas;

Noted that youth need a gathering place;

Restrictions on downtown businesses should be relieved;

The local network of trails should be improved;

Development and buildings should be senior‐friendly and

accessible;

Floodproofing issues need to be addressed;

The table had support for beautification, such as flower planting

and murals; and

The Town should restore an Area Councillor.

Photograph of the public open house and workshop on April 23, 2013



Table 3

Caledon East’s strengths include it being a walkable community and

having a compact downtown core;

The downtown area is in need of an anchor;

The core area is in need of redevelopment, cultural events, youth

activities and improvements to create a destination;

The participants were supportive of the list of potential incentive

programs;

Signage for retail and trails should be improved; and

The participants supported a crossing at Airport Road (Caledon

Trailway).

Table 4

The table liked Caledon’s small‐town feel, that it is the

administration centre of the Town;

The by‐pass should be considered;

The table inquired on Caledon East’s final population, and how that

relates to needs for commercial space (GFA), and whether that need

is being met or exceeded;

Trailways need to connect in a network; and

Flooding issues need to be addressed.

Other Written Comments

Several individual written comments were collected and/or submitted,

noting the following:

Tree planting should be considered opposite the townhouses on

Airport Road (north end);

Consideration should be made to realign the creek;

Uneven sidewalks should be leveled;

Perhaps seasonal lights should be implemented on Airport Road;

and

A sign for the Caledon East Public School should be added on

Airport Road, celebrating the history of the school.

Analysis of Input

Overall, participants were very supportive of the community improvement

plan and the options for financial incentive programs and municipal

leadership programs. Several themes came across from multiple workshop

tables, including the need to improve the trail network (residents like the


Caledon Trailway), the need to address flooding issues as a constraint to

development, and support for façade improvement, provided it maintains

Caledon East’s heritage and small‐town feel. Participants at some tables

noted the need to support an aging population (accessible buildings,

provision of nursing homes and amenities oriented to seniors). To address

the flooding concerns, the Community Improvement Plan can implement an

incentive program to assist with flood proofing, and it can make

recommendations for further study or actions to resolve the issues. Some

participants were also supportive of a municipally led program for signage,

to indicate the location of community amenities, trails and commercial

areas.

6.4 Future Consultation

An additional cluster of meetings will occur in June 2013, after this report is

finalized and when the Community Improvement Plan is drafted.

Additionally, a statutory public meeting will be held to consult upon the

recommended Community Improvement Plan prior to Council adoption. A

separate meeting with the Caledon East Revitalization Committee (CERC) is

planned for mid‐May 2013. Written comments are being accepted by the

study team until the Statutory Public Meeting is held.



7. Basis for the Community Improvement Plan

The intent of this report was to provide a basis for the community

improvement plan for Caledon East. Following are some preliminary

options and considerations for the structure, focus and implementation of

the community improvement plan.

7.1 Critical Needs and Guiding Principles

The community improvement plan should provide incentives and municipal

leadership strategies that relate directly to the community’s critical needs.

The critical needs are the key issues and opportunities that have the most

impact on revitalization. With limited resources available, the Town should

focus its efforts on addressing the critical needs as a priority. Over time, as

the community improvement plan is implemented and the critical needs are

addressed, the community improvement plan should adapt to new issues

and opportunities.

Based on the policy/legislative review, SWOT analysis, and best practices

review, following is a summary of the critical needs, or priority issues and

opportunities that the community improvement plan should help to

address:

1. Encourage façade and signage improvements

There are many opportunities for improvements to façade and signage in

Caledon East. Some properties have been cladded with more modern

materials, and there may be an opportunity to restore the original

materials. Additionally, the driver‐oriented signage could be improved

through more pedestrian‐scaled signage. Eligible projects should include

improvements to both front and side façades, which are both visible.

2. Encourage side yard and front yard improvements

A second critical need identified for Caledon East is the opportunity for side

yard and front yard improvements. In particular, improvements to

landscaping and buffering of parking areas from the sidewalk should be


considered. Ideally, the improvements should aim to achieve a high

standard of design, potentially incorporating vegetation and trees,

decorative fencing and other features. Consideration should also be made

to promoting sustainable, low‐maintenance forms of landscaping with

native species, which do not require watering (xeriscaping). Paving

improvements and improvements to parking areas which contribute to

improving the aesthetics of the main street should also be encouraged by

the Town.

3. Encourage opportunities for compatible redevelopment and infill, where appropriate

The Official Plan encourages appropriate redevelopment in the core area of

Caledon East. As housing continues to be developed, there may be pressure

for infill and redevelopment in the core area of Caledon East. Incentives to

assist in this redevelopment should be based on strict eligibility criteria to

ensure that redevelopment and infill is in keeping with the character and

goal of a traditional small‐town main street. Alternatively, incentives could

only be granted to projects which exceed minimum urban design

expectations or offer some unique attributes, such as the provision of public

space.

The Town may also wish to be directly involved in redevelopment, through

property acquisition and redevelopment activities, which are permitted

community improvement activities. However, as this can be a costly

undertaking, it may not be considered a priority program. No specific

priority properties were identified through consultation or the SWOT

analysis as being in need of an immediate redevelopment strategy and

requiring municipal intervention to be redeveloped. Therefore, this

program is not considered to be a priority, but consideration may be given

in the Community Improvement Plan.

The community improvement plan may address a redevelopment strategy,

which identifies the likelihood and constraints of redeveloping various

specific properties. As noted in the SWOT analysis, where a property has

high redevelopment potential, the Town should prioritize redevelopment

over other types of improvements. The Town should develop a complete

understanding of redevelopment issues in Caledon East before providing

incentives for property improvements.



4. Prioritize and implement the streetscape improvement projects

The Town of Caledon has identified a comprehensive strategy for future

streetscape improvements, which the Community Improvement Plan should

support and help to prioritize, based on input from the Town and Region.

Any identified improvements should have support from the Region’s

Regional Road Characterization Study.

5. Focus on supporting the revitalization and development of Caledon East as a healthy community

Substantial work has been completed to help evaluate development

proposals which contribute to the development of Caledon East as a healthy

community, which promotes more active living through the design of

inviting pedestrian spaces and provision of active routes and cycling

networks, which can promote day‐to‐day activity. Similarly, the criteria can

be applied to applications for incentive programs, to evaluate the health

impacts of the project and recommend improvements to promote active

transportation choices. However, it will be important to continue to

minimize the complexity of the application process for financial incentives.

6. Focus incentives on the Core and on municipal improvements to the pedestrian network

The greatest potential for improvement is in the core and commercial areas

of Caledon East, particularly along Airport Road. Revitalization of these

properties will provide the greatest public benefit, including a more

attractive and viable core area, as well promoting the conservation of

heritage properties. The community improvement plan should focus

incentives on the core area as a high priority, and possibly provide

incentives for the southern commercial area, perhaps focusing on

landscaping and streetscape improvements, rather than façade

improvements.

There also may be some benefit to providing incentives to properties on Old

Church Road, just east of Airport Road, which consists primarily of

residential and institutional properties. For these areas, the municipality

may wish to focus on planting, streetscaping and incentives for enhanced

landscaping which are consistent with the Streetscape Study Addendum.


Some consideration may be given to promoting the improvement of historic

residential properties which are not located in the commercial core area. In

particular, the more visible properties (on Airport Road, Walker Road)

should be given priority.

Community‐wide improvements are also recommended, including ongoing

improvements to the streetscape and public realm in accordance with the

Streetscape Study Addendum, as well as improvements to the recreational

system in accordance with the Active Transportation Plan (in partnership

with the Region). While most of these types of improvements will be

municipally‐led, opportunities to encourage the private sector to implement

these projects should be considered (such as tree planting).

7.2 Incentive Program Options

Based on the critical needs and guiding principles, following is a list of

options for financial incentive programs which may be considered in the

community improvement plan:

Façade and signage improvement program: A façade and signage

improvement program would offer incentives to revitalize and

restore facades and replace signage with pedestrian‐scaled signage

that fits into the small‐town main street character. In particular,

façade improvements that restore the historic character should be

encouraged, and all projects should be consistent with applicable

design guidelines. Opportunities for improving landscaping and

providing streetscape amenities (tree plantings) or to implement

other recommended projects in the Streetscape Study should be

considered in association with any application for a façade

improvement program. This program should apply primarily to

commercial and historic properties in the core area. Eligibility

criteria will need to be included in the Community Improvement

Plan to ensure that façade and signage improvements are attractive

and fit into the character of the community. In some cases, this

may mean that additional design guidelines may be required.

Property, landscaping and parking improvement program: This

program focuses on improving the outdoor space of a property,

including landscaping improvements, tree planting, enhancements

and improvements to driveways, parking areas, enhancement to

pedestrian connections and building accessibility,

improvement/provision of bicycle parking, outdoor patios, and

other outdoor amenity spaces. Again, opportunities to implement

projects in the Streetscape Study should be considered by



applicants to this program. This program should apply to properties

in the core area and in other visible gateways to the core, including

Airport Road and Old Church Road.

Housing improvement program: This program would provide

incentives for the creation of new housing units, particularly in the

core area and as part of a mixed use development. Generally

speaking, residential properties in Caledon East should not be

eligible for this type of incentive. There is also no significant public

interest in incentivizing new development outside of the core area.

However, it is recognized that there may be aesthetic benefits to

property and landscaping improvements for residential properties

in the core area (see programs above).

Heritage property improvement and reuse program: This program

would offer incentives specifically for properties listed as having

heritage interest, or be designated under the Ontario Heritage Act.

The program would encourage the restoration of historic buildings

to their original condition, based on historic documentation, and

may include support for the reuse of the property. Additionally, the

program may cover studies to assist in the cost in designing the

improvements, such as an architect’s services, which are often

required for these types of projects. As the Town administers

incentives for designated heritage properties, this program should

be coordinated with other incentive programs. This program should

be prioritized for historic properties in the core, followed by other

visible historic properties, and potentially historic residential

properties not fronting on Airport Road, Old Church Road or Walker

Road.

Energy efficiency improvement program: This program would

provide incentives to incorporate demonstrable energy efficiency

improvements. Consideration may be made to prioritize properties

of heritage interest or heritage properties. This program should be

focused on properties in the core and other historic properties. It

will be important to establish specific eligibility criteria that is easy

to administer (i.e., easy for the Town to determine what is an

eligible project) and be flexible enough to adapt to changing

technologies in energy efficiency.

Floodproofing program: This program would provide incentives to

help cover the cost of floodproofing measures for properties in the

flood risk area. The public interest of this program is to ensure the

long‐term viability and continued use of properties in this area,

which is centered in the community’s core. The details of the


program will depend upon the recommendations of the Town’s

ongoing Flood Risk Study for Caledon East.

Redevelopment, infill and development program: A program to

encourage appropriate and compatible redevelopment, infill and

new development can consist of a number of incentives, such as:

Planning application fee or building permit fee rebates;

Development charge grants (potential expansion of the DC

charge exemption area outside of the core);

Feasibility study or design study grants;

Grants to undertake Environmental Site Assessments (to assess

soil contamination); and

Tax increment equivalent grants.

Consideration should be made to prioritize or require that projects

exceed the applicable design guidelines, and projects which provide

additional public benefits, such as amenity space. This program

should be focused on properties in the core, north to Walker Road.

7.3 Eligibility for Incentives

It is important to consider eligibility criteria for the incentives, to ensure

that only desirable projects that are in the public interest are eligible for

public funding. In order to receive funding, applicants will need to

demonstrate compliance with the eligibility criteria, by describing their

proposal, obtaining quotes for the work, and supplying drawings or plans to

illustrate the intent.

The eligibility criteria should address:

Program‐specific requirements, such as compliance with design

guidelines, eligible types of projects, application submission

requirements (quotes, drawings, etc.);

Applicability of the incentive programs. In most cases, it is

recommended that the incentives relate to the Old Church Road

and Airport Road corridors;

An evaluation of whether the proposed improvements support

active transportation choices, to promote healthy living (i.e.,

relationship to sidewalk, comfortable pedestrian environment and

connections, provision of bike parking, etc.);

That the applicant has considered opportunities to implement

recommended streetscape improvements and public realm

improvements, where it is feasible and reasonable; and



Other general eligibility requirements, which can be drawn from the

Bolton Community Improvement Plan for consistency.

As indicated in the SWOT analysis, there are numerous opportunities to rely

on other documents for applicable design standards (Town’s Streetscape

Study and Streetscape Study Addendum; the Region’s Regional Road

Characterization Study and Region’s Streetscaping Guidelines, as well as the

Peel Healthy Development Index). The CIP should not attempt to re‐do the

extensive design work, but it should work with and complement previously

completed studies.

7.4 Municipal Leadership Program Options

In addition to supporting the financial incentives, the Town should also

participate directly in the revitalization of Caledon East, through projects

including:

Prioritization and implementation of Streetscape Study and Active

Transportation Plan projects: The CIP can address prioritization,

funding and implementation of the numerous projects detailed in

the Town’s Streetscape Study Addendum or the Region’s Active

Transportation Plan. However, as the Town generally implements

these programs as part of development applications, there may not

be a need to provide for separate capital projects. The Community

Improvement Plan should be supportive of the implementation of

these documents as part of an overall strategy for municipal

leadership in cooperation with the Region.

Review of incentive applications from Healthy Communities

perspective: Applications for incentives should be reviewed in

relation to the Healthy Development Index and related studies, to

determine whether the proposed project is supportive of healthy

living principles, including promoting active transportation. This can

be integrated into the approvals process that the Town will facilitate

for incentive applications.

Municipal property development strategy: The CIP may identify a

Town‐led strategy for acquiring land, improving land and assisting in

redevelopment. This could include an identification of properties

that have high redevelopment potential. Through initial

consultation, no specific opportunities have been identified in this

regard, but this option should remain open for consideration in the

Community Improvement Plan. However, it could potentially be a

costly program and may not be considered a priority in comparison


with façade improvements and other relatively important

opportunities to improve the community. The on‐going

development of master plan for the Civic Campus area, however,

could identify opportunities for the improvement of municipally‐

owned properties, which should be supported by the Community

Improvement Plan.

Municipal signage program: The Town can lead or assist in the

installation of wayfinding signage, to help pedestrians, cyclists or

vehicles locate trails, shopping areas or other amenities. Signage

for heritage interpretation, such as a sign for the Caledon Public

School, can be considered as part of this program.

Environmental Remediation/Flooding: The Town can participate in

addressing environmental remediation, through such as activities as

tree planting, or initiating further studies to protect the Centreville

Creek corridor.

Marketing strategy: The Town should actively market the

Community Improvement Plan on an ongoing basis. This will be

addressed in detail in the Community Improvement Plan.

Monitoring and evaluation strategy: Monitoring and evaluating the

success of the Community Improvement Plan is important to help

the CIP meet its full potential. Updates may be required to help the

CIP focus on new critical needs as the community evolves. The CIP

should identify a detailed monitoring and evaluation strategy, and

identify specific responsibilities for implementing the strategy.



8. Conclusion and Next Steps

This report provides preliminary recommendations and options for

consideration in the Caledon East Community Improvement Plan, based on

an understanding of legislation, policies, regulations and guidelines which

are relevant to the development and revitalization of Caledon East, a

strengths, weaknesses, opportunities and threats analysis, a best practices

review and consultation with stakeholders and the public.

Based on initial consultation, a Community Improvement Plan for Caledon

East is generally supported by stakeholders and the public.

This report forms a basis for a Community Improvement Plan, giving

consideration to both financial incentives and a municipal leadership

strategy which promotes the revitalization and improvement of Caledon

East. A wide range of potential financial incentive programs are

recommended for consideration in the Caledon East Community

Improvement Plan, including façade and property improvements, energy

efficiency improvements, flood proofing incentives,

redevelopment/development incentives and heritage property incentives.

It will be important to ensure that eligibility criteria be developed to help

the Town approve only desirable projects which contribute to the desired

revitalization of Caledon East and help to achieve its goals. The eligibility

criteria should address matters such as urban design,

beautification/aesthetics, heritage conservation, promotion of

healthy/active living, improved quality of life and accessibility.

The municipal leadership program also recommends a wide range of

potential programs, including pedestrian crossing improvements, a crossing

at the Caledon Trailway and Airport Road, trailway improvements (new

trailways and connections), a municipal signage program, and

environmental remediation. The Community Improvement Plan will also

address a marketing strategy and a monitoring and evaluation plan to help

the Town ensure the Plan is achieving its goals.

On the basis of this report, the Community Improvement Plan will be

drafted. The Community Improvement Plan will be refined based on further

consultation with stakeholders, the public and with Council, and finalized for

the Statutory Public Meeting and Council adoption.

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