PLANNING JUSTIFICATION REPORT

Application to Amend Zoning By-law 78-1, as Amended

Powerhouse Properties Ltd.

207197 Highway 9

Part of Lot 1, Concession 2, EHS

Town of Mono

County of Dufferin

January 2019

January 2019

Planning Justification Report Application to Amend Zoning By-law 78-1, as Amended

Powerhouse Properties Ltd. 207197 Highway 9

Part of Lot 1, Concession 2, EHS Town of Mono

County of Dufferin Introduction On behalf of Powerhouse Properties Ltd., we have prepared a Planning Justification Report for an application to amend Zoning By-law 78-1, as amended for a parcel of land being approximately 1.2 hectares (3 acres) in size and located on the north side of Highway 9 within Part of Lot 1, Concession 2 (“subject lands”). The subject lands are illustrated on Appendix 1 to this report. Purpose The purpose of the rezoning application is to add a new use (i.e. self-storage facility) to the subject lands under the current Highway Commercial (CH) Zone in accordance with the “Greenbelt Hamlet Area” designation of the Town of Mono Official Plan. The subject lands were rezoned Highway Commercial (CH) Zone through the passage of Zoning By-law 2014-18 on April 8, 2014. The lands located to the east and west of the subject lands are similarly zoned Highway Commercial (CH). Proposal A Preliminary Site Plan showing the extent and layout of the proposed self-storage facility is appended as Appendix 2 to this report. The proposed self-storage facility consists of 6,356.5 square metres of gross floor area with an office component and provision for eight (8) parking spaces including two (2) accessible spaces. Property Description/Surrounding Land Uses The subject lands are presently vacant and comprise of the retained portion of a recently approved consent application (File No.: B10/18). The subject lands have approximately 69 metres (226 feet) of frontage on Highway 9 with a depth of approximately 153 metres (502 feet). The subject lands are presently accessed by a recently constructed driveway to/from Highway 9 approved through MTO Entrance and Encroachment Permits (File Nos.: EC-2018-20T-00000024 V1 and EC-2018-20T-00000492 V2).

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Surrounding land uses include Orangeville Honda to the west, proposed commercial to the east and residential with associated servicing facilities to the north. To the south of Highway 9 consists of agricultural lands within the Town of Caledon in the Region of Peel. The lands to the east contain an unevaluated wetland that has a minor encroachment onto the subject lands.

Provincial Plans/Policies

The subject lands are governed by the Growth Plan for the Greater Golden Horseshoe - 2017 (“Growth Plan”); the Provincial Policy Statement – 2014 (“PPS”); and the Greenbelt Plan – 2005 (“Greenbelt Plan”). A brief review of the pertinent policies is outlined below.

Growth Plan

The recently updated Growth Plan for the Greater Golden Horseshoe (“Growth Plan”) dated May 2017 came into effect on July 1, 2017. The Growth Plan continues to provide policies for the management of population and employment growth and to guide municipal decisions on a variety of issues such as transportation, infrastructure planning, land-use planning, urban form, housing, natural heritage and resource protection. Section 1.2.1 (Guiding Principles) identifies a number of guiding principles including support of complete communities; efficient use of land and infrastructure; capitalization of new economic and employment opportunities; and improvement to the integration of land use planning with planning and investment in infrastructure and public service facilities.

Section 2.2.1 (Managing Growth) indicates that the vast majority of growth will be directed to settlement areas. The subject lands are included within a settlement area as established under the Town of Mono Official Plan. In order to achieve complete communities, a diverse mix of land uses including residential, commercial and employment uses is encouraged.

Section 2.2.5 (Employment) states that economic development and competitiveness in the Greater Golden Horseshoe will be promoted by making more efficient use of vacant and underutilized employment lands and increasing employment densities.

The Growth Plan includes policies that encourage development within settlement areas, establishment of complete communities, a diversity and mix of employment uses, and making more efficient use of vacant, underutilized lands and available infrastructure.

It is my opinion that the proposed rezoning to provide for a self-storage use on the subject lands conforms to the Growth Plan.

PPS

The current Provincial Policy Statement (“PPS”) came into effect on April 30, 2014. The PPS provides policy direction on matters of provincial interest related to land use

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planning and development. The policies of the PPS address building strong healthy communities; the wise use and management of resources; and protecting public health and safety. The PPS directs development to settlement areas which include cities, towns, villages and hamlets. As noted above, the subject lands form part of an existing settlement area. Policy 1.1.3.1 of the PPS states that:

“...Settlement areas shall be the focus of growth and development, and their vitality and regeneration shall be promoted.”

Land use patterns within settlement areas shall be based on efficient use of land and resources and appropriate and efficient use of existing infrastructure. The PPS also supports opportunities for redevelopment. The PPS also contains policies for sewage, water and stormwater under Policy 1.6.6. Municipal sewage and water services are the preferred form of servicing within settlement areas to facilitate and promote intensification and redevelopment (Policy 1.6.6.2). Policy 1.6.6.3 further indicates that where full municipal services are not available, municipalities may allow the use of private communal water and/or wastewater services. The PPS also contains the following applicable policies for the consideration of partial services which are as follows:

“1.6.6.4 Where municipal sewage services and municipal water services or private communal sewage services and private communal water services are not provided, individual on-site sewage services and individual on-site water services may be used provided that site conditions are suitable for the long-term provision of such services with no negative impacts. In settlement areas, these services may only be used for infilling and minor rounding out of existing development.”

“1.6.6.5 Partial services shall only be permitted in the following

circumstances:

a) where they are necessary to address failed individual on-site sewage services and individual on-site water services in existing development; or

b) within settlement areas, to allow for infilling and minor rounding out

of existing development on partial services provided that site conditions are suitable for the long-term provision of such services with no negative impacts.”

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In this case, the proposed development in contemplated on partial services (i.e. municipal water and private septic system) at this time. In my opinion, the proposed redevelopment of the subject lands represents infill development within a settlement area that is largely developed. On this basis, it is my opinion that the proposed development proceeding on partial services is consistent with the PPS.

The PPS also contains policies dealing with the protection of natural heritage features and hazards. A Scoped Environmental Impact Study (“EIS”) has been prepared by Dougan & Associates (“Dougan”) in support of the application to address the adjacent unevaluated wetland, which is not designated as “significant”, and associated buffering. Dougan provides recommendations addressing mitigation and compensation/restoration and concludes that the proposal is consistent with the PPS.

In summary, it is my opinion that the rezoning request is consistent with the policies and directives of the PPS.

Greenbelt Plan

The Greenbelt Plan came into effect on February 28, 2005 and designates the subject lands as “Towns and Villages”. Towns/Villages are identified in municipal official plans with approved boundaries. As such, the subject lands and surrounding properties continue to be governed by municipal official plans and are not subject to the policies of the Greenbelt Plan. The Town has brought their Official Plan into conformity with the upper tier Greenbelt Plan. A review of both the Dufferin County and Town of Mono Official Plans is detailed below.

Dufferin County Official Plan

The Dufferin County Official Plan (“County Plan”) was approved by the Ministry of Municipal Affairs and Housing (“MMAH”) on March 27, 2015. The County Plan was most recently consolidated on July 17, 2017 and implements the PPS and various Provincial Plans affecting the County. Schedules A, B and B1 of the County Plan designate the subject lands and adjacent parcels as a “Community Settlement Area”. Community Settlement Areas include small villages and rural hamlets that have been historically identified and delineated in local official plans. Section 3.3.3 b) of the County Plan indicates that:

“Community settlement areas may continue to experience limited growth through infilling and development of vacant lands by way of consents or plans of subdivision as appropriate, in addition to limited residential intensification. It is recognized that certain community settlement areas may not accommodate additional growth and development, as established in the local municipal official plans.”

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The County Plan also notes that Community Settlement Areas will maintain a rural settlement character and evolve as service and residential centres for their surrounding Countryside Areas, where appropriate. The County Plan also contains servicing policies under Section 7.3. Section 7.3.1 provides policies for sewage and water services. The policies indicate that the provision of sewage and water services is the responsibility of the local municipalities. The County encourages new development to proceed on the basis of full municipal services which is the preferred means of servicing. Where full services are not available, municipalities may assess alternative servicing methods including communal water and wastewater services. The County Plan contains the same policies as the PPS relating to development on partial services. It is anticipated that the subject lands along this stretch of Highway 9 will be serviced through the extension of municipal water in the short-term and connection to the communal wastewater treatment system immediately north, which presently services the Brookfield residential subdivision, over the long-term. It should be noted R. J. Burnside has been retained by the Town to undertake preliminary work (e.g. surveying/engineering review) in order to facilitate the extension of the watermain. Given the intensity of use coupled with the lack of servicing demands, a self-storage facility will have no difficulties operating on partial services. It is my opinion that the proposal to rezone the subject lands to add a self-storage use conforms to the County Plan. The redevelopment will provide for limited growth through infilling and redevelopment of a vacant parcel of land. Town of Mono Official Plan (“MOP”) The Town of Mono Official Plan (“MOP”) was most recently consolidated in January 2016. As previously noted, the subject lands are located within the Greenbelt Plan and are designated “Greenbelt Hamlet Area” by the MOP. Section 22 (1) of the MOP states that all land uses, development, site alteration and erection, alteration and use of any building (or part thereof) shall comply with the provisions of the MOP and the Greenbelt Plan.

Lands designated “Greenbelt Hamlet Area” may contain residential, commercial and industrial uses on municipal water and public or private communal sewage systems. The MOP states that commercial and industrial uses shall be focused along the Highway 9 corridor.

Development within the “Greenbelt Hamlet Area” designation is also subject to the policies of Section 7 of the MOP. Section 7 contain policies applicable to all Hamlet areas. The MOP also states that every development in any Hamlet area shall be comply with all relevant General Development policies within Section 24 of the MOP.

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Section 7 (c) of the MOP contains policies for non-residential uses in Hamlet areas. Section 7 (c) (i) states:

“(i) Uses Permitted

Non-residential uses permitted in Hamlet areas may include public and institutional uses such as parks, schools, places of worship and post offices, and small commercial and industrial uses restricted to those types which do not require piped services, are compatible with the residential function of the Hamlet, and are not classified as obnoxious uses or offensive trades under the Public Health Act.”

The MOP also states that where practical, non-residential uses should be located within or adjacent to existing areas of non-residential uses with minimal impacts on nearby residential uses.

The subject lands are located between existing and proposed commercial development. The proposed self-storage use will be well separated from and will not adversely impact existing residential to the north.

Section 24 of the MOP contains General Development Policies. A review of the applicable Water and Sewage Policies including Groundwater Protection Policies and Environmental Policies is detailed below. It is acknowledged that any future development of the subject lands is subject to site plan approval and the Site Development Policies and Design Guidelines contained within Section 24 of the MOP.

Water and Sewage Policies

MOP states that most new development within the municipality will take place on individual private water supply and sewage disposal systems and as a general rule, communal or public piped service systems will be discouraged (Section 24 (4) (b)).

Section 24 (4) (b) (i) states that each lot area shall comply with the requirements of the Health Unit or its designated agent and/or Ministry of the Environment for the type of development proposed and type of communal or private system to be used.

A Functional Servicing Report was prepared by A.M. Candaras Associates Inc. (“Candaras”) dated January 10, 2019 to review servicing and stormwater requirements. Candaras concludes that the proposed self-storage facility can be serviced by municipal piped water and a private on-site filter bed sewage system. Stormwater management is addressed through roof-top quantity controls and a stormceptor for quality control.

Groundwater Protection Policies

Schedule F and Figure 4 to the MOP identifies the subject lands as being within a Well Head Protection Area and an area of Medium Aquifer Vulnerability. The applicable Groundwater Protection Areas policies are contained within Section 21 (4) of the MOP. The policies indicate that the Town will control land uses within Groundwater Protection

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Areas that pose a risk to municipal water supply, vulnerable aquifers or other groundwater resources (Section 21 (4) (b)).

The policies under Section 21 (4) (d) require the municipality through a planning approvals process to assess the impact of the proposed use on the quality and quantity of municipal wells and groundwater recharge function. The MOP lists three (3) categories of land uses that pose a potential risk to Groundwater Protection Areas. A self-storage facility is not considered a land use that would pose a risk to the nearby municipal well and groundwater supply. It is noted that the proposed self-storage use would not permit the storage of chemicals, fuels or other noxious substances. Such restriction is included in the proposed Draft Zoning By-law.

Environmental Policies

Schedules A, G-1 and G-2 to the MOP do not designate any of the subject lands “Environmental Protection” and the subject lands are not part of the “Natural Heritage Area” in the MOP or the Greenbelt Plan.

Schedule G-2 to the MOP shows a watercourse (Significant Cold Water Stream shown on Figure 2 to the MOP) north of the subject lands which flows between the Significant Wetlands to the north of the subject lands and the small unevaluated wetland which exists on the property to the east of the subject lands (207197 Highway 9). Section 24 (8) (b) of the MOP states that each development proposal will be assessed through an Environmental Impact Study.

As previously noted, given the proximity of the wetland, a Scoped EIS was prepared for the subject lands by Dougan & Associates, Ecological Consulting & Design (“Dougan”). As earlier noted, the wetland areas located immediately east and north of the subject lands are classified as “unevaluated wetlands” by both Credit Valley Conservation (“CVC”) and the Ministry of Natural Resources (“MNR”).

The unevaluated wetland is located within a low-lying catchment area draining from Highway 9, north to the watercourse that flows north to the Orangeville reservoir and the Credit River. The vegetation communities are documented by Dougan and wildlife habitat functions are considered minimal.

Past activities on and surrounding the subject lands created a wetland/ditch boundary along the eastern and northern sides of the subject lands. Given the proximity of Highway 9; the approved development to the north and east and the degraded nature of the wetland, on and adjacent to the subject lands, Dougan has recommended that it would be desirable to restore a more appropriate wetland edge and reduce the potential for impact to the downstream watercourse.

Dougan provides a number of recommendations which address vegetation removal, sediment and erosion control measures, stormwater management strategies and restoration plantings within the buffer zone along the north and east property lines.

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Town of Mono Zoning By-law 78-1

As previously noted, Zoning By-law 78-1 was amended for the subject lands through By-law 2014-18 approved by Town Council on April 8, 2014. By-law 2014-18 rezoned the subject lands from General Industrial (M1) to Highway Commercial (CH) Zone. The previous M1 Zone was reflective of the previous concrete batching plant on the property operated by Dufferin. The CH Zone implemented the approved MOP and was intended to address the future redevelopment of the subject lands.

The CH Zone permits a broad range of commercial and employment type uses however the permitted uses do not specifically include a self-storage facility. Due to the date of the Zoning By-law, it does not appear a self-storage use was contemplated in any zone category. As such, a rezoning is required to specifically permit a self-storage use.

Draft Zoning By-law

Attached as Appendix 3 to this report is a Draft Zoning By-law to implement the introduction of the self-storage use to the Zoning By-law. The Draft By-law proposes to maintain the current CH Zone permissions with the introduction of a “Commercial Self Storage Facility” use with permission for a maximum height of 14.5 metres, in place of the permitted 10.67 metres, and a modified parking standard. The definition of “Commercial Self Storage Facility” has been used from a recently approved Zoning By-law 2018-11. The definition contains restrictions with respect to outdoor storage.

It is anticipated that we will review the Draft Zoning By-law with Town staff prior to finalization.

Planning Opinion

In assessing the merits of the rezoning application to introduce a new self-storage use to the subject lands with a variation to the maximum building height and a modified parking standard appropriate for a self-storage facility, it is my opinion that the proposal conforms to and is consistent with Provincial, County and Town policies. Further, the contemplated use (i.e. self-storage facility) is compatible and appropriate for the reasons set out below.

Compatibility

With respect to compatibility, the self-storage use is a low intensity land use that does not generate noise, odour or significant traffic volumes. The use is typically staffed by one or two employees at any one time and is visited by patrons on an infrequent basis. Bluebird Self Storage has advised that on average, 3.5 cars/patrons per hour during business hours would be anticipated. The hours of operation are Monday to Saturday from 9 AM to 6 PM and Sunday 10 AM to 4 PM. Access is generally restricted to the hours of 6 AM to 10 PM. Given the intensity of use and anticipated traffic generated, Ministry of Transportation staff has advised that a traffic impact report is not required for a self-storage use. Compared to other more intense uses along the Highway 9 corridor (e.g. car dealerships), the impact of a self-storage facility is negligible.

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In my opinion, the self-storage use is compatible with the function of the Highway 9 corridor and the surrounding land uses. There are many uses currently permitted on the subject lands under the CH Zone that are more intense and less compatible than a self-storage use.

Appropriateness of Land Use

Regarding the appropriateness of the land use, the building will consist of a high-quality design which will improve the Highway 9 streetscape. A rendering of the proposed self-storage facility is attached as Appendix 4 to this report. Through the site plan approval process, landscape treatment will be reviewed and addressed in cooperation with Town staff. It is anticipated that the self-storage use will provide a service to nearby residents and it should be noted that outdoor storage is not expected by the proposed operator (i.e. Bluebird Self Storage). It is my opinion the self-storage use is appropriate and will complement the existing and adjacent land uses in proximity to Highway 9.

Parking

The parking standards within the implementing Zoning By-law do not provide for a specific standard for a self-storage facility. It is not clear which parking standard would apply. The parking needs of the self-storage facility are minimal given the staffing complement and the frequency of patrons visiting the facility. The Preliminary Site Plan attached as Appendix 2 shows a total of eight (8) parking spaces at the front of the facility including two (2) barrier free parking spaces which is more than ample for the proposed facility. Additional parking (i.e. 5 spaces) is illustrated internal to the site beyond the entry gate. This internal parking could be increased if warranted however such demand is unlikely.

The City of Kitchener has implemented a parking standard of one (1) space per 1,500 square metres of gross floor area for self-storage facilities. Applying this standard to the current proposal, consisting of 6,356.5 square metres, would result in a parking requirement of just over four (4) spaces.

Conclusions

As noted above, the subject lands are designated “Greenbelt Hamlet Area” in the MOP wherein commercial and industrial development is permitted subject to municipal water and public or private sewage systems. The MOP states that commercial and industrial uses shall be focused along the Highway 9 corridor. The MOP also states that non-residential uses should be located within or adjacent to existing areas of non-residential uses with minimal impacts on nearby residential uses. The subject lands are located between existing and proposed commercial development and will be well separated from nearby residential development.

It is my opinion that a self-storage is a permitted use under the MOP. Approval of the rezoning application to add a self-storage use would implement the approved MOP and, in my opinion, would not offend or run contrary to any of the upper tier Provincial and County planning directives/policies.

Appendix 1

Appendix 3

THE CORPORATION OF THE TOWN OF MONO

BYLAW NUMBER 2019 - XX

BEING A BYLAW TO AMEND COMPREHENSIVE ZONING BYLAW 78-1, AS AMENDED

WHEREAS the Council of the Corporation of the Town of Mono deems it expedient to amend Bylaw No. 78-1, as amended;

NOW THEREFORE THE COUNCIL OF THE CORPORATION OF THE TOWN OF MONO ENACTS AS FOLLOWS:

1. THAT Section 4 Definitions be amended by adding the following definition in alphabetical order and renumbering as required:

"COMMERCIAL SELF STORAGE FACILITY" shall mean premises and or building(s) used for the temporary or seasonal storage of household and personal related items, in a secured manner such as lockers, that are rented or leased to the general public and which are generally accessible by means of individual loading doors. Storage of permitted items shall include only legal and safe materials and does not include chemicals, fuels, or similar or other noxious substances. Warehousing is not permitted. Open storage is not permitted, other than for licenced recreational and similar vehicles."

2. THAT Section 13(3) Highway Commercial Zone as amended, is further

amended by adding after Section 13(3)(d):

(e) PART OF LOT 1 CONCESSION 2 EHS (CH-XX)

All provisions of Section 13(1) and (2) shall apply to the CH-XX Zone, except that, in addition to the uses permitted in 13(1)(b), a "commercial self storage facility" is also a permitted use to a maximum building height of 14.5 metres with a minimum parking requirement of 8 parking spaces including 2 barrier free spaces.

3. THAT Schedule "A" to Zoning Bylaw 78-1, as amended, be further amended

by rezoning that portion of Lot 1, Concession 2 EHS, identified on the attached Schedule "A" to this Bylaw, as Highway Commercial (CH) Zone to Special Highway Commercial (CH-XX) Zone;

4. THAT this Bylaw shall come into force and effect pursuant to Section

34(21) and Section 34(30) of the Planning Act R.S.O. 1990.

READ A FIRST AND SECOND TIME THIS DAY OF , 2019.

READ A THIRD TIME AND PASSED THIS DAY OF , 2019.

Original signed by:

Laura Ryan, Mayor Mark Early, CAO/Clerk