Acton Downtown Area Land Use Policy Review

Transcription

Acton Downtown Area Land Use Policy Review
Background and Preliminary Alternatives Report
April 2010
TOWN OF HALTON HILLS
PLANNING, DEVELOPMENT AND SUSTAINABILITY
Town of Halton Hills – Acton Downtown Area Land Use Policy Review
TABLE OF CONTENTS
1.0
Introduction ........................................................................................................................................................6
1.1
Background and Preliminary Alternatives Report Purpose................................................................................ 6
1.2
Structure of the Background and Preliminary Alternatives Report.................................................................... 6
2.0
Downtown Acton Land Use Policy Review.................................................................................................... 7
2.1
Acton Population and Existing Land Uses.......................................................................................................... 7
2.2
Need for the Downtown Acton Land Use Policy Review ................................................................................... 8
3.0
Provincial and Regional Policy Context......................................................................................................... 9
3.1
Province of Ontario .............................................................................................................................................. 9
3.1.1
3.1.2
3.1.3
3.1.4
3.1.5
3.2
Planning Act ...........................................................................................................................................................................9
Provincial Policy Statement................................................................................................................................................ 10
Places to Grow – Greater Golden Horseshoe Growth Plan............................................................................................. 11
Greenbelt Act ...................................................................................................................................................................... 13
Greenbelt Plan .................................................................................................................................................................... 13
Region of Halton ................................................................................................................................................14
3.2.1 Region of Halton Official Plan ............................................................................................................................................ 14
4.0
Town of Halton Hills Policy Context .............................................................................................................16
4.1
Halton Hills Town Strategic Plan 2031 .............................................................................................................16
4.2
Town of Halton Hills Official Plan ......................................................................................................................18
4.2.1 Acton Urban Area ............................................................................................................................................................... 19
4.2.2 Acton Downtown ................................................................................................................................................................. 19
5.0
Related Planning Initiatives............................................................................................................................20
5.1
Halton Hills Intensification Opportunities Study................................................................................................20
5.1.1 Background Intensification Report..................................................................................................................................... 22
5.1.2 Draft Intensification Strategy .............................................................................................................................................. 23
5.2
Halton Hills Community Improvement Plan ......................................................................................................24
5.3
Draft Comprehensive Zoning By-law (April 2010)............................................................................................25
5.4
Cultural Heritage................................................................................................................................................25
5.5
Acton Business Improvement Area...................................................................................................................26
5.6
Halton Hills Retail Commercial Demand Study................................................................................................26
6.0
Servicing Status...............................................................................................................................................28
7.0
Transportation..................................................................................................................................................29
7.1
GTA West Corridor Environmental Assessment ..............................................................................................29
7.2
Georgetown to Kitchener Rail Expansion Environmental Study .....................................................................29
8.0
Preliminary Alternatives for Downtown Acton............................................................................................30
April 2010
Page 2 of 46
9.0
Draft Evaluation Criteria .................................................................................................................................31
10.0
Next Steps.........................................................................................................................................................31
April 2010
Page 3 of 46
LIST OF TABLES
TABLE 1: Permitted Uses and Built Form in Downtown Acton……………………………………………………21
TABLE 2: Acton Intensification (2006 – 2031)..……………………………………………………………………..23
TABLE 3: Community Improvement Plan Incentives for Downtown Acton…………………………..…………..24
TABLE 4: 2001 Inventory of Acton Retail and Commercial Space…………………….……………..…………..27
TABLE 5: 2031 Retail and Commercial Floorspace Estimates for Acton……..……………………..…………..28
April 2010
Page 4 of 46
LIST OF FIGURES
FIGURE 1: Age Structure, Acton Planning District, 2006………………………………………………………………7
FIGURE 2: After Tax Income of Private Households, Acton Planning District, 2006………………………………..7
FIGURE 3: Census Family Size, Acton Planning District, 2006……………………………………………………….7
FIGURE 4: Dwelling Type, Acton Planning District, 2006……………………………………………………………...7
FIGURE 5: Tenure of Dwellings, Acton Planning District, 2006……………………………………………………….8
FIGURE 6: Current Downtown Acton Boundary and Existing Land Uses…………………………………………..32
FIGURE 7: Provincial Greenbelt in Halton Hills………………………………………………………………………..33
FIGURE 8: Official Plan Schedule – Acton……………………………………………………………………………..34
FIGURE 9: Official Plan Schedule – Downtown Acton………………………………………………………………..35
FIGURE 10: Intensification Inventory Downtown Acton………………………………………………………………36
FIGURE 11: Acton East Downtown Redevelopment Area……………………………………………………………37
FIGURE 12: Community Improvement Project Areas…………………….…………………………………………..38
FIGURE 13: Draft Zoning Schedule for Downtown Acton…………………………………………………………….39
FIGURE 14: Acton Business Improvement Area Boundary…………………………………………………………..40
FIGURE 15: Georgetown to Kitchener Rail Expansion – Proposed Acton GO Station………………….….…….41
FIGURE 16: Preliminary Boundary Alternative #1 – Downtown Acton……………………...……………….……...42
FIGURE 17: Preliminary Boundary Alternative #2 – Downtown Acton…….………………………………………..43
FIGURE 18: Preliminary Boundary Alternative #3 – Downtown Acton………………………………………….…..44
FIGURE 19: Preliminary Boundary Alternative #4 – Downtown Acton……………………………………….……..45
FIGURE 20: Preliminary Boundary Alternative #5 – Downtown Acton……………………………………………...46
April 2010
Page 5 of 46
1.0 INTRODUCTION
Through the recommendations of Report No. PDS-2009-0034, Council directed staff to review the land use
policies for the Acton Downtown Area. The land use policy update will be undertaken through a five phase
planning process as follows:
Phase 1: Background Analysis and Issue Identification
Phase 2: Acton Downtown Policy Alternatives Paper
Phase 3: Acton Downtown Preferred Policy Alternative
Phase 4: Initial Policy Formulation
Phase 5: Final Policy and Regulatory Formulation
1.1
Background and Preliminary Alternatives Report Purpose
This Background and Preliminary Alternatives Report has been prepared to provide the policy context for the
Acton Downtown Area Land Use Policy Review and propose alternatives for Downtown Acton (Phases 1 and 2
above).
The purpose of the Acton Downtown Area Land Use Policy Review Background and Preliminary Alternatives
Report is to:
1.2

Provide pertinent information on various Provincial, Regional and Town policies and their implications
for the Acton Downtown;

Highlight the findings of planning initiatives related to the Community of Acton that have been
undertaken by the Town since the Official Plan was prepared;

Summarize the findings of the 2010 Retail Market Demand Study prepared by W. Scott Morgan related
to the Community of Acton; and,

Introduce alternatives for Downtown Acton which propose revisions to the boundaries for Downtown
Acton as well as sub areas within the Downtown.
Structure of the Background and Preliminary Alternatives Report
This Background and Preliminary Alternatives Report is organized into ten sections as follows:
Section 1.0 constitutes the introduction to the report;
Section 2.0 provides an overview of the Downtown Acton Land Use Policy Review;
Section 3.0 highlights the relevant Provincial and Regional policy context;
Section 4.0 summarizes relevant policies from the Town’s Strategic Plan and Official Plan;
Section 5.0 provides a summary of other planning initiatives related to the study area;
Section 6.0 provides an overview of the current servicing status for Acton;
Section 7.0 summarizes transportation studies underway that could potentially have implications for Acton;
April 2010
Page 6 of 46
Section 8.0 outlines alternative boundaries for Downtown Acton and sub areas within the Downtown Acton;
Section 9.0 outlines draft criteria proposed to be used to evaluate alternatives for Downtown Acton; and,
Section 10.0 summarizes the next steps in the study.
2.0 DOWNTOWN ACTON LAND USE POLICY REVIEW
2.1
Acton Population and Existing Land Uses
As reported in the 2006 Census, the 2006 population of the Acton Urban Area was approximately 9,365 people,
which equates to about 17% of the total population of the Town of Halton Hills. According to the 2006 Census,
the Acton Planning District (which includes all of the Acton Urban Area, with the exception of the new
development area east of Churchill Road) has a total population of 6,880. Figure 1 below, outlines the age
structure of the Acton Planning District. As depicted on Figure 2 below, approximately 45% of private
households in the Acton Planning District have an after tax income of $60,000 or greater. Figure 3 below
depicts that approximately 43% of households in the Acton Planning District are 2 person households, and
another 48% are 3 and 4 person households. As seen on Figure 4, single family dwellings are the most
predominant in the Acton Planning District, making up approximately 64% of housing types, while semidetached houses and row houses make up another 16%. Tenure in the Acton Planning District is predominantly
owned homes at 77%, and approximately 33% are rented. This can be seen on Figure 5.
Figure 1: Age Structure, Acton Planning District, 2006
80 to 84 years
Figure 2: After Tax Income of Private Households,
Acton Planning District, 2006
16%
Females
Percentage of Population
Males
70 to 74 years
60 to 64 years
50 to 54 years
40 to 44 years
30 to 34 years
14%
12%
10%
8%
6%
4%
2%
0%
$1
$1
0,
0,
00
00
0
0
to
$2
$1
0,
9,
00
99
0
9
to
$3
$2
0,
9,
00
99
0
9
to
$4
$3
0,
9,
00
99
0
9
to
$5
$4
0,
9,
00
99
0
9
to
$6
$5
0,
9
,9
00
9
0
9
to
$7
$6
0,
9,
00
99
0
9
to
$8
$7
0,
9,
00
99
0
9
to
$9
$8
0,
9,
00
99
0
9
to
$9
$1
9,
00
99
,0
9
00
an
d
ov
er
20 to 24 years
U
nd
er
10 to 14 years
0 to 4 years
6%
4%
2%
0%
2%
4%
Figure 3: Census Family Size,
Acton Planning District, 2006
6%
Income
Figure 4: Dwelling Type, Acton Planning
District, 2006
Single-detached house
Semi-detached house
2 persons
Row house
3 persons
Apartment, duplex
Apartment, building that has five or more storeys
4 persons
Apartment, building that has fewer than five storeys
Other single-attached house
5 or more persons
Movable dwelling
0%
5%
April 2010
10%
15%
20%
25%
30%
35%
40%
45%
50%
0%
10% 20%
30% 40% 50% 60% 70%
Page 7 of 46
Figure 5: Tenure of Dwellings, Acton Planning District, 2006
23%
Owned
Rented
77%
Although the focus of the study is on Downtown Acton, the study area extends beyond the current boundaries
of Downtown Acton. Figure 6 attached shows the study area, the current Downtown Acton Boundary as
depicted in the Town’s Official Plan and the current land uses within the study area. As seen on Figure 6, the
predominant land use along Mill Street East is commercial, with a few residential and institutional properties
intermixed. Along Main Street North and South, again the predominant land use is commercial, with more
residential properties as you move further away from Mill Street. To the north-east, in the vicinity of Eastern
Avenue, the predominant land use is commercial, with one industrial parcel. Generally land uses further from
Main Street and Mill Street are typically residential; however there are a few large utility and industrial
properties.
2.2
Need for the Downtown Acton Land Use Policy Review
At the time of the last Official Plan review, a number of background studies and reports were prepared
including: the Retail Market Demand Study; the Urban Design Study; the Economic Development Discussion
Paper; and Staff Report PD-2003-0029 (Commercial Policy Review). These studies and reports formed the
basis for the detailed land use policies for Downtown Acton.
Over the past three years, there have been a number of factors that suggest that the Official Plan policies for
the Acton Downtown Area should be reviewed. A number of these factors are specific to the Tourist
Commercial Sub-Area, while others are more general and apply to all of Downtown Acton. With respect to the
former, the Tourist Commercial Sub-Area was intended to build on the tourist nature of the Olde Hide House. In
addition, a number of years ago, the Olde Hide House had expressed an interest in developing the entire
Eastern Avenue area of Downtown Acton into a 27,500 ft2 tourist shopping area; however this proposal has
never come to fruition. In addition to the foregoing, the following additional factors have resulted in the need to
review the Tourist Commercial Sub-Area:

Council approved the Acton Medical Centre application within the Tourist Commercial Sub-Area
designation; and,

There have been two recent Committee of Adjustment decisions which have resulted in the approval of
residential land uses and a service commercial use within the Tourist Commercial Sub-Area.
Both the medical center and the recent Committee of Adjustment decisions within the Tourist Commercial SubArea were not contemplated by the Official Plan policies for this designation.
In addition to the factors specific to the Tourist Commercial Sub-Area, the following factors could potentially
have implications on land use policies for the Downtown Acton Area as a whole:
April 2010
Page 8 of 46

The possible extension of GO train service to Kitchener-Waterloo with the potential for a future station
in Acton;

The Town of Halton Hills Intensification Opportunities Study, which examined the potential for the
Acton Downtown area to accommodate future intensification;

Preparation of the Town of Halton Hills Comprehensive Community Improvement Plan, which includes
both municipal leadership programs and financial incentive programs for Downtown Acton and the
South Acton (former Beardmore Tannery) brownfield site; and,

An update to the Town’s Retail Market Demand Study, which will determine if additional commercial
floor space is warranted in Acton to the 2031 planning horizon.
Further details on each of these initiatives are provided in ensuing sections of this report.
3.0 PROVINCIAL AND REGIONAL POLICY CONTEXT
In reviewing the land use policies for Downtown Acton, it is appropriate to examine the Provincial and Regional
policy context. The review below outlines relevant Provincial Policy documents and specifically the policies
relevant to this study from the Planning Act, the Provincial Policy Statement, the Growth Plan, and the
Greenbelt Plan. For the Region of Halton, applicable policies from the Region of Halton Official Plan will be
reviewed.
3.1
Province of Ontario
3.1.1
Planning Act
The Planning Act is the legislative framework guiding planning in Ontario. This legislation contains specific
direction for the review and preparation of Official Plans, and amendments to Official Plans.
The purposes of the Planning Act are as follows:
a)
To promote sustainable economic development in a healthy natural environment within the policy and
by means provided under this Act;
b)
To provide for a land use planning system led by provincial policy;
c)
To integrate matters of provincial interest in provincial and municipal planning decisions;
d)
To provide for planning processes that are fair by making them open, accessible, timely and efficient;
e)
To encourage co-operation and co-ordination among various interests; and,
f)
To recognize the decision-making authority and accountability of municipal Councils in planning.
The Planning Act requires that decisions made by municipal councils have regard to matters of provincial
interest, and outlines a number of matters of provincial interest, some of which are listed below:

the protection of the agricultural resources of the Province;

the conservation of features of significant architectural, cultural, historical, archaeological or scientific
interest;

the supply, efficient use and conservation of energy and water;
April 2010
Page 9 of 46

the adequate provision and efficient use of communication, transportation, sewage and water services
and waste management systems;

the orderly development of safe and healthy communities;

the adequate provision and distribution of educational, health, social, cultural and recreational facilities;

the adequate provision of a full range of housing;

the co-ordination of planning activities of public bodies; and,

the appropriate location of growth and development.
3.1.2
Provincial Policy Statement
In accordance with the Planning Act, the Province may issue policy statements approved by the Lieutenant
Governor in Council on matters that are, in the opinion of the Minister of Municipal Affairs and Housing, of
provincial interest. The current Provincial Policy Statement came into effect on March 1, 2005.
The 2005 Provincial Policy Statement provides the policy framework for appropriate development while
protecting resources of provincial interest, public health and safety, and the quality of the natural environment.
Council decisions regarding planning matters are required to be consistent with the Provincial Policy Statement
(PPS) pursuant to Section 3 of the Planning Act.
The PPS includes three main policy areas as follows:
1) Building Strong Communities
2) Wise Use and Management of Resources
3) Protecting Public Health and Safety
Policies applicable to the Town of Halton Hills and specifically the Acton Downtown Area Land Use Policy
Review study area are found within all three of the above mentioned policy areas and outlined in the following
sections.
Building Strong Communities
With respect to Building Strong Communities, policies in the PPS speak to the provision of healthy, livable and
safe communities by promoting efficient development and land use patterns, which provide an appropriate
range and mix of land uses. The policy framework speaks to developing in a manner that minimizes
infrastructure costs, and environmental impacts. Municipalities are required to provide sufficient land through
intensification, redevelopment and if necessary designated growth areas to accommodate an appropriate range
and mix of land uses to meet projected needs for up to 20 years.
With respect to intensification, the PPS requires that planning authorities identify and promote opportunities for
intensification and redevelopment. Intensification opportunities should be provided through both existing
building stock and brownfield sites, and ensure that both public service facilities and infrastructure are provided
to accommodate the forecasted growth.
April 2010
Page 10 of 46
The PPS also includes policies related to long term economic prosperity, and states that long term prosperity
should be supported through a number of factors including maintaining and, where possible, enhancing the
vitality and viability of downtowns and mainstreets.
The PPS requires that planning authorities provide an appropriate range of housing types to meet the projected
requirements across the Region and that residential development be at an appropriate density to efficiently use
land, resources, infrastructure and public service facilities.
With respect to infrastructure and public service facilities, the PPS requires that the planning for such facilities
are integrated with the planning for growth to ensure that they are provided in a coordinated, efficient and cost
effective manner to accommodate projected needs. With respect to planning for sewage and water, the PPS
states that sewage and water will be provided in a manner that: can be sustained by the water resources that
they rely on; that is financially viable; and that protects human health and the natural environment.
The PPS requires that transportation systems be provided that are safe, energy efficient and facilitate the
movement of people and goods. Efficient use should be made of transportation systems, including planning for
land use patterns, density and an appropriate mix of uses to minimize the length and number of vehicle trips
and support the provision of viable choices or alternatives for transportation modes. The policies also promote
connectivity within and among transportation systems, and if possible the connectivity should be improved.
The PPS requires planning authorities to support energy efficiency and improved air quality through a number
of factors including promoting a compact build form within nodes and along corridors, and promoting the use of
public transit and other alternative transportation modes as a means of travel between land uses.
Wise Use and Management of Resources
Policies in this section of the PPS are related to natural heritage, water, agriculture, minerals and petroleum,
mineral aggregate resources and cultural heritage and archaeology. Since the study area for the Acton
Downtown Area Land Use Policy Review is within the urban area and predominantly developed, and there are
no provincially significant natural areas within the study area, applicable policy from this section would be
related to cultural heritage and archaeology and the need to conserve significant built heritage resources and
mitigate impacts in the event that development is proposed on a property adjacent to heritage resources.
Protecting Public Health and Safety
Policies in this section of the PPS are related to protecting the public from natural or human made hazards.
Within Downtown Acton there is a portion of Black Creek and therefore the policy framework directs
development generally outside of the hazard lands associated with the watercourse.
3.1.3
Places to Grow – Greater Golden Horseshoe Growth Plan
Places to Grow, the Growth Plan for the Greater Golden Horseshoe was enacted by the Province in 2006. The
Vision of the Greater Golden Horseshoe as outlined in the Growth Plan is to provide a variety choices for living,
an integrated and accessible transportation system, vibrant urban centres with more compact development
patterns, a healthy natural environment, and the protection of agricultural lands.
To support this Vision, the key growth planning principles included in the Growth Plan are as follows:
April 2010
Page 11 of 46
1.
Complete Communities which provide a mix of land uses in close proximity, to support people’s daily
activities.
2.
High Quality Urban Design including the preservation of heritage resources and fostering a unique
sense of place through design and built form.
3.
Revitalizing Downtowns by locating major commercial, recreational, cultural and entertainment uses
in Downtowns, and exploring brownfield redevelopment as a means to support downtown
redevelopment.
4.
Efficient Use of Land and Infrastructure by building a more compact built form in existing urban
areas and new Greenfield areas to make efficient use of land and infrastructure.
5.
Curb Urban Sprawl, Protect Farmland and Natural Areas by focusing on intensification and
development in urban areas to reduce development pressures on important natural areas and
agricultural lands.
The Growth Plan includes population and employment forecasts for all upper and single tier municipalities
within the Greater Golden Horseshoe, which will be reviewed every five years. With respect to the Region of
Halton, the Growth Plan includes a 2031 population and employment forecast for the Region of Halton of
780,000 population and 390,000 employees. In order to meet the growth planning principles outlined above,
policies in the Growth Plan encourage intensification, support providing a mix of land uses in close proximity,
and require that the Region plan for a minimum density of 50 residents and jobs per hectare in Greenfield
development.
Given that the Community of Acton has a very limited amount of greenfield lands remaining, and a boundary
expansion is not contemplated because it is surrounded by Greenbelt area (discussed in Section 3.1.5) the
focus of the Growth Plan policy review will be related to intensification.
The Growth Plan requires that by 2015 and for each year after, 40% of all residential development in upper tier
municipalities (the Region of Halton) must be in the form of intensification. The Plan requires that municipalities
encourage intensification generally within the built up area, recognize major transit station areas as a key focus
area for intensification, and identify intensification corridors and areas. The policies state that planned
intensification areas will provide a diverse mix of land uses, to support vibrant neighbourhoods, will support
transit, walking and cycling, will generally achieve higher densities than the surrounding areas and achieve an
appropriate transition of built form to adjacent areas.
With respect to transportation, the Growth Plan outlines policies related to providing a transportation system
within the Greater Golden Horseshoe that provides connectivity among transportation modes, offers a balance
of transportation choices, and offers multi-modal access to all land uses. Policies state that municipalities will
ensure that pedestrian and bicycle networks are integrated into transportation planning. The Growth Plan
speaks to public transit being the first priority for provincial infrastructure planning and major transportation
investments, and introduces a number of future transportation corridors, to link major urban centres within the
Greater Golden Horseshoe. One of the future corridors identified is the GTA West Transportation Corridor,
which was conceptually shown intersecting with Highway 427 in Vaughan and extending westerly, north of
Georgetown and Acton, to Guelph. An environmental assessment has been initiated for the GTA West
Transportation Corridor, which is discussed in more detail in a later section of this Paper.
April 2010
Page 12 of 46
The Growth Plan includes a number of other policies related to employment land conversions, settlement area
boundary expansions, rural areas, protection of natural systems, agricultural areas and mineral aggregate
resources that are not directly related to this study.
3.1.4
Greenbelt Act
The Greenbelt Act, 2005, received Royal Assent on February 28, 2005. The Greenbelt Act sets out a number of
objectives for the Greenbelt Plan and requires that land use decisions must conform to the Greenbelt Plan and
that Official Plans must be updated to conform to the Greenbelt Plan no later than the five-year Official Plan
review prescribed by the Planning Act. The Act also states that the Greenbelt Plan will be reviewed every tenyears.
In the event of a conflict between the Greenbelt Plan and the PPS, Official Plans or Zoning By-laws, the
Greenbelt Act states that the Greenbelt Plan prevails. Further, the Act stipulates that only the Minister of
Municipal Affairs may initiate amendments to lands designated within the Protected Countryside Area of the
Greenbelt Plan.
Within the Niagara Escarpment Plan (NEP) Area, the Act stipulates that the NEP polices continue to prevail.
The Act also precludes the submission of applications, outside of the ten-year review, that seek to redesignate
lands within the Escarpment Natural Area, Escarpment Protection Area, Escarpment Rural Area and Mineral
Resource Extraction Area designations contained within the NEP to Minor Urban Centre, Urban Area or
Escarpment Recreation Area.
3.1.5
Greenbelt Plan
The Greenbelt Plan came into effect February 28, 2005 and builds upon the policy framework included in the
2005 Provincial Policy Statement. Implementation of the Greenbelt Plan is through municipal official plan
policies and maps, which are required by the Greenbelt Act, to conform to the Greenbelt Plan. The Plan
includes lands within the NEP and the Oak Ridges Moraine Conservation Plan.
The main purpose of the Greenbelt Plan is to identify where urbanization should not occur, aimed at protecting
the agricultural land base and the ecological features and functions occurring within the Greenbelt Plan area.
The Plan includes a series of goals under the themes of agricultural protection, environmental protection,
culture, recreation and tourism, settlement areas and infrastructure and natural resources. The Plan sets out
general policies for the Protected Countryside Area, and geographic specific policies within the Protected
Countryside Area, which include the Agricultural System, the Natural System and Settlement Areas.
The Greenbelt within the Town of Halton Hills
There is a significant area of Greenbelt within the Town of Halton Hills. Approximately 61 percent of the total
land area of Halton Hills is now situated within the Greenbelt Plan area, including 8,820 ha (32% of the total
Halton Hills land area) within the Protected Countryside, excluding the land area occupied by the Acton Urban
Area and the Hamlet of Norval. Specific lands included within the Greenbelt Plan are as follows:

lands within the NEP Area;

lands to the north and west of the NEP Area, including the Acton Urban Area and the settlements of
Bannockburn, Ballinafad and Crewson’s Corners and the surrounding rural landscape;
April 2010
Page 13 of 46

lands south of the NEP Area extending northerly around Stewarttown, the Watchtower property, the
boundaries of the Glen Williams Secondary Plan and then southerly between the Credit River Valley
and the Town’s border with Brampton; and,

Middle Sixteen Mile Creek and a portion of a related tributary located to the west of the Sixth Line.
Figure 7 attached shows the Greenbelt Plan area within the Town of Halton Hills.
Towns/Villages in the Greenbelt (Acton)
Within the Greenbelt Plan, the Acton Urban Area is considered a Town/Village. The Greenbelt Plan states that
the boundaries of Towns/Villages are as identified in municipal official plans on the date the Greenbelt Plan
came into effect, and further that the Towns/Villages within the Greenbelt Plan Area continue to be subject to
the policies of municipal official plans. Towns/Villages have the largest concentration of population, employment
and development within the Protected Countryside. Modest growth is contemplated for these communities, as
long as the growth is consistent with the role of these settlements as part of the Protected Countryside and the
capacity to provide locally based sewage and water services. The Greenbelt Plan policies state that expansions
to the settlement area boundaries of Towns/Villages may be possible at the ten year review of the Greenbelt
Plan provided that the proposed growth:

Is on municipal water and wastewater services;

Would not have a negative impact on water quality and quantity (determined on a watershed and
subwatershed basis;)

Complies with any applicable watershed plan;

Does not extend into the Natural Heritage System;

Does not extend into the Specialty Crop Area; and,

Appropriately implements the requirements of other provincial and municipal policies, plans, strategies
or regulations.
In summary, with respect to the Community of Acton, the Greenbelt Plan precludes any future expansion
beyond current the current approved urban boundary until the ten-year review of the Greenbelt Plan and only
on the basis of locally based servicing.
3.2
Region of Halton
3.2.1
Region of Halton Official Plan
The Region of Halton Official Plan was adopted by Regional Council on March 30, 1994 and approved with
modifications by the Minister of Municipal Affairs and Housing on November 27, 1995. Since 1995, the Plan
has been amended a number of times, including:

Regional Official Plan Amendment No. 8 – The Milton-centred urban expansion, together with North
Oakville and the Halton Hills 401-407 Employment Corridor.

Regional Official Plan Amendment No. 25 – Extending the planning horizon to 2021, and
accommodating planned growth primarily in the existing Milton urban area, without the expansion of
urban areas.
April 2010
Page 14 of 46

Regional Official Plan Amendment No. 38 – Incorporating the results of the 5-year Official Plan Review,
and bringing the Regional Official Plan into conformity with the Provincial Policy Statement (2005), the
Greenbelt Plan (2005), and the Growth Plan for the Greater Golden Horseshoe (2006), including the
extension of the planning horizon to 2031, and expansion of the Milton Urban Area, Georgetown Urban
Area and Halton Hills 401-407 Employment Corridor to accommodate planned growth to 2031
contained in the GGH Growth Plan.
The Regional Official Plan provides broad policy directions on strategic matters such as the management of
land and natural resources, growth strategies, housing, economic development, water and wastewater
services, solid waste management, transportation and health and social services.
ROPA 38 is intended to fulfill Provincial requirements under the Growth Plan, the Greenbelt Plan, and the
Provincial Policy Statement (2005), and incorporate the Council endorsed Official Plan Review Directions, to
deliver sustainability for: strong, vibrant, healthy, and complete communities; an enhanced Natural Heritage
System; a strong and sustaining agriculture industry; and a sustainable land use decision making process. This
discussion focuses on the changes contained in ROPA 38 applying to Urban Areas.
In the Region of Halton Official Plan, both Georgetown and Acton are designated as Urban Areas. Policies
related to the Urban Areas in the Regional Official Plan state that these areas are to be the focus for future
urban growth areas and urban services and amenities are, or will, be made available to accommodate existing
and future urban development.
Regional Official Plan Amendment 38 includes a distribution of population and employment for each of the four
area municipalities to the horizon year 2031. This consists of a 2031 population target of 94,000 people and
employment target of 43,000 jobs for Halton Hills. ROPA 38 also includes a minimum residential intensification
target of 5,100 units between 2015 and 2031 for Halton Hills, and a minimum overall development density of 39
residents and jobs per hectare in new Greenfield areas.
The Regional Official Plan also includes policies related to healthy communities including environmental quality,
human services, heritage resources, economic development, transportation and energy and utilities. The
following are some Regional Official Plan policies relevant to this study aimed at achieving this objective:

Promote urban forms that reduce long distance travel;

Promote walking, cycling and transit;

Work with area municipalities to identify and preserve historically significant rural and urban
landscapes;

Support the provision of affordable housing;

Ensure that development applications in or near defined Heritage Features study and consider the
preservation, relocation and/or adaptive reuse of historic buildings and structures;

Ensure the provision of the necessary information and related services to assist and encourage new
business to locate and existing businesses to remain in Halton;

Develop a balanced transportation system that integrates all travel modes; and,

Promote compact growth.
April 2010
Page 15 of 46
ROPA 38 identifies specific sites to accommodate growth (population and employment) by 2031 and strategic
employment lands beyond 2031. Specific policies have been developed for employment lands, Urban Growth
Centres, Major Transit Station areas, other intensification areas as required by the Province. In these areas, the
Region has committed that urban services (water supply and wastewater treatment) are, or will, be made
available for existing and future development and amenities.
ROPA 38 directs that the density targets as set by the Growth Plan will be achieved and monitored through
detailed land use plans in Local Official Plans and its amendments. In order to make all intensification sites
development-ready, servicing & transportation capacities will be made available as a Regional priority. All sites
will be pre-zoned, or pre-designated with equivalent policies, within one year of the approval of the Local
Official Plan or its amendments. Secondary plans will be required to include community infrastructure plans.
Local Official Plans are required to specify minimum densities in all intensification areas. ROPA 38 sets specific
housing targets to ensure at least 50 per cent of all new dwelling units will be of medium and/or high densities,
and 30 per cent of all new dwelling units will meet affordable housing criteria.
4.0 TOWN OF HALTON HILLS POLICY CONTEXT
4.1
Halton Hills Town Strategic Plan 2031
Council adopted the Town Strategic Plan in 2008. The Community Vision to 2031 recognizes that
“Halton Hills is a vibrant and distinctive Town in the Greater Golden Horseshoe:

characterized by its spectacular countryside, natural heritage system and cultural heritage;

enriched by its unique blend of urban and rural interconnected communities and neighbourhoods; and,

supported by its prosperous employment areas.”
The Corporate Mission to 2031 is as follows:
“To plan for a vibrant urban and rural community, the Town of Halton Hills will provide community leadership on
issues of concern, and deliver a broad range of public services in order to achieve the following equally
important Strategic Directions:

Foster a Healthy Community

Preserve, Protect and Enhance our Environment

Foster a Prosperous Economy

Preserve, Protect and Promote our Distinctive History

Preserve, Protect and Enhance our Countryside

Achieve Sustainable Growth

Provide Sustainable Infrastructure and Services

Provide Responsive, Effective Municipal Government”
Preparation of the Acton Downtown Area Land Use Policy Review relates indirectly to most of the above
Strategic Directions in the Town’s Strategic Plan, but is directly related to the following:
April 2010
Page 16 of 46
Foster a Healthy Community
The goal of this strategic direction is to maintain and enhance a healthy community that provides a clean
environment and a range of economic and social opportunities to ensure a superior quality of life in our
community. To meet this goal, the Strategic Plan outlines the following objectives that are of relevance to this
study:

To promote an adequate supply of housing and range of housing choices to meet the needs of present
and future residents, including affordable, accessible and seniors housing.

To ensure the use of appropriate design strategies to create safe communities.

To support and enhance a variety of arts and cultural opportunities for the enjoyment of residents.
Foster a Prosperous Economy
The goal of this strategic direction is to maintain and enhance the economic vitality of the Town through the
provision of a wide range of opportunities for economic development. To meet this goal, the Strategic Plan
outlines the following objectives that are of relevance to this study:

To facilitate the retention and expansion of existing businesses in the Town.

To facilitate a rebalancing of the residential to non-residential assessment ratio to provide for the
Town’s long-term financial viability.

To maintain and enhance our historic downtowns and vibrant commercial areas to provide for
shopping, services, cultural amenities and entertainment.

To promote the Town’s strategic location in the Greater Golden Horseshoe for economic development
purposes.

To facilitate the establishment of a competitive business environment that is easily able to adapt to
changing circumstances and priorities.
Preserve, Protect and Promote our Distinctive History
The goal of this strategic direction is to preserve the historical urban and rural character of Halton Hills through
conservation and promotion of our built heritage, cultural heritage landscapes and archaeological resources. To
meet this goal, the Strategic Plan outlines the following objectives that are of relevance to this study:
To encourage the preservation and enhancement of the historical character of the Town’s distinctive
neighbourhoods, districts, hamlets and rural settlement areas.

To use the conservation of built heritage and cultural heritage landscape resources to enhance the
character and vitality of neighbourhoods, and provide opportunities for economic development and
tourism.

To foster civic pride by recognizing the contribution that built heritage and cultural heritage landscapes
make to the rural and urban character of the Town.
April 2010
Page 17 of 46
Achieve Sustainable Growth
The goal of this strategic direction is to ensure growth is managed so as to ensure a balanced, sustainable, well
planned community that meets the needs of its residents and businesses. To meet this goal, the Strategic Plan
outlines the following objectives that are of relevance to this study:

To ensure that new growth contributes in a positive manner to the Town’s short and long term
economic and fiscal vitality.

To ensure that the character and stability of existing residential neighbourhoods is maintained when
accommodating growth.

To provide opportunities for intensification and affordable housing in appropriate locations within the
Town.

To ensure the efficient use of urban land and infrastructure in existing communities and new growth
areas.
Provide Sustainable Infrastructure and Services
The goal of this strategic direction is to maintain and enhance community infrastructure and services that
support our quality of life. To meet this goal, the Strategic Plan outlines the following objectives that are of
relevance to this study:

To ensure that infrastructure required for growth is provided in a timely manner.

To work with other orders of government to ensure the provision of a safe, diverse, and integrated
transportation system.
Provide Responsive, Effective Municipal Government
The goal of this strategic direction is to provide strong leadership in the effective and efficient delivery of
municipal services. To meet this goal, the Strategic Plan outlines the following objectives that are of relevance
to this study:

To encourage community participation in municipal decision making; and,

To expand opportunities for communication with our community.
4.2
Town of Halton Hills Official Plan
As prescribed by the Planning Act, municipal Official Plans are policy documents intended to serve as the basis
for making land use decisions and managing change. The Town of Halton Hills Official Plan implements the
Provincial Policy Statement and the Greenbelt Plan. Further amendments are anticipated to the Official Plan to
implement the Provincial Growth Plan. In addition, the Town of Halton Hills Official Plan must conform to the
Regional Official Plan.
The Town of Halton Hills Official Plan includes overarching goals as follows:

Natural Heritage and Water Resources – To protect, enhance and where possible restore, significant
natural heritage features and related ecological functions in the Town for present and future
generations.
April 2010
Page 18 of 46

Growth and Settlement – To direct most forms of development to urban areas where full wastewater
and water services are available and to support the efficient use of land in these areas.

Agriculture – To preserve areas demonstrating high capability for agricultural production for that
purpose.

Cultural Heritage – To identify, conserve and enhance the Town’s cultural heritage resources and
promote their value and benefit to the community.

Economic Development – To provide opportunities for economic development in a manner that
fosters competitiveness and a positive business environment.

Infrastructure – To provide infrastructure that meets the needs of present and future residents and
businesses in an efficient, environmentally-sensitive, cost effective and timely manner.

Housing – To provide an adequate housing supply and range of housing choices to meet the needs of
present and future residents.

Mineral Aggregate Resources – To protect mineral aggregate resource areas for long term use while
ensuring that extraction occurs in a manner that minimizes environmental and social impacts.
Land use designations in the Official Plan are divided into three broad categories as follows:

Environmental and Open Space which includes the Greenlands System, Major Parks and Open
Space, Private Open Space and Niagara Escarpment Plan Area.

Urban Area which includes Living Areas, Community Area, Employment Areas and Special Study
Areas.

The Agricultural/Rural Area includes the Agricultural Area, Protected Countryside Area, Hamlet
Areas, Rural Cluster Area, Country Residential Area, Mineral Resource Extraction Area, Rural
Industrial Area and Major Institutional Area.
4.2.1
Acton Urban Area
Within the Town of Halton Hills Official Plan the land use designations in the Acton Urban Area are a mix of
residential, general employment areas and commercial areas. In addition to the land uses identified above,
there is an area designated as the South Acton Special Study Area, and the associated policy framework in the
Official Plan requires that development does not occur on these lands until a comprehensive review is
completed. The Official Plan also outlines the requirements of the comprehensive review. Figure 8 attached is
the Official Plan Schedule for Acton.
4.2.2
Acton Downtown
The area subject to this study is Acton Downtown, which is divided into three land use designations in the
Official Plan as follows:
1. Downtown Core Sub-Area
2. Downtown Complementary Sub-Area
3. Tourist Commercial Sub-Area
April 2010
Page 19 of 46
The policies included in the Official Plan related to the Downtown Core Sub-Area provide the framework for
these areas to continue to function as focal points for commerce and hospitality in the Town, by
accommodating a diverse mix of commercial, residential, cultural and social uses and opportunities.
The Downtown Complementary Sub-Area is intended to function as a transitional area between the Downtown
Core Sub-Area and the adjacent stable residential neighbourhoods. The intent of this designation is to
accommodate small scale commercial and residential uses within the existing built form, to maintain the
character of the area while still being complementary to the Downtown.
The Tourist Commercial Sub-Area is intended to build on the presence of the Olde Hide House and specifically
the tourist nature of the clientele due to the specialized nature of the products being sold there. In addition, a
number of years ago, the Olde Hide House had expressed an interest in developing the entire Eastern Avenue
area of Acton into a 27,500 ft2 tourist shopping area. The interest expressed by the Olde Hide House, combined
with the gateway location to the Downtown, served as a basis for the Tourist Commercial Sub-Area
designation.
The permitted uses and built form for the Official Plan designations in Downtown Acton are outlined on Table 1.
At the time the Region of Halton was reviewing the Halton Hills Official Plan, it was apparent to staff that the
Olde Hide House has not pursued the expansion of the tourist shopping area; and further that Council approved
the Acton Medical Centre application within the Tourist Commercial Sub-Area, which was a use that was a
departure from the original intent of the Tourist Commercial Sub-Area policies in the Official Plan. Given the
above, staff requested the inclusion of the following modification to the Tourist Commercial Sub-Area policies:
Section D2.5.1.6.2 - The Town will monitor development activity within the Acton Tourist
Commercial Sub-Area designation. If development opportunities appear too limited to ensure
viability of the entire designation or part thereof, the Town shall further consider alternative land
uses that would be appropriate given the location of these lands at the eastern gateway to
Downtown Acton as part of the next review of this Plan or through a comprehensive study of the
Downtown Area.
Figure 9 attached is the Official Plan Schedule for the Acton Downtown Area.
5.0 RELATED PLANNING INITIATIVES
5.1
Halton Hills Intensification Opportunities Study
The Halton Hills Intensification Opportunities Study was initiated in late 2007 and is nearing completion. The
purpose of the Intensification Opportunities Study is to critically assess the capability of the Town to address
the intensification policies contained in the Growth Plan. This includes evaluating the role Halton Hills should
play in achieving the Halton Region-wide 40 percent intensification target contained in the Greater Golden
Horseshoe Growth Plan.
April 2010
Page 20 of 46
TABLE 1: Permitted Uses and Built Form in Downtown Acton
Official Plan Designation
Permitted Uses
Downtown Core Sub-Area
















Downtown Complementary
Sub-Area
Acton Tourist Commercial
Sub-Area
April 2010















Retail and service commercial uses
Medical offices
Hotels and bed and breakfast
establishments
Places of entertainment
Day nurseries
Private and commercial schools
Places of worship and other institutional
uses
Private recreational uses
Restaurants
Libraries, museums and art galleries
Adult specialty stores
Small scale supermarkets and specialty
food stores
Residential uses including long term care
facilities and retirement homes
Home occupations
On Main St and Mill St residential uses are
generally directed to the upper floor
New free standing residential buildings
(apartments, retirement homes etc) are
permitted on side streets
Residential uses
Home occupations
Medical offices
Inns and bed and breakfast establishments
Small-scale restaurants
Retail and service commercial uses
Libraries, museums and art galleries
Day nurseries
Private and commercial schools
Places of worship and other institutional
uses
Retail uses
Hotels and inns
Places of entertainment
Museums and art galleries
Restaurants
Built Form











Max. height on Main St. and Mill
St. is 4 storeys
Heights greater than 4 storeys
must be in the rear portion of
buildings
Retain architectural details and
features
The façade of new buildings must
be representative and consistent
with adjacent architectural styles
Building materials must be in
keeping with the architectural
character of the Downtown
Traditional signage and lighting is
preferred
Development of townhouses,
multiple and apartment dwellings
to a max of 100 units per net res.
ha and shall not exceed 8
storeys.
Development of townhouses,
multiple and apartment dwellings
to a max of 30 units per net res.
ha and shall not exceed 3
storeys.
Residential developments must
maintain existing built form as
much as possible; scale does not
detract from residential character
of the area.
Commercial developments must
maintain residential character of
the building, scale and type of
use does not detract form the
residential character of the area.
Generally in accordance with the
Town’s urban design objectives
which include high quality design,
to strengthen the Downtowns.
Page 21 of 46
As discussed in a previous section of this report, the Greenbelt Plan (2005) identified Acton as a Town/Village.
According to the Greenbelt Plan, Towns/Villages in the Protected Countryside continue to be governed by
municipal official plans within their approved settlement area boundaries, but intensification within these
communities is limited to modest growth compatible with the long term role of these settlements as part of the
Protected Countryside and the capacity to provide locally based sewage and water services.
Notwithstanding the above, according to the Places to Grow Act the entire area of the Town of Halton Hills is
included within the Greater Golden Horseshoe Growth Plan area, and the majority of the Acton Urban Area has
been included within the Built Boundary1. Despite the limitations placed on the intensification of Acton by the
Greenbelt Plan, the Official Plan recognizes the role of some level of intensification to the continued vitality and
community development of Acton. In addition, the largest area of vacant land within the Built Boundary of Halton
Hills is located in the Community of Acton (i.e. the former Beardmore Tannery lands).
5.1.1
Background Intensification Report
In keeping with the policy direction of the Official Plan, outlined earlier in this report, the Intensification
Opportunities Study examined the potential for intensification in the Downtown Area of Acton. Through the
Background Intensification Report (February 2009), some opportunities for redevelopment of older commercial
and residential buildings were identified, but due to the necessity of land assembly, as well as market demand
considerations, these opportunities were not expected to be realized by 2031. The one exception is the eastern
area of the Downtown, known as the Tourist Commercial Sub-Area in the Official Plan. A number of factors
influenced the study recommendation that the east portion of the Acton Downtown is an appropriate focus for
intensification in the Town. These factors are:
1)
The area is situated in close proximity to the Acton Downtown Core, and therefore additional
population in this area can result in mutual benefit to the residents and businesses of the area;
2)
Changing circumstances with respect to the potential to create a tourist destination have made it
appropriate to evaluate the land use vision for this area contained in the Official Plan;
3)
The potential that GO Transit may establish a GO train station in the Acton area, with the Townowned property on Eastern Avenue, next to the Olde Hide House, one of the candidate sites;
and,
4)
The low intensity of land use in the area makes it a reasonable candidate for intensification
through redevelopment, in combination with the other three factors.
The former Foodland/Canadian Tire property on Mill Street East was identified as being appropriate for a
townhouse or low-rise apartment development, while some potential is seen for redevelopment for townhouses
of properties on Eastern Avenue, in the longer term (2016-2031). The redevelopment of the Holly Industries
property was seen as an opportunity beyond 2031, in keeping with the downtown location and non-industrial
character of the area, and the possibility that a GO station could be established on the neighbouring Townowned lands. The location of these potential intensification sites are shown on Figure 10 to this report.
1
The Built Boundary is defined as “the limits of the developed urban area as defined by the Ministry of Public Infrastructure
Renewal,” as of the effective date of the GGH Growth Plan (i.e. June 16, 2006). It also includes major brownfield sites
(contaminated or potentially contaminated former industrial sites) within the Urban Area, such as the South Acton Special Study
Area (Maple Leaf lands).
April 2010
Page 22 of 46
5.1.2
Draft Intensification Strategy
In December 2009, the Town released a Draft Intensification Strategy for public and agency comment. This
Strategy is intended to be the response of the Town to the Growth Plan requirement for an intensification
strategy, and as the policy basis for an Amendment to the Halton Hills Official Plan, to achieve conformity with
the intensification policies of the Growth Plan and adopted Regional Amendment No. 38.
Table 2 shows the residential intensification unit potential of the Acton Urban Area as a whole, contained in the
Draft Intensification Strategy. To 2031, the majority of intensification is expected to occur on the vacant South
Acton Special Study Area lands, if issues such as servicing and site contamination can be resolved. However,
in keeping with the conclusions with respect to the intensification potential of the Tourist Commercial Sub-Area
contained in the Background Intensification Report (February 2009), the Strategy has identified the area as a
potential focus for intensification, likely beyond 2031, which will complement the commercial function of the
Downtown Area, and take advantage of the potential future location of a GO station in the area (see Figure 11).
TABLE 2: Acton Intensification (2006-2031)
Intensification Area
Downtown Area
South Acton Special Study Area
General Sites
TOTAL:
Low
Density
Medium
Density
High
Density
Total
0
80
10
90
700
400
140
1,240
55
285
110
450
755
765
260
1,810
2006-2031
Therefore, the Draft Strategy concluded that an important element of an Intensification Strategy for the Town
should include a review of the Acton Downtown Area, and in particular the Tourist Commercial Sub-Area, taking
into consideration the conclusions of the Intensification Opportunities Study.
As part of the Intensification Study process, a request was also received to re-designate the property at 97
Bower Street, just outside the current Downtown Area boundary, from Low Density Residential Area to High
Density Residential Area. The study Steering Committee considered the request, and advised that the property
was more appropriate for medium density housing or some form of senior’s housing. Staff agreed that there
may be some merit to this suggestion, given its proximity to the Downtown Area, notwithstanding that location
does not meet all of the criteria for re-designation contained in the Official Plan (e.g. collector road access).
However, in order to permit more detailed consideration of the planning merit of the re-designation, the Draft
Strategy recommended that this matter be addressed through the Acton Downtown Land Use Policy Review.
April 2010
Page 23 of 46
5.2
Halton Hills Community Improvement Plan
A Town of Halton Hills Comprehensive Community Improvement Plan (CIP) and associated Official Plan
Amendment were adopted by Council on April 12, 2010. The purpose of the Town of Halton Hills Comprehensive
CIP is to identify the entirety of the Town of Halton Hills as a Community Improvement Project Area and
outlines financial incentive programs and municipal leadership strategies for the following eight Sub-Areas:
1. Guelph Street (the Georgetown Community Node located along Guelph Street, generally between Maple
Avenue and Sinclair Avenue);
2. Downtown Georgetown;
3. Downtown Acton;
4. The Georgetown GO Station Lands,
5. The South Acton Special Study Area (the former Beardmore Tannery lands) and other Brownfield sites;
6. Agricultural/Rural Lands;
7. Georgetown Industrial Park; and,
8. Acton Industrial Park.
Figure 12 attached shows the Community Improvement Project Areas and Sub-Areas in accordance with the Town
of Halton Hills Comprehensive CIP. Although the Town of Halton Hills Official Plan already includes policies which
identify the purpose of a CIP as well as geographic areas in Halton Hills that such policies could apply, the Official
Plan Amendment was required to designate the Community Improvement Project Area and Sub-Areas in
accordance with the Town of Halton Hills Comprehensive CIP.
Municipal leadership strategies use municipal resources (both staff time and financial resources) to demonstrate
proactive and visible leadership and support for community improvement. Financial incentive programs are typically
grant or loan programs designed to encourage private sector investment, rehabilitation, adaptive reuse,
redevelopment and construction activity within Community Improvement Project Areas.
As indicated in the list above, one of the sub-areas identified in the CIP is Downtown Acton. A list of the
municipal leadership and financial incentives for Downtown Acton is outlined on Table 3 below.
TABLE 3: Community Improvement Incentives for Downtown Acton
Municipal Leadership Programs
Municipal By-law Enforcement/Review
Financial Incentive Programs
Façade Improvement Grant Program
Preparation of a “Downtowns” Guide
Building Improvement Loan Program
Marketing Strategy
Residential Conversion/Rehab. Grant Program
Land Use Review
Commercial Conversion Grant Program
Review of the “Acton Tourist Area” Designation
Revitalization Grant Program
Signage Program
Comprehensive Planning Grant Program
Preparation of Comprehensive Development Plan(s)
April 2010
Page 24 of 46
5.3
Draft Comprehensive Zoning By-law (April 2010)
In April 2010, the final draft of the Town of Halton Hills Comprehensive Zoning By-law was released. The
Town of Halton Hills is currently subject to three Zoning By-laws: By-law 1358 (Acton), By-law 57-91
(Georgetown) and By-law 74-51 (Esquesing). These By-laws date from 1968, 1957 and 1974, respectively.
Given the age of these Zoning By-laws, they are not in conformity with the Town’s Official Plan, which was
approved by Council in 2006 and there are numerous conflicts with other Provincial and Regional policies.
With respect to Downtown Acton, the April 2010 draft Comprehensive Zoning By-law is proposing four Zones
within the study area as follows:
Downtown Commercial One (DC1) – This zone generally recognizes existing residential units and permits
single and semi-detached dwellings on existing lots of record. This zone also permits a wide range of
commercial uses.
Downtown Commercial Two (DC2) – This zone is intended to apply to the transitional areas between the
downtown core and established residential areas. This zone generally recognizes existing residential units and
permits single and semi-detached dwellings. This zone recognizes a number of existing non-residential uses,
but new non-residential uses contemplated in this area by the Town’s Official Plan would require a re-zoning.
Development (D) – This zone applies to lands that are currently designated for urban development in the
Official Plan, but require further planning before the lands would be zoned. Permitted uses are limited to
existing uses, buildings and structures only. Lands within the Tourist Commercial Sub-Area have been placed
in a Development Zone pending the completion of this study.
Environmental Protection 1 (EP1) – This zone represents lands that are designated Greenlands A in the
Town’s Official Plan. The Zone recognizes existing agricultural uses and buildings and does not permit the
erection of any building or structures within this area.
Figure 13 attached shows the Draft Zoning Schedule for Acton Downtown.
It is anticipated that the Town of Halton Hills Comprehensive Zoning By-law will be approved by Council in May
2010.
5.4
Cultural Heritage
The Halton Hills Official Plan places considerable importance on the protection and conservation of cultural
heritage resources in the community and includes the following related objectives:

To use cultural heritage resources to enhance the character and vitality of neighbourhoods and districts;
and,

To ensure that the location of and nature of cultural heritage resources are known and considered before
land use decisions are made.
In 2005, Halton Hills Council designated 69 to 89 Bower Street, just outside the current Acton Downtown Area
boundary as a Heritage Conservation District (HCD) under Part V of the Ontario Heritage Act. This designation
is accompanied by a Heritage Conservation District Plan that ensures that any proposed development or public
works is in keeping with the HCD Plan, and does not negatively impact the 10 semi-detached houses known as
the Acton Syndicate Housing, and constructed in the 1880’s to house workers at the Beardmore Tannery.
April 2010
Page 25 of 46
The Town is currently commencing Phase 2 of an update to its Heritage Register. The purpose of this process
is to ensure that all buildings and structures that can be identified as having cultural heritage value to the
community are added to the Heritage Register, in order that, if and when necessary, conservation options can
be pursued by the Town. Phase 2 will include the identification of properties with heritage value in Acton.
5.5
Acton Business Improvement Area
There is an established Business Improvement Area (BIA) in Downtown Acton. BIAs are legislated by the
Municipal Act, and established to:

oversee the improvement, beautification and maintenance of municipally-owned land, buildings and
structures in the area beyond that provided at the expense of the municipality generally; and,

promote the area as a business or shopping area.
In response to a request from the BIA, early in 2010 Council passed a By-law to expand the boundaries of the
Acton BIA to include Prospect Park. The current boundary of the Acton BIA is shown on Figure 14.
5.6
Halton Hills Retail Commercial Demand Study
The last Retail Market Demand Study was prepared by W. Scott Morgan in 2001 as part of the last Official Plan
review. The purpose of the study at that time was to evaluate the future retail commercial space needs by
category and the implications for future commercial activity within the Acton and Georgetown Urban Areas from
2001 to 2021. With respect to the Community of Acton, the study concluded that an additional 113,000 square
feet of commercial floor space was warranted, with the Acton Shopping Centre and the Leathertown Junction
sites anticipated to capture the majority of this additional floorspace. The quantum of additional floor space did
not include potential commercial floorspace in the Tourist Commercial Sub-Area because it was anticipated to
have a regional draw.
W. Scott Morgan has been retained to complete a 2010 Retail Commercial Demand Study – Georgetown and
Acton Trade Areas, which was recently completed. The salient features of the work undertaken as part of the
Retail Commercial Demand Study as they relate to Acton include:

Consumer telephone surveys for the Acton Trade Area;

An updated commercial floorspace inventory; and,

The identification of additional residual commercial floorspace by category and related land
requirements warranted in Acton to the 2021 and 2031 planning horizons and if warranted what kinds
of commercial centres might best accommodate those market demands.
The following retail/commercial categories are considered in the study:

Supermarket/Grocery portion of Food Store Retail (FSR)

Specialty Food portion of FSR

Department Store portion of Non-Food Store Retail (NFSR)

Non-Department Store portion of NFSR
General Merchandise Stores
April 2010
Page 26 of 46
Apparel and Accessories Stores
Furniture/Home Furnishings/Electronics Stores
Other Retail Stores
Pharmacies and Personal Care Stores


Home Improvement Stores (HI)

Personal and Other Services

Restaurant

Liquor/Beer/Wine (L/B/W)
As set out in the 2001 study, Acton had approximately 250,000 square feet of retail commercial floorspace. The
inventory has since increased by just under 100,000 square feet to a total of 349,497 square feet. The
increases are concentrated in Services (38.5 %), Food Store Retail (33%), and Non-Food Store Retail (23.7%).
Table 4 below shows the breakdown of the 2009 Acton commercial inventory.
TABLE 4: 2001 Inventory of Acton Retail and Commercial Space
Categories of Retail and Commercial Space
42,700
18,480
61,180
Approx. Percentage of
Total Retail Commercial
Space
12.2
5.3
17.5
108,576
31.1
Home Improvement Store
16,100
4.6
Personal Services
Other Services
Services
28,554
33,048
61,602
8.2
9.5
17.6
Local Offices
Restaurants
Bank/Trust
Liquor/Beer/Wine
Other Spaces NEC
Vacancy
21,869
38,694
25,818
7,468
5,930
2,260
6.3
11.1
7.4
2.1
1.7
0.6
*349,497
100
Supermarket/Grocery
Specialty Food
Food Store Retail
Non-Dep’t Store and Non Food Retail Store
Total
Approx. Square
Footage
*Sum may not add up to total due to rounding.
Source: Retail Commercial Demand Study (May 2010)
April 2010
Page 27 of 46
The telephone consumer survey provides useful information into the base year spending patterns of trade area
residents, including local capture rates and outflow by retail category and spending destinations. In context of
Acton, the survey results suggest that spending is limited to convenience categories such as Drugs/Personal
Care, General Merchandise, Pet/Pet Supply stores, Hardware and Supermarket/Grocery. The findings suggest
that Acton performs as a slowly maturing service centre tributary to the larger Georgetown market.
The study concludes that Acton will require 36,000 square feet of additional commercial floorspace by 2021,
which at 25% lot coverage translates into 3.2 acres. By 2031, Acton will require 80,000 square feet of additional
commercial floorspace, which at 25% lot coverage translates into 7.3 acres. Notwithstanding the foregoing, the
report concludes that the residual square footages calculated for certain store categories, specifically Home
and Auto Supply/Tires Batteries and Accessories, Home Improvement Stores, Supermarket, Restaurant,
Liquor/Beer/Wine are unlikely to be built and more likely to result in improves sales performance for existing
space. This would reduce the warranted floorspace to 24,000 square feet in 2021 (2.2 acres of land @ 25 %
coverage) and 54,000 square feet in 2031 (5.0 acres of lands @ 25 % lot coverage).
Table 5 below provides the midrange residual estimates for retail floorspace by category for Acton plus other
warranted space based on per capita space ratios.
TABLE 5: 2031 Retail and Commercial Floorspace Estimates for Acton
Categories of Retail and Commercial Space
2031 Floor Space
Estimate for Acton
(Square Feet)
Non Department and Non Food Store Retail
31,000
Home Improvement
2,600
Supermarket
10,100
Specialty Food Store
3,200
Personal Service
4,200
Restaurant
10,500
Liquor, Beer and Wine
2,200
Total Retail and Selected Commercial
*63,400
Other Service, Office and Financial Institution Space
16,900
*Sum may not add up to total due to rounding.
Source: Retail Commercial Demand Study (May 2010)
6.0 SERVICING STATUS
At present, the groundwater-based and stream-based water and wastewater servicing systems serving the
Acton Urban Area are at capacity, and cannot accommodate any additional population or employment growth.
The Region of Halton continues water and wastewater servicing investigations for the Acton Urban Area, based
upon the forecasted residential unit growth contained in the Halton Hills Intensification Opportunities Study,
which, as noted previously, is primarily focused on the South Acton Special Study Area (i.e. former Beardmore
Tannery lands), but includes some potential for the Acton Downtown Area.
April 2010
Page 28 of 46
The Region expects to report to Regional Council in the near future with respect to the status of the Acton
Water Supply Master Plan and the Wastewater Treatment Plant Master Plan processes. Any information from
these studies that is made available over the duration of the planning process for Acton Downtown will be
reviewed in subsequent phases.
7.0 TRANSPORTATION
7.1
GTA West Corridor Environmental Assessment
As mentioned in a previous section of this report, Places to Grow, a Growth Plan for the Greater Golden
Horseshoe had identified a future transportation corridor which was conceptually shown intersecting with
Highway 427 in Vaughan and extending westerly, north of Georgetown and Acton, to Guelph. The Ontario
Ministry of Transportation (MTO) has initiated an Environmental Assessment (EA) Study for the GTA West
Corridor. The purpose of the EA is to examine long-term transportation problems and opportunities to the year
2031 within the study area which generally extends from Vaughan to Guelph, with a combination of Highways
401 and 407 as the southerly border.
The transportation model for the GTA West Environmental Assessment considers all planned transit
improvements and highway widenings within the study area as the starting point, and then identifies a number
of alternatives for modal improvements. Based on the assessment to date, only one proposed multi-modal
transportation corridor extends across the Greenbelt and the Niagara Escarpment, north of both Georgetown
and Acton. The other alternatives extend from Highway 400, and link to Highway 410 or cross the Credit River
in the vicinity of Norval and either link to Highway 401/407 in the vicinity of 9th Line or extend through the
southern portion of the Town of Halton Hills to join the 401 at Milton or continue westward. It is anticipated that
the preferred alternative for the multi-modal transportation corridor will be presented at a public information
centre in the spring of 2010.
7.2
Georgetown to Kitchener Rail Expansion Environmental Study
In August 2009, GO Transit released the Georgetown to Kitchener Rail Expansion Environmental Study Report.
As noted earlier in this report, this study has implications for the Acton Downtown Land Use Policy Review.
This report has concluded that GO Transit rail service should be introduced to Kitchener and Guelph on the
Georgetown line as early as 2011. In addition, it is recommended that a station should be added in the
Community of Acton on the former GO station site; the Town-owned lands adjacent to the Olde Hide House
property. The initial service would consist of 4 eastbound trains in the morning peak period, and 4 westbound
trains in the evening peak period. The study process now moves into the Detail Design and Implementation
phase, but is dependent on the provision of funding by the Province.
Travel demand forecasting completed for the study concluded that passenger trips at the Acton station would
be 610 at start-up in 2011 (mainly taking ridership from the Georgetown GO Station) and grow to 850
passenger trips by 2031. Parking demand would grow from 140 cars in 2011 to 200 cars in 2031.
In selecting the Acton Downtown site for a GO station over a site on Dublin Line, northwest of Acton, the study
noted that: it is a more affordable option, the location is in an urban setting accessible to local residents and in
close proximity to the downtown core, the site was previously used as a GO station stop, and the location would
April 2010
Page 29 of 46
provide good connectivity to other transportation modes and local transit systems. It should be noted that Acton
does not currently have a local transit system.
At start-up of service, minimal construction would be needed at the Acton site, taking advantage of the existing
platform along the south side of the mainline. Recommended improvements include construction of a south
platform, a station building, bus bays and a kiss and ride area. Parking for 200 cars would be achieved by reorganizing existing parking along the south side of the tracks (adjacent to the Olde Hide House). (Refer to
Figure 15)
The study notes that the closure of Queen Street may be required to accommodate a 12-car south platform. In
the future, a north mainline, north side platform, stairs, elevators, and tunnels are recommended. Closure of
Queen Street at the eastern limit of the site would be required to accommodate the north platform, due to the
minimal spacing between Mill Street and Queen Street. It should be noted that Section F6.4.1.10 and
Schedules B1 and B2 of the Official Plan, identify the possible future extension of Queen Street to Main Street
(Highway 25), subject to a study in accordance with the Municipal Class Environmental Assessment process.
8.0 PRELIMINARY ALTERNATIVES FOR DOWNTOWN ACTON
The following five preliminary alternatives were developed by staff and modified based on discussions with both
the Technical and Stakeholder Advisory Committees that have been established for this study.
Alternative 1
This alternative doesn’t propose to revise any changes to the boundary of Downtown Acton as currently
depicted in the Official Plan, but does propose changes to the sub-areas within the Downtown as follows:

Lands on the north side of Main Street, predominantly those lands that front onto Main Street North and
South are proposed to be changed from Downtown Complementary Sub-Area to Downtown Core SubArea. This proposed revision recognizes that there are existing buildings in the area that would be suitable
for redevelopment as part of Downtown Acton.

Lands North-West of Main Street East and North East of Wilbur Street North are proposed to be changed
from Tourist Commercial Sub-Area to Downtown Core Sub-Area. This proposed revision recognizes that a
number of new buildings have been constructed in this area, and therefore may not be suitable to be
included in the Downtown Redevelopment Sub-Area.

The remaining lands that are currently designated Tourist Commercial Sub-Area in the Official Plan are
proposed to be changed to Downtown Redevelopment Sub-Area, to recognize the mixed use
redevelopment potential in the vicinity of the future GO Station.
Alternative 1 can be seen on Figure 16 attached.
Alternative 2
Alternative 2 proposes an adjustment to the Downtown Acton boundary to encompass the future Acton Library
as well as extends the boundary to Bower Street and Church Street East, between John Street and Wilbur
Street. The sub-areas are the same as proposed in Alternative 1, with the following additions:

The Acton library site is proposed to be within the Downtown Core Sub-Area.

The additional properties that front onto Bower Street and Church Street East, between John Street and
Wilbur Street are proposed to be included in the Downtown Complementary Sub-Area.
April 2010
Page 30 of 46
Alternative 2 can be seen on Figure 17 attached.
Alternative 3
Alternative 3 builds on Alternatives 1 and 2, and proposes to add lands in the south east portion of the study
area around Maria Street and proposes these additional lands be included within the Downtown
Redevelopment Sub-Area. Alternative 3 can be seen on Figure 18 attached.
Alternative 4
Alternative 4 builds on Alternatives 1 through 3, and proposes to add properties fronting onto Main Street North
in the vicinity of Knox Street. These additional properties are proposed to be included within the Downtown
Core Sub-Area. Alternative 4 can be seen on Figure 19 attached.
Alternative 5
Alternative 5 builds on the previous four alternatives and includes a new block of properties between Willow
Street North and Alice Street, north west of Bower Street. These additional properties are proposed to be
included within the Downtown Complementary Sub-Area. Alternative 5 can be seen on Figure 20 attached.
9.0 DRAFT EVALUATION CRITERIA
Phase 3 of the planning process for this study includes determining a preferred policy alternative for Downtown
Acton. This phase of the project entails selecting one of the five alternatives outlined in Section 8.0. In order to
provide guidance in the selection of an alternative, it is proposed that each alternative be evaluated based on
the degree to which it:

is in conformity with provincial and regional policies;

is in conformity with Town of Halton Hills policies;

supports intensification, infill and encourages redevelopment;

maximizes opportunities provided by the proposed future GO Station;

provides for additional retail/commercial opportunities as identified by the updated Retail Market
Demand Study;

minimizes negative impacts on surrounding residential areas;

includes community infrastructure;

enhances the environment and protects the natural heritage system;

protects and enhances cultural heritage features; and,

provides a logical boundary for downtown Acton and the sub areas within the Downtown area.
10.0 NEXT STEPS
This Background and Preliminary Alternatives Report has been reviewed by both the Steering Committee and
the Technical Advisory Committee and the five proposed alternatives for Downtown Acton, which are outlined in
a previous section of this report, reflect input from both Committees. Upon Council endorsement of this report,
this information will be presented to the public at a Public Open House.
April 2010
Page 31 of 46
FIGURE 6: Current Downtown Acton Boundary and Existing Land Uses
April 2010
Page 32 of 46
FIGURE 7: Provincial Greenbelt in Halton Hills
April 2010
Page 33 of 46
FIGURE 8: Official Plan Schedule - Acton
April 2010
Page 34 of 46
FIGURE 9: Official Plan Schedule – Acton Downtown
April 2010
Page 35 of 46
FIGURE 10: Intensification Inventory Downtown Acton
April 2010
Page 36 of 46
FIGURE 11: Acton East Downtown Redevelopment Area
April 2010
Page 37 of 46
FIGURE 12: Community Improvement Project Areas
April 2010
Page 38 of 46
FIGURE 13: Draft Zoning Schedule for Downtown Acton
April 2010
Page 39 of 46
FIGURE 14: Acton Business Improvement Area Boundary
April 2010
Page 40 of 46
FIGURE 15: Georgetown to Kitchener Rail Expansion – Proposed Acton GO Station
April 2010
Page 41 of 46
FIGURE 16: Alternative #1 - Downtown Acton
April 2010
Page 42 of 46
April 2010
Page 43 of 46
April 2010
Page 44 of 46
April 2010
Page 45 of 46
April 2010
Page 46 of 46