DRAFT CENTRE PLAN OCTOBER 2016
DRAFT Prepared for Halifax Regional Municipality
Prepared by O2 Planning + Design Inc.
DRAFT 1 Introduction 2 2 General Policies 32
1.1 The Centre Plan’s Purpose 3 2.1 Land Use & Design 33
2.1.1 LAND USE 34
1.2 The Role and Scope of the Centre Plan 4 2.1.2 URBAN DESIGN 35
1.2.1 ALIGNMENT OF THE CENTRE PLAN 4
1.2.2 PLANNING PROCESS 8 2.2 Mobility 39
1.2.3 PLAN ORGANIZATION, MAINTENANCE, AND USE 10 2.2.1 GENERAL 40
1.2.4 THE REGIONAL CENTRE CONTEXT 13 2.2.2 COMPLETE STREETS 40
2.2.3 PUBLIC TRANSIT 40
1.3 Vision 18 2.2.4 PEDESTRIAN COMFORT & ACTIVE TRANSPORTATION 41
1.3.1 CENTRE PLAN VISION STATEMENT 18 2.2.5 CONNECTIVITY 42
1.3.2 THE REGIONAL CENTRE IN 2031 19 2.2.6 PARKING 43
1.3.3 CORE CONCEPTS 20 2.3 Public Spaces & Places 45 1.4 Theme Areas 24 2.3.1 GENERAL 46
1.4.1 LAND USE & DESIGN 25 2.3.2 COMMUNITY FACILITIES 47
1.4.2 MOBILITY 26 2.3.3 PARKS AND OPEN SPACES 47
1.4.3 PUBLIC SPACES & PLACES 27
1.4.4 CULTURE & HERITAGE 28 2.4 Culture & Heritage 51
1.4.5 HOUSING 29 2.4.1 HERITAGE 52
1.4.6 SUSTAINABILITY 30 2.4.2 CULTURE 57
1.4.7 JOBS & ECONOMIC DEVELOPMENT 31 2.5 Housing 59
2.5.1 GENERAL 60
2.5.2 AFFORDABLE NON-MARKET HOUSING 62
2.5.3 SPECIAL CARE FACILITIES 62
2.6 Sustainability 63
2.6.1 GENERAL 64
2.6.2 WATER 64
2.6.3 WASTE 65
2.6.4 ENERGY 66
2.6.5 LAND 66 DRAFT2.6.6 BIODIVERSITY 68
2.7 Jobs & Economic Development 69
2.7.1 GENERAL 70
2.7.2 BUSINESS ENVIRONMENT 71
2.7.3 KEY EMPLOYMENT AND INDUSTRIES 72
2.7.4 COMMUNITY SERVICES AND SUPPORT 73
iii | 3 Urban Structure Policies 74 4 Implementation & Monitoring Plan 120
3.1 Urban Structure Hierarchy 75 4.1 Land Use By-law Changes 121
3.2 Downtowns 78 4.2 Development Application Implementation Actions 124 3.3 Centres 80 3.3.1 LAND USE 82 4.3 Design Manual 127
3.3.2 BUILT FORM 83
3.3.3 MOBILITY 84 4.4 By-law Implementation Actions 128
3.4 Corridors 96 4.5 Further Study, Investigations 3.4.1 LAND USE 98 and Comprehensive Planning 129
3.4.2 BUILT FORM 99
3.4.3 MOBILITY 100 4.6 Funding/Grant Opportunities 134
3.5 Future Growth Nodes 102 4.7 Process Recommendations 135
3.5.1 GENERAL 104
3.5.2 LAND USE 105 4.8 Partnership Opportunities 136
3.5.3 BUILT FORM 106
3.5.4 MOBILITY 106 4.9 Pilot Projects 138
3.5.5 PUBLIC SPACES AND PLACES 107
3.5.6 NODE SPECIFIC POLICY 107 4.10 Staff Resources 139
3.6 Residential Areas 108 4.11 Information Distribution 140
3.6.1 LAND USE 110
3.6.2 BUILT FORM 110 4.12 Monitoring 141
3.6.3 MOBILITY 111
3.6.4 LAND USE 112
3.6.5 BUILT FORM 113 A Glossary 144
3.6.6 MOBILITY 113
3.7 Employment Areas 114
3.7.1 GENERAL 116 3.7.2 LAND USE DRAFT116 3.7.3 URBAN DESIGN 117
3.7.4 PUBLIC SPACES AND PLACES 118
iv | Centre Plan: Policy Direction Martin lake 111
Albro lake
Bedford Basin DARTMOUTH Lake banook
penhorn lake The Narrows oat hill lake
Maynard lake
111
111 Halifax harbour HALIFAX 111 DRAFT Northwest Arm
Figure 1: The Regional Centre is the urban core of the Halifax Regional Municipality and includes the Halifax Peninsula and Dartmouth within the Circumferential Highway. 1 Introduction
DRAFT 1.1 The Centre Plan’s Purpose
The Centre Plan Project is helping to create a Secondary Municipal Planning Strategy that guides the development, use, and form of the Halifax Peninsula and Dartmouth (within the Circumferential Highway), an area known as the Regional Centre. The Regional Centre is expected to undergo significant change over the next 15 years in order to accommodate up to 33,000 new residents by 2031. This will require many new services, businesses, buildings, and amenities to successfully accommodate this significant growth.
The Centre Plan is a plan to create human-scaled and pedestrian oriented complete communities to meet the needs of a diverse population while accommodating growth in a strategic manner. This Plan was created in a comprehensive manner by focusing on seven themes to ensure a holistic and interdisciplinary approach to the key trends, opportunities and challenges facing the Regional Centre today and into the future. These seven themes are land use and design, mobility, public spaces and places, culture and heritage, housing, sustainability, and jobs and economic development.
The Centre Plan is divided into four sections:
͙͙ Introduction: This section provides the context for the Centre Plan in terms of policy as well as current challenges and trends. It also provides the overall vision and core concepts that guide the policy direction and content for the rest of the plan.
͙͙ General Policies: This section delves into each of the theme areas by setting objectives and outlining policy directions responding to those objectives.
͙͙ Urban Structure Policies: This section focuses on how growth can occur DRAFTthroughout the Regional Centre in terms of form and use. ͙͙ Implementation and Monitoring: This section sets up an implementation plan, metrics for success, and a monitoring framework to ensure the plan is adaptable and remains relevant in a changing and growing Regional Centre.
Introduction | 3 1.2 The Role and Scope of the Centre Plan
1.2.1 Alignment of the Centre Plan
Halifax Regional Municipality Charter The power to plan is granted to municipalities by the Province of Nova Scotia. In the case of Halifax Regional Municipality (HRM), the enabling legislation is Part 8 of the Halifax Regional Municipality Charter. The Centre Plan was developed in keeping with the requirements of the Charter, and is intended to be adopted as a Secondary Municipal Planning Strategy as enabled by HRM Charter.
Regional Municipal Planning Strategy (2014) In 2006, Council developed and adopted the Regional Municipal Planning Strategy (Regional Plan). Council then reviewed and updated this document in 2014. The Regional Plan sets out policies for how the municipality develops and grows until the year 2031.
The Regional Plan recognizes the importance of the Regional Centre, and includes a chapter dedicated to the topic. Included in this chapter is a set of eight guiding principles for planning in the Regional Centre (see right). These guiding principles form the foundation of the Centre Plan and are woven throughout the policies of this Plan.
Priorities Plans The Regional Plan identifies the need for a number of ‘Priorities Plans’ to guide the management and operations for many of the municipality’s responsibilities. Priorities Plans lay out the detailed actions required to carry out the policy objectives of the Regional Plan on topics such as business park development, public art, and the urban forest. Where applicable, the actions identified in the Priorities Plans are implemented for the Regional Centre through this Centre DRAFTPlan. As Priorities Plans are developed during the lifespan of the Centre Plan, they will be incorporated into the Plan during the regular review and monitoring periods.
A number of other plans have also informed the development of the Regional Plan and the Centre Plan. The chart on page 6 highlights these plans, including how they guide the Centre Plan.
4 | Centre Plan: Policy Direction GUIDING PRINCIPLES FROM THE REGIONAL PLAN
Sustainable Complete Neighbourhoods Design, plan and build with respect for Support safe, mixed-use and diverse economic, environmental, social and neighbourhoods, including: affordable cultural sustainability. housing and a variety of tenures; residential, commercial, employment uses; and visually Create resilient communities that adapt to and physically accessible amenity space, evolving opportunities and needs. including schools and parks within walking distance.
High Quality Ensure the necessary public services and New development should be of high quality amenities to support quality of life, and compatible with other high quality cohesive communities and creative places. developments.
Promote high quality architecture and Growth and Change urban design that respects great heritage Ensure that new developments respond to resources, including neighbourhoods. the natural, cultural, historical, and urban character of their context.
Heritage and Culture Direct change and intensification to areas Heritage resources, including heritage that will benefit from growth. districts, buildings, landscapes and cultural Every new building should contribute to the heritage, should be recognized, used, betterment of the public realm. protected and enhanced. Design should support accessibility, active Ensure lasting legacies (buildings, open transportation and transit (i.e. streets, land spaces and streets) are maintained, and uses, neighbourhoods, open spaces, new ones are created. circulation systems).
Movement Process Integrate land use planning with Foster a culture of support for the building/ transportation planning in such a way that construction of quality urban design. alternatives to driving become an easy Recognize and reward design excellence. choice. Transportation options should be efficient, pleasant and readily available. Involve neighbourhood communities in local All streets should present an inviting planning matters. barrier-free environment that considers the Maintain opportunities for public comfort, convenience, safety and visual participation in the implementation of HRM interest of pedestrians. by Design.
The Regional Centre,DRAFT in all ways, should be Foster predictable outcomes that have conducive to, and supportive of, active been tested to be achievable and fair. transportation movement. It should provide people with choices that are viable alternatives to driving. Connected Prominent views to prominent natural and built features should be recognized, protected and enhanced.
Enhance safe and appealing connections within the Regional Centre including to and from the waterfront, open spaces and neighbourhoods.
Introduction | 5 REGIONAL PLAN
CENTRE PLAN Downtown Dartmouth Plan Downtown Halifax Plan
PRIORITIES PLANS
The Moving Forward Together Plan Community Facilities Master Plan ͙͙ Includes a redesign of the transit route network and service ͙͙ Intended to align community facility investment with public improvements, supports a sustainable transportation system, need and highlights the importance of transit in promoting a compact ͙͙ Calls for increased access to community facilities urban form ͙͙ Recommends connecting schools to active transportation networks Active Transportation Priorities Plan ͙͙ Recommends reinvestment and new development of ͙͙ Objective of doubling the number of residents who choose to community facilities in the Regional Centre walk or bike ͙͙ Identifies priorities for upgrades to the active transportation Cultural Plan network ͙͙ Strategy to build HRM’s cultural identity and manage its cultural ͙͙ Recommends community development patterns that support assets and encourage active transportation use ͙͙ Resulted in the Public Art Policy, which sets out the procedures for acquiring and creating public art Business Parks Functional Plan ͙͙ Recommends enhanced protection and promotion for heritage ͙͙ Notes a general shortage of viable light industrial lands assets ͙͙ Recommends promoting the Woodside Industrial Park as a life ͙͙ Encourages a high standard of community and urban design sciences hub ͙͙ Recommends redevelopment of the Cogswell Interchange with Greater Halifax Economic Strategy an emphasis on providing land for strategic development needs ͙͙ Recommends increasing density in the Regional Centre, particularly on underutilized lands and along transit corridors Climate Change Risk Management Strategy ͙͙ Recommends investments in transit, active transportation, ͙͙ Identifies the risks the Regional Centre faces from climate cultural institutions, and the public realm change ͙͙ Recommends a more efficient development approvals process ͙͙ Recommends limited development in high-risk areas ͙͙ Suggests district heating/cooling in Downtown Halifax ͙͙ Recommends updated design criteria for infrastructure Regional Parking Strategy Functional Plan Community Energy Plan ͙͙ Recommends revised parking standards ͙͙ Promotes energy efficiency and sustainability ͙͙ Suggests specific direction on parking design and locations for ͙͙ Encourages the construction of district energy systems and the Regional Centre energy-efficient buildings ͙͙ Encourages active transportation and transit ͙͙ Encourages transit and active transportationDRAFT ͙͙ Encourages development regulations that support urban Transportation Demand Management Functional Plan agriculture and renewable energy ͙͙ Aims to improve efficiency of the transportation network ͙͙ Encourages development patterns and building forms that Community Engagement Strategy reduce the need for personal automobiles ͙͙ Sets out a series of actions to improve the Municipality’s community engagement efforts in all aspects of municipal Urban Forest Master Plan operations, including planning ͙͙ Includes neighbourhood-specific plans of action for increasing tree cover and diversity ͙͙ Recommends development standards that encourage retention of existing trees and planting of new trees
6 | Centre Plan: Policy Direction DRAFT
Introduction | 7 1.2.2 Planning Process
The Centre Plan is the culmination of an evolving planning process that included extensive analysis and public engagement. The beginnings of the project trace back to 2006, when municipal staff, following direction within the Regional Plan, created an administrative boundary for the Regional Centre and undertook a program of work to guide future growth for the area. This program, called HRMbyDesign, provided a vision for the Regional Centre which addressed the quality, nature, and intensity of public and private development within it. The HRMbyDesign program involved a public engagement strategy that included open houses, workshops, charrettes, media events, and establishment of the Urban Design Task Force. HRMbyDesign helped produce the Downtown Halifax Secondary Municipal Planning Strategy, which was completed and adopted in 2009, and the Neighbourhood Greenprint, which was partially completed in 2010. Though not fully released, the Neighbourhood Greenprint was intended to guide future planning initiatives to create sustainable neighbourhoods, and provided important background information for the development of this plan.
In 2011 HRM initiated analysis and public engagement to identify several commercial corridors in the Regional Centre that were appropriate to focus growth and development. This work, in conjunction with further study and public engagement completed in 2016, was used to determine the appropriate size and location of growth areas within the Regional Centre.
With a renewed focus and community direction provided in the 2014 Regional Plan, municipal staff relaunched the Centre Plan Project in 2015. This work, which included additional analysis, research, and public engagement, was the final component in creating the Centre Plan.
In addition to guidance from the Community Design Advisory Committee (CDAC), direct community participation has occurred throughout the Centre Plan Project. A Kick-Off Event was the first major public presentation of the Centre Plan Project. Held in March 2016, the open house served as an introduction to the Centre Plan, and an opportunity to receive preliminary feedback from the DRAFTpublic on the seven Plan Themes. At the same time a website was launched where members of the public could find more information related to the project, sign up for updates, and share strengths and opportunities of the Regional Centre through an online mapping tool.
8 | Centre Plan: Policy Direction 2006
Adoption of the 1st Regional Plan Following the Kick-Off Event, a series of Community Workshops were held in
Internal staff create Regional Centre May 2016 across the Regional Centre. These workshops provided opportunities administrative boundary and begin urban design study, HRMbyDesign for the public to share with the Project Team knowledge of their community and specific changes they would like to see. Throughout the spring and summer of 2009 2016 meetings with interested parties and stakeholders were held to share Completion and adoption of the information about the Project, and also gather information to shape policy Downtown Halifax Plan direction. 2010
Neighbourhood Greenprint Plan Using the input gathered from the public, market analysis, and performance indicators; the Project Team developed an urban structure hierarchy to 2011 determine where and how the Regional Centre should grow. Public input on the Launch of HRMbyDesign urban structure was sought at an open house in June 2016, where three growth Phase II scenarios outlined how anticipated population growth may be distributed Commercial Corridors Study through different building forms. A re-launched online mapping tool also enabled people to comment where and how growth in the Regional Centre should be 2014 accommodated.
Adoption of the 2014 Regional Plan Taking all of the public and stakeholder comments and feedback, the Project CENTRE PLAN PROJECT 2015 Team drafted policy direction throughout the summer. These were then refined after input received by municipal staff. Together, with introduction, Stakeholder Outreach and Technical Studies: implementation and monitoring sections, these policies are presented in the Setting Centre Plan Targets Draft Centre Plan. 2016
FEB Online Portal Launch centreplan.ca
MARCH Kick-Off Open House
APRIL Launch of Public Online Mapping Tool
MAY Neighbourhood Workshops
JUNE Growth Scenarios Open House
JULY + AUG Pop-Up Engagement at Public Events
DRAFT PLAN ROLL-OUT
SEPT 21 Overview of Key Directions Public Release OCT 11 Objectives & Policies DRAFT Public Launch Event
OCT 19 Urban Structure Release & Presentation
OCT 26 Release of Full Draft Centre Plan
NOV Draft Plan Community Conversations
2017
Completion and adoption of the Centre Plan
Implementation and Programs
Introduction | 9 1.2.3 Plan Organization, Maintenance, and Use
IMPLEMENTING THE CENTRE PLAN This Plan will be implemented in many ways and used by multiple people including Councillors, municipal staff, developers, planners, architects, community members and organizations. This section describes the key ways these individuals will use the Plan.
Providing Clarity to the Public The Centre Plan will provide clarity to the public as to where growth should occur in the Regional Centre and how it can be supported.
Guiding Municipal Decisions Council and Administration will use the Centre Plan as a tool to support and guide corporate decision making about growth, capital investment, municipal initiatives and budgeting. The Centre Plan is a Secondary Municipal Planning Strategy that covers many areas and will assist with cross departmental coordination to facilitate the alignment of directions, work programs, and capital projects.
Facilitating Investment and Providing Certainty Private sector investment is essential in achieving the vision and objectives of the Centre Plan. The Plan in turn provides direction and certainty for businesses, developers, organizations, community groups, and residents about the future direction for the Regional Centre.
Guiding Rezonings and Development Permits The guidance housed within the Centre Plan will help the Halifax Regional Municipality make development decisions. This Plan defines the appropriate land use mix tailored to the urban structure to inform rezonings. Built form guidelines will aid in the development permit process by providing certainty to property owners and community members. This is especially pertinent in areas identified DRAFTfor urban intensification.
Urban Design This Plan will help inform projects related to public realm improvements, street enhancements, open space plans, and other municipal land and design decisions. It will also provide the basis for design manuals by informing the design of buildings, especially how they function at the ground level.
10 | Centre Plan: Policy Direction INTERPRETING THE CENTRE PLAN When using this Plan, ‘The Municipality’ refers to the Halifax Regional Municipality as a municipal government, whereas ‘the municipality’ and ‘HRM’ is used to describe the physical areas of the municipality.
The ‘Regional Centre’ refers to the Halifax Peninsula and Dartmouth within the Circumferential Highway, with the addition of Lakeshore Park Terrace and Wallace Heights, as they have their strongest connection with the Regional Centre.
The policies are written in the active tense to indicate the direction for future development and outcome.
Under the provisions of the Halifax Regional Municipality Charter, a municipality cannot regulate directly from a Municipal Planning Strategy; rather, it must regulate from a Land Use By-Law adopted by the Municipality to carry out the intent of the Plan. It should, therefore, be noted that there is an essential distinction in the policies of the Plan as they relate to this point, such distinction being defined by the use of the words “should” or “shall” in the policies. Where “shall” is used in a policy relating to a land use matter, it points to implementation of that policy through zoning regulations. Similarly, where “should” is used, the policy, for the purposes of land use control, will apply to any decision on a development application, rezoning, or zoning amendment made by Council.
Implementing actions, initiatives and programs identified in the plan will need to be reviewed against the priorities and municipal financial capacities of current and future budgets as well as departmental work plans.
REVIEW OF THE CENTRE PLAN A major review of the Centre Plan should take place every five years to ensure that the objectives and policy directions remain relevant and appropriate by considering updated growth projections, market trends, community values and the Municipality’s financial capacity. For this reason, targeted metrics of success are defined as well as key implementation actions in Section 4 Implementation DRAFTand Monitoring Plan.
Introduction | 11 DRAFT
12 | Centre Plan: Policy Direction 1.2.4 The Regional Centre Context
THE REGIONAL CENTRE’S TRANSFORMATION The Mi’kmaq First Nations are the original inhabitants of the area we now call the Regional Centre, with evidence of permanent settlement dating as far back as 10,000 years ago. Originally called K’jipuktuk (che-book-took), the shores of the harbour were used as fishing grounds in the summer months. Evidence of seasonal Mi’kmaq campsites has been found in various locations around the harbour, including at Dartmouth Cove.
The first Europeans to visit the area were likely Basque fishermen; however, it was Great Britain who, in 1749, established the first permanent European settlement in the immediate area with the founding of the Town of Halifax. The new settlement was laid out in a manner typical of British military planning of the time, with a regular grid system protected by fortifications. In that same year, the British established a sawmill on the Dartmouth side of the harbour. In 1750, the sailing ship Alderney arrived with settlers, who took up residence in what is now Downtown Dartmouth.
For better or worse, the evolution of the Regional Centre has been closely tied to war. Economic fortunes in Halifax and Dartmouth waxed and waned as conflicts such as the War of 1812, the American War of Independence, and the World Wars resulted in direct military investment, shipbuilding and repair, and business opportunities supplying various militaries. War has also shaped the Regional Centre physically. In 1917, the Halifax Explosion levelled many areas in the North End of Halifax and portions of Dartmouth. In the booming post-World War II years, much of the Regional Centre’s housing stock was built to accommodate returning servicemen and their new families.
As a major port, the Regional Centre has been the point of entry—and often the ultimate home—for many waves of immigrants. The history of the Regional Centre includes groups fleeing war or religious persecution, seeking out new economic activities, or bringing skilled trades to local infrastructure projects. The Loyalists, Black Refugees, Quaker whalers, Scottish and Irish stonemasons, DRAFTLebanese communities, Kosovar and Syrian refugees, and many more have each left their unique mark on the Regional Centre’s architecture and diverse cultural identity.
Introduction | 13 The past 60 years have been a period of intense change for the Regional Centre. The opening of the two harbour bridges, in 1955 and 1970, connected Halifax and Dartmouth. Suburbanization led to the depopulation and decline of the Regional Centre. Urban renewal efforts forced the eviction and resettlement of Africville residents, led to the construction of Scotia Square, and started the construction of the (ultimately abandoned) Harbour Drive highway project along the Halifax waterfront.
Recent years have seen a renewed interest in living and investing within the Regional Centre. The Downtown Halifax Secondary Municipal Planning Strategy, adopted in 2009, provided a planning framework in Downtown Halifax to In 2011, there were accommodate this renewed interest. Similarly, the objective of the Centre Plan is 94,809 People to provide a modernized framework for the entire Regional Centre.
113,835 Jobs THE REGIONAL CENTRE TODAY 49,570 Dwellings Today, the Regional Centre is the political, cultural, and economic heart of the in the REGIONAL CENTRE Halifax Regional Municipality and Nova Scotia. The Regional Centre is home to many major institutions, including four universities, two community college campuses, the Nova Scotia Legislature, Council for Halifax Regional Municipality, the headquarters and dockyards for the Canadian Navy’s Maritime Forces In 2011, there were Atlantic, two provincial museums, three Parks Canada National Historic Sites, and 390,096 People four hospitals. Its boundaries also contain two container ports, break bulk cargo facilities, shipbuilding yards, and an industrial park. These features, together with 216,701 Jobs the communities, people, history, and businesses environment, emphasize the 177,160 Dwellings important role the Regional Centre plays in the municipality and the province. in HRM It is useful to explore the business environment in the Regional Centre, particularly retail. Despite the growth of suburban, big box shopping areas, the Regional Centre retains a strong retail presence including local businesses. In 2011, there were Neighbourhood commercial streets, two regional shopping malls, numerous 921,272 People smaller shopping centres, and the revitalizing downtowns of both Halifax and Dartmouth serve the residents of the Regional Centre and beyond. This retail 435,895 Jobs sector benefits from the concentration and density of residents, employees, and 442,155 Dwellings tourists within the Regional Centre to provide the customers needed to create in NOVA SCOTIA DRAFTthriving commercial streets and retail areas. When examining employment in the Regional Centre, office development trends and patterns are an indicator of the larger economy. Today, in 2016, the Regional Centre is at the end of a significant office development cycle. Between 2008 and 2015, the amount of office space in the Regional Centre grew approximately 10%. At the same time, office vacancy rates in the Regional Centre climbed from 6.6% to 11.3%. If current economic trends continue, it will take some time for this new
(Source: Statistics Canada. 2012. Focus on Geography Series, 2011 Census.)
14 | Centre Plan: Policy Direction supply to be absorbed, or for older office buildings to be upgraded, demolished or repurposed for other uses. Though the current supply of office space is extensive at the moment; it is important to consider the possibility of another office development cycle to occur over the next 15 years.
In addition to considering landmarks, institutions, the retail environment and the office environment, it is also important to understand people and goods movement within and through the Regional Centre. The Regional Centre is connected to the broader municipality, the province, and beyond by passenger and freight rail, the harbour, a multi-use trail system, and an extensive highway system, which includes three 100-series highways originating within the Regional Centre boundaries. Within the Regional Centre, transportation often takes forms other than the personal automobile. Approximately half of Regional Centre residents get to work by walking, cycling, or taking transit. As demonstrated, the defining feature of movement within the Regional Centre in terms of goods and people movement, is the choice, variety and integration of multiple different transportation modes.
Overall, the Regional Centre has many advantages and strengths to build upon that define its character and role within the larger municipality. It is also important to note that within the Regional Centre are many communities and places with their own distinct character. Most notably, on a larger scale, are the former City of Dartmouth and the former City of Halifax. While these two communities are now joined under one municipal government, they retain their distinct community identities. Within each of these two former cities are many communities each with their own identities and character that contribute to the political, cultural and economic heart of HRM, the Regional Centre.
I AL H A IA Percentage of Population DRAFT
Age
Figure 2: Population by Age
(Source: Statistics Canada. 2012. Focus on Geography Series, 2011 Census.)
Introduction | 15 THE REGIONAL CENTRE’S GROWING CHALLENGES
The Municipality undertook extensive consultations in the process of creating the Centre Plan, as described in Section 1.2.2 Planning Process. These consultations identified a large list of challenges that residents currently perceive as being a concern in the Regional Centre, or that the Regional Centre will face over the next 15 years. These challenges are summarized below.
Physical Accessibility: Many of the Climate Change: As the world’s Suburban Competition: While there is Regional Centre’s buildings, sidewalks, climate changes, the Regional Centre evidence of a renewed interest in and public spaces were developed will see increased weather intensity urban living and the associated before society carefully considered the and heightened sea levels. The businesses that follow, the Regional mobility needs of all residents. As a challenge lies in both planning the city Centre continues to face competition result, many places in the Regional to be resistant to these impacts and in from suburban locations, where land Centre are currently inaccessible to creating buildings, transportation costs are typically lower and previously residents in wheelchairs or with other networks, and settlement patterns undeveloped land is often easier to mobility concerns. Retrofitting the that minimize the Regional Centre’s build on. existing structure of the Regional contribution to further climate change. Centre to make it physically accessible Diversity in Real Estate: A vibrant city to all users is a very large, but Changing Demographics: Like many depends on diversity in its businesses, imperative, challenge. communities across Canada, we have and diversity in its residents. This, in an aging population. However, some turn, depends on having a wide range Affordability: As new residents, communities within the municipality of available options for housing sizes businesses, and investments come to are experiencing an increase in young and types, and commercial spaces the Regional Centre this can place families and multi-generational available in a variety of sizes and upward pressure on both commercial families. The demographic shifts locations. As new development occurs and residential real estate prices. This throughout the Regional Centre can in the Regional Centre, efforts must be risks creating a Regional Centre that is create an imbalance between the made to ensure all segments of the unaffordable to many residents and needs of residents and the types of market are served. has trouble accommodating smaller facilities, services, and housing that are (often locally-owned) businesses. DRAFTcurrently available.
16 | Centre Plan: Policy Direction Finite Market Demand: New Process: Planning faces a central Sensitive Development: The Regional development is an opportunity to tension between providing certainty to Centre has a long history, which is improve the surrounding community. residents and landowners while being evident in its many historic buildings Underused lands, such as surface flexible enough to enable design and streetscapes. It is also home to a parking lots, can be put to better use innovation, the adaptation to changing diversity of established to contribute to the vitality of the city. market conditions, and the flexibility to neighbourhoods, cultural landscapes, However, there is a finite amount of keep pace with changing expectations. and cherished viewscapes. development demand that will occur in Development needs to work with the the Regional Centre over the life of Public Spaces: New residents moving features of the Regional Centre that this Plan; this limited amount of to the Regional Centre will place residents and visitors value. development should be guided to additional pressure on existing public areas that will provide the most spaces. With few opportunities to The Unknown: Technology and society positive impact to the Regional Centre acquire new public spaces within the are always evolving. Some trends can as a whole. Regional Centre, existing spaces will be anticipated while others cannot, require creative reinvestment to adapt which requires an adaptive and open Moving People: Transportation is the to both new residents and the evolving Centre Plan. lifeblood of a city. From a needs of existing residents. transportation point-of-view, the Regional Centre is challenged by its existing narrow street network; different forms of transportation are each vying for the same limited space. Moving forward, land use decisions must be well integrated with decisions about how to provide residents a DRAFT variety of transportation options and how to efficiently use the available transportation space.
Introduction | 17 1.3 Vision
The Regional Centre will build on its DISTINCTIONS AND ASSETS to nurture an urban context that enhances quality of life, enriches daily life and becomes a global destination. The Regional Centre’s cultural vitality is rooted in its DIVERSE POPULATION and accordingly it will strive to be an open, safe, affordable, accessible and welcoming place to The Regional Centre’s people of all walks of life. VIBRANCY, ANIMATION AND ECONOMIC HEALTH will be strengthened through the cultivation of a compact, civic inspired and human-scaled urban fabric of streets, The Regional Centre blocks and buildings. will assert and affirm a LEGIBLE AND ORDERED URBAN STRUCTURE that will reinforce the best qualities and characteristics of its unique neighbourhoods and The Regional Centre districts. is the SYMBOLIC, HISTORIC AND FUNCTIONAL HEART of the municipality. It is distinguished by its rich past as is evident in: its historic architecture, traditional neighbourhoods and nationalDRAFT landmarks; its natural features as shaped by its grand parks, harbour, lakes, waterways and 1.3.1 Centre Plan Vision Statement rolling hills; and its regional importance as an economic hub, capital district, Through the RP+5 process in 2014 the Municipality has endorsed educational centre, health focus and this vision statement for the Regional Centre. cultural heart.
18 | Centre Plan: Policy Direction 1.3.2 The Regional Centre in 2031
The Regional Plan sets out a target for at least 25 percent of HRM’s new housing units to be constructed in the Regional Centre. Given current trends towards urban living and the potential for greater growth, this plan supports up to 40 percent of HRM’s new housing units to be accommodated in the Regional Centre. By 2031, this could mean up to 33,000 new residents in the Regional Centre, which translates into an increase from 97,000 people today to 130,000 people.
With new residents will come demand for new commercial services, such as stores and restaurants. The population growth, along with economic growth across HRM may also put the Regional Centre into another office building cycle by 2031.
At the same time that the Regional Centre is growing, available land will be shrinking. At current rates of sea level rise, ocean levels in the Regional Centre will increase by 3.2 mm per year, or approximately 5 cm between 2016 and 2031. This does not, however, account for climate change. Council has endorsed planning for a scenario that would see relative sea levels increase by an average of 7.3 mm per year, or approximately 11 cm between 2016 and 2031.
These anticipated economic and environmental projections need to be examined in relation to the socio-cultural values of the community, respecting the Regional Centre’s rich history and character, promoting affordable homes and spaces, DRAFTcreating inclusive communities, and building upon existing community strengths.
Introduction | 19 1.3.3 Core Concepts
The vision of the Regional Plan is supported through Core Concepts which are woven throughout the Draft Centre Plan to ensure consistency and clarity in direction.
COMPLETE COMMUNITIES Complete communities are places that offer and support a variety of lifestyle choices. These choices enable people of all ages and abilities to live, work, shop, learn, and play in close proximity to one another. The Centre Plan provides the land use and design policies to promote the mixed use and compact development that enables people to safely and conveniently access the goods and services they need in their daily lives, all within a short journey.
The Regional Centre is comprised of many distinct and unique neighbourhoods, some of which are already complete communities, while others have some components of complete communities in place. The Centre Plan contains policies that, over time, will strengthen existing communities, enhance the elements that make a complete community and bring these elements to all communities within the Regional Centre. This is accomplished by establishing higher density mixed- use areas and by encouraging infill and a variety of housing forms to provide the necessary number of people to support a variety of businesses, services and public amenities, such as parks. These uses are then complemented by opportunities to walk, cycle and take public transit. All of these components, taken together, form a complete community. DRAFT
20 | Centre Plan: Policy Direction HUMAN SCALE Human scale design makes people feel at ease and allows them to relate to their surroundings. It refers to a relationship between the size, texture, and articulation of components of the urban environment that matches the speed and way that people move around cities. Buildings and streets, as well as elements like trees and street furniture, are all physical elements that can be designed and built at a scale that is comfortable for people. Moderately sized as well as taller buildings with a lower scale podium and architectural detailing work together with narrow streets, plazas, and small pocket parks create an intimate environment and comfortable experience. Human scale design makes urban environments more interesting, encourages exploration, and draws more people to local shops and services. The Centre Plan provides direction to scale the built environment to respect this scale.
DRAFT
Introduction | 21 PEDESTRIAN FIRST Pedestrians first policies incorporate elements of planning and urban design that prioritize the needs and comfort of pedestrians. The intent is to create safe, comfortable and more enjoyable environments for people of all ages and abilities to move through and enjoy. Pedestrians first design makes walking more convenient and viable as a transportation choice, as well as leading to other community benefits such as a reduction in emissions and improved public health.
Specific pedestrian orientated design elements include connected streets, short blocks, four way intersections, hard surfaced pathways and an extensive sidewalk network. Sidewalks, paths, and other pedestrian connections should link to key destinations like retail and services, employment centres, schools, and public transit stops. Pedestrian friendly sidewalks need to be wide enough to accommodate commercial activity and community interaction while still allowing for the unobstructed movement of people. Infrastructure and connections, in addition to amenities like benches, streets trees, and other landscaping elements, create a pleasant environment that promotes walking. In the Regional Centre, well-designed sidewalks are a key element of pedestrian oriented design. Since all citizens are pedestrians, placing pedestrians first improves the urban DRAFTenvironment for everyone.
22 | Centre Plan: Policy Direction STRATEGIC GROWTH To encourage economically and environmentally responsible growth, the Centre Plan is designed to accommodate 40% of the region’s growth throughout the Regional Centre. This growth will be distributed throughout the centre in context-appropriate forms. This means that the majority of growth throughout the Regional Centre will occur in moderate height buildings with tall buildings located strategically. Established residential areas can accommodate growth through hidden density, which means housing forms that do not alter the appearance and built character of the community, such as garden suites and secondary suites. This ensures housing choice while respecting the existing built character of the Regional Centre.
DRAFT
Introduction | 23 1.4 Theme Areas
To ensure a holistic approach to planning the Regional Centre, seven themes were identified to serve as lenses to understand the complexity of the Regional Centre, to build upon the Regional Centre’s strengths in different areas, and to emphasize how everything is interrelated. This approach, when combined with a robust public engagement process and focused analysis, leads to locally appropriate, relevant and consistent policy direction to guide the growth of the Regional Centre over the next 15 years.
DRAFT
24 | Centre Plan: Policy Direction 1.4.1 Land Use & Design
Issues and Trends: The Regional Centre is expected to accommodate up to 33,000 new residents by the year 2031. These new residents will require new buildings to house them, new businesses and services to meet their daily needs, and new jobs to employ them. This growth requires new buildings in a Regional Centre that has a limited supply of undeveloped land. Because of this, most new development will be infill in existing communities and redevelopment and intensification of strategic growth areas. The POPULATION DENSITY of the Regional Centre in 2011 was approximately 2850 PEOPLE/KM². Successfully accommodating this development will require smart planning and design. New buildings must be held to a high standard of design that strengthens, rather than weakens, the character of their neighbourhoods. They must build Between 2009 and 2015, upon and promote the history of the Regional Centre. They must contribute to the DENSITY BONUSING SYSTEM in downtown Halifax was used by complete communities that provide a high quality of life for residents. And they seven development projects, for a must be directed to areas that can best accommodate their particular scale and total of almost $1.4 MILLION function. IN PUBLIC BENEFIT.
The continued development of the Regional Centre must also respond to About 40% OF THE LAND AREA changing ideas of appropriate land use and urban structure. Separating land uses in the Regional Centre is GOVERNMENT-OWNED for uses was once the ideal for city planning, but today some mixing of residential, such as parks, street rights-of-way, commercial, and even some suitable light manufacturing uses is seen as an ports, the military, hospitals, appropriate and positive way to provide a complete and vibrant community. schools, and other institutions. In addition, areas of the Regional Centre that were once promoted for commercial strip development are now areas where residents desire finer grained, urban development.
Goal: A Regional Centre that accommodates growth strategically while respondingDRAFT to the local context in terms of land use and design. Relevant Documents Community Energy Plan Density Bonusing Study Regional Parking Strategy Functional Plan
Urban Forest Master Plan
Introduction | 25 1.4.2 Mobility
Issues and Trends: The trend in recent years—and a major topic in the public consultations for this Plan—is a shift away from designing our transportation systems primarily for moving cars to designing systems for moving people. This complete streets approach means planning streets in the Regional Centre with space for a variety The Halifax-Dartmouth Ferry is the of mobility options, including walking, cycling, transit, and the automobile. It also OLDEST SALTWATER FERRY means ensuring mobility options are available and accessible for people of all ages in North America, and the and all abilities. In recent years, the Regional Centre has seen progress towards second oldest in the world. creating complete streets, with the installation of bicycle lanes, reinvestment in Halifax Transit ferries carried sidewalk infrastructure, and improvements to the road network. With continued 1.62 MILLION PASSENGERS growth, this trend should continue to make the Regional Centre more walkable in the 2015/2016 fiscal year. and pedestrian friendly. Approx. 105,000 VEHICLES cross the MacDonald and MacKay Many parts of the Regional Centre are well-connected through a street grid, and bridges on an average workday. the geographic area of the Regional Centre is small, which means some residents The ACTIVE TRANSPORTATION can accomplish daily trips using different transportation options. However, other PRIORITIES PLAN proposes 5 km areas of the Regional Centre were developed in a disconnected manner, and are of bicycle lanes, 15 km of local street isolated from surrounding neighbourhoods. A strategic approach is necessary to bikeways, and 2 km of greenways in the Regional Centre by 2019. link these communities with transportation connections.
Planning for mobility also depends on directing growth to areas that best support diverse transportation options. Emerging strategies include “transit-oriented development”, where density is clustered around transit stops to maximize access to transit and support a viable transit system. Another strategy is to ensure larger, comprehensive developments, such as the Future Growth Nodes (see Section 3.5 Future Growth Nodes), incorporate a network of connections for different modes throughout the site. Building a connected grid of streets, sidewalks, and bicycle paths provides residents with a variety of route options for completing their DRAFTjourney and can reduce the distance they need to travel. Relevant Documents Goal: Active Transportation A pedestrians first Regional Centre where pedestrian Priorities Plan movement and comfort is the priority and where Regional Parking Strategy Functional Plan mobility and land use decisions are integrated.
Transportation Demand Management Functional Plan
26 | Centre Plan: Policy Direction 1.4.3 Public Spaces & Places
Issues and Trends: The Regional Centre contains a significant amount of land set aside for parks. However, this land is not evenly distributed throughout the Regional Centre, or are not well connected to the surrounding neighbourhoods. As the population of the Regional Centre increases there will likely be additional pressures on existing facilities. Expectations for parks are also changing; for example, community gardens and other forms of urban agriculture have taken root in many of the Regional Centre’s parks in recent years. A strategic approach is needed towards There are approximately parkland in underserved communities, to prepare existing parks for the pressures 517 HA OF PARKS and PUBLIC SPACES in the Regional Centre. of additional users, and to adapt to changing desires of what kind of services parks should provide. The Regional Centre has about 32 KM OF MARINE SHORELINE, however, only about There is also a growing recognition that public spaces and places do not come 9 KM IS ACCESSIBLE only in the form of parkland. The Dartmouth and Halifax waterfront boardwalks to the public. and the lakes of Dartmouth are some high-profile examples. However, there are also many plazas, courtyards, pedestrian streets, boulevards, and vacant lots or parking lots in the Regional Centre that are, or could be, used as public spaces both temporarily and permanently. Events, such as Switch:Open Streets Sundays, have shown that with proper planning the streets themselves can become public spaces that are used to experience the city, as opposed to just moving traffic.
Public spaces also include facilities such as libraries, community centres, and sports centres. Like other public spaces, these facilities are facing pressures to both accommodate new users and to adapt to changing trends. Examples include newly popular sports and the shifting role of libraries from primarily lending books to acting as comprehensive community hubs.
Goal: A green Regional CentreDRAFT where all residents have easy access to a network of high quality parks, trails Relevant Documents and open spaces throughout the Regional Centre Community Facilities Master Plan and into the broader region. Urban Forest Master Plan Point Pleasant Park Comprehensive Plan
Dartmouth Common Master Plan Halifax Common Plan
Introduction | 27 1.4.4 Culture & Heritage
Issues and Trends: The Regional Centre contains the greatest concentration of heritage resources in HRM. These resources represent a collective past and their stories define the character of the community, embody its history and values, and contribute to the sustainability and livability of its' varied and diverse neighbourhoods. Heritage As of summer 2016, the Regional buildings, parks, views and cultural gathering places enrich the daily experience Centre had 367 REGISTERED of the municipality, live in resident’s memories of place, and define the image of HERITAGE PROPERTIES and one the community. heritage conservation district, with two additional districts in development. The conservation of cultural heritage makes an essential contribution to the The Regional Centre’s Municipality's goals for social, cultural, economic and environmental sustainability OLDEST BUILDING, St. Paul’s and is integrated in all aspects of land use planning policy in the Centre Plan. The Anglican Church, was built in 1750. Municipality is committed to a holistic planning approach that recognizes The Centre contains heritage values in all aspects of municipal planning. It is important that the 421 MUNICIPAL HERITAGE Municipality ensures the consistent application of the regulatory and policy tools PROPERTIES, the Municipality’s available to it, to conserve heritage properties, balance the need for new greatest concentration. development, manage adaptive re-use and growth with heritage interests, and the retention of community character. A key component of this planning approach is the development of an evidence based rationale for the prioritization of conservation program initiatives for potential heritage properties, districts, and cultural landscapes.
A number of the Regional Centre’s older districts and neighbourhoods are experiencing a range of development pressures due to natural growth and Relevant Documents on-going in-migration. These pressures for change must be addressed to ensure Downtown Halifax Secondary the on-going economic vitality of the municipality while maintaining the livability Municipal Planning Strategy of its diverse communities. As the Regional Centre continues to grow, new HRM By-Law Number H-200 development must be managed in a manner that balances the Region's need to Standards and Guidelines for the accommodate growth with the conservation and management of its heritage Conservation of Historic Places in DRAFTproperties, protection of the unique character of its many older districts, and Canada, A Federal, Provincial and their associated cultural landscapes and views of Halifax Harbour. Territorial Collaboration
Barrington Street Goal: Heritage Conservation District Revitalization Plan A Regional Centre that preserves, protects, and enhances its historic resources while also supporting, Barrington South (Old South Suburb) Background Study growing, and developing its cultural assets.
Schmidtville Background Study
28 | Centre Plan: Policy Direction 1.4.5 Housing
Issues and Trends: The Regional Centre contains the highest concentration of people and housing in the municipality, but has not experienced sustained growth. A longstanding trend of depopulation has only recently seen signs of a reversal as interest has refocused on walkable, urban living. This renewed focus on growth within the Regional Centre is a positive trend and in line with the goals set out in the Over the last ten years, the number Regional Plan. of HOUSEHOLDS WITH ONE OR TWO PEOPLE have increased significantly. It also comes at an opportune time to address changing demographics. Now more than ever, the population of the Regional Centre is transitioning in their Though housing starts have needs. In order to accommodate new population growth, house residents moving remained relatively stable over the past ten years for the municipality as to the Regional Centre from elsewhere in the municipality, and enable current a whole, there has been a significant residents to age within their neighbourhoods, the Regional Centre must provide SHIFT IN THE LOCATION OF adequate capacity for new housing in all locations, across a diversity of types and HOUSING STARTS FAVOURING tenures. THE REGIONAL CENTRE. The majority of households in Coordinating growth in the Regional Centre will need to balance the goals of the Regional Centre are RENTERS, as opposed to homeowners. adequate and affordable housing with contextually appropriate built form and urban design. Increasing options for infill will allow residential areas to maintain The Regional Centre has a their vitality without sacrificing their character. Additionally, by directing higher HIGH INCIDENCE OF HOUSING AFFORDABILITY ISSUES with density forms of housing towards areas that present opportunities to support nearly 40% of households spending broader renewal, new vibrant mixed-use centres and corridors will be created 30% or more of their household that can support improved community amenities and services. income on housing costs compared to 25% for the municipality overall.
Goal: The Regional Centre is home to a DISPROPORTIONATE SHARE OF A Regional Centre that offers an affordable and POPULATION GROUPS THAT diverse of range of housing options. EXPERIENCE HIGHER HOUSING AFFORDABILITY ISSUES, including lone parent households, DRAFTAboriginal Peoples, African Nova Scotians, recent immigrants, and persons with disabilities.
Relevant Documents Halifax Housing Needs Assessment
Introduction | 29 1.4.6 Sustainability
Issues and Trends: Perhaps the most pressing sustainability issue facing the Regional Centre is climate change. As a coastal community, the Regional Centre will feel the effects of climate change primarily through sea level rise and through increased storm intensity. New development in the Regional Centre is an opportunity to prepare [Edit to fit] for climate change by creating buildings and infrastructure that are located, designed, and built to avoid and withstand the effects of climate change. New The Regional Centre is development is also an opportunity to be mindful of the Regional Centre’s home to SEVEN LAKES contribution to climate change through the energy used to build and operate buildings, and how people move throughout the Regional Centre. Energy The URBAN FOREST efficiency is also a local sustainability issue. Burning fossil fuels to run our canopy covers approximately buildings and to move people has local costs, both financially and in terms of 22% of the Regional Centre local air quality.
Stormwater management is another local sustainability issue that is becoming increasingly important. In days past, as development in the Regional Centre created hardscapes, such as asphalt and concrete surfaces, the increase in water runoff was simply channelled into the nearest water body, sometimes in a pipe combined with sewage. This rush of stormwater into water bodies has negative effects, including increased instances of erosion, siltation, and pollution from the streets and parking lots. Low Impact Development (LID) practices reverse this trend by minimizing and treating stormwater water runoff at its source, mimicking natural hydrological processes. LID installations most frequently include vegetated swales (bioswales), and improve water quality in terms of pollutant removal and reduced nutrient loading.
Many parts of the Regional Centre, despite being urban, have a significant tree canopy, or “urban forest". These trees reduce the heating and cooling needs of buildings, extend the life of roads and sidewalks, and reduce stormwater runoff. DRAFTEfforts are underway to increase the tree canopy in public spaces through Relevant Documents maintenance and new plantings, especially in areas with a shortage of trees. A Climate Change significant proportion of the Regional Centre’s tree canopy is on private land. As Risk Management Strategy the population in the Regional Centre grows, and as new buildings are Community Energy Plan constructed, efforts must be made to protect existing trees, replace trees that Water Resource Management Study are lost, and encourage planting of new trees on private lands. Urban Forest Master Plan Goal: A resilient Regional Centre that supports innovation in sustainable practices.
30 | Centre Plan: Policy Direction 1.4.7 Jobs & Economic Development
Issues and Trends: The Regional Centre contains a large concentration of economic activity. It is home to a diversity of firms, institutions, and agencies that represent numerous sectors and industries. Notable long-standing employers include CFB Halifax, government offices for both provincial and federal departments, post-secondary institutions, hospitals, and the shipyards. The Regional Centre is also the location The Regional Centre contains of strategic economic functions, including research and development activity, OVER HALF OF ALL JOBS IN THE HALIFAX REGIONAL and logistics centered on its two container terminals. The area is also the focal MUNICIPALITY, and nearly one point of the province’s tourism and hospitality industry, with thousands of people third of all jobs in Nova Scotia. disembarking from cruise ships at the Port of Halifax, and from trains at the Halifax Train Station each year. The Regional Centre has seen a SIGNIFICANT INCREASE IN REAL ESTATE INVESTMENT ACTIVITY. While the Regional Centre’s economy is expected to remain steady, new and Comparing the previous five years emerging trends will play a role in shaping the economy over the next fifteen (2011-2015) to the five-year period years. Advancing technology is reducing the amount of commercial space before it (2006-2010), annual businesses require, while also lowering the barriers to entry for new building permit values for major construction ($100,000+) are 36% entrepreneurial endeavours. This is driving an increasing need for smaller, more higher for commercial property, and flexible workspaces, and increasing the role of incubators as a tool for economic 44% higher for residential property. growth. A resurgence of demand for urban living is expanding the customer base for local businesses. The Halifax Waterfront Boardwalk is the MOST VISITED TOURIST DESTINATION in Nova Scotia While many changes in the past few years have been positive, there are also ongoing challenges. While HRM and the Regional Centre are growing in population, retaining people completing their post-secondary studies, or those early on in their careers, remains a challenge. Downtown Halifax and Downtown Dartmouth have continued to lose their dominance as centres of commerce and employment to outlying areas of the municipality, a trend common in many North American cities. Ongoing new office development in the Regional Centre is Relevant Documents competing with more recently constructed buildings in suburban areas; while Halifax Partnership 2016-2021 total demand has declined, resulting DRAFTin high office vacancies. As a result, the need Economic Growth Plan to repurpose older commercial buildings for other uses is anticipated to become Halifax Index 2016 more pressing. Redevelopment activity from the past five years has also Business Location Study increased pressure on local and small businesses, emphasizing the need for Phase 1 and 2 affordable commercial space. The Report of the Nova Scotia Commission on Building Our New Economy (Ivany Report) Goal: A Regional Centre that becomes a choice destination for new residents, job growth, tourism and economic development.
Introduction | 31 2 General Policies
The Regional Centre wide policy direction presented in this section have been organized into the Plan’s seven themes: land use and design, mobility, public spaces and places, culture and heritage, housing, sustainability, and jobs and economic development.
These statements reflect a synthesis of what we’ve learned through consultation, carry forwards from current Municipal Planning Strategies, and some new ideas being used throughout North America toDRAFT support great planning. The eventual policies will guide growth and development across the Regional Centre over the life of this Plan. Through feedback from internal departments, the public, stakeholders, analysis, and best practices, they will continue to be edited to ensure the best Centre Plan possible. 2.1 Land Use & Design
As more people and businesses move to the Regional Centre there is an opportunity to provide greater housing choice; cultivate clustered employment areas; and expand the number of communities where people can easily walk to shopping, services, and parks and open space. While many areas within the Regional Centre already strongly display these characteristics, thoughtful land use planning and design can build upon, develop, and expand these assets. New development must be carefully planned and integrated to add to the unique character of existing places and communities within the Regional Centre.
The Centre Plan identifies distinct types of growth areas within the Regional Centre, this section includes general policy direction that will contribute to the vitality of the entire Regional Centre.
Objectives
͙͙ To create communities where residents within the Regional Centre can easily access a range of services, resources, and amenities. ͙͙ To ensure new development responds to the surrounding context through appropriate transitions, uses, limited off-site impacts, and a positive relationship to the sidewalk. ͙͙ To implement a consistent human-scale approach to street design and frontages. ͙͙ To promote all-season design for new developments that creates pleasant microclimates for users throughout the year and in different weather conditions. ͙͙ To encourage a variety of housing choice in diverse forms, tenures and DRAFTdensities throughout the Regional Centre.
General Policies | 33 Policy Directions
2.1.1 LAND USE
Land use policies play an important role in developing complete communities that have a variety of housing types, transportation options, places of work, and recreation opportunities. A role of the Centre Plan is to provide the necessary policy framework to guide public and private development activities so that they contribute to the vision for the Regional Centre; providing benefits to neighbourhoods and the Regional Centre as a whole.
Urban Structure a) Ensure that land use and zoning regulations follow the Urban Structure Map.
Compact Development b) Focus compact development in areas that are well-served by transit and active transportation networks and in close proximity to employment concentrations.
Land Use Adjacencies c) Ensure non-residential land uses abutting residential areas have minimal off-site impacts such as noise, illumination, or waste (e.g. restaurants, drinking establishments, and entertainment establishments) and must demonstrate how potential impacts are mitigated through building design, servicing solutions and site design.
Residential Adaptation in Mixed-Use Areas d) Through a building permit review process, support residential development incorporating protective measures from existing ambient noise levels that could prove annoying or disruptive to residents. Measures could include: ͙͙ Site design to shield development from the greatest noise sources ͙͙ Construction of noise barriers ͙͙ Sound proofing and other sound mitigation measures to adapt the DRAFTbuilding design to its location and the mix of uses permitted in its vicinity
Complete Communities Funding e) Investigate funding opportunities to support community projects that contribute to complete communities.
Municipal-owned Land in Established Areas f) Consider adjacent and neighbourhood land uses and zoning prior to the sale of surplus municipal property, in addition to a community needs assessment.
34 | Centre Plan: Policy Direction Drive-through Facilities g) To support pedestrian-oriented environments, only permit new drive- through facilities in Employment Intensive Areas.
2.1.2 URBAN DESIGN
The Regional Centre is growing as demonstrated by the number of recently completed and proposed mixed use housing, and commercial projects. It is important that this growth positively contributes to the Regional Centre’s built form. The character of the Regional Centre is largely determined by the built form within it, including the buildings, streets, structures, and other infrastructure. Built form and public amenities, like benches and street trees, can create attractive and enjoyable urban places. Urban design uses land use planning, architecture, transportation planning, development economics, engineering and landscape architecture to create great places. The places and spaces, like streets, parks, and plazas can be distinct, comfortable, and respectful of the communities existing character depending on the urban design vision.
City Pattern a) Encourage the comprehensive development of large sites greater than 1 hectare so that they are carefully designed to integrate with the surrounding area and with the broader municipality.
b) Allow the redevelopment of nonconforming sites through development agreement. Any increase in unit count could be negotiated in the agreement and must involve public engagement with the surrounding community.
c) Define the desirable forms, characteristics, and patterns of streets, blocks, open spaces, and buildings through the Regional Centre Design Manual to guide redevelopment.
d) Ensure that streets, parks, and open spaces are designed to emphasize their importance within the public realm, and to support complete communities.
DRAFTCity Image e) Improve the ease of orientation and navigation within the Regional Centre by developing a comprehensive wayfinding strategy, including signage, landmark recognition, and route character.
f) Increase the visibility of major destination areas and other points of interest.
General Policies | 35 General Built Form Character g) Encourage development that responds to and enhances the positive qualities of site and context — the neighbourhood, the block, the public realm, and natural features.
h) New development should contribute to the architectural character of the surrounding neighbourhood.
i) New development should include amenities that create a pedestrian- oriented environment and provide opportunities for people to sit, spend time, and gather.
j) Promote building design that frames and supports adjacent streets, parks and open spaces to improve the safety, pedestrian interest and casual views to these spaces.
k) Advocate for the careful remodeling of older buildings, in order to enhance rather than weaken the original character of such buildings.
l) Explore opportunities to create visual interest with light, while being mindful of off-site impacts, especially in areas adjacent to established residential areas.
m) New building construction should consider the privacy and impacts from shadowing on adjacent properties.
n) Encourage development to provide adequate room within the development for parking and servicing needs.
o) Encourage new development that integrates natural and green infrastructure such as trees, green spaces, green roofs, gardens, green walls, and vegetated stormwater management systems.
Streetwall Character p) Promote commercial streets that are defined by a series of fine grain DRAFTshopfronts to create interest and rhythm along commercial streetscapes.
q) Promote residential streets that are defined by a series of fine grain individually accessed residential units that front onto the street.
r) Recognize that residential developments should clearly demark public/ private spaces.
s) Promote predominantly transparent shopfronts along commercial streets.
36 | Centre Plan: Policy Direction t) Encourage active uses along commercial streets such as café space, operable windows, sidewalk display space, and barrier free building entries.
u) Encourage landscaping, street trees, and other design approaches to buffer residential buildings from the street to provide an appropriate level of privacy.
v) Encourage commercial buildings to provide weather protection such as canopies, and awnings.
w) Encourage new development to frame and respect the scale of the adjacent streets, parks and open spaces.
x) Encourage new development on corner sites to frame both adjacent street frontages and give prominence to the corner in Centres, Corridors and High Order Residential Areas.
y) In Centres and Corridors, set back buildings from the property line between 1.5 and 3 metres on commercial facades to allow for private amenity space adjacent to the Right of Way.
Built Form for Tall Buildings (7 Or More Stories) z) Require that tall buildings be located in areas where high density development is appropriate, feature high quality materials, and contribute to architectural excellence in the municipality.
aa) Ensure that tall buildings respect the height of the surrounding context by stepping down towards the adjacent existing or future built form.
ab) Promote the design and construction of tall buildings that provide façade articulation through recessions and projections, material changes and other design interventions.
ac) Recognize that incongruent buildings, in terms of height, massing, density or DRAFTdesign, do not determine or change the overall context of an area. ad) Encourage tall buildings to incorporate design strategies to block wind, particularly prevailing winds and downdrafts.
ae) Require that tall building developments submit a shadow impact assessment for the proposed building, highlighting shadows between March 21 and September 21 between the hours of 10:00 a.m. to 4:00 p.m.
General Policies | 37 af) Require tall buildings to set back above a two to four storey podium to promote human scale design.
ag) Development should provide for public access to sunlight by managing and shaping the height and mass of buildings.
ah) Consider a minimum tower separation distance of 25 meters to provide for sky views and privacy between towers.
Health, Safety and Security ai) Encourage building, site, and public infrastructure design approaches that help prevent crime.
aj) Minimize the adverse impacts of highways, auto-oriented uses, vehicle areas, signage, and exterior display and storage areas on adjacent residential uses.
ak) Encourage building and landscape design that limit and/or mitigate negative air quality impacts to building users and residents, particularly in areas near freeways, regional truckways, high traffic streets, and other sources of air pollution.
al) Mitigate the visual impact of telecommunications and broadcast facilities near residentially-zoned areas through physical design solutions.
Design Quality am) Promote quality architecture, landscaping, urban design, and construction by creating high quality municipal buildings, streetscapes, and parks.
an) Encourage the use of design competitions for public works to seek design excellence and promote public interest.
ao) Establish biannual urban design awards to reward creativity and excellence in DRAFTdesign.
38 | Centre Plan: Policy Direction 2.2 Mobility
While many areas of the Regional Centre are well connected and easy for people to move through, the convenience, safety, and connectivity of the transportation network can be improved. The number of people living and working in the Regional Centre makes it both a viable and important area to expand the use of transit and active transportation modes such as walking and cycling. Designing complete streets; where streets are safe and comfortable for people of all ages and abilities, and using all types of travel, will ensure that movement by foot, bike, transit, car and other modes is convenient throughout the day and supportive of surrounding residential, commercial, institutional, and open space uses.
Integrating land use and transportation planning will help to make alternatives to driving an easy choice. Mobility policies must also consider the unique context of the Regional Centre, including the need to provide connections for multiple modes of travel across the harbour.
Objectives
͙͙ To ensure design considers pedestrians first followed by cycling, public transit, car sharing, utility and private vehicles. ͙͙ To implement an integrated mobility approach throughout the Regional Centre that incorporates the needs of pedestrians, cyclists, transit users, drivers, and persons with mobility challenges in all street designs and re-designs. ͙͙ To support greater public transit and active transportation use through public infrastructure, land use, and the built form. ͙͙ To enhance and expand pedestrian corridors and pathways to provide safe and convenient connectivity within, to, and from the Regional Centre. DRAFT͙͙ To manage and optimize parking requirements.
General Policies | 39 Policy Directions
2.2.1 GENERAL
How the streets, sidewalks, paths, bridges, and other components of a transportation system are designed and function has a significant impact on the urban form of the Regional Centre. A well functioning transportation system that is integrated, connected to places where people want to go, and is accessible for people of all ages and abilities contributes to greater personal mobility and quality of life. The Centre Plan utilizes a sustainable approach to mobility that prioritizes pedestrians.
Level of Service Assessments a) Investigate requiring level of service assessments for large-scale developments. Level of service assessments, provided by the proponent, will reflect the hierarchy of travel modes set out in the Plan, prioritizing pedestrians first then cyclists, public transit, car sharing, and lastly, private cars.
2.2.2 COMPLETE STREETS
Complete streets, an approach to planning, design, operations and maintenance of roadways, that enables safe, convenient, and comfortable travel and access for users of all ages and abilities regardless if they are on foot, on a bike, using transit, or in a private vehicle has been supported in our Regional Plan.
Complete Streets a) Design and construct, or reconstruct streets to reflect a complete streets approach to mobility that balances the needs and priorities of the various users within the right-of-way.
DRAFT2.2.3 PUBLIC TRANSIT Public transit is an integral part of the Regional Centre’s transportation system. Halifax Transit busses move people to, through, and within the Regional Centre; and since 1816, ferries have provided an important link across the Halifax Harbour between Dartmouth and Downtown Halifax. Land use planning can support public transit by directing growth to where transit already exists, or advising on redirecting transit to underserved areas. The more convenient and accessible public transit becomes, the more people choose to use it, which in turn funds more frequency and service improvements.
40 | Centre Plan: Policy Direction Hours of Travel a) Support the needs of commuters within the Regional Centre throughout the early morning, day, and late evening.
Priority Areas b) Prioritize transit service in areas of growth (the Centres, Corridors, Downtowns, and Future Growth Nodes) and provide regular review of the service in these areas.
Harbour Connectivity c) Consider opportunities to improve mobility across the harbour.
Development Integration d) Consider integrating future transit facilities and terminals with on-site commercial and residential development.
Accessibility e) Build or rehabilitate transit stops to be physically accessible and connected to the sidewalk network.
2.2.4 PEDESTRIAN COMFORT AND ACTIVE TRANSPORTATION
People of all ages and abilities who want to walk, or use other forms of active transportation such as cycling, skateboarding or jogging, need to feel safe and comfortable to do so. Infrastructure such as sidewalks, bike lanes, and multi-use trails need to be in place to support active transportation. Active transportation routes that are connected to destinations for recreation, school, work and shopping, makes getting around without a vehicle easier. Not only can this enable people to live healthier lives, but is also more environmentally and economically sustainable.
Pedestrian Comfort a) When building or rehabilitating infrastructure, ensure that it contributes DRAFTtowards pedestrian comfort and safety. Active Transportation b) Strive to improve the comfort and convenience of active transportation options, such as on-street bicycle facilities, within the Regional Centre.
General Policies | 41 Pedestrian Network c) Support the development of a complete sidewalk network in the Regional Centre. Sidewalks wider than three metres are encouraged along each Centre’s main street, when possible, and should be considered in areas of increased density and activity throughout the Regional Centre.
Active Transportation Connections d) Consider the addition of new physically accessible pedestrian and cycling bridge crossings at major roads, railways, and waterways when at grade crossings are not feasible or safe for pedestrians.
Street Improvements e) Provide well designed and coordinated tree planting and landscaping, lighting, and quality street furnishings and decorative paving as part of street improvements in accordance with the Municipal Design Guidelines (Red Book).
Sharing Services f) Support car and bike sharing opportunities.
Local Bikeways g) Support cycling for commuting and recreation purposes by ensuring that all new traffic calming projects enhance safety and improve access for cyclists.
Bicycle Parking h) Provide ample bicycle parking at institutions, employment areas, and other destinations such as public libraries, markets, shopping areas, parks, and community facilities, to meet the growing demand for bicycle parking.
i) Facilitate multimodal trips by providing secure bicycle racks and locker facilities at transit terminals.
2.2.5 CONNECTIVITY
DRAFTA connected mobility system links people and neighbourhoods with each other; and with important goods, services, and employment opportunities.
Regional Connectivity a) Strive to integrate and connect sidewalks and pathways to ensure pedestrian access to regional open spaces, major Regional Centre destinations, and the surrounding municipality.
42 | Centre Plan: Policy Direction Rail Corridors b) Through partnership with rail companies, landowners, and other levels of government, explore options for the use of rail corridors.
New Public Streets c) Require that new streets be publicly accessible streets, and contribute to an interconnected grid system.
New Connections through Larger Blocks d) Ensure that larger sites are divided into smaller walkable blocks by new publicly accessible streets and pathways.
2.2.6 PARKING
The goal of parking management is to optimize the number of available parking spaces; not having too many or too few spaces available at any one time. This approach considers the supply and cost of parking, as well as how parking lots and structures can be best integrated within the Regional Centre through urban design and location.
Parking Location a) Encourage all parking to be located on-street, underground, integrated into structures, or in the rear and side yards of properties.
On-Street Parking b) Explore innovative strategies and approaches, such as pay-by-plate technology, to create additional parking availability on streets with high parking demand.
Short Stay Supply c) Explore increasing the number and distribution of parking metres to ensure an adequate supply of short-stay parking throughout the Regional Centre, particularly in the Centres and Downtowns.
DRAFTParking Structures d) Require parking structures above grade level to be screened from public streets with active uses and/or architectural treatments that make the parking levels indistinguishable from the rest of the building facade.
e) Where parking structures have exhaust vents, such vents shall be directed away from any public street frontage and adjacent residential uses.
General Policies | 43 f) Parking structures shall: ͙͙ Minimize the impact of access points on the pedestrian streetscape by keeping access widths to a minimum (consolidating with adjacent access points where possible) and using architectural or landscape treatments to minimize the visual impact of building openings and ramps, especially when viewed from public spaces. ͙͙ Integrate services and utilities entirely within the building.
Electric Vehicle Charging Stations g) Permit electric charging stations in all land use zones.
Organization of Servicing and Parking Access h) Promote the location and organization of vehicle parking, vehicular access, service areas and utilities to minimize their impact on the public realm.
Surface Parking Lots i) Discourage the development of new surface parking lots.
Surface Parking Lot Landscaping j) Ensure that surface parking lots, where they are permitted along streets, parks and open spaces, have landscaped edges that define the street edge and visually screen the parking lot.
Pedestrian Routes in Parking Lots k) Ensure that safe pedestrian routes and tree plantings are provided within surface parking lots. DRAFT
44 | Centre Plan: Policy Direction 2.3 Public Spaces & Places
Public spaces and places provide people with opportunities to gather, learn, relax, and take part in recreation or leisure activities which promote active, healthy lifestyles. These spaces and places enrich the urban environment and are essential for the quality of life of residents. Because urban areas contain less private open space than more suburban areas, it’s important to provide sufficient public spaces and places for people to enjoy nature and outdoor recreation, community gatherings, and cultural offerings.
The Regional Centre has many great public spaces including the Dartmouth Common, the Halifax Common, the Public Gardens, Point Pleasant Park, Halifax Central Library, Dartmouth Sportsplex, the harbourfront boardwalks, and the Citadel, among others. This Plan builds upon the Centre’s strong public amenities and encourages connecting parks and open spaces, community and cultural facilities, green landscapes, and the trail network.
In the Regional Centre, it is important to create a connected green (parks, plazas, natural areas) and blue (lakes, waterways and the harbour) network of parks, pathways, open spaces and complete streets to foster healthy active living, quality of life, and cultural identity. This Plan offers guidance to ensure that the public parks and open spaces support evolving community needs.
Objectives
͙͙ To protect and enhance the Regional Centre’s public parks and open spaces for future generations. ͙͙ To consult and work with residents, organizations, businesses and other stakeholders on parks programming and design. ͙͙ To grow the open space network in the Regional Centre and integrate it within the broader municipality. ͙͙ To improve the access to public amenities, including water bodies and DRAFTcommunity facilities for all residents. ͙͙ To accommodate a wide range of activities within the Regional Centre’s diverse public spaces.
General Policies | 45 Policy Directions
2.3.1 GENERAL
All residents within the Regional Centre should be able to easily access parks, community, and recreational facilities that are safe and comfortable. As the Regional Centre grows, so should the number of public spaces and places within it, especially in areas that have been traditionally underserved.
Accessibility a) Improve socio-economic, cultural, and physical access to parks, community facilities, and recreational facilities.
Public Washrooms b) Increase the number of public washrooms in parks and community facilities.
c) Increase access in new or renovated washrooms to gender neutral facilities.
Provision of Parks in Under-Resourced Areas d) Support park, community facilities, and recreational facilities investment in under-resourced and growing neighbourhoods.
Park Amenities in High Density Areas e) Support a higher quality of design with greater functionality for parks, community facilities, and recreational facilities in areas with higher residential density to compensate for the reduction in private amenity space.
Crime Prevention Through Environmental Design (CPTED) f) Consider incorporating Crime Prevention Through Environmental Design principles in the design and redesign of park, community facilities, and recreational facilities to make them safer and more comfortable for residents and visitors.
Universal Accessibility DRAFTg) Where feasible, improve universal and barrier free access to parks, community facilities, and recreational facilities.
Permitted Uses h) Permit parks in all land use zones.
i) Include community facilities, recreational facilities, schools, pathways, and natural open space in all land use zones, with the exception of environmentally sensitive areas.
46 | Centre Plan: Policy Direction j) Permit urban food production, food distribution, and farmers markets in all land use zones, with the exception of industrial and environmentally sensitive areas.
Voluntary Recreational Organizational Support k) Encourage the operation of voluntary recreational organizations to provide financial, administrative, or technical support.
2.3.2 COMMUNITY FACILITIES
Community facilities are important gathering spaces that provide a place for a diversity of people to learn, socialize, and recreate in the Regional Centre. Expanding the use of community facilities, such as schools, to other users, helps to bring people from different backgrounds together and is a wise way to use resources.
Shared Use with Schools and Recreational Facilities a) Coordinate with educational and recreational authorities to support broader community use of these facilities.
Location b) Promote the optimum location of community services and facilities, including emergency social/protective services, recreational, and educational facilities to meet community needs and promote their integration within the larger parks, open space, and active transportation system.
Private and Non-profit Recreational Agencies c) Permit private recreational clubs and non-profit recreational agencies throughout the Regional Centre.
2.3.3 PARKS AND OPEN SPACES
Opportunities to connect with the outdoors are highly valued in urban spaces. A DRAFTwell connected and designed parks and open spaces network in the Regional Centre will allow people to immerse themselves in nature and enjoy recreational activities. These spaces can also provide stormwater management and act as important habitat for urban and migratory wildlife.
General Policies | 47 CONNECTION:
Connection to Regional Parks outside of the Regional Centre a) Support connecting residents of the Regional Centre to regional parks outside of the Regional Centre through transit and active transportation routes.
Connected Parks and Open Spaces System b) Connect Regional Centre parks through the use of sidewalks and pathways.
EXPANSION AND REDESIGN:
Parks Funding c) Support the acquisition and enhancement of new parks spaces in the Regional Centre where need is identified.
PUBLICLY ACCESSIBLE PRIVATE OPEN SPACE:
Private Provision of Open Space d) Encourage private landowners to provide publicly accessible public space and important public pedestrian connections.
Publicly Accessible Private Open Space e) Ensure that publicly accessible private open spaces meet established parks standards, are accessible to the public, and are connected with the larger open space network through streetscaping, pedestrian routes, sidewalks, and pathways.
FUNCTION:
Multi-functional f) Ensure that parks spaces within the Regional Centre support a variety of functions and will consider the following, where appropriate, when designing and redesigning parks spaces: ͙͙ Varied recreational opportunities DRAFT͙͙ Varied cultural and artistic opportunities ͙͙ Ecological and natural appreciation opportunities ͙͙ Educational opportunities ͙͙ Blend of soft and hard surfaces ͙͙ Opportunities for a variety of demographics including families and seniors
48 | Centre Plan: Policy Direction Events g) Permit and encourage community celebrations throughout the open space network and in parks, ensuring that a variety of event sizes and types can be accommodated throughout the Regional Centre while remaining respectful of adjacent uses.
Bicycle Facilities h) Provide bicycle facilities in parks such as bicycle parking structures, maintenance equipment, and cycling paths.
Pocket Parks i) Consider acquiring and enhancing pocket parks throughout the Regional Centre.
Streets as part of the Open Space Network j) Ensure that when active streets in the Downtown, Centre, and Corridor areas undergo a redesign process, they are viewed as part of the open space network by investigating and implementing design measures that create spaces to gather, play, and relax. Consider examining the following initiatives as part of this process: ͙͙ Woonerfs or shared streets ͙͙ Enhanced corner treatments ͙͙ Temporary installations along the street in on-street parking spots ͙͙ Enhanced boulevard treatments ͙͙ Streets closed to vehicular traffic (permanently or intermittently)
Commercial Uses k) Consider permitting small-scale and pop-up commercial development within parks where determined to be appropriate.
Winter Hours l) When there is public demand, consider keeping parks open throughout the four seasons on a case-by-case basis. DRAFTPARKING: Parking Offset m) Consider offsetting any permanent on-street parking loss needed to accommodate open space improvements on streets through off-street parking structures and facilities.
General Policies | 49 PARTNERSHIPS:
Community Stewardship n) Collaborate with community groups and organizations on the stewardship of existing and new parks, pathways, and open spaces within the Regional Centre.
COMMUNITY INVOLVEMENT:
Stakeholder Consultation o) Consult the public on future open space planning projects to ensure these spaces reflect the needs and aspirations of the community.
Commemoration and Cultural Practice p) Work with First Nations communities and other cultural groups in the planning and commemoration of spaces relevant to their history and continued cultural practices within the municipality.
Programming Partnerships q) Work with community groups, local businesses, and other partners on programming opportunities within parks and open spaces.
INTERFACE WITH SURROUNDING BUILDINGS:
Interface with Surrounding Buildings r) Ensure, through the discretionary application process, the design of abutting buildings enhance and support parks and open spaces by requiring active frontages, glazing, patio spaces, and/or accesses.
PARKS PLANNING:
Adaptability of Parks Spaces Over Time s) Revisit and support the redesign of parks, recreation, and cultural facilities to reflect changing user needs and preferences.
DRAFTEnvironmentally Sustainable Features t) Consider incorporating environmentally sustainable features such as rain gardens, bioswales and other Low Impact Development innovations into parks and open spaces.
50 | Centre Plan: Policy Direction 2.4 Culture & Heritage
The celebration and preservation of cultural heritage makes a vital contribution to good city building connecting citizens with a diverse and shared past. The wealth of historic resources and the range of traditional cultural activities that have evolved over time define the Regional Centre’s distinctive maritime character. Cultural heritage includes tangible resources and intangible traditions, values and beliefs. The protection of these assets enhances the character of the Centre and supports the valued diversity of its unique neighbourhoods. The preservation and celebration of the Regional Centre’s cultural heritage contributes to the HRM’s goals for economic development and environmental sustainability and is integral to a planning approach that supports this value in all aspects of municipal planning in order to balance growth with the protection and enhancement of community character.
The Plan recognizes the important contribution that a diverse and vibrant arts and cultural community makes to the vitality of the Regional Center and the character of the Municipality. Centre Plan policies will support a full range of cultural heritage preservation initiatives including protection of historic buildings and their adaptive re-use; support for community arts, cultural expressions, and celebrations; and the encouragement of the diversity of emerging artists that continue to shape the community’s future legacy.
Celebrating and preserving historic resources contributes to good city building by connecting people with the past, enhancing unique aspects of the urban character, and adding interest to the streetscape. At the same time, culture and historical legacies transcend physical buildings, and are sometimes best captured through public art, exhibitions and festivals, stories, and the beliefs and lived experience of the Regional Centre’s diverse residents. The Centre Plan recognizes the vitality that culture and heritage contribute to the Regional Centre, and includes policies that support historical preservation, sensitive adaptive re-use, cultural expression, as well as the community of artists and DRAFTcraftspeople that are helping shape the community’s future legacy.
General Policies | 51 Objectives
͙͙ To provide innovative and holistic heritage and land use planning policies to ensure community identified heritage values are considered in decisions affecting land use. ͙͙ To develop an evidence-based inventory of potential heritage properties in the Regional Centre to inform land use and development decisions affecting cultural heritage. ͙͙ To enable the definition of potential heritage conservation districts and cultural landscapes within the Regional Centre. ͙͙ To establish a range of monetary and non-monetary incentives and develop partnerships for the encouragement of public and private sector investments in cultural heritage conservation and arts and culture initiatives. ͙͙ To encourage and support the on-going growth of a diverse range of publicly accessible arts and cultural venues, cultural events and seasonal celebrations.
Policy Directions
2.4.1 HERITAGE
The Regional Centre is a unique complex of military, commercial and residential precincts whose evolution spans over 250 years of settlement around Halifax Harbour, the historic Gateway to Canada. The citizens who built these districts brought their own distinct cultures and responded over time to a range of economic and social challenges that continue to be reflected today in the physical form and character of the Regional Centre’s many diverse neighbourhoods. Heritage policies address the need to ensure growth and change is accommodated and is compatible with the protection and enhancement of built form and the enhancement of community character, vitality and sense of place.
Application of Regulatory and Policy Tools DRAFTa) Ensure the consistent application of available regulatory and policy tools in order to balance the need for new development, adaptive re-use, and growth with heritage conservation values and the protection of community character.
Viewplane Protection b) Continue to protect existing viewplanes and corridors.
52 | Centre Plan: Policy Direction Potential Heritage Properties, Heritage Conservation Districts, and Cultural Landscapes c) Consider potential heritage properties, heritage conservation districts, and cultural landscapes recommended by the Heritage Advisory Committee for protection under the Nova Scotia Heritage Properties Act.
Cultural Heritage Conservation d) The Culture and Heritage Priorities Plan should, in accordance with Council’s direction at the time of its adoption, be the guiding document for the implementation of an evolving cultural heritage conservation program strategy for the Regional Centre.
Registration of Heritage Conservation Districts e) Give priority consideration to registration of South Barrington (Old South District), Schmidtville, and Historic Properties NHS as Heritage Conservation Districts under the Heritage Properties Act.
GIS Survey f) In recognition of the high concentration of neighbourhoods developed prior to 1918 and ongoing growth pressures within the Regional Centre, undertake a GIS block survey of existing buildings, by age and historic use, to identify and prioritize potential heritage conservation districts and cultural landscapes for their consideration by Regional Council. As a first priority the Municipality should conduct a survey by block of buildings in Downtown Dartmouth and in contiguous areas of Halifax North End as outlined in Figure 3.
Identification and Registration of Potential Heritage Conservation Districts and Cultural Landscapes g) As a priority the Municipality should conduct block surveys within in the Regional Centre and prepare studies in accordance with the Heritage Properties Act for the future registration of Heritage Conservation Districts DRAFTand Cultural Landscapes within areas identified to the left.
General Policies | 53 Albro lake Bedford Basin
Lake banook
bridge penhorn lake a. Murray mackay The Narrows Oat Hill lake 3 14 maynard lake 4 5 1
2
bridge
Angus l. macdonald 13 7 Halifax 6 harbour 9 8 Barrington Street
10 Old South Suburb
Schmidtville Northwest Arm 12 DRAFT11
LEGEND
Existing and In-Progress Heritage Conservation Districts Proposed Heritage Conservation Districts Proposed Cultural Landscapes
Figure 3: Potential Heritage Conservation Districts and Cultural Landscapes
54 | Centre Plan: Policy Direction Potential Heritage Conservation Districts and Cultural Landscapes
DARTMOUTH: HALIFAX:
Potential Historic Conservation Districts Potential Historic Conservation Districts
1. Highview: Development began in this compact early working class 5. Hydrostone District: Canada's first public housing project, the residential district in the late 19th century and has continued through Hydrostone, built to house workers displaced by the Halifax to the present day. The area is bounded to the south by Shore Road Explosion of 1917 was designed in the Arts and Crafts village style and to the north by Windmill Road and has notable harbour views and constructed of locally cast stone. The development is a rare from side streets and lanes. Recent infill development intermixed example of an intact comprehensively developed residential row with older well cared for wooden frame one storey cottages and two house subdivision with laneways and treed boulevards that serve as storey residences setback from the property line characterizes the common greenspace. Fort Needham, built to protect Halifax Harbour district. during the colonial wars of the 18th century, abuts the Hydrostone and serves as community green space. 2. Park District: The Park District abutting Dartmouth Common, the earliest settled area of the community, contains an important 6. Bloomfield District: The largely intact and contiguous tree-lined collection of 18th and 19th century residences and churches that streetscapes of the Bloomfield District west of Gottingen in Halifax's represent the community's historic and culturally diverse character. North End contains an important collection of Georgian, Victorian The evolution of the original small 18th century village to a major city and Edwardian grand residences of the merchant class, social care can be seen in the unique collection of historic Quaker, Georgian and facilities, and homes of the middle class; evidence of the diverse Gothic buildings now intermixed with infill development. social classes that developed the community in the mid to late 19th century.
Potential Cultural Landscapes 7. Brunswick Street: Development in the Brunswick Street district dates to the earliest period of colonial British settlement beginning 3. Dartmouth Central Common: The Dartmouth Central Common in 1756, spanning the Georgian period through to late 19th century is a remnant of the traditional British land use practice of establishing residences of the merchant shipping class. Little Dutch Church, St. communal grazing land and has evolved to serve a variety of George's (Round) Anglican Church, Cornwallis Baptist Church and community needs. The Commons include graves of contact era Uniacke Square are evidence of the diversity and continuity of Mi'kmaq Chiefs, 4 churches with graveyards, a Viewing and cultures in the district. Navigation Station, a late Victorian era park, and important views of Halifax Harbour. 8. Creighton Field to North Park Street: This North End neighbourhood adjacent to the Halifax Common lands is 4. Shubenacadie Canal & Abutting Lands (Harbour to Lock 2): characterized by intact and contiguous streetscapes of detached and An artefact of the early manipulation of hydraulic regimes for semi-detached small-scale worker's housing dating from the resource extraction, the Canal is symbolic of the evolution of Georgian era through to the late 19th century. Pre-dating by-lawed Dartmouth as the industrial centre of the region, and the lakes setbacks, construction lies on or close to the property line with no created by its impoundments have served important community side-yards. Wood frame 1 and 2 storey maritime vernacular social and recreational needs for over 100 years. structures predominate with classical detailing, central hipped dormer windows and entrance porches above grade. Taken together these historic elements create a distinct and legible character DRAFTdistrict. 9. Historic Properties: A group of stone and wooden warehouses along the Halifax Boardwalk, the Historic Properties began to be constructed between 1800-1875. A national historic site, these rehabilitated buildings are a popular tourist destination.
10. Westmount CMHC Subdivision: Designed post WWII by the CMHC on a modified Radburn N.J. model, Westmount is one of two similar communities built by the federal government in Canada to house returning servicemen and their families. Westmount features rear service lanes, that evolved over time to become primary entrances, and central common green park spaces for the 350 single family one storey bungalows houses laid out in a U-shaped pattern.
General Policies | 55 Potential Cultural Landscapes Partnerships with Educational Institutions h) Actively seek mutually beneficial partnerships with senior educational 11. Young Avenue (Inglis to Ogilvie): institutions to undertake GIS-based historic resource block surveys of The Young Avenue character district is an intact Victorian era residential growth areas within the Regional Centre to identify potential heritage streetscape fronting on the historic conservation districts and cultural landscapes. central treed boulevard entrance drive to Point Pleasant Park. It is Community Consultation characterized by grand brick, stone and wooden residences that are setback i) Consult with the diverse communities of the Regional Centre regarding the from the property line, and feature a survey of potential heritage conservation districts and cultural landscapes to variety of classical, French and Italianate jointly identify the diversity of community values. stylistic influences typical of the late Victorian era. Inventory 12. The Citadel and Halifax Common: j) Develop a publicly accessible inventory of potential Heritage Conservation The Citadel, the primary emblem of Districts and Cultural Landscapes and their component physical structures British military and colonial settlement and elements. in the Halifax region, lies at the highest point and centre of a town plan laid out in 1750. A grid pattern formed the basis Heritage Conservation Initiatives for the evolution of the historic k) Investigate heritage conservation supports and initiatives that include, but commercial, industrial and residential are not limited to, grants for restoration, rehabilitation and enhancements core area and includes the Halifax Public Gardens. within Heritage Conservation Districts and Cultural Landscapes, and community heritage interpretation initiatives. 13. Connaught Avenue and Fairview Cemetery: Fairview Cemetery, designed Establishment of Cash Contributions for Density Bonus Provision in the late 19th century on the rural park model established in North America in l) Support, within the Regional Centre, a cash contribution option for the 1830 at Mt. Auburn Massachusetts with provision of a negotiated Density Bonus under Development Agreement for curvilinear roadways, contains 121 graves development within or abutting Heritage Conservation Districts, where such from the Titanic disaster laid out to face Heritage Conservation Districts allow. the rising sun. Connaught Avenue directly abuts the site and was designed with input from Andrew Cobb as a Adaptive Reuse and Height of New Construction major green boulevard entrance to m) Support the adaptive re-use of Heritage Properties in accordance with the Halifax lined with Linden species. Standards and Guidelines for the Conservation of Historic Places in Canada
14. Africville Park and Harbour Lands: and investigate the creation of an alternate standard to supersede Standard Seaview Park, the site of the former 11, stating that the height of new construction on or abutting a Heritage community of Africville, is nationally Property, within or outside of a Heritage Conservation District, is an recognized for its important links to the important factor affecting the protection of a Heritage Property ‘s cultural 250-year history of Afro-Canadian settlement in Canada, North American DRAFTvalue as defined in its Statement of Significance. racial discrimination, and the social effects of urban renewal strategies in Statements of Significance the 1960's. n) In recognition of the predominantly low to mid-rise character of Heritage Properties and Heritage Conservation Districts in the Regional Centre, revise the requirements for Statements of Heritage Significance to include a detailed description of the significance of a building’s scale and context.
56 | Centre Plan: Policy Direction 2.4.2 CULTURE
The Regional Centre has a strong, active and historically diverse cultural community, one of the key building blocks of a healthy, vibrant and livable city. Cultural policies can provide a range of incentives to encourage and enable the ongoing growth of this sector of the social economy , provide support for emerging artists and craftspeople and give citizens a range of opportunities to experience and participate in community cultural activities, civic celebrations and seasonal events.
Cultural Investments a) Ensure that cultural investments reflect and support the social diversity of the Regional Centre and its unique mix of arts and cultural expressions, initiatives, and venues.
First Nations Inclusion b) Support the development of a plan in collaboration with First Nations’ organizations and groups on the establishment of an engagement protocol with aboriginal peoples in accordance with HRM’s statement on First Nations’ reconciliation.
Protocol for Identifying and Protecting First Nations Sites of Significance c) In recognition of the high potential for the incidence of pre and post contact archaeological resources in the Regional Centre, consult with First Nations to develop a protocol for the appropriate identification, protection and interpretation of sites of cultural value to the Mi’kmaq peoples.
Expanded Live/Work and Home Occupations d) Expand live/work opportunities for arts and culture activities and relax home occupation requirements to permit a greater range of uses.
Bonus Density for Arts and Culture Facilities e) In developing a bonus density strategy for large scale developments in the Regional Centre, permit the provision and dedication of space for arts and DRAFTcultural activity as a direct community benefit where appropriate. Pop-up Structures f) Explore opportunities for innovative and creative pop-up structures, spaces, and events on public land, including HRM’s right-of-way, throughout the Regional Centre.
General Policies | 57 One Percent of Capital Project Funding for Public Art Fund g) Allocate one percent of HRM capital improvement project funds for the commission, purchase and installation or presentation of public art in the vicinity of the associated capital project (parks, libraries, community centres, roads, bridge, streetscape improvements and other public venues). Art should be commissioned and installed within 5 years of the fund allocation and subject to a process that includes: ͙͙ A formal call for artists to work as a core part of the project team ͙͙ Selecting the artist through a public art jury process ͙͙ Allowing for a variety of art forms, including artist-in-residence programs, temporary art, permanent art, and performances
DRAFT
58 | Centre Plan: Policy Direction 2.5 Housing
Having access to suitable, affordable, and comfortable housing is fundamental to the health and quality of life of all people. The residents of the Regional Centre value affordable housing and housing choice, as these are the building blocks that create diverse communities. Currently the Regional Centre needs more affordable options, and housing that is suitable for families. Providing the right mix of housing will allow people to remain in the Regional Centre as they transition through life, whether they are a single person looking for their first apartment, a household with children, or a retired couple who are looking to downsize their home. This will add to the vitality and stability of Regional Centre neighbourhoods.
Adding more housing options, given the importance of the Regional Centre as an employment area, will also allow more people to live closer to where they work. In turn, more people living and working in an area leads to more successful shops, restaurants, and businesses; building vibrant neighbourhoods.
Objectives
͙͙ To provide housing choice and variety throughout the Regional Centre that is attractive to a diversity of people, including families and individuals of all ages. ͙͙ To increase affordable housing units throughout the Regional Centre. ͙͙ To enhance opportunities for new units within existing structures and infill housing. ͙͙ To support special care facilities throughout the Regional Centre. DRAFT
General Policies | 59 Policy Directions
2.5.1 GENERAL
Like many Canadian communities, the Regional Centre’s population is shifting. Overall the population is aging, but many neighbourhoods are seeing an increase in new Canadians, young families, and multi-generational households. Recent housing starts and planning applications data reveals a shift in residential development within HRM towards multi-unit housing in urban areas. In order for the Regional Centre to remain economically competitive and support high qualities of life; a diversity of housing types, sizes, and tenures needs to be available across a range of housing budgets. At the same time, new residential development must be contextually appropriate for the communities that it is being built in.
Family-Oriented Housing a) Promote family-oriented housing, including those with children, in the Regional Centre by supporting the spaces and facilities that fit the needs of different age groups.
b) Opportunities for daycares and schools should be encouraged in neighbourhoods with residential and mixed use developments to allow for easy access to these facilities.
Family-Oriented Multi-Unit Dwellings c) Encourage multi-unit residential and mixed use developments which adopt elements that can support families in a vertical community. This should include such components as supportive design elements for children in units, accessible play spaces, safe streetscape designs, and affordable multi- bedroom units.
Housing Options d) Encourage a mix of housing options to meet the range of needs in the local market. Options should include unit types (high-rise apartments, DRAFTtownhomes, etc.), and pricing, and should work to be inclusive of a range of demographic and economic backgrounds.
Unit Size Diversity e) Encourage multi-unit buildings to provide a range of units to accommodate different household sizes, with studio, one-bedroom, and larger units included in each multi-unit building.
60 | Centre Plan: Policy Direction Multi-Unit Housing Amenity Space f) All new multi-unit residential developments shall provide private outdoor amenity space, either exclusive to an individual unit or as a common amenity available to all units. This may take the form of balconies, courtyards, terraces, rooftop gardens, or deck space.
g) New tall residential buildings shall provide indoor common amenity space.
Co-operative Housing Development h) Continue to encourage and support new and existing co-op housing developments throughout the Regional Centre as a housing model that encourages community building and local ownership of housing.
Housing Diversity in Strategic Locations i) Support and promote greater housing choice in the Downtowns, Centres, Corridors, and Future Growth Nodes because of their proximity to commercial areas and employment, and the ability to access these locations by active transportation and transit.
Housing Incentives j) Explore incentives to encourage infill housing or accessory dwelling units throughout the Regional Centre where appropriate, including: ͙͙ Reductions in application fees ͙͙ Reduced lot standards
Ground-oriented Housing k) Encourage ground-oriented housing throughout the Regional Centre as an important component of residential neighbourhoods. These housing units shall be developed to consider the street and support an attractive streetscape through well-designed landscaping, public and private open spaces, and appealing and consistent architectural design elements.
Innovative Housing Forms l) Promote innovative housing forms that provide flexible solutions to local needs. These may include formats such as co-housing units, live/work units, DRAFTmicro-units, and accessory dwelling units throughout the Regional Centre. Innovative housing forms shall be enabled through changes to zoning.
Live/Work Housing m) Support the provision of live/work units throughout the Regional Centre as a means of supporting smaller home-based businesses. These units can provide opportunities to provide affordable office and work spaces for individuals and start-up businesses that would otherwise be difficult to service in the commercial real estate market.
General Policies | 61 2.5.2 AFFORDABLE NON-MARKET HOUSING
Providing and supporting the provision of non-market housing is one way to ensure that everyone has a safe and comfortable place to call home. Unfortunately, the current supply of affordable non-market housing in the Regional Centre is inadequate to meet this need. While intervention from other levels of government will be necessary, policies in this plan are aimed at what the municipality can do to support affordable non-market housing throughout the Regional Centre.
Rooming Houses n) Explore options for supporting rooming houses in the Regional Centre while establishing contextually-appropriate requirements that address the cumulative impacts of these uses. Requirements may include limits on the number of bedrooms or maximum lot coverages, or requirements for landscaping and open space.
Renewal of Existing Affordable Housing o) Encourage the renewal, repair, and upgrade of affordable housing units in the non-profit, public and private sectors.
2.5.3 SPECIAL CARE FACILITIES
Special care facilities, or supportive housing, serve a broad range of residents including aging populations and persons with disabilities. Special care facilities integrated into established communities promote social inclusion by providing assistance to those in need and accepting them as part of the community. When located close to transit, shopping, and other services, these facilities can enable people to age in place as their needs change; can allow families and friends to accommodate loved ones close to home; and can keep existing community social supports intact.
Location a) Permit special care facilities in residential, commercial, institutional land use DRAFTzones, and direct these facilities to locations with high-quality transit service (current or planned). Special care facilities shall be developed in contextually-appropriate forms that consider the surrounding neighbourhood.
62 | Centre Plan: Policy Direction 2.6 Sustainability
The economic vitality of the Regional Centre, and the well-being of the people who work, live, or visit there, depend on a healthy natural environment. Clean air, water, soil, as well as parks and trees attract new residents, investment, and visitors. Even in urban environments like the Regional Centre the natural environment provides essential ecosystem services on which human settlements and a wide variety of plants and animal depend on. These services include clean air and water, waste decomposition, nutrient cycling, and carbon sequestration.
Growth in the Regional Centre needs to occur in a sustainable way to ensure the lasting vitality and health of the environment and the people who live in it. Thinking about where to grow, how to grow, and what to protect as this growth occurs is required. Regional Centre sustainability policies consider both large scale development patterns and small scale building design features, and everything in between.
HRM recognizes that a particularly important component of a sustainable Regional Centre is the natural environment. The Regional Centre benefits from numerous natural assets that should be protected, and in some cases enhanced, including lakes, streams, the urban forest, and the harbour. Sustainability policies also consider less tangible but equally important components of sustainable communities, including air quality and energy usage.
Objectives
͙͙ To improve/innovate stormwater management, water and sewer capacity, and water quality. ͙͙ To promote renewable energy, district energy, and energy efficiency to reduce the Regional Centre’s overall energy consumption. ͙͙ To support and promote tree planting, restoration initiatives and other natural processes when possible. DRAFT͙͙ To promote and expand urban food production and harvesting to result in greater choices in local and healthy food.
General Policies | 63 Policy Directions
2.6.1 GENERAL
To minimize the Regional Centre’s collective impacts on the natural environment, sustainable development practices need to be in place that combine the creation of walkable complete communities with high performance infrastructure and green buildings, while minimizing development effects on natural areas.
Service Dependent Growth a) Consider only approving residential development when there is adequate existing or presently budgeted services and infrastructure in place.
Infrastructure Investment to Promote Housing Investment b) Adequately fund and finance improvements in infrastructure, including green infrastructure, such as utilities, sidewalks, lighting, roads, and landscaping, and, where the possibility exists, upgrade entire or large portions of neighbourhood infrastructure to facilitate growth in strategic areas.
Green Roofs c) Encourage the inclusion of green roofs on all moderate height and tall buildings with flat roofs to manage stormwater and improve air quality.
Green Condominium and Apartment Program d) Consider launching a Green Condominium and Apartment Program, that works within and respects the building code and national energy code, to examine opportunities to renovate and retrofit existing buildings to reduce their energy use and greenhouse gas emissions.
2.6.2 WATER
The Regional Centre has an extensive marine shoreline, and its rivers, creeks, lakes, and wetlands are the visible components of complex hydrological system. DRAFTThis system also includes springs, subterranean streams, and groundwater. Development and urban growth changes the natural flow of water. It also increases runoff from precipitation, reduces groundwater recharge, raises water temperature, and increases water pollution and acidity.
Aside from recreational, aesthetic, and economic importance; water is an essential human need that must be conserved and protected as the Regional Centre and HRM continue to grow.
64 | Centre Plan: Policy Direction Water and Sewer Capacity a) Allow developers to undertake and fund a study to determine needed infrastructure upgrades when a proposed development exceeds existing water and sewer capacity.
Stormwater Management Plan b) Require all new moderate height and tall development applications to include a stormwater management plan in accordance with best management practices.
Low Impact Development c) Consider the inclusion of Low Impact Development technologies (LID) for stormwater management on capital projects, and through incentives and development requirements on private land.
Naturalizing Watercourses d) Encourage the use of naturalizing watercourses as a low impact development initiative whenever possible.
Lake Water Quality e) Monitor water quality in all lakes and develop recommendations to maintain water quality, recreational opportunities, and aquatic habitat.
Sea Level Rise f) Ensure that future development in low-lying coastal areas considers and incorporates measures to mitigate the effects of sea level rise and storm surge events.
2.6.3 WASTE
Waste management practices and diverting waste away from landfills through recycling and other programs can create a healthier and more environmentally sustainable Regional Centre.
DRAFTRecycling Receptacles g) Encourage recycling by integrating recycling receptacles with garbage receptacles as part of the Municipal Service Standards (Red Book) throughout the Regional Centre.
Source Separation Inside Multi-Residential and Mixed Use Development h) Consider requirements for all residential multi-unit buildings and residential mixed use development to make accommodations for recycling and composting.
General Policies | 65 2.6.4 ENERGY
The impact of fossil fuel use on the environment is well known; climate change, air and water pollution are all a result from our dependence on nonrenewable energy sources. Yet people rely on energy to feed themselves, heat and cool their homes, move people and goods, and run the economy. Putting in place sustainable energy strategies that reduce the Regional Centre’s dependence on nonrenewable energy will go a long way in creating healthier environments not only for native flora and fauna, but people as well.
District Energy a) Consider the creation of a district energy facility in areas of high growth and density, such as Downtowns, Centres, or Future Growth Nodes.
District Cooling b) Consider working with utilities to accommodate deep water cooling.
Waste Energy Capture c) Identify opportunities to capture and redistribute waste energy.
Building Certification d) Consider designing and building all new municipal facilities within the Regional Centre to show leadership in sustainable building design, and at a minimum achieve a LEED silver certification, or an equivalent level in a similar certification system.
Solar Energy e) HRM shall consider incentives for, and incorporate solar capture technologies throughout the Regional Centre.
Solar Panel Exemptions f) HRM shall exempt solar panels from building height requirements and rooftop mechanical coverage.
DRAFT2.6.5 LAND
Land within the Regional Centre can be used more sustainably by supporting local food production, removing greenhouse gasses through street trees, and conserving environmentally sensitive areas. Access for city dwellers to natural environments, for health, leisure, and recreation purposes, become increasingly important as urban areas become denser.
66 | Centre Plan: Policy Direction Tree Planting a) Continue its tree retention, planting, and maintenance program to achieve tree canopy targets to ensure that the Regional Centre benefits.
Land Conservation b) Work to preserve or restore environmentally sensitive areas, physically unique areas, and important ecological systems.
Animals c) Permit domestic fowl and bees in all zones as accessory uses with policies to ensure off-site nuisances are avoided and that these activities are appropriately scaled.
Community Gardening d) Permit community gardening in all zones.
Greenhouses e) Permit greenhouses in all zones with restrictions on height and scale to ensure compatibility with surrounding uses.
Edible Landscaping f) Consider using edible landscaping throughout the Regional Centre on both private and public land.
Industrial Food Activities g) Permit food-related activities such as production, processing, warehousing, retailing and others in all zones at an appropriate scale with surrounding uses.
Green Parking Lot Design h) Support the retrofit and refurbishment of surface parking lots to incorporate Low Impact Design parking lot features such as trees, high quality soil, enhanced pedestrian and cycling infrastructure, on-site stormwater management, and generous landscaped areas.
DRAFTBrownfield Redevelopment i) Encourage brownfield site redevelopment, promoting environmental testing, remediation, and appropriate interim uses.
General Policies | 67 2.6.6 BIODIVERSITY
Global biodiversity is at risk as more species around the world become threatened or extinct. Even locally, a reduction in biodiversity reduces the productivity of ecosystems which makes plants and animals more susceptible to natural disasters, pollution, and climate change. Biodiversity and ecosystems need to be valued and managed and part of the Regional Centre’s land base and infrastructure.
Natural Areas Restoration a) Identify opportunities for habitat and natural areas conservation and restoration within the Regional Centre.
Small-Scale Natural Areas b) Consider the incorporation of smaller natural areas and features such as pollinator meadows, butterfly gardens, manufactured wetlands, and bird habitats in parks and other municipally-owned lands.
Native Species c) Promote native species through landscaping requirements for public and private land.
DRAFT
68 | Centre Plan: Policy Direction 2.7 Jobs & Economic Development
The long-term economic sustainability of the Regional Centre is linked to a strong, vital economy and employment opportunities for residents. The diversification of local economic sectors, support for local entrepreneurship, and the development of a supportive business environment can help in building resilience and strength in the local economy, and provide a strong draw for businesses and workers alike.
HRM will build and strengthen the Regional Centre’s reputation as the principal economic centre of Atlantic Canada by promoting its talented, educated community; its unique concentration of major industries, employers and institutions (especially in ocean-related sectors); and its attractive urban lifestyle with a high quality of life and access to regional amenities. These efforts will be in cooperation with stakeholders and partners, including the Province and the Halifax Partnership.
The policies below provide general guidance about building a supportive economic environment for both employees and businesses. These policies are supplemented by the discussion of urban form and development, which provides an understanding of how urban structure, especially for intensive employment areas, can support businesses and local economic activity.
Objectives
͙͙ To work with hospitals, universities, colleges, and other levels of government to support the continued success of these employers in the Regional Centre. ͙͙ To support small businesses and entrepreneurial activities through land use regulation, programs and initiatives. DRAFT͙͙ To foster economic participation through support service provision for residents.
General Policies | 69 Policy Directions
2.7.1 GENERAL
The long-term economic health of the Regional Centre depends on creating communities where newcomers and residents want to live and work. HRM can also support business within the Regional Centre by ensuring adequate locations for office, retail, institutional, and industrial development are protected in strategic and accessible locations. Strategic public investments; supportive partnerships with business, other levels of government, and institutions; and other incentives can act as catalysts for further economic growth and job creation.
Promoting the Regional Centre a) Develop public and private partnerships to expand and promote the unique identities and features of the Regional Centre and market it as an attractive destination for residents, businesses, and tourists.
Diversification and Resiliency b) Consider opportunities to build and support employment and commercial diversification, especially through small business incubators and accelerators.
Incentives for Supporting Small Businesses c) Consider the development of an incentive program for landowners that allows vacant storefronts in key locations to be used as short-term entrepreneurial incubators and “pop-up” retail and service spaces.
Attracting and Retaining Talent d) Build partnerships with universities and businesses to match young workers, recent graduates, and immigrants with high-quality employment opportunities.
Local and Regional Retail Destination e) Work to enhance the role of the Regional Centre as a regional retail centre DRAFTwith opportunities for local retail businesses to flourish.
Catalyze Investment f) Consider enabling strategic investment, and development opportunities that are catalyst projects with the potential to spur further investment and development in the Regional Centre. These projects may include long-term infrastructure investments.
70 | Centre Plan: Policy Direction Diversity of Employment Opportunities g) Consider supporting a range of development and employment opportunities that cater to different types of business and a diverse workforce, including housing for live/work opportunities. Opportunities should be located throughout the Downtowns, Centres, Employment Areas, and Future Growth Nodes, in areas well served by transit and the active transportation network.
Minimize Disruptions from Projects h) Design and coordinate infrastructure and streetscape improvements to minimize disruptions to businesses.
Variety in Commercial Size i) New at-grade space designed for retail use shall be built in flexible spaces that allow units to be expanded or made smaller over time to facilitate a diverse range of businesses.
Maker Spaces j) Encourage small-scale maker spaces in commercial and mixed-use areas throughout the Regional Centre to provide opportunities for small business start-up and incubation. Establish requirements to ensure these spaces have minimal off-site impacts, especially in areas with residential uses.
Public WiFi k) Recognizing that publicly available WiFi access should be available in some public spaces throughout the Regional Centre, consider providing additional investment to add coverage in key public spaces.
Local Engagement and Partnerships l) Consider building partnerships with business owners, local entrepreneurs, and associated organizations to gather innovative ideas and feedback about local economic development within the Regional Centre.
2.7.2 BUSINESS ENVIRONMENT
DRAFTHRM is committed to helping business succeed in the Regional Centre through supportive policies and simplified procedures.
Timely Approvals a) Ensure that commercial development is permitted as-of-right when it is locally appropriate and in line with the Urban Structure policies that apply to it.
General Policies | 71 Business Tax b) Work with partners, including local Business Associations, to assess the impacts of changes to the calculation and collection of property tax.
Encouraging Residence-based Businesses c) Support home-based and live/work businesses by expanding the range of professions permitted in these spaces and allowing these uses throughout the Regional Centre.
2.7.3 KEY EMPLOYMENT AND INDUSTRIES
Several key employers and industries provide a large proportion of employment within the Regional Centre. Supporting these companies and institutions, with the aim of helping them grow, will protect existing employment and encourage additional job growth.
Office Locations a) Encourage the concentration of office space in the Downtowns and Centres, in areas with high-quality transit service (current and planned).
Office Re-use b) Permit the conversion of existing office space to other uses to provide flexibility in the local real estate market. For Employment Areas, the majority of gross floor area must remain in commercial or industrial use.
Healthcare Facilities c) Support the retention and expansion of health care institutions in the Regional Centre. This includes the expansion and redevelopment of existing hospital facilities, and the development of convenient and accessible health clinics and medical offices throughout the Regional Centre. These uses should be concentrated where possible in areas with high-quality transit service (current and planned).
Education DRAFTd) Support the retention and expansion of post-secondary educational institutions in the Regional Centre, including universities, colleges, and trade schools. Work with public and private education providers to site new facilities in areas with high-quality transit service (current and planned).
Partnerships with Education e) Support educational institutions through investigating the sharing and co-location of public facilities such as libraries, recreation facilities, and community centres.
72 | Centre Plan: Policy Direction Government f) Work with senior levels of government to site offices and service centres in the Downtowns and Centres where the associated employment and services will support the concentration of population and businesses. Government uses shall be sited in areas with high-quality transit service (current and planned).
Tourism Location g) Encourage tourism, hospitality, and visitor support services to cluster in the Downtown areas, with a particular focus on the waterfront.
Shipping/Logistics h) Continue to support the operations of the Port of Halifax as a strategic infrastructure link, and its key role in the regional economy. Work with partners to improve the infrastructure and services that support the Port.
2.7.4 COMMUNITY SERVICES AND SUPPORT
The long-term economic health of the Regional Centre is vital when creating communities where residents and newcomers want to live and work. Equally important is ensuring that existing and future residents have a good quality of life who will want to, or be able to, remain in the Regional Centre.
Bonus Density for Community Amenities a) In developing a bonus density strategy for large scale developments in the Regional Centre, permit the provision and dedication of space for community amenities, such as daycares, as a direct community benefit where appropriate.
Engagement with the Immigrant Community b) Work with immigrant communities to address specific challenges to businesses and workers, and improve the provision of community services.
Mobile Food Markets DRAFTc) Encourage the expansion of the mobile food market to areas of the Regional Centre underserved by affordable grocery stores and markets.
General Policies | 73 3 Urban Structure Policies DRAFT 3.1 Urban Structure Hierarchy
Planning for growth and development within the Regional Centre necessitates a review of the existing urban structure; a vision of how and where the Regional Centre should grow; an understanding of what we need to protect; and policy direction on how to implement this vision. The Centre Plan puts forth this vision through the urban structure, and the following policies that enable the tools for implementing it.
‘Urban structure’ refers to the arrangement of physical elements – like buildings, streets, public spaces, trees, and street furniture – as well as the size, shape and design of these elements in the urban environment of the Regional Centre. The urban structure takes into account existing development and land uses, but also incorporates future growth objectives.
The urban structure hierarchy consists of various neighbourhoods and areas grouped under different classifications. When this work was presented to the public for the first time in June 2016 some different nomenclature was used. We've responded to public comments and improved the language to better reflect the intended vision and altered the structure based on the feedback from the community. These classifications are:
DOWNTOWNS CENTRES CORRIDORS ESTABLISHED RESIDENTIAL AREAS HIGHER ORDER RESIDENTIAL AREAS PARKS AND PUBLIC SPACES FUTURE GROWTH NODES EMPLOYMENT INTENSIVE AREAS DRAFTINSTITUTIONAL AREAS
Each of these classifications are differentiated based on the characteristics of the overall built form, intended uses, and capacity for future growth within the areas they cover. Each classification has its own pattern of development and intended level of intensity. The urban structure hierarchy recognizes that each area across the Regional Centre is unique with its own capacity for future development, and that growth and change should be accommodated in ways that are sensitive to each local context.
Urban Structure Policies | 75 This hierarchy lays the groundwork for land use policies within the Regional Centre, and directs where the Municipality should be making future long-term investments.
The Urban Structure Map (see Figure 4) illustrates which areas have been grouped under the distinct urban structure classifications.
The Urban Structure Map may be adopted to reflect the proposed degree of change and level of development within the Regional Centre.
The areas of future land use shown on the Urban Structure Map shall be determined primarily by the objectives and policies which correspond to the classification shown. All other Regional Centre-wide objectives and policies shall apply as appropriate, but should be subordinate to the classification specific objectives and policies.
DRAFT
76 | Centre Plan: Policy Direction Figure 4: Urban Structure Map
Albro lake
highfield Park dr woodland ave Micmac blvd
Bedford Basin Victoria rd albro lake rd Lake banook
Prince Albert rd
bridge penhorn lake a. Murray mackay The Narrows Oat Hill lake wyse rd
Novalea dr windmill rd maynard lake
thistle st
ochterloney st portland st
alderney dr lady hammond rd
bridge
Angus l. macdonald kaye st tupper st pleasant st
connaught ave
Young St Halifax agricola st harbour oxford St windsor St gottingen st
Bayers rd Cunard st cogswell st
barrington st chebucto rd
Robie St Quinpool Rd
joseph howe dr south park st
hollis st
spring garden rd
coburg rd Northwest Arm South St DRAFTInglis st
LEGEND
Downtowns Centres Corridors Established Residential Higher Order Residential Parks & Public Spaces Future Growth Nodes Employment Intensive Institutional
Urban Structure Policies | 77 3.2 Downtowns
Downtown Halifax and Dartmouth will continue to benefit from new development. Both downtowns have significant redevelopment projects underway, including the Cogswell Interchange in Downtown Halifax, as well as Dartmouth Cove and King’s Wharf in Downtown Dartmouth.
The downtowns can accommodate higher densities in moderate height and tall buildings because of their existing built form and the presence of similar buildings. Higher densities are also appropriate because of the downtowns’ function as primary employment and cultural centres for the broader region.
The Downtown Dartmouth and Downtown Halifax Plans are currently being reviewed and will be included in the final Centre Plan.
Downtowns Residential Areas
14
Future Growth Nodes
Centres Corridors DRAFT
Figure 5: Growth in Downtowns The Plan proposes that the Downtowns can accommodate 14% of new Regional Centre residents.
78 | Centre Plan: Policy Direction Objectives
͙͙ To maintain and promote compact, intensified and walkable downtowns. ͙͙ To accommodate residential redevelopment and supportive commercial uses. ͙͙ To create a safe and comfortable public realm for all ages and abilities. ͙͙ To maintain distinctive downtowns by preserving and reinforcing the elements that impart a sense of history, culture and a unique natural setting. ͙͙ To ensure visual appeal and inspiring qualities to the design, improvement and construction of streets, open spaces and buildings. ͙͙ To strengthen the visual and physical connections between historical and natural assets, civic and open space destinations, and neighbourhoods. ͙͙ To create a vibrant downtown through a broad mix of land uses, supporting infrastructure, and necessary critical mass.
highfield Albro lake park micmac Bedford Basin village tufts cove crichton park Lake banook
bridge a. Murray mackay africville park dartmouth common fairview cove container Downtown terminal dartmouth southdale The hydrostone
bridge
Angus l. macdonald
woodside Halifax harbour industrial park
Halifax Common Citadel Downtown DRAFThalifax
dalhousie Northwest Arm university
saint mary’s South end university container terminal
Figure 6: Locations of Downtowns within the Regional Centre
Urban Structure Policies | 79 3.3 Centres
The Regional Plan sets out a vision for the Regional Centre that includes mixed- use diverse neighbourhoods that support transit and active transportation. With this in mind, the Centre Plan focuses a significant proportion of growth on vacant and underutilized land along major streets to create walkable and complete communities. These areas, identified for targeted growth, are classified as Centres. An examination of the corridor work conducted in 2011 led to the identification of five Centres. Following engagement with the community this past summer their boundaries were further refined. The Centre’s boundaries are centred around main streets, and in some cases include intersecting streets and adjacent blocks that have an existing concentration of people and jobs.
The five areas within the Regional Centre designated as Centres are: GOTTINGEN, QUINPOOL, SPRING GARDEN, WYSE, and YOUNG.
These five Centres have existing commercial activity including retail, restaurants, and offices, and include varying degrees of residential density. All have above average transit service and land available to accommodate growth. To achieve a concentration of people, jobs, and services; medium to high density development is appropriate for these areas. They have the ability to become complete Downtowns Residential communities with excellent transit accessibility, where pedestrians and cyclists Areas feel safe and comfortable. Following the land use policies presented in this section; jobs, housing, and services will be concentrated together in the Centres to build dynamic mixed use areas.
Future This section provides policies that are general to all Centres and also includes Growth specific profiles for each Centre. Nodes 28
Centres Corridors DRAFT
Figure 7: Growth in Centres The Centre Plan envisions the Centres playing an important role in managing growth within the Regional Centre. The Plan proposes that the Centres can accommodate 28% of new Regional Centre residents.
80 | Centre Plan: Policy Direction Objectives
͙͙ To encourage main streets that demonstrate high quality building standards and prioritize pedestrians. ͙͙ To support a diversity of commercial activity, including office, retail, services and restaurants. ͙͙ To accommodate new residents and jobs through moderate height and tall buildings at strategic locations. ͙͙ To accommodate residential redevelopment and supportive commercial uses. ͙͙ To create a safe and comfortable public realm for all ages and abilities. ͙͙ To support public transit and active transportation through land use and the built form.
highfield Albro lake park micmac Bedford Basin village tufts cove crichton park Lake banook
bridge A. Murray mackay africville wyse rd park dartmouth common fairview cove Downtown container dartmouth terminal southdale The hydrostone
bridge
Angus l. macdonald
woodside young st Halifax harbour industrial park
gottingen st
Halifax Common Citadel Downtown quinpool rd DRAFThalifax
spring garden rd
dalhousie Northwest Arm university
saint mary’s South end university container terminal
Figure 8: Locations of Centres within the Regional Centre
Urban Structure Policies | 81 Policy Directions
3.3.1 LAND USE
Development Proposals a) Development proposals within Centres should include the following: ͙͙ Ground floor uses that are active and oriented to serve pedestrians along existing commercial and main streets ͙͙ A mix of uses that support pedestrian traffic ͙͙ The land use patterns of the nearby areas extended, or logically completed, to support integrated mobility to and through Centres
b) When required, multi-site and large site redevelopment proposals in Centres should plan for: ͙͙ Buildings and parks that provide a focal point or anchor for key areas or intersections ͙͙ Neighbourhood gathering and activity places ͙͙ Integration with the public street grid and active transportation connections ͙͙ Proximity of mix of uses and employment to transit
Mixed Uses c) Mixed-use buildings with active uses at grade should be encouraged on main streets as identified in the Centre profiles maps (see Figure 8).
Residential Uses d) Encourage a variety of residential forms within the Centres, including: ͙͙ Multi-unit apartment style buildings ͙͙ Semi-detached dwellings ͙͙ Townhouses ͙͙ Duplexes/Triplexes
e) Where residential units are provided at grade level, all units that front a public sidewalk or publicly accessible private sidewalk should have individual, DRAFTprimary entrances to and from that sidewalk.
Commercial Uses f) Office, retail, service, and restaurant uses that serve as both local and regional draws are encouraged throughout the Centres.
g) Drive-through facilities are not permitted within the Centres.
82 | Centre Plan: Policy Direction h) Automotive uses should be discouraged, other than fully-enclosed retail and accessory service, such as a vehicle showrooms.
i) Any future automotive uses should meet the form requirements.
Animating Walkways j) Developments that abut, or contain, a publicly accessible sidewalk or pathway should be encouraged to provide active uses, or architectural features at-grade, along the walkway.
3.3.2 BUILT FORM
Regional Centre Character a) When approving new developments, consider how the development contributes to the character of the Centre it is being proposed in.
Density b) Control the density of new developments through maximum building envelope and Floor Area Ratio (FAR).
c) Measure density by FAR.
d) Control the building mass of large developments through FAR.
Building Height e) Building heights shall be generally located as per the Centre Profiles (see Figure 5).
Bonus Density f) Density Bonusing programs in the Centres where a bonus height is offered as an incentive for specific public benefits in excess of the minimum development requirements are supported.
g) Create two building height regimes; a lower, pre-bonus height which may be DRAFTachieved without the contribution of certain public benefits, and a post bonus height where public benefits in excess of the minimum development requirements are achieved.
h) Consider a variety of public benefits when assessing site plan approval applications seeking a height bonus in exchange for the provision of public benefit, in accordance with the bonus zoning provisions of the Halifax
Urban Structure Policies | 83 Regional Municipality Charter. Establish provisions in the Land Use By-law to guide negotiations of appropriate public benefits which must include affordable housing and may include: ͙͙ Publicly accessible private open space ͙͙ Community and cultural space ͙͙ Public art ͙͙ Cash-in-lieu where none of the above are appropriate
Multi-Unit Residential i) Where developments abut, or contain a publicly accessible sidewalk or pathway, at-grade residential units should have accessible main floors set slightly above grade (typically 0.5-1.0 m) in order to achieve visual privacy from any sidewalk.
j) Within a new moderate height and tall multi-unit residential, commercial, or mixed use building all recycling, composting, and garbage storage facilities should be located entirely within the building.
k) In all other multi-unit residential, commercial, and mixed-use building forms, all recycling, composting and garbage storage facilities should be screened from adjacent properties and the public realm.
l) Prohibit non-transparent privacy fences or walls that detract from the public realm.
Setback Treatment m) If buildings are setback from the street, their setbacks should be designed in a way that supports walkability and the pedestrian environment.
n) Require new development to extend the public sidewalk to the front of the building using a design and materials that are consistent with the public sidewalk to create an attractive interface from the public to private realm.
Building Massing o) In order to reduce the massing impacts of tall buildings, above the streetwall DRAFTpodium the Gross Floor Area shall be restricted to 750m2.
3.3.3 MOBILITY
Parking Requirements a) HRM shall allow, but not require, private on-site parking in support of new multi-unit residential developments in the Centres.
84 | Centre Plan: Policy Direction Centre Profiles
Since the Centres will accommodate significant growth to create active local and regional destinations, they were studied individually to understand their growth capacity, character and surrounding context. The following pages illustrate specific guidance tailored to each Centre.
Each map shows the distribution of different height ranges, main streets, and important connections to provide customized direction to guide the development and enhancement of each of these areas. The final draft of the Centre Plan will define maximum heights throughout the Centres. At this time height ranges are shown to demonstrate the form of development that could be supported within each Centre.
The height ranges shown reflect the following information: ͙͙ Appropriate transitions to the neighbouring context, especially the low scale established residential uses ͙͙ Market interest and development activity in these areas ͙͙ Public feedback and insight garnered through the Centre Plan process
It is important to note that each of these heights must be read in concert with the urban design policies housed in the General Policy section to ensure that new development transitions appropriately to its surrounding context.
DRAFT
Urban Structure Policies | 85 Centre Profile: Gottingen Street
Total Area: 11.7 ha / 0.12 km2
This Centre includes Gottingen St. from Cogswell St. to Buddy Daye St., as well as larger parcels of land northwest of the Cogswell Interchange. Gottingen St. contains a wide variety of buildings ranging from one to eight storeys with residential, commercial, office, cultural, service and entertainment uses. The Centre is also flanked by residential neighbourhoods, and a number of heritage properties.
Recently, there have been a number of redevelopment projects with new retail and multi-unit residential buildings in this Centre. However, this area includes vacant or underutilized properties that can accommodate future growth. This growth should respect the character of the area.
DRAFT
86 | Centre Plan: Policy Direction Uniacke St
maitland st
brunswick st
buddy daye st creighton st
agricola st gottingen st Cunard st
cornwallis st
portland pl
cunard st falkland st north park st
cogswell st DRAFT
LEGEND
Maximum Building Height 1-3 Storeys Centre Boundary 4-6 Storeys Main Street 7-10 Storeys Key Connection 11-15 Storeys 16-20 Storeys SCALE 1 : 6000
Urban Structure Policies | 87 Centre Profile: Young Street
Total Area: 46.3 ha / 0.46 km2
The largest in area of the five Centres, the Young St. Centre includes blocks that border Young St. and Robie St. This Centre has capacity for growth due to a number of large blocks, and underutilized or single owner properties. Currently this Centre has a broad range of building types including large warehouses, big box retail stores, one to three storey houses, and larger multi-unit residential buildings.
This area is already starting to see redevelopment with multi-unit residential buildings under construction or recently completed, with more likely to be built. A priority for this Centre is to reintroduce a formalized block pattern and to improve walkability.
DRAFT
88 | Centre Plan: Policy Direction agricola st
kaye St
demone St Kempt rd
russell St
macara St
bilby St
young st Almon St
robie st may st
st albans st
mccully st
cork St clifton st
liverpool St gladstone st
london St windsor st
edinburgh St DRAFTnorth St
LEGEND
Maximum Building Height 1-3 Storeys Centre Boundary 4-6 Storeys Main Street 7-10 Storeys Key Connection 11-15 Storeys 16-20 Storeys SCALE 1 : 6000
Urban Structure Policies | 89 Centre Profile: Spring garden road
Total Area: 6.15 ha / 0.07 km2
Spring Garden is the smallest of the five Centres, running along Spring Garden Rd. from Robie St. to Cathedral Ln. The area is characterized by apartment buildings set back from the street, and 2-3 storey single detached buildings with residential and commercial uses. A number of heritage properties along Carlton St. have been taken out of the Centre.
When situated appropriately, additional moderate and tall infill buildings can be accommodated that are in keeping with the apartment style character of this Centre.
DRAFT
90 | Centre Plan: Policy Direction sackville st
south park st
jubilee rd
summer st
robie st
carlton st
cathedral ln
bliss st spring garden rd
college st
coburg rd
university ave
south st DRAFT
LEGEND
Maximum Building Height 1-3 Storeys Centre Boundary 4-6 Storeys Main Street 7-10 Storeys Key Connection 11-15 Storeys 16-20 Storeys SCALE 1 : 6000
Urban Structure Policies | 91 Centre Profile: Quinpool road
Total Area: 19.8 ha / 0.20 km2
Quinpool Rd., from Robie St. to Summer St., has been included as a Centre. A number of mixed residential and commercial uses make this a popular destination and an area with significant development interest. The scale of buildings along Quinpool Rd. transitions from taller buildings at the eastern end to low buildings in the more residentially focused western end.
Development along Quinpool, as with all the other Centres, must transition appropriately to surrounding established residential areas.
DRAFT
92 | Centre Plan: Policy Direction robie st
windsor st
allan st
quingate pl
monastery ln
yukon st harvard st pepperell st
oxford st
kline st yale st
beech st quinpool rd elm st
vernon st shirley st
norwood st DRAFT
LEGEND
Maximum Building Height 1-3 Storeys Centre Boundary 4-6 Storeys Main Street 7-10 Storeys Key Connection 11-15 Storeys 16-20 Storeys SCALE 1 : 6000
Urban Structure Policies | 93 Centre Profile: Wyse road
Total Area: 29.2 ha / 0.29 km2
This larger Centre runs along Wyse Road in Dartmouth from Thistle Street to Albro Lake Road, and is primarily auto-dependent. Wyse Rd. transitions from a narrow two lane street in the North to a large median divided arterial road as it intersects with the Angus L. Macdonald Bridge. The scale of buildings vary from a tall office tower to one-storey single detached buildings.
Growth can be accommodated as infill in vacant or underutilized lots. Over time, this Centre can become pedestrian-oriented when redevelopment creates environments that are pedestrian and cyclist friendly.
DRAFT
94 | Centre Plan: Policy Direction albro lake rd
richmond st
chappell st
westbrook ave russell st victoria rd
symonds st
howe st graham st
frances st
boland rd
elmwood ave
rosedale dr
nova ct
hester st green rd
windmill rd wyse rd jamieson st brookside ave george st
nantucket ave
john st
pelzant st
bligh st dickson st faulkner st
williams st dawson st
DRAFTangus l. Macdonald bridge
LEGEND
Maximum Building Height 1-3 Storeys Centre Boundary 4-6 Storeys Main Street 7-10 Storeys Key Connection 11-15 Storeys 16-20 Storeys SCALE 1 : 6000
Urban Structure Policies | 95 3.4 Corridors
Corridors share many of the same attributes as Centres, however they are linear in nature and oriented along a single local or arterial road. Corridors have some existing commercial and residential density, and in most cases have good transit access, are near schools and parks, and are close to employment areas.
Redevelopment along the Corridors is anticipated and encouraged. The creation of new housing, commercial spaces, and job opportunities in mixed use buildings will bring new activity and life to the Corridors. Since corridors provide mobility links for local and regional commuters and border residential communities, the transportation system and land use should be designed to accommodate a variety of travel modes. An increase in people and amenities, along with improvements to the pedestrian environment, and transit service will make the Corridors a key part in creating complete communities across the Regional Centre.
Corridors are appropriate locations for low (three-storey) to moderate (four to six storey) development that, depending on local conditions, should include ground floor commercial spaces.
Downtowns Residential Areas designated as Corridors are: Areas ͙͙ Agricola St. – from Cunard St. to Young St. ͙͙ Bayers Rd. – from Connaught Ave. to Oxford St. ͙͙ Chebucto Rd. – from Connaught Ave. to Oxford St. ͙͙ Cunard St. – from Windsor St. to Gottingen St. Future ͙͙ Gottingen St. – from Young St. to Bloomfield St. Growth ͙͙ Inglis St. – from Barrington St. to Blands St./Brussels St. Nodes ͙͙ Kaye St. from Isleville St. to Gottingen St. ͙͙ Oxford St. – from Bayers Rd. to Liverpool St. ͙͙ Pleasant St. – from Newcastle St. to Renfrew St. 21 Centres ͙͙ Portland St. – from Maynard St. to Manor Dr. ͙͙ Prince Albert Rd. - from Celtic Dr. to Harris Rd. Corridors DRAFT͙͙ Robie St. – from North St. to Welsford St. & Shirley St. to South St. ͙͙ Victoria Rd. – from Primrose St. to Frances St. ͙͙ Windmill Rd. – from Brookside Ave. to Albro Lake Rd. (East side only) Figure 9: Growth in Corridors ͙͙ Young St. – from Agricola St. to Gottingen St. The Centre Plan proposes that Corridors can accommodate 21% of new Regional Centre residents.
96 | Centre Plan: Policy Direction Objectives
͙͙ To strengthen neighbourhood destinations with commercial and retail uses focused on local service. ͙͙ To create complete streets that demonstrate high quality streetscaping while prioritizing pedestrians. ͙͙ To accommodate residential development in the form of low to moderate height buildings. ͙͙ To create a safe and comfortable public realm for all ages and abilities. ͙͙ To support public transit and active transportation through land use and built form.
highfield Albro lake park micmac Bedford Basin village tufts cove crichton park Lake banook Victoria rd prince albert rd bridge a. Murray mackay africville park windmill rd dartmouth common fairview cove Downtown portland st container dartmouth terminal southdale The hydrostone
bridge pleasant st
Angus l. macdonald gottingen st agricola st young st woodside Halifax harbour industrial park
oxford st bayers rd cunardHalifax st Common Citadel chebucto rd Robie st Downtown DRAFThalifax
dalhousie Northwest Arm university inglis st
saint mary’s South end university container terminal
Figure 10: Locations of Corridors within the Regional Centre
Urban Structure Policies | 97 Policy Directions
3.4.1 LAND USE
Mixed Uses a) Encourage multi-unit residential and mixed use buildings along Corridors.
Residential Use b) Encourage a variety of residential forms within the Corridors, including: ͙͙ Multi-unit apartment style buildings ͙͙ Semi-detached dwellings ͙͙ Townhouses ͙͙ Duplexes/Triplexes
c) Where residential units are provided at grade level, all units that front a public sidewalk or publicly accessible private sidewalk should have individual, primary entrances to and from that sidewalk.
Commercial Uses d) Retail, service, and restaurant uses should be permitted along Corridors.
e) New drive-through facilities along Corridors should not be permitted.
f) Automotive uses should be discouraged, other than fully-enclosed retail and accessory service, such as a vehicle showrooms.
g) Any future automotive uses should meet the form requirements.
Comprehensive Redevelopment Sites h) Determine whether multi-site comprehensive redevelopment plans on a Corridor should require a master plan on a case-by-case basis.
i) Multi-site and large site redevelopment proposals in Corridors should plan for: DRAFT͙͙ Buildings and parks that provide a focal point or anchor for key areas or intersections ͙͙ Neighbourhood gathering and activity places ͙͙ Integrate with the public street grid network and AT connections ͙͙ Proximity of mix of uses and employment to transit
98 | Centre Plan: Policy Direction Private Outdoor Amenity Space j) For multi-unit developments, all new residential units should be provided with private outdoor amenity space, either exclusive to an individual unit or as a common amenity available to all units within a development. Common amenity space may be provided at or above grade and may be completely or partially visible from the street or other buildings.
3.4.2 BUILT FORM
Neighbourhood Character a) When approving new developments, consider how the development contributes to the character of the neighbourhood it is being proposed in.
Density b) Measure density by Floor Area Ratio (FAR).
c) Establish maximum densities for each Corridor.
Building Height d) Building heights shall not exceed four storeys unless there is sufficient lot depth to accommodate up to six stories through appropriate transitions to adjacent buildings.
Multi-Unit Residential e) Where developments abut, or contain, a publicly accessible sidewalk or pathway, at-grade residential units should have accessible main floors set slightly above grade (typically 0.5-1.0 m) in order to achieve visual privacy from any sidewalk.
f) Within a new moderate height multi-unit residential, commercial, or mixed use building, all recycling, composting, and garbage storage facilities should be located entirely within the building.
g) In all other multi-unit residential, commercial, and mixed-use building forms, DRAFTall recycling, composting and garbage storage facilities should be screened from adjacent properties and the public realm.
h) Prohibit non-transparent privacy fences or walls that detract from the public realm.
Urban Structure Policies | 99 Commercial Ground Floor i) Reserve the right to require that new multi-unit development be built in a way that enables the transition from residential uses to commercial uses on the ground floor overtime.
Setback Treatment j) If buildings are setback from the street, their setbacks shall be designed in a way that supports walkability and the pedestrian environment.
k) Consider coordinating and integrating setback area landscape improvements with existing or planned streetscape improvements in the public right-of- way in order to create an attractive interface from the private to public realm.
3.4.3 MOBILITY
Parking Requirements a) Allow, but not require, private on-site parking in support of new multi-unit residential developments in the Corridors.
DRAFT
100 | Centre Plan: Policy Direction DRAFT
Urban Structure Policies | 101 3.5 Future Growth Nodes
Future Growth Nodes are large sites located within, or adjacent to, existing communities around the periphery of the Regional Centre. Currently, these areas contain predominately single-use development such as shopping malls, commercial development, and in the case of Shannon Park, former Department of National Defence lands. These areas have the potential to accommodate significant growth through infill and greyfield redevelopment. The Centre Plan envisions these nodes as having higher densities through a mix of uses and building types including, but not limited to, retail, apartments, and townhouse forms. The transition of Future Growth Nodes to mixed use areas, with a blend of tall, moderate, and lower height development, will not be immediate and may take several years to fully evolve into the desired developed form.
Future growth nodes are capable of transformative change as they have the land base to support population growth and a mix of uses. Redevelopment of these sites may face certain challenges, including servicing constraints and contamination issues. In general, however, development will be able to leverage nearby infrastructure and connect to the existing street grid. Redeveloping these large sites to function like complete communities will benefit nearby neighbourhoods. Downtowns Residential Areas Areas designated as Future Growth Nodes are: Joseph Howe, Mic Mac Mall, Mumford, Penhorn, Highfield Park, Graham’s Grove, and Shannon Park.
Future Growth 21 Nodes
Centres Corridors DRAFT
Figure 11: Growth in Future Growth Nodes The Centre Plan proposes that areas identified as Future Growth Nodes can accommodate 21% of new Regional Centre residents.
102 | Centre Plan: Policy Direction Objectives
͙͙ To support the current use of Future Growth Nodes until redevelopment. ͙͙ To plan each node through a public process prior to redevelopment. ͙͙ To design and build Future Growth Nodes following complete community principles. ͙͙ To create a safe and comfortable public realm for all ages and abilities. ͙͙ To prioritize pedestrians, cyclists, and public transit over auto-oriented uses.
highfield Albro lake park Mic mac Bedford Basin mall
shannon crichton park park Lake banook
bridge a. Murray mackay africville park penhorn dartmouth common fairview cove Downtown container dartmouth terminal southdale The hydrostone
bridge
Angus l. macdonald
joseph howe woodside Halifax harbour industrial park
Halifax Common Citadel mumford Downtown DRAFThalifax
dalhousie Northwest Arm university
saint mary’s South end university container terminal
Figure 12: Locations of Future Growth Nodes within the Regional Centre
Urban Structure Policies | 103 Policy Directions
3.5.1 GENERAL
Comprehensive Planning a) Prior to redevelopment of a Future Growth Node, a planning process should be completed that includes engagement with the surrounding community.
Initiation of Planning b) A planning process may be triggered: ͙͙ By HRM if their interests are aligned with redevelopment of property within the Node. ͙͙ By the landowner seeking redevelopment of property within the Node.
Development Components c) Future Growth Nodes must include the following: ͙͙ A transit hub ͙͙ A mix of residential, commercial, community, and employment uses ͙͙ Parks and open space network that is integrated with the surrounding community ͙͙ A street grid with a formalized block pattern that connects with the surrounding community ͙͙ Housing choice in terms of form (including townhouse forms and apartment housing) and capacity (bachelor, 1 bedroom, or multiple bedrooms)
Studies Needed for Development of a Future Growth Node d) Consider, at a minimum, the inclusion of the following studies in a Future Growth Node planning: ͙͙ Concept Plan ͙͙ Transportation Impact ͙͙ Environmental Studies DRAFT͙͙ Urban Design Plan
104 | Centre Plan: Policy Direction 3.5.2 LAND USE
Residential Use e) Future Growth Nodes should include multiple residential forms that can include: ͙͙ Low, moderate and/or tall apartment style buildings ͙͙ Stand-alone or podium townhouses and stacked townhouses ͙͙ Duplexes/Triplexes
Community and Recreational Uses f) May incorporate new community and recreational uses where appropriate to support a complete community.
Transitional uses g) New development that borders existing residential areas must respect and complement the existing residential areas in terms of use and form.
Density h) Work with the landowners and local communities to set the appropriate maximum density of people and jobs during the planning process for each Future Growth Node.
Transit-oriented Design i) The planning of Future Growth Nodes should consider incorporating a higher intensity of employment uses around a transit terminal or stop.
Bonus Density j) Density Bonusing programs in the Future Growth Nodes where a bonus height is offered as an incentive for specific public benefits in excess of the minimum development requirements are supported.
k) Create two building height regimes; a lower, pre-bonus height which may be achieved without the contribution of certain public benefits, and a post bonus height where public benefits in excess of the minimum development DRAFTrequirements are achieved.
Urban Structure Policies | 105 l) Consider a variety of public benefits when assessing site plan approval applications seeking a height bonus in exchange for the provision of public benefit, in accordance with the bonus zoning provisions of the Halifax Regional Municipality Charter. Establish provisions in the Land Use By-law to guide negotiations of appropriate public benefits which must include affordable housing and may include: ͙͙ Publicly accessible private open space ͙͙ Community and cultural space ͙͙ Public art ͙͙ Cash-in-lieu where none of the above are appropriate
3.5.3 BUILT FORM
Building Height a) Building heights will be determined during the planning process.
Intensification b) The highest level of residential and commercial intensification should be located strategically: ͙͙ At transit stops and along transit routes ͙͙ Near neighbouring developments of a compatible scale and intensity ͙͙ Away from lower scale neighbouring properties ͙͙ To maximize access to parks and trail networks ͙͙ To maximize access to commercial areas, schools, and other community services
Street Grid c) Redevelopment should introduce a formal street and block pattern that incorporates short interconnected blocks for ease of walkability.
Building Design d) The design of buildings and their sites should acknowledge the pedestrian DRAFTrealm with human scaled architecture and landscape design. 3.5.4 MOBILITY
Connections a) The internal street network must integrate with the public street grid network and active transportation connections.
106 | Centre Plan: Policy Direction 3.5.5 PUBLIC SPACES AND PLACES
Parks Network a) The comprehensive planning process should address how the Future Growth Node can be integrated within the municipality’s larger parks network.
Gathering Places b) Future Growth Node should incorporate public spaces, such as a square or plaza space, to function as a focal point for the redevelopment.
3.5.6 NODE SPECIFIC POLICY
Existing Planning Work a) Where research, studies, and consultation has taken place for Future Growth Nodes that work shall inform the policies that will be set out for each specific node.
DRAFT
Urban Structure Policies | 107 3.6 Residential Areas
Residential areas in the Regional Centre have been divided into two areas: ESTABLISHED RESIDENTIAL AREAS and HIGHER ORDER RESIDENTIAL AREAS. Neighbourhoods in both these categories are primarily residential in nature. They also contain parks, schools, places of worship, local institutions, and some commercial uses such as local markets, dry cleaners, and cafés. The Centre Plan puts forth policies to maintain these areas as residential neighbourhoods.
Established Residential Areas have lower densities and are largely characterized by single detached homes. These areas are suitable locations for auxiliary dwelling units, such as secondary suites, or other residential infill that is consistent with the character of the existing neighbourhood.
Moderate to high density Higher Order Residential Areas are characterized by clusters of multi-unit apartment and condominium buildings. Redevelopment of these areas should include similarly scaled infill of moderate buildings. Improving public amenities, promoting environmental sustainability, and accommodating sensitive infill are key development considerations within these areas.
Downtowns Residential Areas
16
Future Growth Nodes
Centres Corridors DRAFT
Figure 13: Growth in Residential Areas The Centre Plan proposes that residential areas can accommodate 16% of new residential growth in the Regional Centre.
108 | Centre Plan: Policy Direction Objectives
͙͙ To protect the character of residential areas. ͙͙ To support commercial activity through home-based businesses, professional offices, and other commercial uses focused on local service, where appropriate. ͙͙ To provide a range of housing options and forms. ͙͙ To create a safe and comfortable public realm for all ages and abilities.
highfield Albro lake park micmac Bedford Basin village tufts cove crichton park Lake banook
bridge a. Murray mackay africville park dartmouth common fairview cove Downtown container dartmouth terminal southdale The hydrostone
bridge
Angus l. macdonald
woodside Halifax harbour industrial park
Halifax Common Citadel Downtown DRAFThalifax
dalhousie Northwest Arm university
saint mary’s South end university container terminal
Figure 14: Locations of Residential Areas within the Established Residential Regional Centre Higher Order Residential
Urban Structure Policies | 109 Policy Directions
ESTABLISHED RESIDENTIAL AREAS:
3.6.1 LAND USE
Residential Uses a) In addition to the general housing policies, permit modest redevelopment opportunities that respect the existing scale, character and built form of these areas. Appropriate housing types may include: ͙͙ Low scale apartment style buildings ͙͙ Detached dwellings ͙͙ Semi-detached dwellings ͙͙ Townhouses ͙͙ Duplexes/Triplexes ͙͙ Housing conversions ͙͙ Garden suites ͙͙ Secondary suites/Auxiliary Dwelling Units
Commercial Locations b) Consider the location of small scale commercial and retail uses in established residential neighbourhoods at, or adjacent to, the intersections of local streets rather than mid-block.
Commercial Uses c) Commercial uses should be compatible with the immediate local residential context, and will be evaluated to minimize off-site nuisance impacts from noise, parking, or other adverse impacts upon adjacent or nearby residents.
d) Permit the following commercial uses within Established Residential Areas: ͙͙ Small-scale neighbourhood-serving retail uses ͙͙ Live/work units
DRAFT3.6.2 BUILT FORM
Subdivision a) Consider development applications to subdivide a residential property by lot depth in order to support additional low impact density, when appropriate.
110 | Centre Plan: Policy Direction Infill Housing b) Support infill housing and rehabilitation as the preferred form of redevelopment in established residential communities.
Street Setback c) To maintain the character of a street, the building setbacks should be in keeping with the general existing setback along the block.
Lot Standards d) Differing lot standards are appropriate in different areas of the Regional Centre. These standards should reflect the character of the surrounding area.
3.6.3 MOBILITY
Permit Parking a) In areas with high demand for on-street residential and commercial parking, residential permit parking should be supported to ensure a supply of parking for local residents.
Parking Requirements b) Establish off-street parking requirements in residential areas that reflect local access to transit and active transportation services can replace the need to use vehicles. DRAFT
Urban Structure Policies | 111 HIGHER ORDER RESIDENTIAL AREAS:
3.6.4 LAND USE
Residential Use a) Permit all residential uses permitted in Established Residential Areas as well as moderately scaled (four to six storey) ground-oriented apartment style buildings in Higher Order Residential Areas as long as they are consistent in scale, or appropriately transition to adjacent properties. Refer to Figure 14 for location of Higher Order Residential Areas.
Housing Choice b) Support a variety of housing options that reflect the needs of a diverse population by encouraging the following: ͙͙ The provision of three or more bedroom units ͙͙ Ground-oriented units that provide private outdoor space ͙͙ Communal hard and soft surface outdoor children’s amenity space
Commercial Locations c) Commercial and retail uses should be located at or adjacent to the intersections of local streets rather than mid-block and accessible through active transportation.
Commercial Uses d) Permit the following commercial uses in Higher Order Residential Areas: ͙͙ Live/work units at grade, and home occupations ͙͙ Small-scale, local-serving retail uses at intersections or clustered with existing commercial uses. ͙͙ Grocery stores
Mixed Use e) Small scale commercial and community uses may be permitted on apartment building sites.
Private Outdoor Amenity Space DRAFTf) For multi-unit developments, all new residential units should be provided with private outdoor amenity space, either exclusive to an individual unit or as a common amenity available to all units within a development. Common amenity space may be provided at or above grade and may be completely or partially visible from the street or other buildings.
112 | Centre Plan: Policy Direction 3.6.5 BUILT FORM
Neighbourhood Character a) When approving new developments, consider how the development contributes to the character of the neighbourhood it is being proposed in.
Building Height b) Moderate height (four to six storey) buildings are appropriate in these areas depending on lot size and depth.
Multi-Unit Residential c) Where developments abut, or contain, a publicly accessible sidewalk or pathway, at-grade residential units should have accessible main floors set slightly above grade (typically 0.5-1.0 m) in order to achieve visual privacy from any sidewalk.
d) Within a new moderate height multi-unit residential, commercial, or mixed use building all recycling, composting, and garbage storage facilities should be located entirely within the building.
e) In all other multi-unit residential, commercial, and mixed-use buildings forms, all recycling, composting and garbage storage facilities should be screened from adjacent properties and the public realm.
Street Setback f) To maintain the character of a street, the building setbacks should be in keeping with the general existing setback along the block.
g) If buildings are setback from the street, their setbacks shall be designed in a way that supports walkability and the pedestrian environment.
3.6.6 MOBILITY
Permit Parking DRAFTa) In areas with high demand for on-street residential and commercial parking, residential permit parking should be considered to ensure a supply of parking for local residents.
Parking Requirements b) Establish off-street parking requirements in residential areas that reflect local access to transit and active transportation services can replace the need to use vehicles.
Urban Structure Policies | 113 3.7 Employment Areas
The Centre Plan has divided employment areas into EMPLOYMENT INTENSIVE AREAS and INSTITUTIONAL EMPLOYMENT AREAS. Small scale retail, daycares, restaurants and other commercial services that meet the daily needs of employees and clients are appropriate in these areas as well.
Employment Intensive Areas are well positioned to accommodate industrial and commercial activity. These locations should be retained for industrial and other employment intensive uses. They are not suitable areas for residential growth. Supporting these nodes of employment within the Regional Centre will help to provide economic efficiencies and ultimately enhance the national and global competitiveness of these sectors.
Institutional Employment Areas contain public institutions including universities, colleges, and health care facilities. These institutions are major employers in the Regional Centre, attracting thousands of students, patients, and employees every day. The clustering of these facilities plays a role in fostering partnerships and the development of innovative technologies and services.
DRAFT
114 | Centre Plan: Policy Direction Objectives
͙͙ To maintain and protect existing areas of employment within the Regional Centre. ͙͙ To increase jobs to support a diverse and economic base for the Halifax region. ͙͙ To reduce Regional Centre commute times through land use decisions and an integrated transportation system. ͙͙ To support the Regional Centre’s institutions, including governmental, educational, and health sectors. ͙͙ To create a safe and comfortable public realm for all ages and abilities.
highfield Albro lake park micmac Bedford Basin village tufts cove crichton park Lake banook
bridge a. Murray mackay africville park dartmouth common Downtown fairview cove dartmouth container southdale terminal The hydrostone
bridge
Angus l. macdonald
woodside Halifax harbour industrial park
Halifax Common Citadel Downtown DRAFThalifax
dalhousie Northwest Arm university South end container terminal saint mary’s university
Figure 15: Locations of Employment Areas within the Employment Intensive Regional Centre Institutional
Urban Structure Policies | 115 Policy Directions
3.7.1 GENERAL
Employment Lands Expansion a) When the creation or expansion of an Employment Intensive Area requires a zoning change, request the proponent, in an enhanced applicant's statement, to provide, at a minimum, the following: ͙͙ Expected socio-economic costs and benefits to adjacent neighbourhoods ͙͙ An Economic and Fiscal Impact Analysis ͙͙ A Transportation Impact Analysis ͙͙ An Environmental Impact Analysis
3.7.2 LAND USE
PRIMARILY INDUSTRIAL EMPLOYMENT AREAS:
Industrial Uses a) Industrial uses should be permitted in these areas.
Retail, Service and Restaurant Uses b) Permit supportive retail, personal service, and restaurant uses.
Working Harbour c) Along the harbour’s edge, support industries which are harbour-related.
Non-industrial Harbour Uses d) Development of non-harbour related commercial and industrial use in areas designated "Industrial" and zoned harbour-related uses may be permissible provided that the long term intent of these areas for harbour industrial uses is preserved. The proposed development should: ͙͙ Not be detrimental to the port or other harbour related industries DRAFT͙͙ Generate only a level of vehicle trips that can be reasonably accommodated on the present street system ͙͙ Not negatively affect the long term preservation of the area for harbour related uses
Residential Uses e) Residential uses are not permitted in Employment Intensive Areas to preserve the industrial and commercial character of these areas. To respect the existing context, residential uses will continue to be permitted along Windmill Road.
116 | Centre Plan: Policy Direction INSTITUTIONAL EMPLOYMENT AREAS:
Institutional Uses f) Institutional uses should be permitted in these areas.
Retail, Service and Restaurant Uses g) Supportive retail, personal service, and restaurant uses should be permitted.
Academic Facilities h) Major academic and cultural facilities, such as, but not limited to, laboratories, lecture halls, libraries, theatres and student centres, should be located within the interior of designated University areas.
Future Planning i) Support and facilitate the ongoing operation of health care and educational facilities.
j) When land is no longer needed for institutional use, coordinate with other levels of government to develop a comprehensive planning process for the future uses.
Master Plans k) Institutional Employment Areas including universities, colleges, and hospitals should consider having up to date master plans that have been developed through public engagement.
3.7.3 URBAN DESIGN
Transition a) When adjacent to residential uses, the transition from employment intensive areas shall incorporate natural and constructed buffers to minimize nuisance effects from sights, smells, noise, light and other potential impacts.
Parking DRAFTb) Parking may be provided through parking structures. Surface parking should be limited, and designed to support pedestrian comfort and incorporate Low Impact Development principles.
Urban Structure Policies | 117 3.7.4 PUBLIC SPACES AND PLACES
Open Space a) Consider providing sufficient public open spaces to create recreational opportunities for employees and clients.
Recreational and Sports Facilities b) Municipal recreation and sports facilities may be located in Employment Intensive Areas so long as they do not negatively impact the functionality of these areas.
c) When located in Employment Intensive Areas, recreational and sports facilities must be located in close proximity to transit routes and active transportation networks.
DRAFT
118 | Centre Plan: Policy Direction DRAFT
Urban Structure Policies | 119 4 Implementation and Monitoring Plan
The implementation of the Centre Plan is an ongoing process. The policies within Section 2 General Policies and Section 3 Urban Structure Policies, are tied to specific implementation policies in this section to ensure their realization over the 15-year lifespan of the Plan. These implementation policies can take many different forms including amendments, By-Laws, funding opportunities and capital programs. The guidance below provides a framework along with a timeframe for each action. This chapter summarizes key actions for the Municipality to undertake to contribute to the Regional Centre’s vision in theDRAFT short (under five years), medium (five to ten years) and long term (over ten years). 4.1 Land Use By-law Changes
Many of the policies have direct application to land use zones. All of these zoning recommendations will be implemented concurrently with Centre Plan as part of the Regional Centre Land Use By-Law.
a) The Land Use By-Law for the Regional Centre shall be the primary SHORT MEDIUM LONG ONGOING TERM TERM TERM implementation tool for the land use policies in this Plan.
4.1.1 DISCUSSION AND FURTHER ELABORATION The following section is an overview of key directions for the Regional Centre Land Use By-Law. The zoning and regulatory amendments in the Land Use By-Law for the Regional Centre will outline specific provisions in the following areas to ensure alignment with this Plan.
DRAFT
Implementation And Monitoring Plan | 121 KEY DIRECTIONS FOR THE LAND USE BY-LAW
Overall Zoning Guidance Specific Additions to Integrate Amenity Space Guidance Overall, zoning throughout the Regional into the Land Use By-Law The Land Use By-Law will also regulate Centre must support the following: When establishing the uses for different amenity spaces within multi-unit residential ͙͙ A mix of uses zones within the Regional Centre, HRM will developments by including direction on the ͙͙ A variety of residential forms and review existing zoning and update, if any following: diverse housing stock changes are necessary to accommodate the ͙͙ Private amenity space ͙͙ Multi-unit housing (including supporting following uses: ͙͙ Communal amenity space multi-bedroom units) ͙͙ Accessible housing options (especially ͙͙ Children’s amenity space ͙͙ Daycares and schools within Centres and Corridors) THIS IS A SUITABLE IMPLEMENTATION TOOL ͙͙ Ground-oriented housing ͙͙ Hidden and gentle density options (e.g. FOR POLICY DIRECTIONS: 3.4.1 (J), 3.6.5 (F) ͙͙ Live/work and home occupations garden suites) ͙͙ Commercial uses where appropriate ͙͙ Rooming houses Bonus Density THIS IS A SUITABLE IMPLEMENTATION TOOL ͙͙ Special care facilities FOR POLICY DIRECTIONS: 2.4.2 (D), 2.5.1 ͙͙ Makers spaces HRM will implement a bonus density (A,B,D,K), 2.7.2 (A), 3.3.1 (A-F), 3.4.1 (A-D), 3.6.1 ͙͙ Live/work spaces program in the Centres and Future Growth (A-D), 3.6.4 (A-E) ͙͙ Home occupations Nodes to implement affordable housing and ͙͙ Office spaces throughout the encourage: Downtowns and Centres ͙͙ Publicly accessible private open space Landscaping Requirements ͙͙ Tourism and hospitality uses ͙͙ Community and cultural space The Land Use By-Law will provide ͙͙ Use conversions ͙͙ Public art landscaping requirements tailored to ͙͙ Commercial uses in parks spaces ͙͙ Cash-in-lieu where none of the above
location and zoning throughout the THIS IS A SUITABLE IMPLEMENTATION TOOL are appropriate Regional Centre, this guidance will include: FOR POLICY DIRECTIONS: 2.3.3 (K), 2.5.1 (I), THIS IS A SUITABLE IMPLEMENTATION TOOL ͙͙ Landscaping of setback areas 2.5.2 (M), 2.5.3 (A), 2.7.1 (J), 2.7.2 (C), FOR POLICY DIRECTIONS: 2.4.2(E), 2.7.4 (A), ͙͙ Tree provision 2.7.3 (A, B, G) 3.3.2 (F-H), 3.5.2 (J-L) ͙͙ Landscape buffer requirements and standards (particularly those around Along the working harbourfront, some industrial areas) non-industrial uses may be considered Design Regulation to be Housed ͙͙ Parking lot landscape standards through a development agreement if they in the Land Use By-Law ͙͙ Green roof standards and requirements can demonstrate that: In addition to permitting uses throughout ͙͙ They are not detrimental to the port or the Regional Centre, the Land Use By-Law HRM will offer relaxations from the other harbour-related industries will regulate the following: standard landscaping requirements for ͙͙ They generate a level of vehicle trips developments that incorporate the that can be accommodated on the ͙͙ At-grade residential units access following into their landscape design: existing street network ͙͙ Units that front sidewalks or pathways ͙͙ Low impact development technologies ͙͙ They do not negatively impact the long must locate their primary entrances off ͙͙ Native plant species term preservation of harbour related of that sidewalk uses. THIS IS A SUITABLE IMPLEMENTATION TOOL THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.1.2 (I & O), 2.2.6DRAFT (J THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 3.3.1 (I), 3.4.1 (C) & K), 2.6.1 (C), 2.6.2 (C), 2.6.6 (C), 3.7.3 (A) FOR POLICY DIRECTIONS: 3.7.2 (C & D) Fencing In Primarily Industrial Employment Areas, HRM will not permit high or non- residential uses are not permitted except transparent privacy fences or walls that along Windmill Road. detract from the social street edge
THIS IS A SUITABLE IMPLEMENTATION TOOL THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 3.7.2 (E) FOR POLICY DIRECTIONS: 3.3.2 (L), 3.4.2 (H)
122 | Centre Plan: Policy Direction Centres Corridors Growth Future Nodes Established Areas Residential Order Higher Areas Residential Areas: Employment Industrial Areas: Employment Institutional
Residential
Hidden and gentle density forms (garden suites, secondary suites, infill housing)
Lower scale density (multi-unit dwellings 3 storeys or less, semi- detached-dwellings, townhouses, duplexes, triplexes)
Moderate height multi-unit dwellings (4 to 6 storeys)
Tall multi-unit dwellings (over 6 storeys)
Commercial Uses
Home occupations
Live/work opportunities
Local serving commercial uses with minimal off-site impacts (including cafés, corner stores, professional offices, personal service, At key intersections and other small scale uses)
Variety of commercial opportunities (including restaurants, retail, personal service, entertainment uses, and office uses)
Fully enclosed Drive through uses and automotive uses automotive uses only Industrial Uses
Small scale Small scale Industrial uses maker spaces maker spaces Industrial food processing, food manufacturing and warehousing
Public Spaces & Community Facilities
Parks and trail system
Community facilities, recreational facilities, schools and pathways
Urban farms, community gardens and farmers’ markets
Domestic fowl and bees (including associated structures)
Greenhouses Parking DRAFT Electric vehicle charging stations
Surface parking lots (side and rear yard) Discouraged
Underground and structured parking
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.1.1 (A, B, G), 2.1.2 (Z), 2.2.6 (I & G), 2.3.1 (H-J), 2.3.2 (C), 2.4.2 (D), 2.6.5 (C-E & G), 2.7.1 (J), 3.3.1 (A-I). 3.4.1 (A, B, D-G), 3.6.1 (A-D), 3.6.4 (A-E), 3.7.2 (A-G)
Implementation And Monitoring Plan | 123 4.2 Development Application Implementation Actions
A number of procedural and regulatory changes are recommended for the development application process to implement directions from the Centre Plan.
4.2.1 ADDITIONAL STUDIES REQUIRED AS PART OF THE APPLICATION PROCESS
During the application process, HRM may require further studies from the applicant to aid in the evaluation of the proposed development. These studies are especially important to fully understand how the development relates and impact its surrounding context.
Policy direction given in 2.1.2 (A & D), 2.2.1 (A), 2.1.2 (AE), 2.6.2 (B), and 3.7.1 (A) are all areas where implementation policies can inform applications processes. Any necessary studies will be defined in the Land Use By-Law to support requirements for Level of Service Assessments, Shadow Studies, Stormwater Management Studies, and Wind Studies.
4.2.2 APPLICANT’S STATEMENT REQUIREMENTS Development permit applications should include an applicant’s statement to explain the development and how its design aligns with direction provided in this plan.
a) HRM may require applicants to address the following in their applicant’s SHORT MEDIUM LONG ONGOING TERM TERM TERM statement during development applications: ͙͙ The mitigation of potential off-site impacts ͙͙ How existing ambient noise will be mitigated through protective measures for residential uses DRAFT͙͙ Measures incorporated to mitigate the effects of sea-level rise – for developments in low-lying areas
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.1.1 (C & D), 2.1.2 (G,H,J), 2.5.1 (E & I), 2.6.2 (F), 3.6.1 (B-D), 3.6.4 (D)
124 | Centre Plan: Policy Direction 4.2.3 DESIGN REQUIREMENTS Every development application includes design drawings for municipal staff to review. For developments in the Regional Centre, multi-unit residential buildings and large sites must note the following design elements in their proposal:
b) The design must demonstrate how the development will accommodate SHORT MEDIUM LONG ONGOING TERM TERM TERM recycling, composting, and garbage collection.
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.6.3 (G), 3.3.2 (J & K), 3.4.2 (F & G)
4.2.4 DEVELOPMENT AGREEMENTS The Centre Plan will be supported by Land Use By-Laws and a Design Manual to guide development. However, there are still special circumstances that require a customized development agreement to address the complexity of a particular site and proposal. This circumstances are outlined below.
c) In the following circumstances, a development agreement remains the SHORT MEDIUM LONG ONGOING TERM TERM TERM preferred tool to define use and design regulations in the following circumstances, as defined in the Land Use By-Law: ͙͙ Large sites (greater than 1 hectare) ͙͙ Future Growth Nodes, prior to detailed planning ͙͙ Places of Worship
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.1.2 (A), 3.5.1 (A-D),
4.2.5 APPLICATION NEGOTIATION For large sites, there are many opportunities to reintroduce a street grid, community uses, and open spaces. During the application process the applicant will work with HRM to discuss the parameters, design, location and amount of these features to include in the development.
d) Development agreements should specify: SHORT MEDIUM LONG ONGOING TERM TERM TERM ͙͙ The relationship of new development to adjacent properties and uses; and, the mitigation of impacts on the amenity, convenience and DRAFTdevelopment potential of adjacent properties through effective urban design and landscape treatment; ͙͙ Mobility throughout the site; ͙͙ The design and layout of the development should encourage vehicular traffic to use major streets and discourage traffic from infiltrating through existing neighbourhoods; ͙͙ The creation of high quality design detail at street level through attention to such matters as landscaping, signs, building entrances, and vehicle lay-by areas;
Implementation And Monitoring Plan | 125 ͙͙ The provision of high quality open space and leisure areas of a size and type adequate for the resident population; ͙͙ Residential and commercial densities consistent with municipal services; ͙͙ Encouraging high quality exterior construction materials such as masonry; and ͙͙ Other relevant land use considerations which are based on the policy guidance of this Plan.
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.1.1 (C & D), 2.1.2 (G-Y, AA, AB, AD-AH), 2.2.5 (C & D), 2.3.3 (D), 2.4.2 (A), 3.3.1 (J, M-O), 3.4.2 (D, E, J, K)
4.2.6 APPLICATION EVALUATION Context is one of the primary considerations when evaluating an application; however, there are multiple instances where a building currently exists that is out of context or incongruent with its surroundings and should not be considered as a precedent for future similarly scaled development in the area.
e) When evaluating development proposals, HRM will not consider incongruent SHORT MEDIUM LONG ONGOING TERM TERM TERM buildings as precedent setting or contextual.
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.1.2 (AC)
4.2.7 CAPITAL COST CONTRIBUTIONS To accommodate the projected growth in the Regional Centre, HRM will explore Capital Cost Contribution options to help recover some of this initial cost through subsequent developments.
f) HRM will develop a Capital Cost Contributions program to offset the costs of SHORT MEDIUM LONG ONGOING TERM TERM TERM servicing upgrades to accommodate growth.
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.6.2 (A)
4.2.8 VIEWPLANES The Regional Centre’s viewplanes are highly valued by citizens and visitors alike DRAFTand reflect the importance of the harbour through built form. The Centre Plan will continue this urban design legacy.
g) The existing viewplanes for the Regional Centre will be upheld. SHORT MEDIUM LONG ONGOING TERM TERM TERM THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.4.1 (B)
126 | Centre Plan: Policy Direction 4.3 Design Manual
The Design Manual is a tool that outlines the appropriate qualitative guidance for new development within the Regional Centre to ensure that the built environment reflects a human scale and respects the surrounding context. It will be used by applicants and planners when developing and evaluating applications in concert with the Land Use By-Law. This Design Manual is developed concurrently with the Centre Plan.
a) HRM will create a Regional Centre Design Manual. SHORT MEDIUM LONG ONGOING TERM TERM TERM
4.3.1 DISCUSSION AND FURTHER ELABORATION
The Design Manual will include direction on the following:
City Pattern ͙͙ Contributing to and creating new street grid patterns ͙͙ Contributing to the open space network ͙͙ Defining and guiding the design of prominent locations ͙͙ Responding to streetscape character ͙͙ Creating family-friendly neighbourhoods
Building Compatibility ͙͙ Responding to: ͙͙ Site context ͙͙ Community character (including colour, shape and other characteristics) ͙͙ Urban pattern (block, public realm and natural features) ͙͙ Street character and size ͙͙ Transitions between: ͙͙ Residential and non-residential ͙͙ Historic and new buildings ͙͙ Tall, moderate and low-scale buildings DRAFT͙͙ Transition between park spaces and buildings ͙͙ Defining the: ͙͙ Relationship between street width and building design
Implementation And Monitoring Plan | 127 4.4 By-law Implementation Actions
For some actions, further by-law amendments are required to implement key policies within the Centre Plan.
4.4.1 NOISE BY-LAW
Currently, HRM has a noise by-law to address the impacts of off-site noise. To mitigate other potential off-site impacts, HRM will explore other potential tools.
a) HRM will explore other tools to mitigate off-site impacts such as illumination SHORT MEDIUM LONG ONGOING TERM TERM TERM and vibration.
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.1.1(C)
4.4.2 PARKS STANDARDS
HRM follows standards when creating or redesigning parks spaces to ensure consistency and these spaces contribution to the open space network. HRM will ensure that publicly accessible privately owned public space follows these standards.
b) Developers who provide publicly accessible privately owned open spaces are SHORT MEDIUM LONG ONGOING TERM TERM TERM subject to HRM’s parks design standards, though exemptions may be considered to accommodate innovative design.
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.3.3 (E)
4.4.3 RESIDENTIAL PERMIT PARKING
DRAFTParking spillover is a concern for residents who live adjacent to commercial and employment areas. HRM supports resident parking permits to mitigate this impact.
c) HRM will support residential parking permits in areas with a high demand for SHORT MEDIUM LONG ONGOING TERM TERM TERM on-street residential and commercial parking.
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 3.6.3 (A), 3.6.6 (A)
128 | Centre Plan: Policy Direction 4.5 Further Study, Investigations and Comprehensive Planning
To implement the Centre Plan, some additional targeted comprehensive planning, studies, and investigations are required. This will ensure that a consistent and thoughtful approach to further planning is implemented throughout the Regional Centre that aligns with the direction provided in this Plan.
4.5.1 PLANNING FOR THE FUTURE GROWTH NODES
Planning for the Future Growth Nodes should include a holistic study of a defined location through multiple lenses, including land use, urban design, mobility, public spaces and places, culture and heritage, housing, sustainability, jobs and economic developments. In the Centre Plan, this type of planning was undertaken at a regional level. for the Future Growth Nodes, this will take place at a smaller scale to define the future form, density and use of these areas.
a) HRM will support planning processes for Future Growth Nodes that will SHORT MEDIUM LONG ONGOING TERM TERM TERM define, or address the following: ͙͙ Community focal points (buildings and public spaces) ͙͙ Integration of the Future Growth Nodes parks with the larger open space network ͙͙ Integration of the Future Growth Nodes street network with the surrounding community (including trails and pathways) ͙͙ Building design, form, density and height guidelines that respect a human-scale and transition appropriately to the surrounding community ͙͙ Transit hubs DRAFT͙͙ A mix of residential, commercial, community, recreational, institutional and employment uses ͙͙ A diversity of housing options ͙͙ Heritage inventories and community character studies ͙͙ Sustainable community design measures
Implementation And Monitoring Plan | 129 b) HRM will work with the applicant to determine further studies to conduct as SHORT MEDIUM LONG ONGOING TERM TERM TERM part of the planning process. These can include: ͙͙ A concept plan ͙͙ A community needs assessment ͙͙ A transportation level of service study ͙͙ An environmental impact assessment ͙͙ An economic impact analysis and market impact analysis ͙͙ A servicing analysis ͙͙ A multi-phase community engagement exercise ͙͙ A urban design plan ͙͙ Any other studies deemed appropriate
c) Planning for the Shannon Park Future Growth Node shall include and be SHORT MEDIUM LONG ONGOING TERM TERM TERM informed by the work done by the Canada Lands Corporation to the adoption date of this plan.
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.1.1 (F), 2.3.1 (D), 3.5 (ALL)
d) Planning for the Penhorn Future Growth Node shall include and be informed SHORT MEDIUM LONG ONGOING TERM TERM TERM by the Community Vision and Action Plan, approved in principle by Regional Council on December 8, 2009.
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.3.1 (D), 3.5 (ALL), 3.7.2 (I-K)
4.5.2 STUDIES
In addition to Priority Plans and plans for Future Growth Nodes, there are a number of targeted subject area studies for HRM to conduct to provide informed direction on specific subjects. For each of the studies identified below, HRM will conduct the research and engagement as needed and present the results in a report to Council with recommendations for future actions.
Housing a) HRM will monitor pricing and housing diversity and use this information to SHORT MEDIUM LONG ONGOING TERM TERM TERM DRAFTdetermine if further incentives and regulations are necessary to support housing choice.
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.5.1 (D & J)
Transit b) HRM will conduct a feasibility analysis to examine the potential of SHORT MEDIUM LONG ONGOING TERM TERM TERM commercial and/or residential uses at transit terminals.
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.2.3 (D)
130 | Centre Plan: Policy Direction Active Transportation c) Investigate the ability to make connections within the sidewalk network SHORT MEDIUM LONG ONGOING TERM TERM TERM within the existing Sidewalk repair program.
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.2.4 (C), 2.3.3 (B)
Parking d) HRM will investigate new on-street parking technologies to manage parking SHORT MEDIUM LONG ONGOING TERM TERM TERM demand throughout the Regional Centre, such as pay-by-plate.
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.2.6 (B & C)
e) HRM will investigate incentive opportunities to encourage the rehabilitation SHORT MEDIUM LONG ONGOING TERM TERM TERM of surface parking lots into green parking lots.
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.6.5 (H)
Economic Development f) HRM will support actions identified through the Economic Strategy SHORT MEDIUM LONG ONGOING TERM TERM TERM developed with Halifax Partnership.
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.7.1 (A-G & I), 2.7.3 (G)
g) HRM will review opportunities for capital investment and partnerships in SHORT MEDIUM LONG ONGOING TERM TERM TERM catalytic projects, and determine a priority list of project opportunities.
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.7.1 (F)
h) HRM will continue to develop guidelines and policies to reduce the impacts SHORT MEDIUM LONG ONGOING TERM TERM TERM from development and infrastructure projects, including construction, on businesses.
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.7.1 (H)
4.5.3 INFRASTRUCTURE INVESTMENT PLANNING
The direction in the Centre Plan can help to inform the infrastructure investment process by highlighting areas that will accommodate significant growth to help prioritize investment decisions.
DRAFTa) This Plan will help inform future infrastructure investment plans in the SHORT MEDIUM LONG ONGOING TERM TERM TERM following areas: ͙͙ Transportation: to inform sidewalk network improvements, streetscape improvements, pedestrian/cyclist/transit use amenities etc. ͙͙ Facilities: community, recreation, parks, emergency etc. ͙͙ Utilities/Servicing: to accommodate growth in Centres, Corridors and Future Growth Nodes
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.2.4 (C & E), 2.3.2 (B), 2.3.3(C & I), 2.6.1 (A & B)
Implementation And Monitoring Plan | 131 4.5.4 HERITAGE PLANNING
The Centre Plan provides high level direction to guide heritage planning within the Regional Centre. Following this Plan there are a number of actions for HRM to implement to ensure a thoughtful and robust heritage planning process.
a) Ensure that all plans align with the Culture and Heritage Priorities Plan upon SHORT MEDIUM LONG ONGOING TERM TERM TERM its completion.
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.4.1 (D)
b) Support the planning for the South Barrington (Old South District), SHORT MEDIUM LONG ONGOING TERM TERM TERM Schmidtville, and Historic Properties National Historic Site as Heritage Conservation Districts and explore other Heritage Conservation Districts and Cultural Landscapes.
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.4.1 (E)
c) Review and revise Statement of Significance requirements specifically with SHORT MEDIUM LONG ONGOING TERM TERM TERM regard to Standard #11 of the Standards and Guidelines to address the significance of the scale and physical context of Heritage Properties in relation to proposed new development within Heritage Conservation Districts.
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.4.1 (N)
d) Conduct Community Character Studies when needed for further heritage SHORT MEDIUM LONG ONGOING TERM TERM TERM planning.
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.4.1 (G)
e) Create an inventory of significant scenic resources, landmarks, natural SHORT MEDIUM LONG ONGOING TERM TERM TERM features, historic and cultural resources.
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.4.1(J)
f) Create a GIS inventory to house the results of block surveys throughout the SHORT MEDIUM LONG ONGOING TERM TERM TERM Regional Centre.
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.4.1 (G, H, I)
DRAFTg) Create a searchable database of heritage resources that can integrate with SHORT MEDIUM LONG ONGOING TERM TERM TERM HRM’s Open Data.
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.4.1 (J)
132 | Centre Plan: Policy Direction 4.5.5 INTEGRATION WITH OTHER PLANS
The Centre Plan sits within a larger planning system of secondary and priority plans that follows direction from the Regional Plan. Consistent direction between these plans is critical along with regular reviews to ensure alignment and ongoing relevance.
a) HRM will review all plans affecting the Regional Centre to ensure they align SHORT MEDIUM LONG ONGOING TERM TERM TERM with the Centre Plan’s policies and objectives.
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.4.1 (A)
b) The Centre Plan will inform the Integrated Mobility Plan to: SHORT MEDIUM LONG ONGOING TERM TERM TERM ͙͙ Consider pedestrians first ͙͙ Promote new cycling and pedestrian bridges across major roads, railways and waterways ͙͙ Support car sharing and bike sharing opportunities ͙͙ Improve pedestrian access to regional open spaces and destinations
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.2.4 (D & F), 2.3.3 (A & B)
c) HRM will support the master planning process of educational, health, and SHORT MEDIUM LONG ONGOING TERM TERM TERM other government institutions.
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 3.7.2 (I, J, K)
DRAFT
Implementation And Monitoring Plan | 133 4.6 Funding/Grant Opportunities
Along with regulatory actions, HRM can implement the Centre Plan through funding and grant opportunities. These opportunities also allow the Municipality to work closely with community members and organizations to support locally- based initiatives that build capacity and support innovation.
a) HRM will explore the feasibility of grants for the following: SHORT MEDIUM LONG ONGOING TERM TERM TERM ͙͙ Community based projects that work towards complete communities ͙͙ Heritage Conservation Districts ͙͙ Cultural Landscapes ͙͙ Heritage Properties ͙͙ Business incubators and accelerators
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.1.1 (E), 2.4.1 (K & M), 2.7.1 (B & L)
b) HRM will assess, at appropriate times, the needs for funding and other SHORT MEDIUM LONG ONGOING TERM TERM TERM supports to: ͙͙ Provide new affordable non-market housing ͙͙ Maintain and grow the amount of affordable housing ͙͙ Brownfield development funding to assist with environmental testing, remediation and appropriate interim uses
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.5.1 (J), 2.5.2 (N), 2.6.5 (I) DRAFT
134 | Centre Plan: Policy Direction 4.7 Process Recommendations
Another method to implement the Centre Plan is to improve and streamline Municipal processes and procedures. These actions fall into two categories. The first involves creating streamlined and efficient procedures whenever possible. The second type of recommendations involves creating robust methodologies anchored in analysis and evidence to inform decision-making.
a) In an effort to encourage uses and realize efficiencies, HRM will work with SHORT MEDIUM LONG ONGOING TERM TERM TERM stakeholders to potentially improve the existing processes and requirements for: ͙͙ Live/work space ͙͙ Co-operative housing
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.4.2 (D), 2.5.1 (H, I, M), 2.7.1 (G), 2.7.2 (C), 3.6.1 (D), 3.6.4 (D)
b) HRM will review and confirm potential heritage districts and cultural SHORT MEDIUM LONG ONGOING TERM TERM TERM landscapes with the local community.
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.4.1 (I)
c) HRM will conduct cost/benefit analyses when determining whether or not to SHORT MEDIUM LONG ONGOING TERM TERM TERM naturalize a watercourse.
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.6.2 (D)
d) HRM will monitor water quality regularly and report to Council with SHORT MEDIUM LONG ONGOING TERM TERM TERM recommendations for improvements.
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.6.2 (E) DRAFT
Implementation And Monitoring Plan | 135 4.8 Partnership Opportunities
Implementing the Centre Plan is a community effort and will involve partnerships between the Municipality and organizations, as well as the community at large.
a) HRM will develop the following partnerships: SHORT MEDIUM LONG ONGOING TERM TERM TERM Dalhousie University, St. Mary's University and Other Post Secondary Institutions This partnership will allow HRM and these universities to collaborate on the following: ͙͙ Broader community use of university facilities ͙͙ GIS block surveys/historical inventories ͙͙ Community character studies ͙͙ Expansion plans, space needs and identifying development options ͙͙ Job placement initiatives ͙͙ Data collection/monitoring/analysis
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.3.2 (A), 2.4.1 (F-H), 2.7.1(D), 2.7.3 (D)
School Boards This partnership will allow HRM to collaborate with school boards on the following: ͙͙ Broader community use of school facilities ͙͙ Potential co-location opportunities between schools and community uses and facilities ͙͙ Planning for surplus sites, including temporary use by the community, cultural and arts groups ͙͙ Potential co-location of municipal and school facilities in the same buildings and/or site
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.3.2 (A), 2.4.1 (M), 2.7.3 (E)
DRAFTHealth Care Institutions This partnership will include opportunities to coordinate with existing healthcare institutions to collaborate on master planning, space needs, and identifying development options.
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.7.3 (C)
136 | Centre Plan: Policy Direction Other Levels of Government HRM will work with other levels of government: ͙͙ To explore affordable housing options ͙͙ On expansion plans, space needs and identifying development options ͙͙ To assist government agencies moving into the Regional Centre by identifying development options. ͙͙ To collaborate on innovative waste solutions ͙͙ Update provincial/federal building/site requirements
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.5.2 (N), 2.7.3 (F)
Rail Companies HRM will collaborate with rail companies on the future of rail corridors and their role in HRM’s Integrated Mobility Plan.
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.2.5 (B)
The Port HRM will coordinate with the Halifax Port Authority and other partners to determine how to cooperate on future planning.
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.7.3 (H)
DRAFT
Implementation And Monitoring Plan | 137 4.9 Pilot Projects
Often projects need testing before they are implemented Regional Centre wide, which is why the Centre Plan is recommending strategic pilot projects to test innovative and new concepts through a thorough evaluative process.
a) HRM will test innovative and new concepts through the use of pilot projects SHORT MEDIUM LONG ONGOING TERM TERM TERM with a rigorous evaluation to determine potential broader application. Partnerships will be pursued for potential pilot projects, such as: ͙͙ Non-standard housing forms ͙͙ Business incubators/accelerators ͙͙ Pop-up space design and programming
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.5.1 (L), 2.7.1 (A & G)
DRAFT
138 | Centre Plan: Policy Direction 4.10 Staff Resources
Implementing and monitoring the Centre Plan to ensure regular progress and review will require additional staff resources, as defined here
a) HRM will support positions to focus on the implementation and monitoring SHORT MEDIUM LONG ONGOING TERM TERM TERM of the Centre Plan.
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.4.1 (G)
b) HRM will commit staff heritage planning resources to work with Dalhousie SHORT MEDIUM LONG ONGOING TERM TERM TERM and/or St Mary’s University on Community Character Studies.
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.4.1 (G)
DRAFT
Implementation And Monitoring Plan | 139 4.11 Information Distribution
In addition to all the actions highlighted above, HRM has a role in producing educational materials to promote and encourage the forms, designs and directions promoted in this Plan.
a) HRM will produce the following materials to promote form and initiatives SHORT MEDIUM LONG ONGOING TERM TERM TERM promoted in this plan: ͙͙ Information about the benefits of cooperative housing ͙͙ Information about the benefits of live/work units ͙͙ Information about the benefits of flexible commercial spaces
THIS IS A SUITABLE IMPLEMENTATION TOOL FOR POLICY DIRECTIONS: 2.5.1 (H & M), 2.7.1 (I)
DRAFT
140 | Centre Plan: Policy Direction 4.12 Monitoring
Though the Centre Plan establishes policy directions, it is not a static document and requires periodic check-ins to review its efficacy. Given the 15-year time horizon for the plan, the need to revise and review that Plan will be considered every 5 years.
In addition to Centre Plan reviews, regular monitoring will enable the Municipality to respond to pressing changes within the Regional Centre and improve the quality of decision making. The success of the Plan is more likely when there are periodic assessments.
To monitor and evaluate progress a number of indicators with metrics have been created through analysis, public engagement, and best practices which can be found in the figure below. The indicators and their metrics have been grouped into the seven Plan Themes.
Annually, a thorough reporting of the metrics to Council, Administration, and the public will highlight areas that are performing well in contrast to areas with slower progress that may require amendments, additional actions, and further study. This reporting can take the form of a report card that measures success and tracks progress. Progress of the Plan should be measured and reported by looking at the indicators as a whole, and not in isolation.
a) HRM will measure baseline data for the indicators highlighted below and SHORT MEDIUM LONG ONGOING TERM TERM TERM established feasible targets to reach by 2031. DRAFT
Implementation And Monitoring Plan | 141 Theme Indicator Metric
1. Proportional Growth Percent of the population growth accommodated within: Land Use & ͙͙ Centres ͙͙ Corridors Urban Design ͙͙ Future Growth Nodes ͙͙ Residential Areas ͙͙ Downtowns
2. Population Density People per hectare
3. Land Use Mix The proportion of total developable land attributed to each of the following categories: ͙͙ Residential ͙͙ Office ͙͙ Hospitality and entertainment ͙͙ Retail goods ͙͙ Retail services ͙͙ Medical ͙͙ Health/beauty/fitness ͙͙ Arts/culture/religion
4. Complete Percent of the population living in complete communities, as Communities measured by: ͙͙ Percent of population living within 1km of a grocery store ͙͙ Percent of population living within 4km of a community centre ͙͙ Percent of population living within 1km of an elementary school ͙͙ Percent of population living within 400m of frequent transit ͙͙ Percent of population living within 400m of a park
5. New Construction The amount of new development units within: ͙͙ Centres ͙͙ Corridors ͙͙ Downtowns
6. Streetscape Number, and level of investment, in streetscape improvement Improvement Projects projects
7. Access to Transit Percent of population within 400m of a transit stop Percent of jobs within 400m of a transit stop Mobility Average frequency of all day bus service
8. Pedestrian Activity Pedestrian counts and stationary activity counts in each of the 5 DRAFTcentres
9. Mode Split Percent of trips made through active transportation, transit and private vehicles
142 | Centre Plan: Policy Direction Theme Indicator Metric
10. Access to Parks Percent of population living within 400m of a park Public Spaces Parkland (acres) per 1000 residents 11. Park Use Park usage counts of a representative sample within the Regional & Places Centre
12. Heritage Protection Percent of Regional Centre area protected by heritage conservation Culture districts and cultural landscapes & Heritage Number of registered heritage properties in Regional Centre 13. Cultural Spaces Number of arts, cultural, community and performance spaces
14. Rental Housing Vacancy rate Housing Average rental rates adjusted for inflation
15. Residential Mix Housing mix (proportion of units between single detached, multi- unit, townhouses, semi-detached, garden suites)
16. Housing Affordability Average cost of housing as a percentage of household income
17. Housing Growth Number of new units and proportion of multi-bedroom units
18. Urban Forest Average percent of tree canopy in: Sustainability ͙͙ Parks ͙͙ HRM owned riparian areas ͙͙ Halifax Peninsula ͙͙ Regional Centre Dartmouth
19. Watershed Health Percent of impervious surface
20. Building LEED certified square footage per capita added Sustainability
21. Job Density Jobs per hectare within: Jobs & ͙͙ Centres ͙͙ Corridors Economic DRAFT͙͙ Future Growth Nodes ͙͙ Downtowns Development ͙͙ Employment Intensive Areas ͙͙ Institutional Employment Areas
22. Commercial Space Total retail and restaurant sq. ft. per 1000 residents
23. Construction Number of housing starts
24. Office Space Total office space
Implementation And Monitoring Plan | 143 A Glossary
DRAFT Active Frontage Brownfield Sites Building facades that are visually interesting and allow Properties which had contained industrial or commercial people on the street to see inside the building. uses, which have been abandoned, or are underused and in decline. Brownfields are sometimes characterized by Active Transportation derelict buildings, contamination resulting from previous Human-powered, personal travel chosen as an option to industrial uses, or undesirable activity occurring on or near motorized travel and includes walking, running, hiking, the the sites. use of wheelchair, cross-country skis, skateboard or canoe or kayak on water. Commercial Streets Streets with clusters of commercial activity that serve as Active Use focal points for the local community. The design and use of public space, including the buildings and infrastructure within it, to create activity, interest, and Compact Development pedestrian traffic. Examples of active uses include retail, Development that uses land efficiently and is generally café space, sidewalk display space, and public art. characterized by medium to high density, connected streets, and shorter distances between destinations. Adaptive Re-Use Adapting a site or building for a use other than its original Complete Community use. Communities that include a range of uses and housing options to accommodate people in all stages of life and at a Affordable Housing variety of income levels. Complete communities provide a Measuring housing affordability involves comparing housing place for residents to live, work, shop, learn, and play. These costs to the ability of a household to meet those costs. communities contain mixed uses and compact development Affordable housing costs a household no more than 30% of that enables people to safely and conveniently access the their gross monthly income. goods and services they need in their daily lives, all within a short journey. Amenity Space On-site common or private space that can be either indoor Complete Streets or outdoor. Amenity spaces are designed for active or Complete streets, an approach to planning, design, passive recreational use, and can take the form of exercise operations and maintenance of roadways, that enables safe, or common rooms, balconies, terraces, rooftop gardens, or convenient, and comfortable travel and access for users of deck space. all ages and abilities regardless if they are on foot, on a bike, using transit, or in a private vehicle. Bioswale Bioswales are gently sloped channels lined with vegetation Co-op housing / Cooperative Housing that are designed to slow, store, drain,DRAFT and filter stormwater. Housing cooperatives provide non-for-profit housing for their members and only charge enough to cover costs, Bonus Density making co-op housing more affordable than average private An increase in built area in exchange for public amenities sector rentals. and/or benefits that contribute to the livability and proper planning of the neighbourhood affected by the resulting Crime Prevention Through Environmental Design increase in density. (CPTED) An approach to the planning and design of the built environment that aims to reduce crime and make people feel safer.
Implementation And Monitoring Plan | 145 Culturally Accessible Green Infrastructure Planning, design, and programming that enables access by A network of natural and semi-natural engineered people from a diversity of cultures. landscape elements designed to provide products and services such as stormwater management, water filtration, Cultural Landscapes and improved air quality. Geographic areas which have been modified, influenced, or given special cultural meaning. These cultural landscapes Green Roof provide opportunities for the interpretation and The flat roof of a building that is covered or partially understanding of important historical settings and past covered by vegetation. patterns of land use. Greyfield Sites Cultural Space Chain Developed sites that are underutilized and well positioned Spaces for creation, rehearsal, and production to support all for redevelopment. cultural disciplines including dance, film, literary arts, music, new media, theatre and visual arts, in all cultural spheres. Heritage Conservation District These spaces may include warehousing and storage, offices, An area of urban or rural properties collectively deemed to presentation, and performance space. have local or community heritage values.
Density Heritage Property A measure of the number of people or housing units A building, public building interior, streetscape, cultural occupying a given area of land. The measure reflects the landscape or area registered in the Registry of Heritage general character of the housing types in a neighbourhood. Property for the Halifax Regional Municipality. Low density generally refers to a neighbourhood that would result from an area developed as one and two unit housing; Human-scale medium density generally applies to townhouses or The impression of a building when seen in relation to its apartment buildings no higher than 6 storeys; and high surroundings, or the size and proportion of parts of a density generally refers to taller apartment buildings building or its details, that relates in a positive way to the resulting in more people per hectare. visual and physical experience of a pedestrian.
District Energy Incubator An energy system that generates steam, hot water, or cold A shared space that offers a supportive environment and water at a central facility that is then distributed to heat or workspace for people such as entrepreneurs and artists to cool a group of buildings within a defined area or district. grow their business or develop their craft.
Dwelling Unit Infill One or more rooms used or designedDRAFT to be used by one or The development of vacant parcels or redevelopment of more persons as a place of abode which contains not more existing housing or other buildings. than one kitchen and includes but is not limited to living, sleeping and sanitary facilities. Intensification The development of a property, site, or area at a higher Floor Area Ratio (FAR) density than currently exists. This can occur through The gross area of all floors in a building, measured from the development, redevelopment, infill, and expansion or outside of external walls, divided by the site area. conversion of existing buildings.
146 | Centre Plan: Policy Direction Intensity Moderate Height Building The relative measure of the number of people and jobs in A building which is four to six storeys high. an area. Multimodal LEED (Leadership in Energy and Environmental Design) Refers to facilities or trips that incorporate more than one A widely recognized sustainability certification program for mode of transportation. buildings and communities that measures performance based on environmental sustainability. Open Space Open space includes unbuilt lands and waters set aside and Live/Work Unit reserved over the long-term for public service, A single unit that includes both the primary living quarters conservation, and community-shaping purposes. It can of an occupant with their commercial or office space. include public and privately-owned lands such as parks and trails, significant habitat and wilderness areas, natural Low Impact Development (LID) resource lands, corridors for active commuting and Low Impact Development (LID) practices minimize connecting communities, water resources, cultural stormwater water runoff at its source, mimicking natural landscapes and coastline. hydrological processes, through site planning and physical installations. LID can improve water quality in terms of Pedestrian Oriented pollutant removal, reduced nutrient loading through the use Elements of planning and urban design that prioritize the of plants, and distribute stormwater through natural needs and comfort of pedestrians. The intent is to create features. LID installations most frequently include grassy safe, comfortable, and more enjoyable environments for swales (bioswales), which can include pipe filter drains, people of all ages and abilities. Specific pedestrian curbs with cutouts, or infiltration trenches and pits. orientated design elements include connected streets, short blocks, four way intersections, hard surfaced Low-rise Building pathways and an extensive sidewalk network. A building which is no more than 3 storeys high. Physically Accessible Main Streets Planning, design, and programming that enables access by Streets with continuous commercial activity, including people with a variety of physical abilities. office, retail, service and restaurant uses that have both local and regional draw. These streets form the backbone of Placemaking Centres. An approach to planning and design that aims to create memorable, quality public spaces. Maker Space A space where people can gather to work on projects and Pocket Park share resources and knowledge. DRAFTA small urban park.
Mass, Massing Pop-up The combined effect of the height, bulk, and silhouette of a A temporary structure, space or event. building or group of buildings.
Mixed-use Different land uses that are arranged in close proximity. These different uses may be located on the same site, in the same building, or along the same street.
Implementation And Monitoring Plan | 147 Public Realm Streetscape The parts of an urban area, whether publicly or privately The elements within and along the street that define its owned, that are available for everyone to see, use and enjoy, appearance, identity, and functionality, including adjacent including streets, squares and parks; all land to which buildings and land uses, street furniture, landscaping, trees, everyone has ready, free and legal access at all times. It sidewalks, and pavement treatments, among others. includes the features and amenities within those lands, such as benches, lights, sidewalks, etc. Also commonly referred Tall Building to as “public domain” and “public space”. A building which is seven or more storeys high.
Secondary Municipal Planning Strategy Transit Hub A neighbourhood planning strategy which forms part of the A transit facility that supports high frequency transit use Regional Municipal Planning Strategy (MPS). and is integrated with multiple modes of transportation, Neighbourhood Planning Strategies include all secondary including walking and cycling. planning strategies that were in existence at the time of the adoption of the Regional MPS and will include future Transit Oriented Development planning strategies adopted to guide and direct A mix of residential, retail, and office uses with a supporting development in greater detail at the neighbourhood level. network of roads, bicycle ways, and pedestrian ways focussed around a major transit stop designed to support a Secondary Suite high level of transit use. Refers to the concept of adding an additional dwelling unit to an otherwise single-unit house. Secondary units are Transit Priority Measures usually incorporated into the main house, such as a Strategies to increase transit operating speeds and transit basement or third floor apartment subject to meeting travel time reliability in mixed traffic, such as traffic signal applicable Land Use By-Law and National Building Code priority or queue jumps. requirements and securing applicable permits. Universal Accessibility Setback Design elements that make places and activities accessible The distance from the property line to the nearest part of to people of all ages and abilities. the associated building or structure, measured perpendicular to the property line. Zoning By-laws typically Urban Agriculture require minimum setbacks to ensure that the use of a The practice of growing, processing, and distributing food in property does not infringe on the rights of neighbours; to an urban environment. allow room for wider sidewalks, lawns and trees; to preserve access to light, sunshine, and views; for amenity Urban Forest spaces; or for access and circulation.DRAFTEvery tree within the city. Shared Street Viewplane A street, also known as a Woonerf, where pedestrians, An unobstructed line of sight that allows a person to see a cyclists, and vehicles (restricted to low speeds) share the particular landform, building or landscape. same space. Walkable Socio-economically Accessible Refers to a single route, or a system of routes, between Planning, design, and programming that enables access by points that is relatively short, barrier free, interesting, safe, people from a variety of socio-economic backgrounds. well-lit, comfortable and inviting to pedestrian travel.
148 | Centre Plan: Policy Direction DRAFT DRAFT