APPENDIX 1

PD-054-16

Town of Milton
Downtown Study
Final Report
Civic Precinct Lands
12/12/2016
Downtown Study Final Report

1.0 Introduction

Milton has experienced significant growth pressures as a result of provincial planning

policy directions, such as the “Places to Grow” and the Provincial Policy Statement,
which require intensification. An objective of this study is to identify how much of that
intensification can be feasibly accommodated within the Downtown. In addition, the
study will address compatibility of any intensification with the elements of the Downtown
which are historically important and valued by the community including specific
landmark and heritage buildings, the overall historic character and views to the Niagara
Escarpment.

The purpose of the Downtown Study has been to examine in-depth the current state of
Downtown Milton to optimize opportunity for redevelopment and revitalization and to
provide a unified strategy and implementation framework to shape the future of the
Downtown. This will allow the area to evolve cohesively as Milton grows. The study is
built on a combination of planning analysis and public engagement.

The study area has been divided into two areas the “Primary Area” and the “Secondary
Area” as shown in Figure 1. The Primary Area which is comprised of a significant
portion of Town owned lands, also known as the Civic Precinct was the first area to be
thoroughly examined. This primary area is prioritized in order to provide a strong civic
base for Downtown revitalization to move forward.
Figure 1
Downtown Study Final Report

Through the Study there has been a great amount of engagement and input from the
community. Through the level of interest expressed it is clear that the Downtown
remains the physical and symbolic heart of the community. It provides both an important
and valuable focus for the Town. It is, therefore, important to maintain and enhance the
Downtown as an asset for the entire municipality, not just for the immediate surrounding
area. An important element of this will be the implementation of a strategy that will not
only help enhance the economic viability of the Downtown but also protect the character
of the Downtown and the features that make it so symbolic to the community.

The following report details the course of the Downtown Study, outlines the objectives of
the study and provides recommendations regarding how the Town of Milton can move
forward to ensure that the objectives of the Study, public interest and the Vision for the
Downtown are achieved. The Study was initiated with a public engagement session in
June, 2015, the Interim Report followed and was received by Council in January, 2016.
An additional report outlined the Market Analysis for the Downtown and was provided to
Council in June 2016, with a second public engagement opportunity held seeking input
regarding approaches to land use planning to achieve the desired form and function of
the Downtown in September 2016.

1.1 Objectives

The Downtown Study has been predicated upon five core objectives of for Downtown
Milton. These five components have been derived from feedback collected through
public engagement, approved Official Plan policies and directions, protection the historic
Downtown core and technical consultation. The five core objectives are detailed below.
These objectives are the building blocks that create the unified vision for the Downtown.
It is important that the desire and needs of the community guide redevelopment within
the Downtown. The vision and objectives should be used to assist in guiding decisions,
and goals while moving forward to implement a strategy for the Downtown.

Vision Statement

Use a strong Civic presence as an anchor to build on while amplifying Downtown

Milton’s historic assets into a vibrant, pedestrian-oriented Downtown with a high quality
public realm. Harmoniously preserve the beloved character of the Downtown while
intensifying in ideal locations, creating a sense of Place for all of Milton with a space to
be enjoyed by the entire community.
Downtown Study Final Report

Objectives

1. Civic Presence as an Anchor in the Downtown

2. Build on the Existing Heritage
3. Create a vibrant Public Realm – A destination for the entire community.
4. Have a pedestrian friendly, interactive community
5. Place making for the entire community.

1. Civic Presence as an Anchor in the Downtown

Having Town Hall within the Downtown is a key asset that can be used as a building
block supporting the revitalization of the Downtown. The potential redevelopment of
the Civic Precinct lands will be a crucial step in moving the Downtown forward. It is
important that the Town takes a leadership role in implementing a vision for the
Downtown, and incentivizing the appropriate form of development and range of uses
to attract private investment in the Downtown. The Town has the opportunity to
expand the importance of the civic presence as an anchor within the Downtown
beyond Town Hall and Victoria Park Square by moving forward with redevelopment
options within the Civic Precinct.

2. Building on the Existing Heritage

It is imperative as the Town grows as a community that the historic Downtown core
continues to evolve and remain relevant. The Downtown needs to be a place where
all residents have the opportunity to appreciate and feel connected to Milton’s
history. There are both significant built heritage resources as well as significant
history evident in the Downtown core which need to be celebrated and enhanced. It
already has many attributes which contribute to its sense of place – these attributes
simply need to be recognized in a more comprehensive and coherent manner.

3. Create a Vibrant Public Realm – A destination for the Entire Community

It is equally important to be able to sustain a diversity of land uses. A more diverse
range of land uses will contribute to a distinct sense of identity, vibrancy and
economic viability. Providing for the proper land uses in optimal locations is a critical
step as the Downtown evolves.

It is important to note that commercial functions of a Downtown Core are distinctly

different from master planned commercial nodes. Because of this, Downtown
development cannot be treated with the same model. It is important to encourage
economic development while mindfully preserving the identity of the Downtown
Core. Such concepts are discussed in the Town’s Official Plan through policies such
as Section 2.4.3.6. c) which “encourage(s) residential and commercial intensification
Downtown Study Final Report

of Milton's downtown core that complements existing heritage and retail areas, while
recognizing the flood susceptible areas”. This direction includes the provision of a
high quality public realm and spaces within the Downtown Core that can be enjoyed
by all. An engaging, interactive public realm has intangible benefits to the community
since it creates an environment that invites people throughout all seasons and times
of day.

4. Have a Pedestrian Friendly, Interactive Community

Having a distinct sense of identity created by the function and uses within a space
are important to the achievement of a vibrant downtown. However, the sense of
identity needs to be supported by a pedestrian friendly streetscapes and human-
scaled built form. The people coming to the Downtown need to feel safe and
engaged. Historically, downtowns have been developed to cater to pedestrians and
that function needs to be encouraged allowing for an interactive community and
ensuring that cars do not dictate how space within the Downtown is used.

5. Place Making for the Entire Community

It was identified in the public engagement session that a key missing ingredient of
the Downtown is a Civic gathering space. These types of spaces are found in many
downtowns throughout growing municipalities and often serve as an anchor for a
variety of year-round activities. This may be achieved through a public square that
would anchor Downtown Milton as a year-round destination. A civic gathering space,
such as a public square, would provide an opportunity to better connect the
Downtown to the larger community.

2.0 Background

2.1 First Engagement Session

An initial Downtown Study public engagement session was held in June, 2015.
The meeting began with a presentation outlining the purpose of the Downtown
Study followed by a workshop guided by questions where the community had the
opportunity to provide comments on what they value about the Downtown and
what they felt could improve the quality, use and character of Downtown Milton.

There were a wide variety of thoughts and opinions expressed, but several
common themes were evident in the feedback staff received. Some of the
thoughts raised throughout the session include the following:

 The need to preserve the character and identity of Downtown Milton

Downtown Study Final Report

 The need to bring more people into the downtown (both living in the Downtown
and visiting the Downtown)
 The need for a civic square, and space to be able to accommodate and attract
people into the downtown with year round events
 The need for Main Street to be more pedestrian friendly and provide inviting
public space
 The need for a diverse range of land uses that complement the historic
Downtown but also keep people engaged in the downtown at all times of day and
evening.
 Parking concerns were also frequently discussed throughout the evening Figure 2
although the comments were
quite diverse; the general
consensus was that parking
needs should be carefully
examined as the Downtown
evolves

2.2 Modelling Winter 2015 Work

Following the first Public Engagement

Session an analysis of opportunity was
conducted in order to assess the amount
of space available or potentially
available for redevelopment. Feasible
opportunity spaces were determined by
identifying constraints to development
such as the extent of floodplain, character elements such as heritage buildings and
compatibility considerations such as height, location and context and evaluating
potential redevelopment on this basis. It should be noted that the properties that were
identified through the work completed to date are not necessarily the only potential
redevelopment opportunities. As additional heritage assessment is undertaken, and the
heritage inventory is refined, more opportunities may arise.

Once opportunity lands were identified, an assessment of the balance of the lands was
completed to identify the opportunity lands which are highlighted in Figure 3. Out of the
4.2 acres of Opportunity Lands, the Town owns 2.76 acres, or approximately 65% of the
land base. Ownership provides the Town with the unique ability to take a leadership role
in stimulating investment in the Downtown.
Downtown Study Final Report
Figure 3

As part of this process, 3D computer generated modelling work was completed to

illustrate different massing options and concepts. This modelling assists in visualizing
how the redevelopment of key Opportunity Lands could be undertaken. These
concepts also enabled staff to determine the capacity of contextually appropriate built
form that could potentially be accommodated on the Civic Opportunity Lands and
visually communicate these possibilities.

These concepts and the accompanying analysis provided the foundation for Market
Analysis work to be completed. The Market Analysis was intended to provide an
understanding of use and function feasibility for these lands in a manner which
contributes to implementing the vision for a healthy and economically viable mixed use
Downtown in both current and future market conditions.

2.3 Downtown Milton Market Analysis

The Downtown Market Analysis, prepared by Watson and Associates, provided key
market information about Downtown Milton with respect to vacancy rates, turnover
rates, projected take up rates, range of suitable land uses and suggestions of potential
tools the Town could consider implementing to achieve its vision.
 Downtown Study Final Report
Figure 4
Additionally, it contained a Strengths-
Weaknesses-Opportunities-Challenges
(SWOC) Analysis for Downtown Milton. The
Downtown Market Analysis report focused on
what has been identified in the Downtown
Study as the “Primary Area”.

Through the Downtown Market Analysis

report, Watson reviewed the current state of
Milton’s Downtown and concluded that
although there is opportunity for improvement;
Milton’s Downtown is a healthy downtown
comparable to other municipalities of similar size. Further, the report provides a
realistic expectation of the future growth potential within the Primary Study Area. This
growth potential includes an additional:

o 100-200 jobs
o 25,000-50,000 square feet of office space
o 100-200 high density residential housing units accommodating a
population of 150-300, and
o 4,000-8,000 square feet of new retail or service commercial space
Figure 5

The report provides the market potential for each

of the Opportunity Land sites identified through
Phase 1 of the Downtown Study, rating them
“High”, “Moderate”, or “Low” for each use (Office,
Residential or Retail). Finally, it recommends
changes to policies and permissions within the
Study Area as suggestions for the Town as it Figure 6
moves towards
creating a more
enabling policy
framework.

The key findings from Market Analysis were used by

Staff to formulate how land use policies could assist in
achieving feasible development outlined in Market
Analysis work.
Downtown Study Final Report

2.4 Parking Study

A parking study is currently underway specifically looking at the parking available within
the Downtown and the challenges that it may have. This Study is ongoing however it
will provide an analysis of the challenges and opportunities experienced and provide
the Town with options to address parking in Downtown Milton in support of the
identified redevelopment opportunities. Though there are no final findings at this time
the outcomes of this report will provide key recommendations regarding how and
where to address parking needs as well as recommendations for changes to the
Town’s parking requirements and cash in lieu of parking policies.

2.5 Heritage

Cultural heritage resources an important aspect and contributes towards Milton’s

identity and history as well as the “small town feel” that the community has expressed
that they value. As previously noted, as Milton grows the Downtown continues be
important as the Town’s historic core. A component of the Downtown Study is a
heritage review which includes a review of the Downtown Heritage Character Area
Study and considers options for conserving its cultural heritage resources. The Cultural
Heritage Resources Report notes there are a large number and variety of the cultural
heritage resources within Milton’s Downtown. It considers that the unique character of
the existing downtown neighbourhoods would be conserved and enhanced by dividing
the existing Character Area into a number of smaller Character Areas. These would
have their character assessed and defined (in consultation with the local residents and
property owners) and used to amend the existing planning regulation to ensure that
new development does not harm the character of these neighbourhoods. This review is
ongoing and would include a review of preservation options for the Historic Main Street
corridor.

2.4 Illustrative Concepts & Land Use Analysis

The next step towards implementing land use changes within the Downtown was to
build on the previous work and break down the Primary Area into two sections. These
consisted of the Core Area on the Main Street corridor with buildings fronting onto Main
Street and the Supportive Area making up the portion of the Primary Area that does not
front Main Street but still contains Office and Commercial uses. These are illustrated on
Figure 7.
Downtown Study Final Report

Figure 7

As mentioned, the Core Area fronts onto Main Street and serves as the high activity
area focused around the principles of achieving a community focused, pedestrian
oriented space, with visually interesting surroundings and a mix of uses, particularly at
grade. Supporting by market and land use analysis, it is recommended that to achieve
the vision for the downtown, the land use permissions in this area be broadened to
allow retail and commercial at all grades without limitations.

Residential uses are recommended to be allowed at all above grade level. Office
permissions are recommended to be allowed at all above grade level. Additional Office
permissions are recommended to introduce a component of “business to customer
office” or offices that generate pedestrian traffic through drop-in style services within this
area. The type of office ideal for this area would be those that complement the other
shops and services already located in the Downtown and attract customers who will
also visit other businesses as part of their trip. A proposed amendment to the zoning
by-law is being drafted based upon the recommendations of the study and best
practices in how to integrate limited office at grade within the Core Area while
maintaining an environment supportive of the pedestrian-oriented, interactive function of
that core.
Downtown Study Final Report

The Supportive Area directly abuts the Core Area but is offset from the Main Street
Corridor. A key component of this area is that any new development and uses must be
compatible with its surroundings, physically and functionally. The land use permissions
for this area are intended to be more flexible in nature. Its purpose is to support the
range and mix of uses within the Downtown, act as a transitional area between the high
activity of the Main Street Corridor and the residential neighbourhoods, and provide
more intensive development than the heritage built form on Main Street allows. It is
recommended that the Official Plan policies be modified within the identified Supportive
Area to allow for retail, commercial, residential and office at all grades. This change is
expected to bring more people into the Downtown both as residents and employees to
support the Core Area function.

In order to better communicate the implementation of this recommendation with the

community and stakeholders, design concepts were prepared. Staff developed these
concepts illustrating different land use options. These conceptual interpretations of
policy were then used as the main conversation generator in public engagement. An
example of the design concept is in Figures 8 and 9 below.

Figure 8: View from Main Street and Brown Street looking toward
Town Hall, Civic Centre Opportunity Design Concept
Downtown Study Final Report
Figure 9

2.5 Public Engagement 2016

The Downtown Study’s Public Engagement sessions took place in September 2016.
Not only was a meeting held but staff launched a more interactive public engagement
campaign. This included a formal engagement session at Town Hall, Stakeholder
meetings and presentations, staff outreach to the community at locations around the
Milton, a twitter chat, email communication, a booth at the Farmer’s Market and
Interactive Engagement Boards displayed at key locations within the Downtown inviting
people to write their feedback directly on the boards.

There was a tremendous response from the community showcasing their interest in the
Downtown. This is a relationship that moving forward the Town should foster by keeping
the community engaged through subsequent implementation activities.
Downtown Study Final Report

Feedback received through all channels was analyzed and considered. As stated, it is
clear that the Downtown is the symbolic heart to the community and evokes great
interest. Many of the comments received support a mixed-use viable downtown
achieved by bringing people into the Downtown and by creating a space that people feel
comfortable and welcomed. This is best achieved through:

o supporting land uses

o creating a gathering space for people and events (i.e. a public square);
and
o bringing in amenities that are vital to the use of the Downtown

Additionally, the need for activities and visually appealing space for pedestrians figured
prominently in the responses received.

It was equally and strongly noted that the preservation of the heritage character of the
area is also very important to the community, and that the community would not support
redevelopment that negatively impacts the Downtown’s existing heritage. Specifically
such concerns as building height were identified. However, it is clear that the
community supports contextually-appropriate redevelopment which enhances the
existing character of the Downtown.

Traffic and parking issues were also clearly identified through the engagement process.
Concerns about traffic generation and how to address parking when bringing more
living, working and playing in the Downtown figured prominently in many of the
comments received. These concerns will need to be address when the Town further
considers specific development applications, and through the on-going Parking Study.

Overall, the response from the community was outstanding and should be thoroughly
considered as implementation initiatives are undertaken.

In conclusion, the main themes that were identified through the Study process include
but are not limited to:

o the importance of creating a pedestrian friendly and inviting Downtown

o the need for an adaptable mix of uses supporting the Downtown long-term
o traffic management
o parking sufficiency
o heritage preservation and
o attracting people to live, work and visit by creating a lively Downtown with
an appealing range of activities and sights
Downtown Study Final Report

3.0 Moving Forward

3.1 Improvement Opportunities: Next Steps Recommendations

The following section provides recommendations on how to achieve the overall vision
for the Downtown:

Land Use Amendments and Urban Design Guidelines

Zoning

To address current land uses challenges identified, the next step would be for the Town
to initiate amendments to the Official Plan and Zoning By-law. These Amendments
would widen land use permissions within the Downtown to support a mix of uses that
create the vibrancy that is key to the long term health of Milton’s Downtown as well as
revise regulations to allow for the built form illustrated through the modeling exercise.
These amendments will additionally seek to recognize legally existing land uses in
heritage buildings such as churches. Consideration of revisions to the zone boundaries
is also recommended in order to better fit the direct needs of the community, while still
supporting the overall goals and objectives for Downtown Milton.

Public Square

It is recommended that the Town reserve space similar to that illustrated in Option ** to
allow for the opportunity for the future development of a public square to link Town Hall
and Victoria Park to Main Street, further anchoring the civic presence within the
Downtown. This space will have the potential to incorporate multiple features and serve
a variety of community functions such as year round markets, year round activity
programing and a space to enjoy, bringing people into the Downtown and contributing to
its economic health and vibrancy.

Urban Design Guidelines

The study has identified a number of opportunities for intensification, public realm
improvements and cultural heritage conservation and enhancement. It is considered
that a comprehensive and consistent approach to realizing these opportunities is
required in order to ensure that the historic Downtown continues to evolve as a coherent
and well-designed urban environment with a strong sense of place.
Downtown Study Final Report

The existing Central Business District (CBD) Secondary Plan Urban Design Guidelines
(1999) and the complementary CBD Streetscape Design Study (2001) are somewhat
out of date and no longer reflect current best practice. Staff recommends that the
existing guidance should be updated in order to:

 Create a public realm that is an attractive, accessible and safe destination for all
modes of transportation (walking, cycling, vehicular), including consideration of a
flexible or shared street approach in key locations;
 Provide clear and investment ready built form performance standards for private
and public sector developments; and
 Further refine the urban design concepts to illustrate the vision, principles and
general design elements for the proposed civic square and associated
development.

As community ‘place-making’ is likely to be a core principle that will influence and be

embedded throughout the comprehensive Official Plan Review, staff will consider
whether the updated guidance should be informed by that work or whether there is a
need to prioritize some aspects of the updated guidance in advance of the Official Plan
Review.

DM3- Vibrant and Connected Community, Economic Growth

Economic Development Business Case

As an immediate next step, it is recommended that Executive Services staff complete a

business case for the redevelopment of Town-Owned Opportunity lands generally, and
specifically for the development of a mixed use, multi-storey building with either
underground or structured parking. These plans should be developed using the
recommendations of the Downtown Milton Market Analysis, and the land use findings of
this study as a basis. Additionally, as the business is developed consideration of the
recommendations of the Downtown Milton Parking Study should be included,
particularly with respect to any recommendations addressing the need for development
of a parking garage within the Downtown. Redevelopment of the Town Owned Lands
would provide a new building and comprehensively provide additional mixed use floor
space and/or residential units and parking solutions. Further, it will provide concrete
evidence of the Town’s commitment to the Downtown.

DM3- Economic Growth, Financial Sustainability

Downtown Study Final Report

Address Parking within the Downtown

Throughout the Study it has been evident that there is a need to address parking within
the Downtown, particularly through public engagement. The next steps to address
parking within Downtown Milton will be to finish the ongoing Downtown Milton Parking
Study, implement parking solutions from the Study in an appropriate timeframe, and use
findings regarding Parking Structures, underground or at grade, to inform the parking
components of the above-referenced business plan for redevelopment of the Town
Owned Opportunity Lands. (Note: There will be additional public consultation
undertaken specifically regarding parking within the Downtown)

DM3- Vibrant and Connected Community

Protect Heritage

It is recommend that staff continue to move forward with the Character Area Study,
advancing past the “Primary Area” identified into the broader “Secondary Area”. Further
heritage work needs to be undertaken in this regard. Additional work would consider
options for replacing the large Character Area that currently covers the whole of the
downtown area with a series of smaller well defined character areas. These smaller
character areas would have reasons why they are considered significant clearly defined
and the forms of development that are appropriate/inappropriate within these areas
clearly articulated. The findings of this study would then be used to develop additional
new official plan polices, zoning provisions and design guidelines that would be
precisely tailored to the areas in question. The views of the community and findings of
the ongoing heritage studies will assist in this process. Following the implementation of
these measures, and after further public consultation, the upgrading of these character
areas into Heritage Conservation District could then be considered.

DM3- Vibrant and Connected Community

Coordinate Objectives and Relationships

A further recommendation coming from the Downtown Study is that greater emphasis
be placed upon building or fostering relationships within Town Hall and with external
agencies and groups. There was an incredible response through the public engagement
avenues with the Study, some of the most compelling responses came from various
agencies and groups that have a willingness and desire to work with the Town to
improve their community generally and specifically to improve the Downtown. Moving
Downtown Study Final Report

forward with implementation of the vision, whether it be by developing plans or

programming, it is recommended that staff place more emphasis on outreach to
agencies and groups, such as the Downtown Milton Business Improvement Association
and Arts Milton, and look for opportunities to work collaboratively with these groups to
achieve better co-ordination of projects and mandates and therefore better outcomes
within the Downtown.

DM3- Enhanced Community Engagement, Vibrant and Connected Community,

Organizational Effectiveness

Continue Community Engagement

It is recommended that moving forward staff keep the community engaged through
every step in the process. Through the Study there was a significant amount of
community engagement and a profound interest for the Downtown. For a Downtown to
be successful it needs to be bringing people in to live, work and visit. To ensure this is
achieved, the Town should make sure that decisions made include significant and
meaningful public engagement. Using innovative approaches in addition to traditional
meeting formats, staff were able to attract far greater participation in this study than is
normally experienced. This is a goal that is consistent with the strategic Town direction
identified through Destiny Milton 3, Enhanced Community Engagement.

DM3- Enhanced Community Engagement

Town Leadership Role

It is strongly recommended that the Town take a leadership role in moving the
Downtown forward by both setting up a policy framework and guidelines to direct
Downtown redevelopment and utilizing key civic lands to stimulate private investment.
This approach is consistent with the actions identified in Destiny Milton 3, specifically to
develop a comprehensive policy and operational framework to support the revitalization
and sustainability of the Downtown as a focal point for the community.

3.2 Chart of Goals (Attached, but having working on an easier to understand

graphic display)

The following is a chart outlining goals and milestones to be implemented over the
short, medium and long terms. These outline specific timelines associate with the next
steps of progressing forward with work in the Downtown.
Downtown Study Final Report
Figure 10

3.3 Next Steps

The immediate next steps resulting from the Study will be to introduce proposed Official
Plan and Zoning By-law Amendments in January 2017, conduct public consultation on
parking within the Downtown through the Downtown Milton Parking Study, present
heritage conservation options for the Downtown, and complete a business case for the
redevelopment of Town-Owned Opportunity Lands. The proposed amendments to
the Official Plan and Zoning By-law are proposed to be brought forward for Council
consideration in the first quarter of 2017. Other projects such as the redevelopment
business case for Town-owned lands and the Downtown Milton Parking Study will
establish more detailed timelines for the implementation of the recommendations
contained therein.

These immediate next steps our not the last steps: revitalization of Downtown Milton is
a long term project that will continue to evolve over time.