Town of Milton EMPLOYMENT LAND NEEDS · PD-040-16 DRAFT October 13 2016 Town of Milton EMPLOYMENT...
-
Upload
nguyenkiet -
Category
Documents
-
view
213 -
download
0
Transcript of Town of Milton EMPLOYMENT LAND NEEDS · PD-040-16 DRAFT October 13 2016 Town of Milton EMPLOYMENT...
APPENDIX 2 PD-040-16
DRAFT October 13 2016
Town of Milton
EMPLOYMENT LAND NEEDS ASSESSMENT STUDY PHASE 2 ANALYSES AND RECOMMENDATIONS REPORT
File # 11165 B
Prepared by:
MacNaughton Hermsen Britton Clarkson Planning Limited (MHBC)
901 Guelph Line Burlington, ON L7R 3N8
T: 416 518 8394 | F: 905 761 5589 With
Watson & Associates Economists Ltd.
2000 Argentia Rd #101, Mississauga, ON L5N 1V9
T: 905 272 3600
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 2
TABLE OF CONTENTS
1.0 INTRODUCTION ........................................................................................................... 4
1.1 SUMMARY OF PHASE 1 FINDINGS .......................................................................................... 6
1.2 SURVEY RESULTS AND ADDITIONAL STAKEHOLDER INPUT ............................................. 12
2.0 ASSESSMENT OF MILTON’S EMPLOYMENT AREAS ...................................................... 13
2.1 PHYSICAL CHARACTERISTICS OF EMPLOYMENT AREAS ................................................... 14
2.2 DESIGNATED AND PLANNED EMPLOYMENT AREAS ......................................................... 16
2.3 EMPLOYMENT AREAS STRENGTHS/WEAKNESSES/OPPORTUNITIES/CONSTRAINTS
(S.W.O.C.) ANALYSIS ............................................................................................................ 21
2.4 INDUSTRY SECTOR REQUIREMENTS ................................................................................... 23
2.5 MILTON’S EMPLOYMENT AREAS DEVELOPMENT POTENTIAL .......................................... 24
3.0 FORECAST EMPLOYMENT GROWTH AND EMPLOYMENT LAND NEEDS ....................... 26
3.1 REGIONAL GROWTH DRIVERS ............................................................................................. 26
3.2 TOWN OF MILTON LONG-TERM EMPLOYMENT FORECAST .............................................. 28
3.3 EMPLOYMENT LAND NEEDS FORECAST APPROACH ......................................................... 34
3.4 EMPLOYMENT ON EMPLOYMENT LANDS .......................................................................... 35
3.5 EMPLOYMENT LAND DEMAND ............................................................................................ 38
3.6 EMPLOYMENT LAND NEEDS TO 2036 AND 2041 ................................................................. 39
3.7 OPTIONS TO DESIGNATE FUTURE EMPLOYMENT LANDS ................................................. 40
3.8 POTENTIAL IMPACT OF THE PROPOSED CN INTERMODAL PROJECT
ON MILTON EMPLOYMENT LAND NEEDS ........................................................................... 42
4.0 EMPLOYMENT LAND CONVERSION ............................................................................ 43
4.1 ASSESSMENT OF POTENTIAL SITES .................................................................................... 43
4.2 RECOMMENDATIONS FOR CONVERSIONS ......................................................................... 44
5.0 EMPLOYMENT INTENSIFICATION OPPORTUNITIES ..................................................... 47
5.1 INTENSIFICATION OF EXISTING EMPLOYMENT AREAS ...................................................... 47
5.2 INCREASED OPPORTUNITIES IN MIXED USE AREAS ........................................................... 52
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 3
5.3 SPECIAL EMPLOYMENT NODES AND DISTRICTS ................................................................ 54
6.0 CHALLENGES FOR INCREASED JOB CREATION AND MEETING EMPLOYMENT
OBJECTIVES ......................................................................................................................... 55
7.0 PROVINICAL LAND USE PLANNING CHANGES ............................................................ 58
7.1 FORECASTS .......................................................................................................................... 58
7.2 INTENSIFICATION TARGET ................................................................................................... 58
7.3 MINIMUM DENSITY OF DESIGNATED GREENFIELD AREA .................................................. 59
7.4 PROTECTING PRIME EMPLOYMENT AREAS ........................................................................ 59
7.5 EMPLOYMENT INTENSIFICATION AT TRANSIT-SUPPORTIVE AREAS................................ 60
8.0 RECOMMENDED STRATEGIC DIRECTIONS AND POLICY CHANGES .............................. 62
8.1 OFFICIAL PLAN AMENDMENTS ............................................................................................ 65
9.0 CONCLUSIONS ................................................................................................................67
APPENDIX A - PUBLIC SURVEY RESPONSES
APPENDIX B - ASSESSMENT OF POTENTIAL CONVERSION SITES
LIST OF FIGURES: Figure 2-1: Developed and Vacant Designated Employment Lands in Milton
Figure 2-2: Town of Milton Derry Green Corporate Business Park Land Use Plan
Figure 2-3: Town of Milton Existing, Planned and Future Strategic Employment Areas
Figure 2-4: Milton’s Employment Areas Analysis
Figure 2-5: Physical Attributes of Employment Areas Required to Attract Target Employment Sectors
Figure 3-1: Town of Milton’s Share of Halton Region Employment Base, 2011 to 2041
Figure 3-2: Town of Milton Employment Forecast – Reference vs. Alternative Scenario
Figure 3-3: Employment Growth by Sector – Reference vs. Alternative Forecast
Figure 3-4: Town of Milton Employment Forecast, 2016 to 2041
Figure 3-5: Town of Milton Employment Forecast by Major Sector, 2016 to 2041
Figure 3-6: Town of Milton Employment Forecast Incremental Growth, 2016 to 2041
Figure 3-7: Town of Milton Forecast Employment Growth by Sector, 2016 to 2041
Figure 3-8: Town of Milton Proportion of 2016 to 2041 Employment Growth on Employment Lands by Sector
Figure 3-9: Town of Milton Forecast Employment Growth on Employment Lands, 2016 to 2041
Figure 3-10: Town of Milton Target Employment Density
Figure 3-11: Town of Milton Forecast Employment Land Demand, 2016 to 2041
Figure 3-12: Town of Milton Employment Land Need to 2041 based on Designated Employment Land Supply
Figure 3-13: Town of Milton Employment Land Need to 2041 based on Designated and Planned Growth Areas Employment Land Supply
Figure 3-14: Town of Milton Employment Land Needs, 2016 to 2041
Figure 5-1: Estimated Area of Existing and Designated Employment Areas in Milton
Figure 5-2: Observed Land Uses in Existing and Planned Employment Areas
Figure 6-1: Milton Employment Total Employment, Activity Rate between 1996 and 2015
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 4
1.0 INTRODUCTION
In April of 2015, the Town of Milton (“Town”) Council directed Town staff to undertake a further study of
its employment planning framework and employment land needs to the year 2041. Early in 2013, the
Town had commenced a Municipal Comprehensive Review (“MCR”) to address the Town’s employment
and commercial land needs to 2031. The MCR identified concerns related to the pattern of land
consumption which the Town of Milton has experienced. MHBC and Watson & Associates were jointly
retained to undertake an additional study related to planning for the future employment lands. The
further study of the Town’s employment lands is intended to form the basis of a comprehensive strategy
to guide the designation and development of urban employment lands to 2041. In particular, the study is
to address how the Town should plan for employment lands at densities to meet its local objectives and
inform Regional policies.
STUDY PURPOSE
The purpose of the Employment Land Needs Assessment is to confirm Milton’s employment land needs,
provide information on trends and the implications for Milton’s employment land supply and demand,
analyze the study findings and recommend supporting policies and direction for employment land
development. The recommended policies are intended to ensure the future planning goals of the Town
and the Region are implemented. They also recognize the market forces influencing land needs and
reinforce the physical and urban context of the Town, while respecting the overarching policy framework.
STUDY PROCESS
The Employment Land Needs Study was commenced in August of 2015. The Phase 1 Report was
presented to Council on January 25, 2016. The Phase 1 report included a detailed assessment of the local,
regional, Provincial and broader employment and economic context. The Phase 1 report also provided
an assessment of the land use policy framework within which employment lands are planned, and
reviewed relevant research, factors and influences on employment land planning and development. Best
practices in employment land use planning and policies were also considered during the first phase of the
study.
In addition to the background research completed in Phase 1, the Town hosted an expert panel session
to discuss trends, influences and factors affecting employment land planning in Ontario and specifically
in Milton. The panel included a range of professionals engaged in employment land use development
who offered a range of perspectives and opinions on the challenges and issues related to employment
land use planning and development for Milton. A number of interviews were also carried out with key
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 5
stakeholders who are directly engaged in the development of employment land in the Town. Additional
input was also received through public comments.
This Phase 2 report provides an analysis of the Phase 1 findings as well as an assessment of the Town’s current employment land supply and demand. The Phase 2 report also provides projections for employment growth, considers areas for employment intensification and assesses potential conversion sites (employment lands proposed to be considered for conversion to non-employment land uses). The Phase 2 report concludes with responses to a number of questions raised through the Phase 1 process, as well as a number of recommendations for consideration related to land use policies and directions to meet the Town’s long-term objectives for its employment lands.
STUDY PRINCIPLES
A set of principles were developed with the initial launch of the study. These principles are derived from
the key messages conveyed in the initial MCR work as well as in the list of issues and questions to be
addressed through the study. These principles have been considered throughout the study and upheld
with the recommended strategy to respond to the employment land needs and planning in Milton.
1. The Study will respect employment land policies in Provincial and Regional Plans thereby
providing policy predictability related to the supply of serviced employment lands and the uses
that are permitted within them.
2. The Study will determine the supply of serviced and designated employment lands to facilitate
short-term, medium-term and long-term economic growth.
3. The Study will provide specific direction to maximize the competitiveness of the Town’s
employment lands and promote the growth, retention and expansion of existing businesses to
achieve a diverse mix of jobs by employment sector.
4. The Study will encourage a balanced residential/non-residential tax ratio and employment
activity rate (ratio of jobs to population) over the long-term planning horizon.
5. The Study will encourage innovative businesses and employers located at the urban centre and
strategic employment areas.
6. The Study will support high quality and environmentally responsible development of
employment lands.
7. The Study will promote vibrant employment areas and corridors that provide a diverse range of
employment uses as well as an appropriate range of employment supportive uses that enhance
the attractiveness and functionality of the Town’s employment areas.
8. The Study recognizes the need to maximize land utilization/density on employment lands,
including promoting intensification, while accommodating land expansive employment uses
where appropriate.
9. The Study will provide direction with respect to the protection of strategic employment lands
beyond a 20-year planning horizon.
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 6
1.1 SUMMARY OF PHASE 1 FINDINGS
Phase 1 of the study focused on the current market context for Milton’s employment lands and trends at
the Provincial, Regional and local level. The first phase also identified Milton’s employment land profile
including recent non-residential development trends, the existing vacant land supply and factors
influencing regional competitiveness. The Phase 1 findings provided an overview of the current planning
policy framework and municipal practices related to employment land planning. A summary of the key
findings from the Phase 1 study are set out in this section of the report.
PROVINCIAL AND REGIONAL MARKET CONTEXT
In examining Milton’s employment lands it was essential to understand the broader influences and
factors that affect the regional economy as a whole. Some of the key findings related to the Provincial
and The Greater Toronto and Hamilton Area (G.T.H.A.) economic context included:
a) The expected continued shift in the provincial economy to an increasingly serviced-based
economy driven by strong growth in “knowledge-based” sectors.
b) The diverse and highly competitive G.T.H.A. economy has fueled a steady level of employment
growth over the past decade. Despite the global economic slowdown, G.T.H.A. employment
levels have increased in almost all major sectors of the service sector economy since 2006.
c) The G.T.H.A. has experienced significant employment growth in the goods movement sector
over the past decade comprised of transportation/ warehousing and wholesale trade.
d) Since bottoming out in 2010, industrial development activity has been steadily rebounding with
2014 activity totalling 5.3 million sq.ft. Over the 2006 to 2014 period, Halton Region accounted
for 21%, of the G.T.H.A.’s new industrial development.
e) Over the past five years, industrial development in the G.T.H.A. has been oriented to large-
scale stand-alone industrial buildings housing wholesale trade, transportation/ warehousing as
well as multi-tenant industrial condominiums, accommodating a range of industrial and non-
industrial uses.
f) With respect to the office market, the G.T.H.A. contains 198 million sq.ft. of office space. Of
this total, Halton Region’s office space inventory of 9.8 million sq.ft. represents approximately
5% of the G.T.H.A. total. Demand for office space within employment areas is increasingly
single tenant and integrated with multi-purpose facilities (e.g. R&D, training centres, wholesale
trade) often in campus-type settings and there are growing opportunities for office
development within innovation districts located on employment lands which have direct
synergies with knowledge-based clusters.
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 7
HALTON REGION AND LOCAL CONTEXT
Halton Region continues to experience significant growth in population and employment. The amount,
type and location of recent employment growth have strongly influenced the built form of development
on employment lands and future employment needs by local municipalities within Halton. Recent
employment trends in Halton Region include the following.
a. Developed employment lands in Halton Region total 3,377 net ha, approximately 11% of the G.T.H.A. total. The majority of the Region’s developed employment lands (72% of developed land area) are located in South Halton, primarily along the Q.E.W. corridor within the City of Burlington and the Town of Oakville.
b. Over the past decade, employment lands have been shifting from more mature municipalities such as Mississauga, Richmond Hill, Markham, and Burlington to outer edges of the G.T.H.A., such as Milton and Caledon, as well as the Greater Golden Horseshoe (G.G.H.) “Outer-Ring”. Employment land absorption levels in Halton Region have averaged approximately 48 net ha per year over the past decade representing approximately 19% of total employment lands absorption within the G.T.H.A. over this time period.
c. Key sub-sectors which have been accommodated on recently absorbed employment lands include professional, scientific and technical services, manufacturing, transportation and warehousing, management of companies and enterprises and wholesale trade.
d. Average employment density levels on employment lands across many G.T.H.A. municipalities have fallen in recent years. The average employment density on employment lands in Halton Region is 30 jobs per net ha which is lower than in Peel or York Region. In Milton, overall employment density on employment lands averages 17 jobs per net ha and is driven primarily by the significant development activity in large-scale warehousing and distribution/logistics to serve the goods movement sector.
EMERGING TRENDS IN EMPLOYMENT LAND DEVELOPMENT
While many existing greenfield employment developments continue to be planned for land-intensive
expansive industrial uses, there is a trend towards planning for employment areas in a way that
maximizes the use of land and infrastructure. This trend provides for economic clustering at a more dense
scale than traditional suburban business parks or industrial areas which includes the emergence of
employment communities and innovation districts.
Innovation districts have emerged as a new way to promote knowledge-based economic development
and offer a unique potential to spur productive, inclusive and sustainable economic development. They
are planned to optimize their economic, physical and networking assets.
Intensifying existing employment areas is also an efficient way to increase the density of existing
employment areas. Successful intensification of existing employment areas reinforces the existing
clusters by facilitating the growth and evolution of existing businesses. Promoting the introduction of
complementary accessory uses can allow existing employment areas to operate as a more complete and
connected employment community. The urbanization of existing suburban business parks and the
refurbishing and redevelopment of older industrial areas is an example of this shift.
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 8
WHAT THE EXPERTS TOLD US
An expert panel event titled “Milton Employment Lands: Trends, Factors and Influences” was held on
Thursday November 26, 2015. The panel agreed that Milton has a great foundation for jobs and a strong
base of warehouse and logistics employment. The panel provided insights related to employment
planning and job creation highlighting the following key points.
a) Human capital is a critical factor contributing to the attractiveness of Milton as a place of
employment.
b) A vision for the future should include a balance of social and business goals.
c) The people and the policy-makers of Milton must consider what the Town’s core values are and
how these values would relate to the economic realities of Milton’s future.
d) Milton is well-positioned to retain local residents to work in the municipality instead of taking
the 400-series highway to commute to jobs elsewhere in the G.T.H.A.
e) The development timeline of employment areas is longer than all other uses. As such, build-out
and intensification of employment lands typically takes many years longer than other uses.
Given the longer timeframe of employment development, it is important for policy-makers to
evaluate short-term economic conditions with a strong understanding of the long-term goals of
the Town.
f) There are an increasing number of small and medium-sized firms engaged in innovation and
development in the Town of Milton, who have a specific set of workplace needs that should be
accommodated.
g) New and existing employment areas should be planned as “employment communities” that
have a variety of employment and employment-supportive uses.
Key industry stakeholders also provided information through a series of interviews. The stakeholders
echoed many of the comments heard at the panel session and reinforced the need to provide more
flexibility within the employment policies, the ability to provide for more focused employment
communities with a range of supportive uses, and the need to shift the focus of employment planning
from the “protection of lands” to the “creation of jobs”.
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 9
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 10
MILTON’S ECONOMIC PROFILE
A number of local economic, socio-economic and financial trends are influencing growth trends and
competitiveness on employment lands in the Town of Milton. They include the following:
a) Milton’s total employment base has more than doubled over the 1996- 2015 period, increasing
from approximately 19,500 to an estimated 38,200.
b) Milton has a strong presence in wholesale trade, transportation and warehousing, retail trade
and construction, which are also growing sectors in the Town.
c) The manufacturing sector has a strong presence in the Town, but has experienced a steady
decline in employment over the past decade, consistent with trends in the broader economy.
d) In contrast, knowledge-based sectors, including professional, scientific and technical services,
finance and insurance as well as real estate, and rental and leasing which are generally under-
represented in the Town, have been experiencing moderate to steady employment growth
over the past 10 years.
e) Milton’s labour force1 has grown at a significantly faster rate than its employment base. Over
the 2001-2011 period, the Town’s labour force expanded from 19,000 to 48,000, an increase of
252%, compared to a 47% increase in the employment base2.
f) The Town’s live-work ratio has declined significantly, from 46% in 2001 to 26% in 2011.
g) Of the total employment base in Milton, 40% of jobs are held by Milton residents, while the
majority of the remainder commute from other municipalities in the western G.T.H.A.
MILTON’S EMPLOYMENT LAND SUPPLY
Milton’s employment land supply includes existing designated and built out lands, planned employment
areas (greenfield areas) and Future Strategic Employment Areas, intended to accommodate growth over
the longer term. A total of 688 net ha (1,700 net acres) of employment lands were identified as developed
within the Town of Milton as of November, 2015. The Town’s employment lands contain approximately
17.2 million sq.ft. of building space.
Milton’s designated employment lands include the Milton 401 Industrial and Business Park and Derry
Green Corporate Business Park. The planned employment areas include the Milton Education Village,
Southwest Milton, the Trafalgar/Derry Lands and the Milton 401 Industrial and Business Park Extension
lands. The Town also has approximately 1,400 gross ha (3,400 gross acres) of Future Strategic
Employment Area.
1 Labour force is defined as people who work that live in Milton. 2 Employment base are the jobs in Milton.
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 11
MILTON’S ECONOMIC DEVELOPMENT ACTIVITY AND COMPETITIVE ADVANTAGE
Milton has experienced strong development activity on its employment lands over the past decade. Over
the 2005-2014 period, the Town has averaged 82,000 sq.m. (882,600 sq.ft.) of building activity (new and
expansions) on employment lands annually. While development activity on employment lands in 2013
and 2014 was relatively modest, activity in the first three quarters of 2015 totaled 128,000 sq.m. (1.4
million sq.ft.), well above the 10-year historical average. New building construction has accounted for
85% of total development activity on employment lands over the 2006-2014 period, compared to 15%
for expansions.
Over the 2005-2014 period, 89% of development on employment lands has been in the industrial sector,
with 2% in office commercial and 9% in other commercial and institutional development. A significant
share of industrial development has been in logistics/distribution.
Milton’s share of Halton Region’s total new industrial development has increased significantly over the
past decade. From 2010 through 2014, Milton accounted for 70% of the Region’s industrial development
on employment lands. This is compared to 46% over the 2005-2009 period.
Employment land absorption levels have averaged approximately 20 net ha (49 net acres) per year.
Employment lands absorption in 2015 based on data through November totaled 30 net ha, significantly
higher than the 10-year historical average. Employment densities on employment lands absorbed over
the past decade have been slightly lower than the existing 2015 employment lands base (16 jobs per net
ha vs. 17 jobs per net ha).
Milton maintains a healthy and competitive role in the Regional and G.T.H.A. economic market. Its
competitive advantage is related to its location and access to Highway 401, a highly skilled labour force,
high quality of life, competitive cost of development in relation to market demand and potential return
on investment, and available land supply.
PLANNING POLICY CONTEXT
How Milton can plan for its future employment lands is bound by current Provincial and Regional policy.
The current Milton Official Plan also provides for approved Council direction for employment land that is
the subject of this review.
The 2014 Provincial Policy Statement (PPS) and the Growth Plan for the Greater Golden Horseshoe (the
Growth Plan) set out legislated policies that require municipalities to accommodate employment growth
targets and the provision of policies to provide for the protection of employment areas. The Growth Plan
also provides policies related to the conversion of employment lands including specific criteria which
must be addressed during a municipal comprehensive review.
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 12
Employment land planning is also directed through policies in Halton Region’s Official Plan. Regional
Official Plan Amendment 38 (ROPA38) includes population and employment forecasts to the year 2031,
on which the current land budget is based and through which development opportunities are planned.
Population Employment
Halton Region, 2031 780,000 390,000
Town of Milton, 2031 238,000 114,000
The in-effect Town of Milton Official Plan (OP 1997) was most recently consolidated in August 2008. To
respond to changes in both provincial planning legislation and regional planning policy related to growth
management and intensification, Official Plan Amendment 31 (OPA 31) was adopted by Council in 2010.
It is currently awaiting Regional approval. OPA 31 includes policies related to employment intensification,
employment conversion, mixed use areas, general employment areas and institutional areas that align
with the policy objectives of the Growth Plan and ROPA 38.
Subsequently in 2014, the Town of Milton conducted an initial study to inform its municipal
comprehensive review process with respect to planning for employment and commercial lands. The
report looked at the employment, commercial and retail land needs for the Town and provided
recommended policies, a detailed analysis of employment land supply and an evaluation of commercial
policies.
As part of the Phase 1 report, to examine possible approaches and options for employment planning, an
understanding of other municipal practices was important. The Official Plans of five municipalities, Ajax,
Hamilton, Oakville, Toronto and Vaughan, were evaluated to consider what employment land use
designations have been applied, what are the permitted uses and policies under these designations, what
types of specific policies, if any, addressed employment supportive and related uses, intensification of
employment uses, conversion of uses and how are older employment areas protected.
1.2 SURVEY RESULTS AND ADDITIONAL STAKEHOLDER INPUT
SURVEY RESULTS
At the conclusion of the Phase 1 study, an online survey was made available to solicit public opinion on
employment land planning. A series of statements about employment land planning and development
were provided and respondents were asked if they agreed or disagreed with the statement based on an
intensity scale of (1) being strongly disagree and (5) being strongly agree. The majority of the
respondents both lived and worked in the Town. The responses are generally summarized as follows:
Statement Response
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 13
Older industrial areas should continue to be protected to maintain
existing businesses.
Respondents were split on
this response.
Older industrial areas should be phased out and redeveloped over
time.
The majority of respondents
agreed with this statement.
Logistics and warehousing uses are important to Milton’s economy
and should continue to be accommodated.
Responses were split on this
statement.
Areas should be planned for new businesses and uses with a
greater number of employees.
This statement was strongly
agreed to by respondents.
New employment areas in Milton should include supportive uses
such as banks and restaurants.
Respondents also strongly
agreed with this statement.
New employment areas should be located in proximity to
residential, institutional and commercial uses.
Respondents strongly agreed
with this statement.
Planning policies should protect employment land for the long
term.
Respondents strongly agreed
with this statement.
Planning policies should be flexible to be able to respond to the
market to permit a range of businesses and uses in employment
areas.
Respondents strongly agreed
with this statement.
Planning policies should be specific to permit certain types of uses
and restrict others.
Respondents strongly agreed
with this statement.
Planning policies should focus on ways to maintain and create jobs
and less on protection of land.
Respondents agreed with this
statement.
The survey responses reflect a general consensus for providing some flexibility in planning for
employment lands. While there was strong agreement with protecting employment lands there is also a
recognition that older employment areas evolve over time and planning should respond to the market
rather than restricting opportunities through rigid policies.
ADDITIONAL STAKEHOLDER INPUT
Additional stakeholder input was received through written submissions from local landowners and from
the public. A summary of these submissions is provided in Appendix A Employment Growth Forecast &
Needs.
2.0 ASSESSMENT OF MILTON’S EMPLOYMENT
AREAS
Building on the profile of employment areas provided in the Phase 1 background report, this section
provides an assessment of Milton’s employment areas through a strengths, weaknesses, opportunities,
and constrains (S.W.O.C.) analysis.
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 14
2.1 PHYSICAL CHARACTERISTICS OF EMPLOYMENT AREAS
Employment areas require good access to regional transportation networks and trade corridors, on-site
infrastructure including roadways and utilities, a critical mass and available zoned, shovel-ready land.
Access to other major transportation infrastructure, such as airports, regional transit, rail lines,
intermodal facilities and ports, is also critical; however, the need and priority of such regional
infrastructure varies depending on the nature of the employment area. Employment areas are typically
located on flat to slightly rolling topography, preferably where large tracts of land can be assembled in
areas with minimal environmental constraints. Roadways within employment areas tend to be laid out
in a grid system to optimize circulation and parcel configuration. Parcels are typically square or
rectangular in shape to optimize site design. Many of these attributes help to optimize the end-users’
speed to market, while minimizing development costs and project risk.
The specific attributes that are required for an employment area to be successful are largely based on the
intended function and designations. These attributes are discussed in more detail below, with regard to
industrial areas and business parks.
INDUSTRIAL AREAS
Industrial areas within southern Ontario typically offer a mix of general and light industrial uses and
primarily accommodate employment sectors related to manufacturing, utilities, wholesale trade,
distribution and warehousing, transportation, as well as employment-supportive uses (i.e. ancillary
commercial service uses). These areas typically offer the following physical requirements:
Access – proximity to controlled access highways (i.e. Highway 401) is critical for the success of
general industrial parks that have a significant degree of manufacturing, wholesale trade and
warehousing, distribution and/or other industrial uses. These parks do not necessarily have to
be adjacent to a controlled access highway but must be in proximity and easily accessible via
major arterials that pass through limited residential or mixed-use commercial area(s).
Transportation and Infrastructure – over the past several decades, increased globalization of
the industrial economy has placed increasing importance on the growing interdependence of
domestic companies and their suppliers. As a result, there is an increasing trend for distribution
activities to agglomerate to take advantage of shared access to regional infrastructure such as
rail lines, intermodal facilities, and direct links to major highways via specialized road links.
Critical Mass – size is vital to ensure a wide selection/flexibility of land options and parks must
include a sufficient supply of large parcels. As a minimum, 80 Ha (200 acres) is a suitable size for
a park, in order to reach the critical mass needed to provide reasonable presence, choice and
economies of scale. However, newer industrial areas focused on warehousing and
transportation tend to be larger, in excess of 200 ha (500 acres).
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 15
Parcel Size – while demand in the Town of Milton is anticipated to continue for medium- to
large-scale, land-extensive warehousing and distribution facilities (i.e. >200,000 sq.ft.), the
future needs of the logistics sector in Milton are anticipated to vary in terms of building and site
size. For smaller to mid-size facilities (i.e. <200,000 sq.ft.), manufacturing/assembly,
distribution and retailing are often integrated within facilities.
Location – location must provide efficient and effective vehicular access and circulation,
particularly for heavy truck traffic, with a minimum of two access points to enter/exit the
industrial area;
Land Use Compatibility – buffering and separation of uses are important for general industrial
areas in order to minimize noise, truck traffic, safety, and air pollution to neighbouring
residential and other sensitive land uses.
Market Choice – parcel size and configuration needs to be conducive for a wide range of
industrial land uses, especially for land extensive industrial uses.
Competitive Development/Operating Costs – land prices must be competitive, given the
relatively land-extensive nature associated with many uses in industrial areas.
BUSINESS PARKS
Business Parks typically are more oriented towards light industrial and office uses and have a more
prestige character than general industrial areas. Key physical attributes of successful business parks
include the following:
Access – access and exposure/visibility to controlled access highways or major arterial
roadways are critical for business parks, particularly for office uses.
Critical Mass – size is less important relative to general industrial areas; however, these areas
must be generally large enough to foster a sense of place within a well-defined precinct and
allow for on-site amenities.
Minimal Land Use Buffers – are typically required for business parks, as well as parks oriented
towards research and technology.
Land Use Compatibility – opportunities exist to integrate light industrial, commercial and
surrounding residential/mixed-use areas with minimal buffering, providing that potential land-
use conflicts are addressed. As discussed in the Phase 1 report, the notion of business park
development is evolving to include newer employment concepts geared towards research and
innovation. Innovation districts are typically comprised of a mix of land uses, including
institutional anchors (i.e. hospitals, universities), office, R&D facilities, local retail and
residential.
Employment-Supportive Uses – are often clustered at major intersections, gateway locations,
or are located within transition areas between light industrial and commercial and/or residential
areas.
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 16
Character – park character is typically enhanced through high quality building design,
streetscapes and attractive landscaping, which can be implemented through site controls and
design guidelines.
2.2 DESIGNATED AND PLANNED EMPLOYMENT AREAS
Figure 2-1: Developed and Vacant Designated Employment Lands in Milton
2.2.1 MILTON 401 INDUSTRIAL AND BUSINESS PARK
The Milton 401 Industrial and Business Park is comprised of lands located on the both sides of Highway
401, both sides of Highway 25 and east to James Snow Parkway. Most of the land parcels have been
developed into distribution/logistics, manufacturing and transportation, and office uses. Approximately
30% of the developable lands in the serviced business park are currently vacant.
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 17
2.2.2 DERRY GREEN CORPORATE BUSINESS PARK
The Derry Green Corporate Business Park encompasses unbuilt employment lands located south of
Highway 401 between James Snow Parkway and Sixth Line and extending down towards Britannia Road.
Within the park, 423 net ha (1,045 net acres) are designated primarily as Business Park with a pocket of
an area designated as industrial. Servicing of the park is underway and is planned to be completed for
the development of the Menkes and Orlando sites by the end of 2016. Designated employment lands are
anticipated to be shovel-ready and available for development in 2017.
Figure 2-2: Town of Milton Derry Green Corporate Business Park Land Use Plan
While the park is expected to accommodate the majority of the Town’s employment land development
over the medium term, development within the park is fragmented by the natural heritage system that
transects many of the land parcels. The park also contains “street oriented areas” along the eastern edge
of James Snow Parkway and Derry Road.
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 18
2.2.3 MILTON 401 INDUSTRIAL AND BUSINESS PARK EXTENSION LANDS
The Milton 401 Industrial and Business Park Extension lands are located northeast of the Milton 401
Industrial and Business Park area. The lands are bounded by James Snow Parkway, 5 Sideroad, CN rail
corridor and natural features near Esquesing Line. These lands are most marketable for
distribution/logistics, transportation, multi-tenant industrial condos and advanced manufacturing. The
lands are part of a larger contiguous Employment Area – the Milton 401 Industrial and Business Park
which has a critical mass, has been highly successful and can build on the development activity and
success of the existing park. The lands have excellent access to Highway 401 via James Snow Parkway.
These lands are part of an area specific master plan being completed by Orlando Corporation which will
establish developable areas and is subject to environmental and servicing studies.
2.2.4 TRAFALGAR/DERRY LANDS
The Trafalgar/Derry Lands are part of the Sustainable Halton Lands (SHP) that represents the next
planned area for employment through ROPA 38. The lands are south and east of the Derry Green
Corporate Business Park Secondary Plan area and include the lands along the Trafalgar Road corridor.
The lands have a strong potential to accommodate a broad range of uses and employment sectors
including prestige office, warehousing/distribution and advanced manufacturing. The Trafalgar/Derry
Lands offer excellent access to Highways 401 and 407.
The Trafalgar/Derry Lands however are also strategically positioned to offer an environment with higher
order transit which can provide for a higher intensity of employment land uses and a complete
employment area with a focus around the potential GO station. Similar nodes have been planned and
are now being developed in and around other GO stations across the GTHA. While a mixed community
could take several years to develop, planned opportunities and infrastructure investment could provide
the conditions for a higher density office cluster at this higher order transit hub location. This location is
also unique in that it has both multi-directional highway capacity and a potential GO transit station to
serve the area.
Consideration of a performance based employment area at this location can create certainty for
investment decisions to help secure the future prosperity for the area. The Town has identified through
the MCR work that this area should be a Regional node. It will be important to ensure this area is fully
integrated with the surrounding community and ensure that a mix of uses is permitted to support the
threshold for a complete community onto itself.
The Town has identified a series of studies to be undertaken for this area to help frame future phases of
the Secondary Plan process and inform Milton Phase 4 - South Milton Urban Expansion Area. The
Trafalgar/Derry Secondary Plan process will also informed the phasing of development which will require
co-ordination with Regional servicing. The initial land base analysis will include a subwatershed study as
well as overall consideration for transportation planning and infrastructure support. An area servicing
plan by the Region will also significantly advance the planning for this area.
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 19
2.2.5 MILTON EDUCATION VILLAGE
The Milton Education Village (MEV) employment lands are currently the subject of a secondary planning
exercise which is expected to refine the proposed employment area designations. The Secondary Plan
work is currently deferred pending a formal announcement by the Province related to additional funding
for a new university campus. As the proposed site of a university satellite campus, the MEV has the
potential to create a culture of innovation and build synergies between employment uses and the
proposed post-secondary institutions. Further, it offers the potential to provide high-quality
employment opportunities in southwest Milton, an area which traditionally has had limited employment
opportunities.
The MEV represents an area that can be directed through secondary plan policies to provide for a
complete, compact employment area/innovation district. This area can strategically become a
specialized employment node and can leverage increased employment densities through a land use
policy context that provides performance targets to achieve increased employment.
The MEV has the foundation to continue to grow to become a complete employment area with a balance
of institutional, offices and supportive residential uses. The Town’s significant land ownership as well as
a large single owner is also beneficial in providing a range of opportunities.
2.2.6 SOUTHWEST MILTON
Lands immediately to the south of the MEV offer comparable longer-term development opportunities.
Given its locational attributes, the area is well suited for prestige employment uses including office
development to accommodate research and development, professional and technical services and
advanced manufacturing. This area is also planned to serve to support the MEV. Maximizing employment
opportunities on these lands will be important given the commitment to infrastructure and servicing
planned for the area.
CN, which owns the majority of the lands within the area, is proposing the development of a large
intermodal facility on a 177 gross ha site, comprised largely of future employment land, bounded by
Britannia Road to the north, First Line to the east, Tremaine Road to the west, and 2nd Side Road to the
south. The CN intermodal proposal is still the subject of a federal environmental assessment process. The
future status of the intermodal proposal is unknown at this time and represents significant uncertainly as
to the impact on the nature and intensity of uses that are planned within the intermodal area and on the
employment lands within the broader geographic area.
Until decisions are finalized with respect to the intermodal facility proposal, it is premature to assess how
the potential employment urban structure may be affected and to what extent the planned urban
employment lands may be impacted.
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 20
2.2.6 FUTURE STRATEGIC EMPLOYMENT AREAS
The Region has designated Future Strategic Employment Areas in Greenfield areas, under Sections
139.6 and 139.7 of ROPA 38, to meet employment land needs beyond the planning horizon of 2031. Parts
of Southwest Milton and Trafalgar/Derry Lands are identified as Future Strategic Employment Area.
Generally, these are lands located near major highway infrastructure the Region has identified for future
development.
The MCR work identified these lands as justified employment lands for the expansion of the urban
boundary. These lands are owned by a limited number of landowners and as such provide for the ability
to coordinate, finance and service large, contiguous parcels at strategic locations. With continued
completion from neighbouring markets, it will be important to facilitate the planning for these lands to
meet Milton’s employment needs. It will also be important to integrate these lands with the surrounding
planned communities through transitional areas.
Figure 2-3: Town of Milton Existing, Planned and Future Strategic Employment Areas
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 21
2.3 EMPLOYMENT AREAS
STRENGTHS/WEAKNESSES/OPPORTUNITIES/CONSTRAINTS
(S.W.O.C.) ANALYSIS
As part of this study, Milton’s employment areas were reviewed through an S.W.O.C. analysis as
summarized in Figure 2-4. The analysis was based in part on the attributes of successful employment
areas discussed in Section 2.1 with consideration of the following factors:
Physical/economic characteristics, which include character of existing industrial base,
geographic location, continuity and delineation of the industrial area;
Amenities, anchors and catalysts (e.g. universities, hospitals) for development;
Access/circulation, which includes an assessment of the accessibility of each site via road
infrastructure and the visibility of the area to major transportation routes;
Development opportunities, including vacant land supply, available lots on the market, parcel
configuration and mix, servicing and site expandability; and
Range of employment uses that could be accommodated in the employment areas.
Figure 2-4 : Milton’s Employment Areas Analysis
Employment Area Strengths/Opportunities Weaknesses/Challenges
Milton 401 Industrial and Business Park (Designated)
A large, well established employment area of critical mass that is anchored by major industrial businesses.
Park has seen a significant amount of development activity in the past decade.
Direct access/exposure to Highway 401.
Good road circulation via major arterial roadways (James Snow Parkway, Highway 25, Steeles Avenue).
Well suited for a broad range of industrial uses, such as wholesale trade, distribution/logistics, warehousing and manufacturing.
Approaching buildout and a limited supply of site options remaining.
Recent development activity has been focused on large-scale warehousing, which has created vast areas homogeneous industrial built form with limited diversity of uses.
Derry Green Corporate Business Park (Designated)
Large contiguous Employment Area of critical mass.
Expected to significantly increase market choice of employment lands in Milton.
Designed to accommodate wide range of uses including prestige business park, general industrial, office
Southern portion lacks direct access/exposure to Highway 401.
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 22
Employment Area Strengths/Opportunities Weaknesses/Challenges
development and employment supportive uses.
Northern half has direct access/exposure to Highway 401.
Direct access via major arterials including James Snow Parkway and Derry Road.
Direct rail access.
Anticipated to be available for development by the end of 2016.
Milton 401 Industrial and Business Park Area (Planned)
Contiguous expansion area of existing Milton 401 Industrial and Business Park – forms part of existing park.
Opportunities to build on development activity that has occurred in Milton 401 Industrial Business Park.
Access to Highway 401 via James Snow Parkway.
Lack of direct access/exposure to Highway 401.
Trafalgar/Derry Lands (Planned)
North half has good access to Highways 401.
Proximity to Highway 407.
Direct rail access.
Proximity to Milton CP Expressway Terminal West intermodal facility.
Good access to Highways 401 and 407 via Trafalgar Road and Derry Road.
Opportunities to capitalize on prestige employment development potential.
Located at the only undeveloped Highway 401 interchange within the G.T.A.
Location of possible future GO train station.
Distance of south half of employment area to Highway 401.
Somewhat fragmented developable land areas.
Milton Education Village (Planned)
Includes planned site of satellite university campus.
Potential to build synergies with post-secondary institution.
Potential to develop innovation district accommodating “knowledge-based” sectors.
Access via Tremaine Road.
Potential to create a culture of innovation at the Education Village Research Park.
Lack of access to 400 series highway.
Limited size.
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 23
Employment Area Strengths/Opportunities Weaknesses/Challenges
In proximity to large urban expansion area (Boyne).
Potential to expand employment base in southwest Milton.
Southwest Milton (Planned)
Potential to build synergies with Milton Education Village and accommodate a broad range of prestige employment uses.
Proximity to large urban expansion area (Boyne).
Potential to expand employment base in southwest Milton.
Access via Tremaine Road and Britannia Road.
Direct rail access.
Lack of access to 400 series highway.
Fragmented developable land prevents large-scale employment areas of a contiguous nature.
Proposed CN intermodal facility would limit development potential of area with respect to diversity of uses and employment yields.
2.4 INDUSTRY SECTOR REQUIREMENTS
Location requirements of industry can vary considerably depending on the nature of the employment
sector/use. Employment sectors typically situated in employment areas have varying site-specific
requirements. Building on the Phase 1 background report, a number of industrial and commercial
sectors/employment uses are anticipated to experience economic growth on existing and planned
employment areas in the Town of Milton. These sectors include: Advanced Manufacturing; Research and
Development/Life Sciences; Major Office/Professional, Scientific and Technical Services/Business
Services; and Distribution and Logistics. Employment Areas with the physical attributes as summarized
in
Figure 2-5, would be best suited to attract these target employment sectors.
Figure 2-5: Physical Attributes of Employment Areas Required to Attract Target Employment Sectors
Employment Sector/ Land Use
Required Physical Attributes
Advanced Manufacturing Access to 400 series/controlled access highways.
Access to skilled and unskilled labour.
Proximity to markets and related industries.
Proximity to U.S.
Competitive land prices.
Parcel size: 1-4+ Ha.
Buffers from surrounding non-industrial uses.
General or prestige setting.
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 24
Employment Sector/ Land Use
Required Physical Attributes
Expansion potential.
Research and Development/Life Sciences Sectors
Access to skilled labour force.
Proximity to related industry cluster (companies and public institutions such as universities and hospitals).
Prestige “campus-like” setting.
Parcel size: 1-2 Ha for standalone building or facility space within multi-tenant incubator/accelerator type building.
Flexible leasing options.
Proximity to high-order transit (regional connectivity).
Access to on-site amenities and proximity to off-site services. Major Office/Professional, Scientific and Technical Services
Prestige setting.
Access to skilled labour force.
Access and exposure to 400 series/limited access highway or major arterials.
Access to on-site amenities and proximity to off-site services.
Parcel size: 1-2 Ha.
Proximity to high-order transit (regional connectivity).
Flexible leasing structures and market choice (multi-tenant versus freestanding office, Class A versus Type B office space and multi-tenant industrial condominiums).
Distribution/Logistics Land prices must be competitive, given the relatively land-extensive nature associated.
Sufficient supply of large parcel, as a minimum, 80 Ha (200 acres) is a suitable size, in order to reach the critical mass typically needed.
Parcel size and configuration needs to be conductive to land extensive developments.
Proximity to controlled access non-toll highways (i.e. 400 series/limited access highway).
Proximity to major infrastructure anchors, including transportation intermodal terminals and airports.
Efficient and effective vehicular access and circulation, particularly for heavy truck traffic.
Buffering in order to minimize noise and air pollution to neighbouring residential and other sensitive land uses.
2.5 MILTON’S EMPLOYMENT AREAS DEVELOPMENT POTENTIAL
Based on the evaluation of Milton’s employment areas and the employment sector/ land use
requirements of the target industries, the following conclusions can be made:
Milton’s employment areas generally have good access and exposure to major 400-series
highways and arterial roads which is a key requirement for most sectors;
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 25
Major G.T.H.A. transportation infrastructure is located in close proximity to the Town of Milton,
including the Pearson International Airport, CN and CP Intermodal facilities which will continue
to fuel demand for future growth in industrial related sectors;
GO Transit service in Milton provides regional transit connectivity west and east of the Town
which is a major driver for knowledge-based and office sectors;
Milton is anticipated to continue to experience strong growth which will further develop its
labour market. This is critical in attracting development from knowledge-based and office
sectors. In addition, the Town is in close proximity to major labour markets in the west
G.T.H.A.;
Milton has experienced strong growth in the distribution and logistics sector and going forward
this will likely continue given the supply of large parcels with excellent vehicular accessibility.
This includes remaining sites in the Milton 401 Industrial and Business Park, within Derry Green
Corporate Business Park and planned employment areas of Trafalgar/Derry Lands and the
Milton 401 Industrial and Business Park areas.
Derry Green Corporate Business Park was planned to accommodate a broader range of
employment uses than the Town has experienced to date. The locational attributes and
connection to supportive uses has not developed and it has proven difficult to attract a broader
mix of uses.
The future development of the Milton Education Village and a possible satellite university
campus will be a major catalyst in the development of an innovation district that will further
support and accommodate the Town’s growth in knowledge-based sectors.
The Southwest Milton lands have strong potential to develop as a prestige employment area
accommodating a broad range of employment uses including advanced manufacturing logistics
and “knowledge-based” sectors.
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 26
3.0 FORECAST EMPLOYMENT GROWTH AND
EMPLOYMENT LAND NEEDS
This Chapter presents a long-term employment forecast by major sector for the Town of Milton based
on an assessment of local and regional growth drivers. A corresponding employment needs analysis
associated with a 20-year (2016-2036) and 25-year (2016-2041) planning horizon is also provided.
3.1 REGIONAL GROWTH DRIVERS
As previously discussed in Chapter 2 of the Phase 1 Report, a broad range of regional and local factors
related to economics, demographics and infrastructure is anticipated to drive the rate of future economic
and employment growth throughout the Town of Milton over the longer term. These drivers will not only
affect the rate and magnitude of employment growth but will also influence the form, density and
location of future employment growth on employment lands. The impacts of these regional growth
drivers on future employment growth trends in the Town of Milton are discussed below.
3.1.1 THE TOWN OF MILTON IS WELL POSITIONED TO CAPTURE A GROWING SHARE OF
REGIONAL EMPLOYMENT GROWTH ON EMPLOYMENT LANDS
As previously discussed, Halton’s economic growth potential is largely tied to the success of the G.T.H.A.
as a whole. Over the next 25 years, the G.T.H.A population and employment base is forecast to steadily
increase, largely driven by the Region’s diverse and competitive employment base. Of the upper/single
tier municipalities in the G.T.H.A., Halton Region is anticipated to experience the highest annual rate of
population and employment between 2011 and 2041. Over this time period, Halton Region’s population
is expected to nearly double, with an increase from 520,000 to 1,000,000. Halton’s employment base is
anticipated to more than double, with an increase of approximately 236,000 jobs from 2011 to 2041.
Recent trends in the regional industrial real estate market indicate that suburban locations such as Milton
are well positioned to capture a growing share of industrial and office development on employment lands
in the future. As the larger urban areas of the West G.T.H.A. (i.e. Mississauga and Brampton in Peel
Region, and Oakville and Burlington in Halton Region) continue to mature and build out, increasing
growth pressure is being placed on G.T.H.A. and G.G.H. “Outer Ring” municipalities which offer
marketable development opportunities on employment lands.
Strategically located within the west G.T.H.A., Milton also has a strong appeal to new businesses and
residents. This appeal is largely attributed to the Town’s geographic location within the G.T.H.A., its
proximity to key regional infrastructure including the Toronto Pearson International Airport (T.P.I.A.),
Highways 401 and 407, regional transit (GO Transit), a large supply of serviceable greenfield employment
land supply, proximity to labour and a number of post-secondary institutions within a 1- to 2-hour radius.
The Town’s western G.T.H.A. location also offers proximity to the U.S. border and access to a number of
major employment markets within Southern Ontario and the U.S.
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 27
Over the past decade, a shift in the location of industrial developments occurred in Halton Region.
Industrial development has traditionally been focused in south Halton (i.e. Oakville and Burlington), but
has increasingly migrated north to Milton and Halton Hills. To date, office development in Milton has
been relatively limited; however, this is expected to gradually change over the long term, as new
greenfield employment land supply opportunities in Milton become available for development, such as
Derry Green Corporate Business Park.
3.1.2 THE TOWN OF MILTON IS FORECAST TO ACCOMMODATE AN INCREASING SHARE
OF FUTURE EMPLOYMENT GROWTH IN HALTON REGION
Figure 3-1 summarizes historical and forecast employment for the Town of Milton as a percentage share
of the total employment within Halton Region between 2011 and 2041. As shown, between 2011 and
2016 Milton’s share of total employment within Halton Region has gradually increased from 14% to 15%.
It is anticipated that the Town’s share of the total employment growth within Halton Region will increase
significantly over the forecast period, increasing to 26% by 2031 and 32% by 2041. Of the Region’s area
municipalities, Milton is expected to account for the largest share of Halton Region’s employment growth
over the 2016 to 2041 forecast period. The Town’s employment forecast is discussed in further detail in
section 3.2
Figure 3-1: Town of Milton’s Share of Halton Region Employment Base, 2011 to 2041
14% 15% 17% 21% 26%32%
0%
20%
40%
60%
80%
100%
2011 2016 2021 2026 2031 2041
Year
Milton Rest of Halton Region
Source: Watson & Associates Economists Ltd.Note: Share analysis based on Alternative Forecast for Milton
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 28
3.2 TOWN OF MILTON LONG-TERM EMPLOYMENT FORECAST
Building on the updated economic and employment analysis carried out as part of the Phase 1
Employment Lands Review Report and the regional growth drivers summarized above, two long-term
employment forecasts – Reference Scenario and Alternative Scenario – were prepared for Milton. The
Alternative Scenario forms the basis for the employment land needs analysis presented herein.
3.2.1 EMPLOYMENT FORECAST SCENARIOS
Employment forecasts under the Reference and Alternative Scenarios are presented in Figure 3-2. The
Reference Scenario targets the 2031 employment forecast in accordance the Halton Region 2011 Best
Planning Estimates (B.P.E.). The 2011 Halton Region B.P.E. forecasts a total of 114,300 jobs within the
Town of Milton by 2031. The Alternative Scenario reflects employment market trends and is not tied to
the 2011 Halton Region B.P.E. 2031 employment forecast.
Under the Reference Scenario, the Town’s employment base is forecast to reach 114,000 by 2031 and
162,000 by 2041. This is compared to 103,000 by 2031 and 151,000 by 2041 under the Alternative
Scenario. The difference in incremental employment growth between the two scenarios is entirely within
the 2016 to 2031 timeframe (a difference of 11,000 jobs). The incremental employment growth between
2031 and 2041 is the same under both scenarios. Both employment forecasts are based on the
assumption that Milton’s population base will increase from 109,000 persons in 20163 to 234,600 persons
by 2031 and approximately 369,000 persons by 2041.4
3 As estimated by Watson & Associates. Population figures include Census undercount of approximately 4%. 4 Population forecast to 2031 is in accordance with Halton Region Best Planning Estimates. 2041 population forecast prepared by Watson &
Associates. Population figures include Census undercount of approximately 4%.
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 29
Figure 3-2: Town of Milton Employment Forecast – Reference vs. Alternative Scenario
Figure 3-3 summarizes the Alternative Scenario by major employment sector from 2016 to 2041 in
contrast to the Reference Scenario. Approximately half (5,600 jobs) the employment reduction assumed
in the Alternative Employment Scenario can be attributed to the industrial sector. Moderately lower
employment growth is also assumed in the commercial non-retail sector (3,900 fewer jobs) as a result of
lower office employment growth. No Fixed Place of Work employment has also been reduced by 1,450
jobs, reflecting the reduction in industrial employment prospects.
Figure 3-3: Employment Growth by Sector – Reference vs. Alternative Forecast
50,600
72,500
103,300
128,750
151,000
54,550
81,000
114,250
139,700
161,950
22,17527,600
32,62538,650
0
40,000
80,000
120,000
160,000
200,000
2001 2006 2011 2016 2021 2026 2031 2036 2041
Tota
l E
mp
loym
ent
Year
Alternative Forecast Reference Forecast
Source: Watson & Associates Economists Ltd.
Alternative
Scenario
Reference
ScenarioAbsolute %
Industrial 27,200 32,800 -5,600 -17%
Commercial Retail 24,875 24,875 0 0%
Commercial Non-Retail 17,950 21,850 -3,900 -18%
Institutional 18,300 18,300 0 0%
No Fixed Place of Work 13,625 15,075 -1,450 -10%
Work at Home 10,400 10,400 0 0%
Total 112,350 123,300 -10,950 -9%
Source: Watson & Associates Economists Ltd.
Employment Growth, 2016-2041 Difference
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 30
In accordance with our review of the Town’s existing employment base, and a comprehensive review of
forecast employment growth potential by sector and in the broader regional context, the Consultant
Team has adopted the Alternative Employment Scenario as the basis for estimating future employment
land demand and land needs over the planning horizon.
The following presents future employment growth in five-year increments by major employment sector
over the 2016 to 2041 period based on the present (i.e. Alternative Scenario) employment forecast.
3.2.2 TOWN OF MILTON FUTURE EMPLOYMENT GROWTH, 2016 TO 2041
As shown in Figure 3-4, Milton’s employment base is forecast to increase from 38,650 in 2016 to 103,300
in 2031, and 151,000 by 2041. Over the forecast period, Milton’s employment base is expected to expand
by approximately 112,000, nearly a four-fold increase from its current base (i.e. year 2016). This
represents an average annual employment growth rate of 5.6% per year. Figure 3-5 provides a more
detailed summary of the long-term employment forecast by major employment sector.
Figure 3-4: Town of Milton Employment Forecast, 2016 to 2041
Figure 3-5: Town of Milton Employment Forecast by Major Sector, 2016 to 2041
Incremental employment growth in five-year increments is illustrated in Figure 3-6. Forecast
employment growth over the 2016 to 2041 period will be driven by steady population growth and
38,650
50,600
72,500
103,300
128,750
151,000
0
40,000
80,000
120,000
160,000
2016 2021 2026 2031 2036 2041
To
tal E
mp
loy
me
nt
Year
Source: Watson & Associates Economists Ltd.
2016 700 4,000 12,400 9,450 1,950 5,675 4,475 38,650
2021 700 5,275 15,075 12,775 2,650 7,900 6,225 50,600
2026 700 7,625 19,800 17,900 6,175 11,625 8,675 72,500
2031 700 10,100 27,700 23,925 12,050 16,425 12,400 103,300
2036 700 12,425 33,700 29,400 16,100 20,600 15,825 128,750
2041 700 14,400 39,600 34,325 19,900 23,975 18,100 151,000
2016-2041 0 10,400 27,200 24,875 17,950 18,300 13,625 112,350
Source: Watson & Associates Economists Ltd.
Year Primary Work at Home IndustrialCommercial
RetailInstitutional NFPOW
1 TotalCommercial
Non Retail
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 31
continued regional and local growth prospects for export-based sectors, which are expected to drive the
industrial and commercial office sector. In accordance with the regional growth drivers discussed in
section 3.1, the amount and rate of employment growth is forecast to steadily increase relative to recent
trends (i.e. the past 10 years) between 2016 and 2031. Absolute employment growth levels and
employment growth rates are forecast to peak during the 2026 to 2031 period, largely as a result of
relatively slower employment growth anticipated for the G.T.H.A. and Halton Region as a whole during
this time period. Slower regional population and employment growth during the post-2031 period is
largely due to the aging of the regional population and labour force base.
Figure 3-6: Town of Milton Employment Forecast Incremental Growth, 2016 to 2041
Employment growth over the 2016 to 2041 forecast period is expected across a wide range of sectors,
driven by the continued diversification of the Town’s economic base and strong local population growth.
As summarized in Figure 3-7 below, future employment growth is anticipated to be relatively well
balanced across all major employment sectors.
11,950
21,900
30,800
25,450
22,250
0
5,000
10,000
15,000
20,000
25,000
30,000
35,000
2016-2021 2021-2026 2026-2031 2031-2036 2036-2041
Em
plo
ym
ent G
row
th
Time Period
Work at Home No Fixed Place of Work Institutional Commercial Retail Commercial Non Retail Industrial
Source: Watson & Associates Economists Ltd.
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 32
Figure 3-7: Town of Milton Forecast Employment Growth by Sector, 2016 to 2041
A more detailed breakdown of anticipated employment growth by sub-sector is provided below.
PRIMARY EMPLOYMENT
Primary industries (i.e. agriculture and other resource-based employment) comprise a relatively small
proportion of Milton’s employment base (approximately 0.2% in 2016). This sector is not anticipated to
experience any employment growth over the 2016 to 2041 forecast period.
INDUSTRIAL EMPLOYMENT
Over the forecast period, Milton’s industrial employment base is expected to increase from 12,400 in
2016 to 39,600 in 2041, an increase of 27,200 over the period. Over the next decade, it is anticipated that
development within the industrial sector will gradually increase, driven by employment growth, largely
within industrial sectors related to transportation and warehousing, utilities, construction and advanced
manufacturing. The rate of industrial growth is expected to accelerate relative to historical levels, largely
as a result of increased greenfield employment land supply opportunities within the Town (i.e. Derry
Green Corporate Business Park) combined with the continued recovery of the regional export-based
economy since the global economic downturn of 2008/2009.
A large share of future industrial employment growth is expected to be driven by the Goods Movement
sector, which includes transportation activities as well as warehousing, storage and logistics companies
Industrial24%
Commercial Retail
22%
Commercial Non-Retail
16%
Institutional17%
No Fixed Place of
Work12%
Work at Home
9%
Source: Watson & Associates Economists Ltd.
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 33
and transportation support activities (including numerous public agencies, private firms and individual
shippers and receivers). This sector is accommodated in a range of industrial building typologies
reflecting the diverse sub-sectors that comprise the sector. This includes uses such as distribution
centres, warehouses, fulfillment centres, delivery depots, logistics hubs, corporate office buildings of
major logistics companies, trucking terminals, multi-tenant warehouses and terminals, cold storage
buildings and transportation yards. Increased outsourcing of manufacturing production to emerging
global markets continues to drive the need for new consolidated, land extensive warehousing facilities
to store and manage the distribution of goods produced both locally and imported from abroad. This
continues to drive demand for increasingly larger warehousing facilities, typically located in
competitively priced greenfield locations across the west/north G.T.H.A. As previously identified in the
Phase 1 Report, Milton has a strong and growing presence in the Goods Movement sector. Future
employment growth prospects across the west G.T.H.A. in this sector are expected to be a major driver
of future employment land needs in Milton.
Construction also represents a key industrial growth sector for the Town. As previously discussed in the
Phase 1 report, this sector has represented the Town’s fastest growing industrial sector over the past 10
years. This sector is anticipated to continue to experience strong employment growth driven by future
residential and non-residential development activity identified for the Town and surrounding region.
As previously discussed in the Phase 1 Report, Milton has a strong concentration of mature industry
clusters in the manufacturing sector. This includes a broad range of manufacturing sectors related to
metals, aerospace, automotive, plastics, chemical products and processed foods. While these industry
clusters are anticipated to experience limited growth, they remain an important component of the
economic base and offer future growth opportunities. Looking forward, small to medium-scale
manufacturing sectors which are capital/technology intensive are anticipated to offer the greatest
growth opportunities within the Town’s manufacturing sector.
COMMERCIAL EMPLOYMENT
The commercial sector represents the largest employment growth sector in Milton. This sector is
anticipated to increase by 42,800 jobs over the 2016 to 2041 period, comprising approximately 38% of
total employment growth. Commercial employment growth within retail and non-retail (i.e. office)
employment sectors is anticipated to be relatively well balanced. Key trends include:
Commercial Retail Employment – Approximately 58% (24,875 jobs) of commercial employment
growth over the forecast period is anticipated to be directly related to population-related
employment sectors, including retail, personal services and accommodation/food services,
finance and insurance and information and cultural industries (i.e. commercial retail
employment). Employment in the commercial retail sector is expected to increase from 9,450 in
2016 to 34,325 in 2041. Strong growth in retail employment is expected to be largely driven by
steady long-term population growth forecast for the Town.
Commercial Non-Retail Employment – Approximately 42% (17,950 jobs) of commercial
employment growth is anticipated to be within the non-retail sector. Key commercial non-retail
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 34
employment growth sectors include business services, professional, scientific and technical
services and research and development. These sectors are typically accommodated within
standalone and multi-tenant office buildings. Commercial non-retail employment is forecast to
increase from 1,950 in 2016 to 19,900 in 2041. As previously discussed in the Phase 1 Report, the
shifting regional economic structure towards the knowledge-based and creative class economy
is anticipated to be a key driver of the Town’s commercial non-retail employment sector.
INSTITUTIONAL EMPLOYMENT
Milton is anticipated to experience relatively strong employment growth in the institutional sector,
largely driven by the need for increased health services, higher education (including the Milton Education
Village) and other institutional facilities (i.e. cultural, religious, schools) associated with the strong
forecast population growth. Institutional employment growth is forecast to increase from 5,675 in 2016
to 23,975 in 2041, an increase of 18,300.
WORK-AT-HOME EMPLOYMENT
Over the next 25 years, Milton’s work-at-home employment is forecast to increase by 10,400, driven by
increased opportunities related to telecommuting and potential work schedule flexibility, most notably
in knowledge-based employment sectors.
NO FIXED PLACE OF WORK
A significant share of Milton’s employment has no fixed place of work (N.F.P.O.W.). Statistics Canada
defines N.F.P.O.W. employment as “persons who do not go from home to the same work place location
at the beginning of each shift.”5 Such persons include building and landscape contractors, travelling
salespersons, independent truck drivers, etc. This employment category is largely comprised of jobs in
construction (i.e. building and landscape contractors), transportation (i.e. truck drivers), retail (i.e.
travelling salespeople) and health and social services (i.e. home care, health and social workers). For the
Town of Milton, N.F.P.O.W. employment is expected to steadily increase from 4,475 in 2016 to 18,100 in
2041, an increase of 13,625.
3.3 EMPLOYMENT LAND NEEDS FORECAST APPROACH
Building on the long-term employment forecast presented in section 3.2, anticipated employment land
need requirements have been identified based on consideration of the following:
The estimated share of employment growth on employment lands by major employment
sector (industrial, commercial, institutional);
Existing and forecast density (i.e. jobs/net hectare) of employment on employment lands;
5 Statistics Canada. 2011 Census Dictionary.
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 35
Historical and forecast industrial land employment absorption by employment type (i.e.
general vs. prestige) and sector (i.e. manufacturing, warehousing and distribution, office
commercial, etc.); and
The amount of long-term net employment lands currently designated for employment uses but
currently not developed (vacant) within the Town of Milton.
3.4 EMPLOYMENT ON EMPLOYMENT LANDS
Forecast employment land demand for the Town of Milton is ultimately driven by the share of future
growth of employment on employment lands and the anticipated density of new development. As such,
long-term employment land demand in the Town of Milton has been determined through the
consideration of the following:
WORK-AT-HOME EMPLOYMENT AND NO FIXED PLACE OF WORK EMPLOYMENT
As identified in section 3.2, forecast employment growth has been categorized into five broad categories,
including primary, industrial, commercial retail, commercial non-retail and institutional. These
categories have been aggregated from specific employment sub-classifications based on the North
American Industrial Classification (NAIC) system. As a first step, all estimated “work-at-home”
employees have been excluded from the employment land needs analysis, as these employees do not
require land in the Town’s designated employment areas. “No fixed place of work employees,” e.g.
landscape contractors, travelling salespersons, independent truck drivers, etc., are also excluded from
the employment on employment lands forecast. Similar to work-at-home employees, these employees
are not anticipated to have an impact on long-term employment land needs in Milton.
AMOUNT OF EMPLOYMENT BY SECTOR TO BE ACCOMMODATED ON EMPLOYMENT LANDS
As previously identified, employment lands continue to be a focus for industrial uses, but increasingly
include office, certain institutional and other employment supportive land uses (i.e. ancillary/accessory
retail).
The forecast breakdown of employment growth by major sector on employment lands for the Town of
Milton, as summarized in Figure 3-8, has been derived based on a review of the following:
A spatial analysis of existing local businesses in employment areas:
A review of recent development trends in Milton’s employment areas; and
A review of permitted uses on employment lands within the Town of Milton.
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 36
Figure 3-8: Town of Milton Proportion of 2016 to 2041 Employment Growth on Employment Lands by Sector
Figure 3-9 summarizes forecast employment on employment lands over the short-term and long-term
forecast periods, based on the assumed allocation of growth on employment lands assigned by major
employment sector discussed above. Over the 2016 to 2041 period, Milton’s employment lands are
anticipated to accommodate 44% of the Town’s total employment growth, totaling approximately
49,000 jobs.
Figure 3-9: Town of Milton Forecast Employment Growth on Employment Lands, 2016 to 2041
ACCOMMODATION OF EMPLOYMENT GROWTH THROUGH INTENSIFICATION
It is recognized that a portion of forecast employment on employment lands growth will be
accommodated through intensification. Over the 2016 to 2041 period, an estimated 5% of employment
growth is expected to be accommodated through intensification. It is anticipated that the majority of
this intensification will be accommodated through infill and expansion of existing developed properties
(discussed in Section 5). Over the past five years, moderate expansion activity within developed
employment areas has occurred and this is expected to continue over the longer term as the Town
continues to grow and mature and employment land prices continue to appreciate. To evaluate the
Town’s ability to meet this target, however, the Town should monitor intensification development in
employment areas on a go-forward basis.
Employment Sector
Percentage of Total
Town Employment on
Employment Lands
Industrial 99%
Commercial-Retail 20%
Commercial - Non-Retail 80%
Institutional 15%
Source: Watson & Associates Economists Ltd.
2016-2021 2016-2026 2016-2031 2016-2036 2016-2041
Primary 0 0 0 0 0 0%
Work at Home 0 0 0 0 0 0%
Industrial 2,640 7,320 15,145 21,085 26,915 99%
Commercial-Retail 665 1,690 2,895 3,990 4,975 20%
Commercial - Non-Retail 560 3,385 8,095 11,330 14,375 80%
Institutional 335 890 1,610 2,240 2,745 15%
NFPOW 0 0 0 0 0 0%
Total 4,200 13,285 27,745 38,645 49,010 44%
Source: Watson & Associates Economists Ltd. Numbers may not add precisely due to rounding.
Percent on
Employment
Lands
(2016-2041)
Employment Type
Employment Growth on Employment Lands
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 37
FORECAST EMPLOYMENT DENSITY ON EMPLOYMENT LANDS
As previously discussed in the Phase 1 Report, the average employment density on employment lands in
Milton is 17 jobs per net ha (7 jobs per net acre); however, average employment densities on employment
lands in the past decade in Milton have declined to 16 jobs per net ha (6 jobs per net acre). This relatively
low employment land density in Milton is strongly influenced by the large share of development in the
warehousing/logistics and transportation sector which tends to be characterized by large, land extensive
uses with relatively low employment yields.
Despite the downward impacts of the Goods Movement sector on average employment density levels
on employment lands in Milton, there are a number of future trends which are expected to have a positive
impact on average employment density levels in Milton as the Town’s industrial market continues to
mature over time. These include:
An increasing share of “knowledge-based” employment – intensive in human capital
characterized by high employment densities;
Steady forecast employment growth in the commercial office sector which is typically
associated with significantly higher employment densities relative to industrial uses;
An increasing share of employment-supportive uses on employment lands which typically have
higher employment densities than industrial uses;
A gradual decline in the future share of large-scale developments in the wholesale trade and
transportation/logistics sector, replaced in part with an increasing share of smaller standalone
and multi-tenant uses which have moderately higher employment densities. This trend is
expected to be driven by both upward pressure on employment land prices in Milton and
diminishing land supply opportunities for land extensive employment sites over the long term.
In accordance with the above-mentioned factors, it is foreseeable that future densities on employment
lands in Milton will gradually increase relative to existing conditions and recent development activity. As
summarized in Figure 3-10, a forecast employment land density of 21 jobs per net ha (9 jobs per net acre)
is assumed over the next five years with a gradual increase to 32 jobs per net ha (13 jobs per net ha) over
the longer 2016 to 2041 forecast period.
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 38
Figure 3-10: Town of Milton Target Employment Density
3.5 EMPLOYMENT LAND DEMAND
Figure 3-11 summarizes forecast demand for employment lands from 2016 to 2041 in five-year
increments in accordance with the assumptions developed in section 3.4. Forecast employment land
demand for the 20-year period is also provided. Key observations include:
Over the 2016 to 2041 planning horizon, Milton is forecast to add a total of approximately
49,010 jobs on employment lands of which 2,450 (5%) are anticipated to be accommodated
through intensification and 46,560 are expected to be accommodated on vacant employment
lands. Over the 2016 to 2036 period, 36,715 jobs are forecast to be accommodated on vacant
employment lands;
Milton is forecast to absorb an annual average of 59 net ha (146 net acres) of employment land
per year over the 2016 to 2041 period, significantly higher than historical trends;
Over the 2016 to 2036 and 2016 to 2041 periods, the total employment land demand is forecast
to total 1,196 net ha (2,956 net acres) and 1,478 net ha (3,651 net acres), respectively;6 and
Average annual absorption rates are forecast to increase over the forecast period, peaking over
the 2026 to 2031 period. Employment land absorption is expected to decline slightly thereafter
(post 2031), largely as a result of a continued increase in employment density and a marginal
slowdown in employment growth on employment lands due in part to the aging regional labour
force.
6 Total employment land demand for 2016 to 2036 is based on 60 net ha per year X 20 years = 1,196 net ha (148 net acres per year X 20 years =
2,956 net acres). Total employment land demand for 2016 to 2041 is based on 59 net ha per year X 20 years = 1,478 net ha (146 net acres per
year X 20 years = 3,651 net acres).
Jobs per net
Acre
Jobs per net
Ha
2016-2021 8 21
2021-2026 12 29
2026-2031 14 34
2031-2036 14 34
2036-2041 14 35
2016-2036 12 31
2016-2041 13 32
Source: Watson & Associates Economists Ltd.
Period
Employment Density
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 39
Figure 3-11: Town of Milton Forecast Employment Land Demand, 2016 to 2041
3.6 EMPLOYMENT LAND NEEDS TO 2036 AND 2041
Figure 3-12 summarizes forecast employment land need for the Town of Milton over the 2016 to 2036
and 2016 to 2041 planning horizons. In accordance with the existing supply of developable designated
vacant employment lands (i.e. 462 net ha or 1,142 net acres) versus long-term demand, Milton does not
have a sufficient supply of designated employment lands to meet long-term needs to 2036 or 2041. As
of 2036, a net deficit of 734 net ha (1,813 net acres) has been identified. By 2041, this deficit is expected
to expand to 1,016 net ha (2,510 net acres). With the strong employment land demand forecast over the
next decade and the relatively limited supply of designated employment lands, it is anticipated that the
Town will have a shortfall of vacant designated employment land within the next decade (2016 to 2026).
Figure 3-12: Town of Milton Employment Land Need to 2041 based on Designated Employment Land Supply
Based on the land needs analysis completed, a minimum of 734 net ha (1,813 net acres) and 1,016 net ha
(2,510 net acres) of additional designated vacant employment land is required to accommodate forecast
employment growth to 2036 and 2041, respectively. The identified net land need does not reflect site-
specific takeouts, including open space, arterial roads/rail, stormwater ponds and easements. Based on
a review of the Town’s existing occupied employment areas, a net to gross ratio of 80% is recommended.
Gross lands do not include provincially significant environmental features as defined in Section 2.2.7.3 of
the Growth Plan.
Jobs/ net
Acre
Jobs/ net
HaNet Acres Net Ha Net Acres Net Ha
2016-2021 4,200 210 3,990 8 21 469 190 94 38
2016-2026 13,285 665 12,620 10 26 1,205 488 120 49
2016-2031 27,745 1,385 26,360 12 30 2,203 892 147 59
2016-2036 38,645 1,930 36,715 12 31 2,956 1,196 148 60
2016-2041 49,010 2,450 46,560 13 32 3,651 1,478 146 59
Source: Watson & Associates Economists Ltd.
1. Assumes 5% of employment will be accommodated through intensification
Growth
Period
Total
Employment
on
Employment
Lands
Intensification
on
Employment
Lands1
Total
Employment
on
Employment
Lands
Adjusted for
Intensification
Employment DensityTotal Employment
Land Demand
Annual Employment
Land Absorption
2016-2021 2016-2026 2016-2031 2016-2036 2016-2041
Net Employment Land Demand (Ha) 190 488 892 1,196 1,478
Net Employment Land Supply
(Designated) (Ha)462 462 462 462 462
Net Employment Land
Surplus/ (Shortfall) (Ha)272 (26) (430) (734) (1,016)
Watson & Associates Economists Ltd.
Time Period
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 40
The following section explores options for designating additional employment lands within the Town and
their required timing/phasing.
3.7 OPTIONS TO DESIGNATE FUTURE EMPLOYMENT LANDS
As previously discussed, Milton has a number of Employment Growth Areas which the Region and the
Town have proposed to be designated for employment uses after 2021. This includes lands within the
Milton Education Village, Southwest Milton (CN Lands), Trafalgar/Derry Lands and Milton 401 Industrial
and Business Park Expansion Area lands.
Based on the employment land needs analysis presented in Figure 3-13, the Town’s Planned Employment
Growth Area lands are expected to be needed in their entirety within the 20-year planning horizon. The
Milton Education Village lands are currently in a secondary planning process and are anticipated to be
available for development within the required time frame. Planning for employment uses within the
Trafalgar/Derry Lands, Southwest Milton and the Milton 401 Industrial and Business Park Extension
lands, however, will need to commence in the short term to ensure they are available over the next
decade.
Figure 3-13: Town of Milton Employment Land Need to 2041 based on Designated and Planned Growth Areas Employment Land Supply
Over the longer term (post-2031), the Town will need an additional 209 net ha (516 net acres) and 491
net ha (1,213 net acres) of employment land, beyond the supply of designated and planned Employment
Growth Areas identified, to satisfy demand to 2036 and 2041, respectively, as presented in Figure 3-13.
This will require designating approximately 35% of the Town’s inventory of Future Strategic Employment
Areas (1,400 gross ha) to meet demand to 2041. It is recommended that the subject lands be those in
closest proximity to Highways 401 and 407 and the Trafalgar/Derry Lands are identified as priority areas.7
7 The identified net land need does not reflect site-specific takeouts, including open space, arterial roads/rail, stormwater ponds and easements.
Based on our analysis of the Town’s existing occupied employment areas, a net to gross ratio of 80% is recommended. Gross lands do not include
provincially significant environmental features as defined in Section 2.2.7.3 of the Growth Plan.
2016-2021 2016-2026 2016-2031 2016-2036 2016-2041
Net Employment Land Demand (Ha) 190 488 892 1,196 1,478
Net Employment Land Supply
(Designated + Planned Growth Areas)
(Ha)
987 987 987 987 987
Net Employment Land
Surplus/ (Shortfall) (Ha)797 499 95 (209) (491)
Watson & Associates Economists Ltd.
Time Period
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 41
Figure 3-14: Town of Milton Employment Land Needs, 2016 to 2041
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 42
3.8 POTENTIAL IMPACT OF THE PROPOSED CN INTERMODAL PROJECT
ON MILTON EMPLOYMENT LAND NEEDS
As previously discussed, southwest Milton contains a significant share of the Town’s future employment
lands. The area contains approximately 37% and 43% of the Town’s supply of Planned Employment Areas
and Future Strategic Employment Areas, respectively. Given its locational attributes and potential
synergies with the neighbouring Milton Education Village, the area is well suited for prestige
employment uses, including office development, to accommodate research and development,
professional and technical services as well as advanced manufacturing. As such, the Town is planning for
the area to achieve relatively high land utilization and employment yields
As discussed in the Phase 1 Report, CN owns a large share of the Planned Employment Areas and Future
Strategic Employment Areas within southwest Milton. CN’s land holdings cover an area of 457 gross ha
(1,129 gross acres), which includes 84 gross ha (208 gross acres) of Planned Employment lands and 167
ha (413 gross acres) of Future Strategic Employment Areas. CN is proposing the development of a large
intermodal facility on the site. Initial concept plans provided by CN indicate that 84 gross ha (208 gross
acres) of the Planned Employment lands, and upwards of 48 gross ha (119 gross acres) of the Future
Strategic Employment lands, would be utilized for the intermodal facility.8 This represents approximately
12% and 3% of the Town’s supply of Planned Employment and Future Strategic Employment lands,
respectively. By its nature the intermodal facility, characterized by a rail yard and transfer facilities, is
expected to accommodate limited employment and achieve relatively low employment densities.
The impact of the proposed CN intermodal facility would likely have a significant influence on the built
form and sectors accommodated on the remaining Planned Employment Areas and Future Strategic
Employment Areas within southwest Milton. It is anticipated that the development of an intermodal
facility in Milton would be the catalyst for the development of an industry cluster centered around the
transportation/logistics sector, accommodating sectors with employment densities and employment
yields lower than what the Town is envisioning for this area.
The CN intermodal facility proposal raises a number of challenges for the Town in its ability to meet
future employment land needs. First, the intermodal facility would remove a notable share of Planned
Employment lands from the Town’s employment land supply inventory. This would exacerbate the
shortfall in employment land supply identified in Figure 3-13 and require the Town to identify additional
Future Strategic Employment Areas to be designated within the long-term planning horizon. Secondly,
the anticipated industrial uses that would likely be accommodated within the remaining future
employment lands in southwest Milton would likely generate lower employment densities than what is
envisioned for the area. This would make it more challenging for the Town to meet its employment
density targets and accommodate future employment growth within the additional employment lands
identified. It is recommended that, should formal plans for the CN intermodal facility be finalized, a
8 Concept plan encompassing main terminal site and south option.
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 43
comprehensive review of the impacts of the proposed facility on the Town’s employment land needs be
assessed through a subsequent study.
4.0 EMPLOYMENT LAND CONVERSION
The Phase 1 study outlined the policies from the PPS, Growth Plan and ROPA 38 that direct when and
how the conversion of employment lands can be considered. OPA 31also reiterates the ROPA 38 policies
used to assess the conversion of employment lands to non-employment uses through a MCR. The Phase
1 report initially identified a number of additional criteria to be considered which reflect the local
economy and local needs of the Town. In addition to the policy considerations, criteria related to
economic vitality, land use compatibility and community benefits were assessed for each site.
The MCR work completed in 2014 by the Town assessed vacant employment land sites where there had
been interest in a conversion by the property owner and select vacant lands where a conversion to a non-
employment use were warranted further consideration from both a land use planning and economic
perspective, based on a set of established evaluation criteria. The MCR also looked at occupied industrial
sites under conversion pressure that could be considered as candidates for conversion.
Two specific sites were evaluated through the MCR process. The Meritor Suspension Systems Company
(MSSC) property and the Bruhm property were both considered for potential conversion to
commercial/mixed use development. The MSSC site is located at 150 Steeles Avenue and is designated
as Business Park Area by OPA 31. The Bruhm site is located in the Derry Green Corporate Business Park
at Highway 401 and James Snow Parkway. The MSSC site was recommended for conversion whereas the
Bruhm site, while considered through the MCR report, is no longer warranted due to pending
development plans.
4.1 ASSESSMENT OF POTENTIAL SITES
The Town identified the following five sites/areas to be assessed as potential conversion sites:
Former Meritor Suspension Systems Company (MSSC) Site
Bronte Street Corridor from Derry Road to Main Street
Steeles Avenue Corridor
McKinley Lands
Urban Growth Centre, Allendale Campus and E.C. Drury Lands
In addition, a request was made to consider the lands at the southwest corner of the Derry Green
Corporate Business Park. These lands are referred to as the Trinison South lands. As noted, the Bruhm
Lands within Derry Green Corporate Business Park were not given further consideration following the
MCR process in 2014. Figure 5-1 on page 49 illustrates the location of the potential sites for consideration.
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 44
In undertaking the assessment of the potential sites for conversion a detailed assessment according to a
number of criteria was completed. A detailed table with the assessment of each site is found in Appendix
B. Information was collected for each site including the Regional and local Official Plan policies, current
zoning, a description of the existing use, land area and lot frontage, and a general description of the site
including surrounding land uses. Additional physical and environmental features of the site were noted
including the site’s current servicing availability and capacity and transportation access. Each site was
then assessed based on a number of specific criteria related to land use compatibility, local economics
and the local context.
In undertaking the assessment of the identified sites it was determined that the Allandale Campus, EC
Drury sites as well as the Urban Growth Area were not considered conversion sites as they were not
within an employment area as defined by the Growth Plan, ROPA 38 or OPA 31. These three areas,
however, do offer the potential for intensification through redevelopment which could increase
opportunities for jobs. The Town is currently undertaking a Downtown Study which will include further
consideration of the potential for additional office development within the Downtown. As previously
mentioned, the Allandale Campus is also being assessed for potential redevelopment through a study
being undertaken by the Region of Halton which is the current landowner. EC Drury represents one of
the large majorly institutional facilities within the Town. Its location on Ontario Street just south of the
Urban Growth Centre provides for a strategic location for potential redevelopment.
The site known as the McKinley Lands is located on the north side of the 401 west of Regional Road 25.
The McKinley lands were previously designated, prior to Official Plan Amendment No. 22 (OPA 22) to
the 2007 Official Plan, with a site specific exception and policies to permit large scale retail uses. OPA 22
removed those permissions. When OPA 31 was developed in 2010, the McKinley Lands were reinstated
with the Major Commercial Centre designation. OPA 31 as endorsed by Council maintains the McKinley
lands as a Major Commercial Centre. The site is however under the Region’s employment overlay.
4.2 RECOMMENDATIONS FOR CONVERSIONS
The following is a summary of the assessment of each potential site and a recommendation related to
the conversion of the site for non-employment uses.
MERITOR SUSPENSION SYSTEMS COMPANY (MSSC) SITE
As previously noted, the Meritor Suspension Systems Company (MSSC) Site was considered for
potential conversion through the 2014 MCR work. The recommendation from the initial MCR was
that the MSSC site warranted conversion. It is surrounded by residential uses to the east and
natural heritage system to the west. The site was determined to be able to provide 0.7 million
square feet of commercial and mixed-use development.
Currently, the MSSC site is located within the Milton 401 Industrial and Business Park. The site is
more connected physically to the residential communities south of Steeles (site includes Martin
Street Junior Public School which is currently under reconstruction) rather than to the industrial
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 45
development to the north. As a large contiguous parcel, it also provides flexibility for
redevelopment. Any redevelopment will have to be considered in the context of industrial uses
to the north to ensure there are adequate separation distances and mitigation measures in place
so as to protect nearby industry operations.
The MSSC site may have been subject to a recent sale (at the time of this report) and therefore
may continue as an employment use until such time as it is redeveloped. This should factor into
any amended designation or policy specific to the site.
Recommendation: That the MSSC Site be further considered for conversion to commercial and
potential residential uses in areas not formerly occupied by Meritor buildings subject to further study.
BRONTE STREET CORRIDOR
The Bronte Street Corridor provides for a strip of designated and built out employment lands
located north of Derry Road between the CN Rail Line and Bronte Street. The area contains a mix
of uses including a commercial plaza and newer office buildings. These sites are surrounded by
residential uses.
This area provides for office, business commercial and other employment uses that are
accessible to the neighbouring residential communities offering opportunities for local residents
to be within walking distance of an employment area. The area is recently developed and
represents a viable and stable office area. It is also connected to future employment lands to the
south and current supportive employment services to the north via Bronte Street. Consideration
should be given to allow this area to intensify, including the provision of additional employment
supportive uses.
Recommendation: The Bronte Corridor area should remain designated as an office and business
commercial employment area.
STEELES AVENUE CORRIDOR
The Steeles Avenue Corridor has been assessed broadly and specific sites have also been
evaluated. Sites within the Steeles Avenue Corridor range in land area and in existing uses. Lands
located on the north side of Steeles Avenue are within the Milton 401 Industrial and Business
Park.
Lands on the south side of the corridor generally have smaller sites and fragmented ownership
and while sites on the north side provide opportunities for redevelopment, they should be
maintained as employment lands connected to the Milton 401 Industrial and Business Park to the
north. Existing residential uses are located further south of the corridor, as such the corridor also
provides a transition from residential uses to the industrial area.
There are two sites within the area that warrant consideration. First, the southeast corner of the
Steeles Avenue East and Martin Street intersection may be warranted for conversion as it is
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 46
connected to the Meritor site. Second, the southeast corner of the Steeles Avenue East and
Ontario Street North intersection may provide for an opportunity for expanded commercial uses
given its location and constraints.
Recommendation: The Steeles Avenue Corridor and the sites evaluated, with the exception of sites
1 and 3 noted above, should remain designated within the Business Park Area. These two sites
warrant further consideration within the report for intensification of employment uses as noted.
TRINISON SOUTH LANDS
The Trinison South Lands are located in southernmost portion of the Derry Green Corporate
Business Park Secondary Plan Area, east of the James Snow Parkway and Britannia Road
intersection. Trinison have submitted a request to have the lands considered for conversion on
the basis that there has been no market interest in the development of the lands for employment
purposes and the location of the lands are better suited for non-employment uses. Existing
residential uses are located on the west side of James Snow Parkway.
The majority of the lands are designated Business Park Area by the Derry Green Corporate
Business Park Secondary Plan and a strip of land along the east side of James Snow Parkway is
designated Prestige Office Area. Additional land use policies apply to the lands along James
Snow Parkway as they are within a Street Oriented Area.
Servicing for the lands in Derry Green Corporate Business Park is expected to be available at the
end of 2016. The lands in Derry Green Corporate Business Park would have transportation access
to Highway 401 via James Snow Parkway. Generally the lands are provided with planned
opportunities for a range of uses. Additional commercial uses are planned within the Boyne
Survey Lands that would also provide employment supportive services for the area.
The Trinison Lands are surrounded by existing and planned residential lands to the west, south
and east. However, they are a large contiguous block which can accommodate a range of
employment uses. There may be merit in considering additional employment uses on a portion
of these lands as a transitional area. Given their location there should be a requirement to
maintain a certain percentage of development with office uses to support job creation with
employment supportive uses.
Consideration for a broadening of employment supportive land uses on the lands may be
warranted.
Recommendation: A portion of the Trinison South Lands could be considered for a broader mix of
employment supportive uses.
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 47
5.0 EMPLOYMENT INTENSIFICATION
OPPORTUNITIES
Increasing employment density in Milton is a significant challenge for a number of reasons. Firstly, there
is a strong market for logistics and warehousing uses given the locational attributes of the land supply
that Milton provides. Secondly, the market for more intensive employment uses is currently stronger in
those municipalities within the Region that are in a state of development approaching build out and have
an existing strong corridor (such as the QEW) with supportive and connected transit. The office market
has not yet evolved into Milton to the same extent as it has in the municipalities to the east (Mississauga)
or south (Oakville and Burlington). These areas remain highly competitive for the current office market.
In looking at ways to intensify employment development and increase employment density, the Phase 2
report has addressed the following:
(i) intensification in existing employment areas;
(ii) increased opportunities in mixed use areas; and,
(iii) potential for opportunities through a special district/node approach with performance
targets to incent higher density.
5.1 INTENSIFICATION OF EXISTING EMPLOYMENT AREAS
Intensifying existing employment areas is an efficient way to increase the density of existing employment
areas. This approach relies on a strong base of existing businesses looking to grow in place. Firms often
benefit from expanding in their existing locations as they are able to expand operations and retain
employees without relocating. Employment land intensification provides opportunities to accommodate
increased economic and employment activity on a limited land base and use infrastructure more
efficiently.
Intensification of employment areas, similar to residential intensification, can take place at various
scales. Existing businesses seeking to expand may create a small addition or enlargement to its
operations on the same site. At this level of intensification, businesses may increase operations and jobs;
however, the overall increase in land utilization and employment growth may be of a limited scale. Older
industrial business parks may also see intensification through the severance of larger “campus” style lots
and the development of new offices or businesses. Many suburban type business parks are experiencing
“urbanization” as these business park areas have considerable undeveloped and underutilized land at
prime locations that are serviced with infrastructure and transit. Finally, in certain cases, opportunities
exist to redevelop older employment areas for higher density mixed-use development with office, limited
residential oriented to higher density built forms, and retail and service commercial uses at grade. This
type of intensification would generally warrant conversion of the employment area to a mixed use area
unless there are specific policies to recognize a specialized centre.
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 48
The types of employment intensification a municipality may experience is highly dependent on the local
context (is the municipality close to build out or still expanding its urban area), historical development
(age and form), demographics and market trends.
Allowing for growth and intensification within the built-up employment area can stimulate effective and
efficient employment development and create complete employment areas. Redevelopment should
ensure where possible that open spaces are retained and designed as attractive natural amenities in the
area. Most importantly, complementary accessory uses that support employment uses should be
considered to provide amenities for all employees. Promoting the introduction of complementary
accessory uses also allows an existing employment area to operate as a more complete and connected
area.
In order to support general employment land redevelopment and intensification of existing employment
areas in Milton, an evaluation of the developed employment area was undertaken. Employment land
intensification is less predictable than other forms of redevelopment since individual sites and business
operations also influence the intensification potential. Furthermore, each industrial use has a unique set
of building design, transportation, compatibility and locational requirements that influence its
appropriateness for intensification. These factors have been considered to the greatest degree possible
in the evaluation. It should also be noted that within the existing developed employment areas there are
sites that were also assessed as potential areas for conversion.
In evaluating the existing developed employment areas for intensification, the following questions were
considered:
Does the employment site or area have low land coverage and underutilized land?
Does the employment site or area have any environmental or physical constraints which would
limit intensification?
Are the existing structure(s) in the employment area near the end of the expected building
lifespan?
Are there employment areas with large surface parking areas that can accommodate parking
above or below grade in the future?
Are there high profile locations in employment areas, such as along major streets or at street
intersections, suitable for complementary and employment supportive uses?
Figure 5-1 provides a high level estimate of the land areas for the existing employment areas. In addition,
a survey of the predominant industrial sectors is also noted in Figure 5-2.
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 49
Figure 5-1: Estimated Area of Existing and Designated Employment Areas in Milton
Block
# Area
Estimated Employment Area
(sq. m.)
1 Northwest Milton 401 Industrial and Business Park (excluding the McKinley Site)
1,834,900
2 North Milton 401 Industrial and Business Park 4,003,200
3 Southwest Milton 401 Industrial and Business Park 1,797,300
4 Southeast Milton 401 Industrial and Business Park (including Steeles Avenue Corridor north side)
961,100
5 South Milton 401 Industrial and Business Park (including MSSC site)
435,400
6 Portion of Steeles Avenue Corridor 65,400
7 James Snow Parkway South of Highway 401 36,300
8 Bruhm Lands 627,200
9 Derry Green Corporate Business Park 5,506,100
10 Bronte Road Corridor 212,400
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 50
Figure 5-2: Observed Land Uses in Existing and Planned Employment Areas
Block
# Area
Current Observed Uses
Warehouse
Outdoo
r
Storage
Manufacturing Logistics
1
Northwest Milton 401
Industrial and Business Park
(excluding the McKinley Site)
x x
2 North Milton 401 Industrial
and Business Park x x x x
3 Southwest Milton 401
Industrial and Business Park x x x
4
Southeast Milton 401
Industrial and Business Park
(including Steeles Avenue
Corridor north side)
x x
5
South Milton 401 Industrial
and Business Park (including
MSSC site)
x x
6 Portion of Steeles Avenue
Corridor x x
7 James Snow Parkway South of Highway 401
x
8 Bruhm Lands
9 Derry Green Corporate
Business Park
10 Bronte Street Corridor x
The following is a summary of each area’s potential based on the survey and analysis.
BRONTE STREET CORRIDOR
The lands located along Bronte Street, north of Derry Road, south of Main Street are surrounded
by residential uses to the west and east. The rail line also abuts the western boundary of this area.
The area is built out with a mix of uses including a commercial plaza, a car dealership and a range
of industrial office complexes. As a small corridor of employment uses in close proximity to the
surrounding residential community and the GO station, the Bronte Street Corridor has limited
intensification potential at this time since the majority of the uses are relatively newer
construction.
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 51
Potential: Limited potential for intensification due to recently constructed newer buildings and
recent build out.
MILTON 401 INDUSTRIAL AND BUSINESS PARK AREA
The Milton 401 Industrial and Business Park abuts the north and south sides of Highway 401 and
has the largest concentration of employment lands in North Halton. This employment area has
a strong base in distribution/logistics, manufacturing and transportation uses which vary
between a general industrial and moderately prestige industrial character. The McKinley Lands
discussed in Section 5.1, are located on the north side of the Steeles Avenue Corridor and the
MSSC site identified in Section 5.2 is located within this business park area.
The older part of the park, located south of the Highway 401, has a more general industrial
character. The area is home to the majority of the Town’s large manufacturing businesses. The
area north of Highway 401 is characterized by more recent developments and while more
prestige in character, is dominated by wholesale trade, distribution/logistics and multi-tenant
industrial buildings. The area is comprised of a number of internal parks such as the Escarpment
Business Community and High Point Business Park. The majority of development on
employment lands over the past five years has been located in the northwest part of the
employment area. The business park is approaching build out with few parcels remaining as
vacant.
While there may be some limited opportunities to potentially expand some existing uses in this
area or add new uses by infilling some vacant land areas, the amount of additional intensification
is somewhat limited based on the current types of uses, form of buildings and existing coverage.
There appears to be one larger site (Toronto Auto Auctions) that may be redeveloped with a
more intensive use that would increase employment density. Many of the current operations are
also using the majority of their lands (buildings, outdoor storage and parking for both employees
and operational vehicles). As this area ages over the next two to three decades, there may be
some uses that “age out” of current operations. As a result, there may be the possibility for older
buildings to be refurbished and re-used for higher density type uses in the future. However, this
is not likely to occur in the short term given the additional supply of planned and future
employment areas and current market trends as described in the Phase 1 report.
Potential: Limited intensification due to expansive existing operations and limited additional land
area to expand. Toronto Auto Auctions represents approximately 150 acres which could be
repurposed for a more intensive employment use.
STEELES AVENUE CORRIDOR
Along the north side of Steeles Avenue, south of the 401, there is a mix of existing commercial
and industrial uses. Within this corridor there are a number of vacant sites on which additional
employment uses will be developed. Given the proximity to residential and commercial areas the
intensification along this corridor should be encouraged in the future.
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 52
Based on the current land supply and market context, as well as our area analysis, some
additional employment development within the existing built area should be possible over the
next twenty years and should be supported. Policies that provide for additional uses and density
in this area should be provided in the updated policies.
Potential: The Steeles Avenue Corridor provides for potential opportunities for intensification.
Additional policies will be provided in the draft amendments for this area.
The results illustrate that the existing areas will yield minimal opportunities for intensification
based on a number of factors including environmental constraints and the fact that most sites
are close to full usage/coverage with current buildings and outdoor operations. The nature of the
industries and sectors operating in most of the existing employment areas are also space
expansive and any future expansions as noted will take place on the ground level. Milton does
not have a volume of business or industries that are at a stage in their building cycle to be closed
and/or retrofitted.
Where there may be sites available for redevelopment, they are likely to be redeveloped for
similar or like uses in the short term. There is not currently a significant market for more intensive
office type uses within the older employment areas. The newer business park areas in Milton that
were assessed for intensification also contain predominantly lower density space expansive uses,
and as further noted do not contain the same level of vacant open space areas that traditional
campus style, suburban business parks provide which result in even less opportunity for
intensification.
As stated, there may be some limited opportunities to consider some increased potential for
service and institutional uses as well as employment supportive uses within the existing
employment areas. Expanding the business commercial nodes or site permissions along corridor
locations should be considered. Such uses can serve the older industrial areas and also provide a
transition between land uses to maximize compatibility. This approach has to be carefully
balanced and directed to appropriate geographic locations.
5.2 INCREASED OPPORTUNITIES IN MIXED USE AREAS
While not classified as employment lands or employment areas, mixed use nodes and commercial areas
within the Town can and should provide for increased employment opportunities. As was noted in the
Phase 1 report, the emphasis in employment land policy has been to focus on the protection of land for
employment and not on providing opportunities or increased jobs. Many jurisdictions which are
experiencing regeneration of older commercial and employment areas are implementing land use policy
to require a minimal amount of non-residential floor space dedicated to employment uses. While these
spaces may not be for primary employment jobs, they can accommodate service and retail jobs as well
as institutional sector jobs. These areas can also accommodate office uses and knowledge based services
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 53
which are attracted to a location that has a full range of supportive services and is in close proximity to
residential communities or actually integrated within the community itself. Requiring no net loss of
existing non-residential floor areas on larger site redevelopments or minimum percentages of office
development is an appropriate policy approach that can be considered as part of Milton’s strategy for
employment intensification and increased density. This approach also recognizes the structural changes
occurring within the regional and local economy to accommodate the growing knowledge based sector.
The Town’s Urban Growth Area (including Downtown Milton), the Allendale Campus and EC Drury
Campus, as well as the Secondary Mixed Use Nodes, all provide opportunities for intensification which
can include increased opportunities for mixed use development inclusive of commercial businesses and
jobs. Two recent studies which focused on the revitalization of existing areas may contribute to providing
for opportunities for increased employment.
Allendale Campus
Halton Region owns the property known as Allendale Campus at 185 Ontario Street South, which is the
current location for Allendale long-term care facility, Seniors’ Activity Centre, Halton Police Services,
Halton Region Emergency Medical Services (EMS), Halton Women’s Place facility, Martin House Seniors
Residence and a community garden. In 2016, the Region retained a consultant team to assess the
comprehensive land use potential of the site and to determine the highest and best land uses for the
property. The study is referred to as the Ontario Street Property Land Use Study.
Some of the development concepts contemplated are to be presented at initial public workshops in
August 2016. In general, the intensification of the Allendale site could provide a mix of residential and
employment uses. Given the location of the site, within the Milton’s Urban Growth Centre, the Allendale
Campus is well suited to support residential and employment intensification. Furthermore, it is the intent
of the land use study to meet the recommendations proposed by the 2010 Milton Intensification and Infill
Study for the UGC.
Milton’s Downtown Study
In early 2016, the Town of Milton initiated a set of studies to analyze downtown Milton's opportunities
for redevelopment and revitalization. Part of the work completed to date includes a market analysis of
Milton's downtown conducted by Watson and Associates. The findings of the market analysis are
intended to inform the types of growth that can be accommodated in a defined area within the
downtown and provided key market information such as vacancy rates, turnover rates and a suitable
range of uses. The market analysis was completed and identified redevelopment and revitalization
opportunities, and provided recommendations for policy changes, partnerships and redevelopment of
Town-owned lands (Milton Staff report PD-005-16 and PD-029-16).
The key findings are as following:
- 15 underutilized parcels within the study area totaling 1.8 net ha (4.4 net acres) which could
potentially accommodate redevelopment.
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 54
- The Town of Milton owns 65% of the underutilized parcels identified.
- Major parks and a flood plain are located within the study area.
- Approximately 381,000 square feet of non-residential floor space is located in the study area.
- Observed declining vacancy rate in the study area between 1998 and 2013 and stable vacancy
rate of 6% between 2013 and 2016.
- The study area has 1,525 jobs or approximately 4% of the Town’s employment base.
- The combined jobs and population density of Milton Downtown is approximately 81 peoples and
jobs per gross ha.
The study found that there are limited opportunities to accommodate office-based employment in the
Downtown due to its distance from the Town’s GO station and the historic nature of the area may limit
the size and scale of future redevelopment. The study projects a growth potential of 100 to 200 office-
based jobs between 2016 and 2031 for the Downtown. Approximately 200 to 300 new residents are also
projected for the Downtown area.
5.3 SPECIAL EMPLOYMENT NODES AND DISTRICTS
Milton has a great opportunity to expand the potential for employment within areas that are designated
but yet to be planned. The Trafalgar/Derry Lands has potential to create opportunities similar to that
which have been planned and are to be further studied in the Milton Education Village.
It is important to note that the Trafalgar/Derry Lands were being considered by Metrolinx as a part of
their new station analysis between 2015 and 2016. The analysis for new station on the Milton GO Train
Corridor was recently completed by Metrolinx. Unfortunately, the location was not recommended for
further study as it does not meet the objectives for the location of a new station at this time. This is a
complex situation as the Town is constrained in advancing those objectives. The Trafalgar/Derry Lands
should still be considered as a prime opportunity to create a mixed use node which is inclusive of
employment uses. This node should be distinctive and offer a complete employment community
approach. The expert panel conveyed that creating such a node takes patience and perseverance with
the market. Several municipalities have identified special employment nodes in their employment
policies to enable the maximization of employment opportunities within the area. The locational
attributes of the Trafalgar/Derry Lands and its connection to a potential GO Station can support the
introduction of community amenities. When combined, these assets can be used to foster economic
advantages for the node and attract knowledge based sector jobs that seek locations with community
based supports.
This area, as recommended in the earlier MCR work, should be a priority for the next planned
employment area through the designation of the lands from Future Strategic Employment Area to
Regional Node - Special Policy Area.
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 55
6.0 CHALLENGES FOR INCREASED JOB
CREATION AND MEETING EMPLOYMENT
OBJECTIVES
In the early 1990’s, Destiny Milton 1 was developed to provide a vision for the change that arose a result
of the extension of services to Milton and expected population increase. Destiny Milton 2 was completed
in 2006 to provide a comprehensive vision, goals and directions to further manage growth in the 2000’s.
Recently, Destiny Milton 3 was completed to set the vision and priorities for the next decade. Although
the strategic plan for Milton has adjusted over time, the goal of the Town of Milton to focus on job
creation and maintain a high standard of living for its residents and businesses that support and sustain
the assessment base has remained.
In addition to the strategic plan, Milton Council has also remained committed to its First Principles of
Growth (Report PD-070-08). The growth principles relate to the Region of Halton’s Sustainable Halton
Plan and the goals of Destiny Milton 2 to provide well-managed growth and to maintain a diverse,
sustainable economy. This report served as the foundation for Milton's continuing growth, “subject to
the Town's need to balance growth; physically administer the required infrastructure; and financially
manage the growth.”
Milton's First Principles of Growth include the direction to achieve” a balanced residential/employment
growth based upon a minimum 0.5 employee to resident ratio.” In addition, the First Principles also
encourage “the broadest range of employment opportunities beyond 2031”.
As noted in the Phase 1 report and in the initial Municipal Comprehensive Review report cited earlier,
while Milton has planned for and provided employment lands to accommodate growth and address land
budget and forecasting requirements to meet Regional and Provincial requirements, that land has been
absorbed predominantly by the manufacturing, logistics and transportation sector. Due to changes in
the economy and technology, employment from the manufacturing, logistics and transportation sectors
have been increasingly labour-efficient and land expansive. While these sectors have flourished in Milton,
taking advantage of strategic locations and providing significant assessment, the employment density
associated with these industries has translated into relatively low employment yields.
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 56
Figure 6-1: Milton Employment Total Employment, Activity Rate between 1996 and 2015
Employment land development in more dense forms to accommodate knowledge-based and office-
based sectors has been limited for a number of reasons as described in the Phase 1 report including
competing urban markets in surrounding municipalities, market conditions and locational attributes. As
noted by the “Performance Indicators for the Growth Plan for the Greater Golden Horseshoe”, in 2011,
very few municipalities were able to achieve the prescribed employment density. Within the Milton
context, the 0.5 employee to resident ratio was only achieved in Downtown Milton9. Town-wide in 2011,
there are approximately 0.38 employees to resident in Milton.
The work undertaken by this study has confirmed the need for Milton to maintain a land supply that can
accommodate the logistics sector. What is critical to Milton’s ability to increase its employment activity
rate is for the Town to ensure the current and future land supply provides those attributes and
opportunities that will attract knowledge-based and more employment intensive development. While it
is recognized that some of that future development will come as Milton evolves and builds out and older
areas begin to intensify and redevelop, a shift in employment planning also needs to occur. This shift
needs to better provide for employment land that serves more than just industries and facilities. It needs
to serve employees, be well connected and served by transit and the needs of smaller, evolving
businesses that accommodate knowledge based sectors. As is summarized in the next section of the
9 http://www.mah.gov.on.ca/AssetFactory.aspx?did=10849
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 57
report, the recent provincial plan review is recommending some changes to accommodate this shift with
a distinction between prime employment areas and general employment areas that need to be more
employee focused with a mix and range of uses and services. The Town however needs to strategically
consider a direction that not only revises its policies for employment lands by allowing for more employee
supportive uses at nodal locations but also introduces special policy areas that facilitate knowledge based
employment centres and innovation districts with performance based policies and a broader mix of uses.
Recommendations to amend policies and land use designations within the Town’s policy framework are
outlined in the report in Section 8.0. While many of these recommendations will align with the evolving
provincial recommendations, some will require consideration by the Region to provide flexibility within
its policies to recognize strategic locations for special districts and nodes within the Town.
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 58
7.0 PROVINICAL LAND USE PLANNING
CHANGES
On February 27, 2015, Ontario began the process of reviewing 4 provincial land use plans, including the
Growth Plan for the Greater Golden Horseshoe (Growth Plan), the Greenbelt Plan, and the Niagara
Escarpment Plan, and the Oak Ridges Moraine Conservation Plan. The first phase of public consultation
took place between March and May 2015. The public’s input informed an appointed 6-member Advisory
Panel, who provided recommendations on how to amend the plan. Their findings were released in
December 2015 in a report entitled Planning for Health, Prosperity and Growth in the Greater Golden
Horseshoe: 2015 – 2041.
Following the panel report, the Minister of Municipal Affairs and Housing (MMAH) issued the Proposed
Growth Plan for the Greater Golden Horseshoe in May 2016 for phase two of the public consultation. The
public, municipalities and government agencies will have an opportunity to provide feedback on the
proposed policy amendments for the four provincial land use plans until October 31, 2016. These
recommendations pre-dated the Phase 1 report and are important in the consideration of Milton’s
employment land planning.
7.1 FORECASTS
The proposed review updates its land use planning time horizon and forecasts. In the Proposed Growth
Plan, the Region of Halton is expected to grow to 850,000 people and 390,000 jobs in 2031 and to 1 million
people and 470,000 jobs in 2041.
This update will require Halton Region to update its growth forecast to reflect planned residential and
employment growth. Based on the updated projections, the Town of Milton may have a higher amount
of employment and residential growth pressures than previously anticipated.
7.2 INTENSIFICATION TARGET
The proposed recommended charges to the Growth Plan include an increase to intensification and
density targets for all upper- and single-tier municipalities. Proposed Policy 2.2.2.3 states the minimum
intensification target has increased to a minimum of 60 per cent of all residential development occurring
annually within the built-up area. This is increased from the 40 per cent intensification rate required
starting in 2015.
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 59
The increase of the intensification targets may place pressure for local municipalities to convert lands
within its built boundary to meet the increased lands of intensification. At the same time, intensification
may only be supported by the market at specific geographic locations.
7.3 MINIMUM DENSITY OF DESIGNATED GREENFIELD AREA
Proposed Policy 2.2.7.2 states designated greenfield areas will be planned to achieve a minimum density
target that is not less than 80 residents and jobs combined per hectare within the horizon of this Plan.
This new target is an increase from 50 residents and jobs combined per hectare. The updated Growth
Plan however, is proposed to now exclude lands in natural heritage areas, various rights-of-way
(highway, rail, utilities), and prime employment areas in the calculation of the minimum density of
designated greenfield areas.
The increase of minimum density of designated greenfield areas should be considered in conjunction
with the exclusion of prime employment areas. This may be beneficial to Milton given the low
employment density of Milton’s prime employment sectors. The Town of Milton can better plan and
allow for employment growth along its highway corridors through designating those lands as prime
employment area. At the same time, Milton’s greenfield residential density while historically higher (at
approximately 60 and jobs per ha in 200910) than the previous density target, (50) will provide for higher
densities in designated greenfield areas.
7.4 PROTECTING PRIME EMPLOYMENT AREAS
The Proposed Growth Plan also includes revisions to the employment policies. This section summarizes
the updates relevant to the Town of Milton’s land needs assessment.
Prime employment areas is a new term introduced by the Proposed Growth Plan as a more protected
level of employment area, beyond “employment area” defined in previous versions of the Growth Plan.
Proposed Policy 2.2.5.3 requires “suitable lands within settlement areas that are adjacent to, or in the
vicinity of, major goods movement facilities and corridors, including major highway interchanges, should
be identified as prime employment areas.”
In addition, the Proposed Growth Plan defines prime employment area as “areas of employment within
settlement areas that are designated in an official plan and protected over the long-term for uses that
10
http://sirepub.halton.ca/councildocs/pm/6/Sep%2016%202009%20InterMunicipal%20Liaison%20Committee%20IMLC1109%20%20Various%
20Scenarios%20of%20Densities%20and%20Hou%20%20IMLC1109%20Attachment%202pdf%2089150.pdf
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 60
are land extensive or have low employment densities and require these locations, including
manufacturing, warehousing and logistics, and appropriate associated uses and ancillary facilities.”
Employment area remains as a defined term, which is “areas designated in an official plan for clusters of
business and economic activities including, but not limited to, manufacturing, warehousing, offices, and
associated retail and ancillary facilities.”
As discussed previously, prime employment areas are excluded in the calculation of the minimum density
of designated greenfield areas. More protection is also afforded to prime employment areas, such that
its conversion to non-employment uses is more difficult. Specifically, Proposed Policy 2.2.5.5 states
prime employment areas are to be planned with freight-supportive land use patterns and residential and
non-ancillary land uses, such as institutional uses, and retail, commercial and office uses, are prohibited
from prime employment areas. In addition, Proposed Policy 3.2.4.3 further protects freight movement in
prime employment areas through the required establishment of priority routes to facilitate the
movement of goods into and out of prime employment areas.
The Proposed Growth Plan also provides more flexibly in employment areas. Proposed Policy 2.2.5.6
states that with the exception of prime employment areas, employment areas are to be integrate with
adjacent non-employment areas and “develop vibrant, mixed-use areas and innovation hubs, where
appropriate”. In addition, employment areas are permitted to have commercial uses at locations that are
support by transit. However, residential land uses and limit other sensitive land uses continues to be
prohibited.
The conversion of land use related to prime employment areas and employment areas operates as a
tiered system. The conversion of lands within prime employment areas to employment areas, or lands
within employment areas to non-employment uses may still only be permitted only through an MCR
(Proposed Policy 2.2.5.7). The conversion of lands within prime employment areas directly to non-
employment uses is prohibited (Proposed Policy 2.2.5.8).
7.5 EMPLOYMENT INTENSIFICATION AT TRANSIT-SUPPORTIVE AREAS
The Proposed Growth Plan reinstated the key objectives of the original Growth Plan but also added new
objectives. These new objectives focus on the provision of public transportation and intensification in
areas with planned and existing transportation services, including the following:
“2.2.1.2 e. focusing growth in areas with existing or planned transit, with a priority on
higher order transit;
2.2.1.2 g. providing convenient, multimodal access to intra- and inter-municipal transit,
giving priority to connections between residents and jobs;”
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 61
Related to these new objectives that focus on public transportation and connecting residents to jobs are
new provisions and targets for Transit Corridors and Station Areas. This includes the requirement for the
delineation of “Priority transit corridors” that connects to mobility hubs in local official plans. These new
density targets are additional to the density targets of the Urban Growth Centres, which includes
Downtown Milton that is required to plan for 200 resident and jobs combined per hectare.
Proposed Policy 2.2.4.5 states “Major transit station areas will be planned to achieve, by 2041 or earlier,
a minimum gross density target of:
200 residents and jobs combined per hectare for those that are served by subways;
160 residents and jobs combined per hectare for those that are served by light rail transit or bus
rapid transit; or
150 residents and jobs combined per hectare for those that are served by express rail service on
the GO Transit network.”
It is also noted that the minimum density targets for major transit stations do not apply to lands that have
been designated as prime employment areas (Proposed Policy 2.2.4.6). Given these new density targets,
it is important to analyze the development potential around a potential GO Train station which
contemplates higher density employment uses, such as offices, where appropriate.
The Proposed Growth Plan strategically directs employment to areas identified to intensify. Proposed
Policy 2.2.5.9 states “major office and appropriate major institutional development will be directed to
urban growth centres, major transit station areas or other strategic growth areas with existing or planned
frequent transit service.” A new definition of major office is provided that replaces the requirement for
buildings of 10,000 squares metres or more with buildings that are 4,000 square metres or provide for
200 or more jobs. New provisions are also added to support existing and planned office parks, including,
by improving connectivity with transit networks, providing for an appropriate mix of amenities and open
space to serve the workforce. Provisions are also provided for planning for intensification of employment
uses, and reducing the reliance on single-occupancy vehicle uses (Proposed Policies 2.2.5.10 and
2.2.5.11). These provisions can encourage intensification of existing employment area in Milton.
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 62
8.0 RECOMMENDED STRATEGIC DIRECTIONS
AND POLICY CHANGES
Through our review and analysis of Milton’s employment lands, the following recommendations are
provided for Council’s consideration. These recommendations area based on:
the analysis of the Phase 1 report findings;
Milton’s updated long term employment and employment land needs forecast;
Milton’s employment area growth potential including possible intensification sites the
conversion site analysis;
the recent recommended Provincial land use policy changes and the current Provincial, Regional
and local planning framework;
staff input and Council direction; and,
stakeholder and public input.
UPDATE THE EMPLOYMENT FORECAST
Based on the employment forecast to 2041, Milton will need to advance the planning of its current
designated and planned employment land supply to accommodate forecast employment growth within
the planning horizon as the entirety of these lands will be needed. It will be important to ensure these
lands are serviced to maintain the demand for the logistics and warehousing sector for which Milton has
a strong competitive market. It will be equally important to advance the planning of the Milton Education
Village as this area represents an opportunity to provide a centralized employment community around
the establishment of a major institutional facility to attract knowledge based sector employment.
The updated employment land needs forecast (Alternative Scenario) will require 461 ha of additional
employment land to be designated within the Official Plan. This represents the need for 35% of the
identified Future Strategic Employment Area.
CREATING A TIERED HIERARCHY FOR MILTON’S EMPLOYMENT AREAS
DEFINE MILTON’S PRIME EMPLOYMENT AREAS
Milton has a very strong logistics and warehousing sector that is highly competitive due to its
locational advantages. The logistics and warehousing facilities, in additional to the older
industrial areas in the Milton 401 Industrial and Business Park, should be recognized as Milton’s
“Prime Employment” areas. Consideration should also be given to which land use designations
(under OPA 31) should be included within the Prime Employment Area. Should the Prime
Employment Area only include the Industrial, Business Park and Prestige Office land use
designations? This would provide for the Office Employment and Business Commercial
designations being found under the General Employment Area of the Town.
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 63
This new overlay will reinforce the hierarchy of Milton’s employment lands and reflect the
Province’s direction to protect prime employment lands and to restrict non-prime employment
uses which the Town can define through its local Plan. While the Provincial recommendation is
fairly restrictive as it prohibits non-employment uses in the prime employment areas, the Town
should identify some nodal locations for employment supportive uses to ensure the prime areas
remain well serviced with accessible supportive uses.
Any defined future prime employment areas will also be excluded from the land area calculation
required to meet the greenfield density targets under the updated Growth Plan. Given the
importance of the logistics sector in Milton, this will assist in removing the effect of blending the
lower density of such uses from the higher density yielding uses within the greenfield area.
DEFINE MILTON’S GENERAL EMPLOYMENT AREA
In addition to identifying Milton’s Prime Employment Area, Milton’s General Employment Area
should also be defined in its plan. As noted, this area would likely include the Office Employment
and Business Commercial designations.
PROVIDE FOR MORE CONCENTRATED EMPLOYMENT SUPPORTIVE NODES
The Town should consider the provision of new nodal or updated corridor area policies that provide for
employment supportive uses which serve the employment area. The intention of these areas is to provide
for services that support the employment uses in the area and also provide for more compact uses within
a centralized area. Clustered concentrations of supportive uses at intersections, gateway locations, or
transitional areas (i.e. employment lands to commercial areas) or on key sites are recommended to
enhance the locational attributes and competitiveness of the employment area.
SPECIAL EMPLOYMENT NODES/DISTRICTS
The Phase 1 report noted the moderate office sector growth in Milton. In order to leverage the local
employment base and promote the office sector, there should be a focus on creating new locations for
concentrated employment opportunities in the form of urban office developments with a full range of
supportive uses, possibly including limited residential, as well as access to higher order transit.
The provision of knowledge intensive districts or suburban knowledge intensive districts (SKIDS) as they
are referred to in the Neptis Foundation’s "Planning for Prosperity: Globalization, Competitiveness, and
the Growth Plan for the Greater Golden Horseshoe”, can advance highly competitive locations to serve
the growing need for knowledge based sector centres. The MEV is already established as a district that
will evolve with the introduction of a major institutional facility. The Trafalgar/Derry Lands also has the
potential for a future GO station (although not formerly recommended at this time), which can provide
for higher density office development over time. The most important factor to be considered in planning
for this area will be to ensure that growth is managed. While it may take a significant amount of time
before the higher density offices evolve, maintaining the opportunity and not allowing for alternative
lower density uses will be important.
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 64
The Trafalgar/Derry Lands surrounding a possible future GO Station should be a priority in planning to
accommodate additional employment land needs.
LIMIT EMPLOYMENT SITE CONVERSION
Based on the analysis of the potential conversion sites, consideration should only be given to the
expansion of uses on the Steeles Avenue sites at Martin Street and Ontario Street North for commercial
uses. The previously recommended McKinley lands should continue to be designated as proposed for
commercial uses.
INTENSIFICATION IN NON-EMPLOYMENT AREAS TO MAINTAIN AND CREATE NEW JOBS
Redevelopment within the Town’s mixed use areas and Milton’s Urban Growth Centre represent an
opportunity to provide employment in office, retail and service commercial jobs. While there is limited
intensification potential in the older existing industrial areas, employment should be encouraged as part
of the intensification within the Central Business District and as part of the redevelopment of Allandale
Campus and the EC Drury site. Requiring a minimum amount of employment generating land uses within
mixed use development through redevelopment should be considered. The additional work being
undertaken by the Town related to the office market in Downton Milton will be important to consider
with updated policies that may require a minimum amount of office or commercial uses with
redevelopment. Many municipalities use performance targets or a “no net loss” provision for commercial
and office space when older areas are redeveloped for mixed use.
SERVICING AND INFRASTRUCTURE SUPPORT (INCLUDING TRANSIT)
Servicing and infrastructure for employment lands should be prioritized with early initiation of Area
Servicing Plans for the larger planned areas. Traditionally employment areas have been serviced through
the last phases of Secondary Plan development as they are often geographically located at peripheral
locations due to expansive land needs. While these peripheral areas are needed to accommodate lands
which due to compatibility requirements need to be separated, they are not attractive for smaller
businesses or knowledge based sector industries as they are detached from connected urban centres
which provide supportive transit and amenities. Smaller designated areas with supportive servicing
infrastructure need to be identified and prioritized through phasing and servicing policies. These areas
may be nodal or along key corridor locations.
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 65
8.1 OFFICIAL PLAN AMENDMENTS
To further assist staff, the following additional table references those areas of the Official Plan that
should be addressed to implement the study recommendations. This table assumes that OPA 31 is
approved as it should be used as the based for amendments going forward.
OP Section Proposed Change/Amendment
2.1.3.2 Urban Area Additional reference to employment intensification through UGC and
other mixed use sites. Reference to MEV and Trafalgar/Derry Lands
should be added to this section noting their importance and how they
are to be developed as a priority to achieve employment density.
2.1.4 Strategic Policies Addition of 2041 forecast numbers
2.1.6.5 Intensification Recognition of areas for employment intensification and supporting
policies should be included in this section.
2.4 Economic
Development
A reference to MEV and Trafalgar/Derry Lands should be added with a
general policy outlining importance of attracting knowledge based
sector jobs and objectives to achieve those jobs
3.3 Residential/Office
Area
Consider broader use permissions in these area rather than just limited
office uses. Also consider renaming this land use designation.
3.5 CBD Emphasize the importance of jobs as well as uses in the policy
language.
3.7 Employment Consider introducing a hierarchy within the Employment Area policies
based on Prime Employment and General Employment Areas and
Special Policy Employment Nodes/Districts. \Reorganization of the
Town’s current employment designations with updated policies in each
designation as noted.
Consider criteria for employment supportive uses under 3.7.1.3 which
would now be provided for in the General Employment Areas
“Employment supportive uses may be permitted within the general
employment land use designations at the locations noted and subject
to development criteria.
Add 3.7.2.2. (c) language to office employment policies to allow limited
service commercial and retail uses within office buildings.
Business Commercial Areas – These would be considered within the
General Employment area at nodal locations. The Town may want to
reconsider the caps on the retail permissions in these areas if they are
limited to nodal locations as the current cap appears relatively low.
Business Park Areas – These areas would form part of the Prime
Employment Area. The policies for these areas should be strengthened
to ensure secondary uses are limited. It will be important, however, to
ensure there are some supportive uses to service these areas at
peripheral, accessible nodes.
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 66
OP Section Proposed Change/Amendment
There is a need to clarify institutional uses (existing and proposed)
within employment areas, again given provincial direction. Adding
language that would provide for educational facilities and places of
worship to be located at peripheral locations within the area based on
established criteria to include land use compatibility and mitigation
measures including setbacks, buffers, and separation distances.
Special Policy Areas Add language to the proposed Regional Mixed Node from the MCR:
Provide for criteria for the node based on providing a complete
community. Include performance targets with minimum employment
densities and potential secondary uses with possible housing based on a
ratio of employment uses with the area being planned as an
employment centered hub.
Milton 401 Industrial and
Business Park
Remove the Major Commercial Centre out of employment area to
recognize the McKinley lands.
DRAFT Town of Milton Employment Land Needs Assessment Study
Phase 2 Analyses And Recommendations Report 67
9.0 CONCLUSIONS
The key purpose of the Employment Land Needs Assessment is to confirm the Town’s employment
land needs, and provide strategic direction and recommendations for the Town to implement in
planning for its future employment lands. The recommendations have been carefully developed with
consideration for the current and future market context, the Provincial and Regional policy framework,
the Town’s physical context, economic development goals and objectives and engagement with key
stakeholders and experts. The assessment work has been comprehensively undertaken in two phases
and has been guided by study principles established at the outset of the study.
The following are the key conclusions and recommendations of the study:
1. To meet its employment land needs to 2041, the Town needs to ensure it has 1,478 net hectares
of employment land. The Town currently has a supply of 987 hectares designated and in
planned growth areas, representing a shortfall of 209 ha between 2016 and 2036 and a shortfall
of 491 ha between 2016 and 2041.
2. In order to meet demand in 2041 the Town needs to designate approximately 35% of its
inventory of Future Strategic Employment Areas.
3. In designating new employment lands the Town should focus on areas that can strategically
provide for more employee centered districts with locational advantages and minimized
constraints.
4. To advance development in existing employment areas, the Town should update its current
policies to align with the evolving Provincial directions which defined prime employment areas
and general employment areas. Prime employment areas should be focused on Milton’s
historical industrial areas with the maintenance of policies to protect the operations and
functions within these areas. Policies for the general employment areas should be updated to
provide for more employment supportive uses at strategic locations and to advance
opportunities for higher density forms of employment within the Milton Education Village.
5. The conversion of current employment designated lands should be limited to those sites
previously supported through OPA 31 including the Meritor lands.
6. A broader range of land uses should continue to be provided within Milton’s mixed use areas to
support job creation opportunities.
7. The designation of additional employment lands to meet Milton’s longer term needs should
focus on the creation of special employment nodes/districts which shifts the creation of large
tracts for traditional employment land uses to smaller centers located at distinct, competitive
locations with access to transit and amenities and with opportunities for a mix of uses based on
performance targets for higher density employment.
8. Milton remains in an excellent position to build on its existing success due to its economic
development activity and competitive advantage and the opportunity to create new
investment opportunities to expand its knowledge based employment sectors with future
planned areas.
DRAFT Town of Milton Employment Land Needs Assessment Study Phase 2 Analyses And Recommendations Report
APPENDIX A
Public Survey Responses
DRAFT Town of Milton Employment Land Needs Assessment Study Phase 2 Analyses And Recommendations Report
Town of Milton Employment Land Needs Assessment Study Phase 1
Public Survey Responses
Question 1:
Question 2:
DRAFT Town of Milton Employment Land Needs Assessment Study Phase 2 Analyses And Recommendations Report
Question 3:
Question 4:
DRAFT Town of Milton Employment Land Needs Assessment Study Phase 2 Analyses And Recommendations Report
DRAFT Town of Milton Employment Land Needs Assessment Study Phase 2 Analyses And Recommendations Report
Question 5:
DRAFT Town of Milton Employment Land Needs Assessment Study Phase 2 Analyses And Recommendations Report
APPENDIX B
Assessment of Potential Conversion
Sites
DRAFT Town of Milton Employment Land Needs Assessment Study Phase 2 Analyses And Recommendations Report
DRAFT Town of Milton Employment Land Needs Assessment Study Phase 2 Analyses And Recommendations Report
DRAFT Town of Milton Employment Land Needs Assessment Study Phase 2 Analyses And Recommendations Report