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EMPLOYMENT LANDEMPLOYMENT LANDREVIEW STUDY

May 2008

HEMSONC o n s u l t i n g L t d.

30 St. Patrick Street, Suite 1000, Toronto, Ontario, Canada M5T 3A3Facsimile (416) 595-7144 Telephone (416) 593-5090

e-mail: [email protected]

May 23, 2008

Ms. Angela Dietrich Manager, Research and Special ProjectsCity of Mississauga300 City Centre Drive Mississauga, Ontario L5B 3C1

Dear Ms. Dietrich:

Re: City of Mississauga Employment Land Review Study

We are pleased to submit the following report, which providesa review of the City of Mississauga’s employment land supplyand conclusions on where and what types of changes may beappropriate.

The conclusion is that the majority of the City’s employmentland supply should be retained for continued employmentpurposes, and that only limited changes are appropriate forcompelling land use planning reasons.

We trust that our recommendations are of assistance to staffand Council as they make plans for the future. We would liketo thank City staff for their valuable input during thepreparation of this study.

Yours truly,

HEMSON Consulting Ltd.

Russell B. Mathew, RPP, MRICS, PLE, Partner

Antony P. Lorius, RPP, CMC,Associate Partner

HEMSON

EXECUTIVE SUMMARY

This report provides a review of the City of Mississaugaemployment land supply and recommendations for newpolicy directions to be considered as part of the City’s officialplan review and the required conformity with the 2006Provincial Growth Plan for the Greater Golden Horseshoe (theGrowth Plan).1 Employment land, for the purposes of thisreport, are the industrial-type lands primarily located in theCity’s Employment Districts. Employment in commercial,office and institutional uses outside the Employment Districtsis not addressed in this assignment.

While the entire employment land supply is reviewed, thefocus is on responding to some of the challenges facing theCity’s mature Employment Districts, including pressure forconversion to other uses. The key findings are as follows:

• The City of Mississauga has a large and competitiveemployment land supply. Mississauga’s employmentland supply is one of the largest in the Greater TorontoArea and Hamilton (GTAH). Mississauga is nearing fulldevelopment of its vacant urban land.

• The City’s supply of vacant employment land is limited,consistent with the profile of a nearly fully built outcommunity. The vacant employment land supplyconsists primarily of smaller sites scattered throughoutthe developed Employment Districts and a smallnumber of additional vacant employment land parcelsare scattered throughout the City’s residential planningdistricts.

• The City’s occupied employment land supply is well-developed, with relatively high building andemployment densities and low building vacancy ratesobserved for all of the Employment Districts. There arealso small pockets of developed industrial land outsidethe Employment Districts.

• The occupied employment land supply has developedlargely as planned, with only a limited number of non-industrial-type uses, including residential and variousinstitutional uses such as schools, community centresand places of religious assembly.

• The trend towards accommodating these types ofinstitutional uses on employment land is expected tocontinue, as the City’s land supply becomes moreconstrained for all types of uses, and the City makes thetransition to a fully developed mature community withmore “central place” functions.

1 This report is a “municipal comprehensive review” of theemployment land supply within the meaning of the Provincial PolicyStatement and the Growth Plan.

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• All of the City’s Employment Districts play a key role inaccommodating economic activity. The following keypoints warrant attention:

• The newer Employment Districts in the northernpart of the City are home to major concentrationsof economic activity, particularly within the verylarge areas surrounding the Lester B. PearsonInternational Airport (LBPIA), with an emphasison traditional industrial activities includingmanufacturing, goods movement and distribution.

• The City’s older Employment Districts in centraland southern Mississauga play a key role inaccommodating economic activity through the useand reuse of older industrial space.

The City’s older Employment Districts continue tohouse many of their original manufacturingoccupants, but also accommodate a range of useswhich value a central location or access to thesurrounding community, such as small office andservice-type uses, for which relatively low-cost,existing built space is an advantage.

• The Southdown District is distinct from otherdistricts in the City due to the concentration oftraditional industry. While often seen as visuallyless attractive with operational impacts that arenot compatible with non-industrial uses, theindustrial properties in Southdown accommodatevaluable economic activities. Southdown plays animportant role in accommodating this specific typeof industrial activity.

• Scattered employment sites outside of the EmploymentDistricts also play an important role in accommodatingeconomic activity by providing space for a range ofviable economic activities. They are quite stable in mostparts of the City.

• However, some of the larger vacant or under-utilizedparcels located outside of the Employment Districts dopresent a challenge for development. For example, someof the larger industrial properties along the waterfrontin Port Credit and Lakeview will be a challenge todevelop due to a combination of their location andpotential impact with surrounding uses, and thepossibility of site contamination.

Given this profile of land and building occupancy, and Cityand Provincial planning policy directions, our report presentsthe following recommendations regarding the City’s policydirection for Employment Districts.

• For the most part, no change should be considered forthe City’s northern areas around the Lester B. PearsonInternational Airport and those to the south and eastalong Highway 403. All of these areas remaincompetitive and suitable for continued employmentland uses.

• A minor change to the boundary of the AirportCorporate Employment District has already beenrecommended in the City’s office strategy. We agreethat it may be appropriate to expand the market areaand land supply to allow a concentration of major officedevelopment in this location.

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• A wider range of economic use may be appropriate fora parcel in the Meadowvale Business Park to the west ofWinston Churchill Boulevard. There is also a smallparcel in Streetsville abutting the Meadowvale BusinessPark at the intersection of Britannia and MississaugaRoads that should be considered for a wider range ofuse.

• Some change may also be appropriate for some arterialroad frontages of older Districts, particularly in theMavis-Erindale and Dixie areas. The low-densitypattern of use along Burnamthorpe Road may providean opportunity for a mixed-use gateway to the CityCentre, and the Dundas Street frontage of the DixieDistrict may provide an opportunity for mixed-usedevelopment along the proposed transit corridor.

• The Southdown Employment District should beretained largely as currently designated, that is, as alocation to accommodate mainly industrial uses. Somereorientation of the area to make more efficient use ofthe land supply may be desirable from an economicdevelopment perspective, but care needs to be taken toavoid generating land-use conflicts with any of the largelong-standing traditional industrial uses in the area.

• Conversion of scattered vacant sites within Emplo-yment Districts is not appropriate because they remainpart of the long-term employment land supply of theCity and the potential for land use conflicts and areadestabilisation is high.

• Carefully managed change to other urban uses may alsobe appropriate for some scattered sites throughout theCity’s Residential Districts. Within this category,changes should be considered on the merits of the useand the characteristics of the site within the context ofthe City’s other objectives and planning initiatives,such as the transit strategy and the Port Credit andLakeview visioning processes.

To implement these recommendations, three main policydirections should be followed:

1. Strong policies for employment land retention shouldbe included in the new official plan, setting out therationale for protecting the vast majority of theemployment land supply as currently planned;

2. Site-specific policies and designations should bedeveloped for those areas where some change may beconsidered appropriate. Where the preferred land use isknown, that designation should be put in place. Wherea number of potential land uses are possible, a specialpolicy area could be implemented with land usedetermined through future work; and

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3. Minor additional updates to City-wide policies foremployment land should be made, generally reflectingthe Ct the transition from a suburban greenfield to amore mature community.

New policies could include maintaining thecompetitiveness of developed areas, highlighting therole employment land plays in supporting transit use,guidelines for community uses on employment land, thetrend towards converting multi-unit buildings to condoarrangements, and other more specific issues, such as thesite orientation of office buildings, surface parking,daycare and outdoor storage.

HEMSON

TABLE OF CONTENTS

EXECUTIVE SUMMARY . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . i

I INTRODUCTION . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1

A. Focus of the Study Is on Mississauga’s Mature Employment Districts . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2B. Provincial and City Policy Objectives Are a Key Consideration . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4C. This Report Is Organized into Four Chapters . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7

II MISSISSAUGA HAS A LARGE AND COMPETITIVE SUPPLY OF EMPLOYMENT LAND . . . . . . . . . . . . . . . . . . . . . . . 8

A. Mississauga’s Employment Land Supply Is Nearly Fully Developed . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8B. Pattern of Development Reflects the City’s Industrial History . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15C. All of the City’s Employment Districts Play an Important Economic Role . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21

III CHANGES TO THE EMPLOYMENT LAND SUPPLY ARE ONLY APPROPRIATE FORMARGINAL VACANT SITES AND SOME AREAS WITH SPECIAL CONDITIONS . . . . . . . . . . . . . . . . . . . . . . . . . . . 26

A. Vast Majority of the Employment Land Supply Should Be Maintained . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 26B. Minor Changes Are Recommended in the Northern Employment Districts . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 31C. Change May Be Appropriate for Some Older Arterial Frontage Lands . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 34D. Change May Be Appropriate for Marginal Scattered Sites . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 37E. Southdown Should Be Retained for Industrial Use . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 39

IV THREE MAIN POLICY DIRECTIONS ARE RECOMMENDED . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 43

A. Develop Strong Policies for Employment Land Retention . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 44B. Develop Site Specific Policies and Employment Land Designations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 45C. Update Other City-wide Employment Land Policies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 47

HEMSON

I INTRODUCTION

Hemson Consulting Ltd. was retained in August 2007 toundertake a review of the City of Mississauga’s employmentland supply and recommend new policy directions to beconsidered as part of the City’s official plan review.

The overall purpose of the study is to review the City’semployment land supply and to identify the employmentland policy directions that are required to maintainMississauga as a major employment concentration within theGreater Toronto Area and Hamilton (GTAH) as it makesthe transition from a fast-growing suburban communitydeveloping greenfield land to a more mature, slower-growingand increasingly urban City.

For the purposes of this review, employment land is definedas the lands designated for employment uses in the nineEmployment Districts identified in the Mississauga officialplan. In addition, some smaller occupied areas and otherscattered parcels that are not within the designated Employ-ment Districts, but designated for either Business Employmentor Industrial in the City’s Residential Districts wereconsidered in this review.1

This report, in turn, focuses on employment within the City’semployment districts, which includes industrial employmentand business commercial employment, including retail.

In this report, employment areas in Mississauga are referredto as the Employment Districts — i.e. the NortheastEmployment District, or the Airport Corporate EmploymentDistrict. The two exceptions are the Meadowvale andWestern employment areas, which are referred to as BusinessParks, as currently identified in the City’s official plan.Although these two areas are labelled as Business Parks, theyhave been included as Employment Districts for the purposeof this analysis.

All of the City’s Employment Districts are reviewed as part ofthis study. A specific focus, nonetheless, is on the challengesfacing the City’s mature Employment Districts, includingpressure to convert employment land to other uses. The Citywill need to develop policies to protect the employment landsupply, but also identify those areas where some change maybe appropriate for sound planning reasons.

1 Mixed use and retail lands in the Mississauga City Centreare not included, although they are counted in the City's 2007 vacantemployment land inventory. For detail see the 2007 VacantEmployment Lands report, prepared by the Planning and Building department.

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A. FOCUS OF THE STUDY IS ON MISSISSAUGA’SMATURE EMPLOYMENT DISTRICTS

The issue of Mississauga’s transition to a mature urbancommunity and the implications for employment land hasbeen documented in a number or reports, including:

• A Review of Long-Term Employment Land Needs,prepared for the City of Mississauga in 1997.

• Long Range Forecasts, City of Mississauga 2006 to 2031 ,prepared for the City of Mississauga in 1998;

• Growth in a Maturing Community, prepared for the Cityof Mississauga in 2003; and

• Understanding Employment Land in the Region of Peel,prepared for the Regional Municipality of Peel in 2005.

The conclusion of these and other related studies has beenconsistent — that the City of Mississauga will remain a majoremployment concentration within the GTAH but is enteringa period of transition during which it will move from a fast-growing City based on greenfield development to a moremature, and slower growing urban area. This shift will havea number of implications for long-range planning, includingplanning for employment land.

1. Mississauga’s Shift to a Mature Community HasImplications For Employment Land

As described in Growth in a Maturing Community, the growthoutlook for the City of Mississauga is determined largely bythe greenfield land supply, which is anticipated to bedepleted within a few short years.

As a result, during the period from now to 2011, the City willbegin to shift from a fast-growing suburban community at theedge of the Greater Toronto Area (GTA) to a more central,more mature, and fully built-out urban community within theGreater Golden Horseshoe (GGH). This shift has several keyplanning implications:

• As the City of Mississauga builds out its greenfield landsupply for lower density housing and employment land,the overall rate of growth will slow;

• New housing and employment growth will be providedthrough more intensive forms of development, par-ticularly apartments for housing and major offices fornew jobs;

• In employment, the City will begin to assume more“central place” functions, and the metropolitan area andthe focus of economic development will shift from justattracting new investment to business retention andensuring that existing businesses are satisfied;

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• There will also be growing pressure to change land usedesignations, including pressure to convert employmentland to other non-employment uses, due mainly togrowing market opportunities for more intensiveresidential development and a widening valuedifferential between employment and non-employmentland.1

The role that the City’s mature Employment Districts willplay is an important consideration in the context of theCity’s transition to a more mature community, the rise ofmore central place functions and the pressure to convertemployment land to other uses.

2. A Wider Range of Use May be Appropriate For Someof the City’s Mature Employment Districts

As the City makes the transition to a more maturecommunity, a wider range of use may be appropriate for someolder Employment Districts. As described in A Review of LongTerm Employment Land Needs (1997), industrial buildings andbusiness parks typically have a lifespan of approximately 30to 40 years in their initial use2:

• Initially, nearly every new business park follows apattern of maximising employment density while it isrelatively new and at its most productive, with relativelylittle turnover in occupancy during the first threedecades.

• This is followed by a period of gradual change, wheremany of the original users leave and the buildings are re-used, often by a lower intensity use. Vacancy rates tendto rise and employment densities tend to decline due tothe turn-over and ownership changes.

• This pattern is well-established in the older industrialareas of the GTAH central cities of Toronto andHamilton.

Although nearly all of Mississauga’s supply of industrialbuilding space is relatively new, built largely in the last 30 to35 years, some of the City’s original industrial areas to thesouth and along the lakeshore are now entering a periodwhere significant change may start to occur.

3. The Key Issue is Where, and What Types of ChangeShould be Permitted

Some carefully managed change may be appropriate for theCity’s more mature Employment Districts, particularly in thevicinity of existing or planned higher-order transit, whereemployment intensification or other types of re-investmentmay be possible.

1 Residential and increasingly major retail lands have ahigher market value than employment land in nearly every urbancircumstance. The reason is that they can be developed moreintensely and in a shorter time frame, meaning a greater and quickerreturn on investment to the private landowner. The difference in landvalue produces a strong incentive to seek changes to these types ofland uses.

2 40 to 50 years may be a more accurate description. Whenthe 1997 report was written, just at the end of the long 1990s

recession, an observed trend of more rapid obsolescence may in facthave been related more to cyclical factors of the day.

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The key issue is where and what type of change isappropriate. On the matter of type, two potential changes arebeing considered:

• Potential changes to permit a different or wider range ofemployment uses within existing employment districts;and

• Potential changes to convert employment land to othernon-employment (retail commercial and institutional)types of use.

The question of where such change may be appropriate isaddressed through a consideration of a wide range of land useplanning factors, including:

• The adequacy of the employment land supply toaccommodate forecast employment growth;

• The types of economic activities currentlyaccommodated on employment land and the role thatdifferent employment areas play in the City;

• Opportunities for employment intensification or othertypes of re-investment;

• The suitability and competitiveness of the City'semployment areas for continued employment use; and

• The potential for land use conflicts that may beintroduced by non-employment uses.

Provincial and City policy objectives for employment landare also a key consideration, as they provide clear directionon employment land and economic development.

B. PROVINCIAL AND CITY POLICY OBJECTIVES ARE AKEY CONSIDERATION

One of the major objectives of new Provincial policyinitiatives, particularly the Growth Plan, as well as the City ofMississauga’s official plan, is to promote economicdevelopment, economic vitality and employment growth.Providing and maintaining an adequate supply ofemployment land is considered very important for achievingthese goals.

At the same time, however, both City and Provincial policyobjectives have identified the need to promote thedevelopment of a more compact urban form, in part throughthe redevelopment and intensification of the existing built-up area. These two objectives need to be carefully balancedin addressing the issues of where, and what type of changemay be appropriate for employment land.

1. New Provincial Policies Seek to Minimize EmploymentLand Conversion

The Province of Ontario has recently undertaken a numberof planning policy and growth management initiatives thataffect Mississauga’s employment land planning, particularlythe 2006 Growth Plan, the 2005 Provincial Policy Statement(PPS) and recent amendments to the Planning Act (oftenreferred to as Bill 51).

Taken together, these new Provincial policies generally seekto promote economic vitality and discourage the conversionof employment land to other uses::

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• Overall, the Provincial Growth Plan places a strongemphasis on economic development and sets out strictcriteria regarding the conversion of employment land tonon-employment uses.1

• Under the Growth Plan , major retail uses are notconsidered employment uses (Section 2.2.6.2).Although these uses still generate jobs, for long-rangeplanning purposes under the new Provincial initiativesthey are excluded.

• Similar to the Growth Plan , the PPS states in Section1.3.2 that conversions may be permitted through acomprehensive review, only where it has beendemonstrated that the land is not required over the longterm and there is a need for the conversion.

The Growth Plan and PPS policies are further reinforced byBill 51, which seeks to strengthen the municipality’s abilityto refuse applications to convert employment land byremoving the private applicant’s ability to appeal suchapplications to the Ontario Municipal Board.

Although new Provincial policies place an emphasis onprotecting employment land, it is also recognized thatchanges in use or conversion of employment land may beappropriate in some circumstances. These new policydirections provide a great deal of guidance on the overall

policy direction for employment land in Mississauga,however, by seeking to limit conversions to other uses.

This report represents a “municipal comprehensive review”of employment land in the City of Mississauga, as the term isdefined by the PPS and the Growth Plan. Completion of amunicipal comprehensive review is one of the new minimumrequirements needed to allow the City to make changes to itsemployment land if it so desires.

2. City of Mississauga Has a Long-Standing Policy ofProtecting Employment Land

The City of Mississauga has a long history of activelypursuing economic development opportunities, primarilythrough the provision and protection of opportunities foremployment land development. This policy direction isreflected in both the Strategic Plan and the Mississauga officialplan:

• The vision in the City’s Strategic Plan is for Mississaugato be a significant regional employment centre in excessof 500,000 jobs, translating into an increase of about75,000 jobs from the 2006 Census employment ofapproximately 425,000 jobs.2

1 The conversion policies can be found in Section 2.2.6.5,which states generally that conversions of employment land may onlybe permitted through a municipal comprehensive review and where aseries of tests are met.

2 The City’s 2006 Census employment is different than thetotal that is shown in the City’s 2006 Employment Profile report,prepared by the Mississauga Planning and Building department. Thisis because the employment survey is not able to capture all of the“work at home” and “no fixed place of work” jobs that are reportedin the Census place of work data. In 2006, the City of Mississaugareported a total of 406,000 employees and in 2007 reported a totalof 416,000 employees.

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• Employment is also a principal theme of the Mississaugaofficial plan, which states that the City will have astrong and diverse economic base and will continue tobe a net importer of labour within the GTAH.

The provision of a large and competitive supply of employm-ent land has been the key tool through which the City hasimplemented these objectives. Likewise, maintaining theremaining greenfield employment land supply and carefullyplanning for the future of its mature employment areas willplay a key role in ensuring that Mississauga remains a majorregional employment concentration as the City makes thetransition to a mature and fully built-out state.

A full consideration of the City’s employment land baserequires more than just a consideration of the City’seconomic policies. As always in planning, all relevantpolicies need to be considered. In addition to the economicpolicies of the City, there are other relevant policies such asthose supporting the office sector, those seeking appropriateredevelopment in the City and those concerning the need fortransit investments to support more intensive land use.

3. The “Need” For Change is Considered From thePerspective of Achieving These Goals

For the purposes of this study, the issue of what types ofchanges, if any, should be considered for the City’s employ-ment land supply is considered in the context of the City'stransition to a mature community and clear Provincial andCity policies to promote economic vitality, and to provideand protect an adequate supply of employment land toaccommodate future job growth.

As a result, the notion of the “need” to make changes to theemployment land supply, including the potential to convertemployment land to a non-employment use, is consideredfrom a land use planning perspective. The following pointswarrant attention in this regard:

• From a land use planning perspective, there is only a“need” to change uses or convert employment land if itis required to achieve a City of Mississauga or Provincialplanning policy objective, such as employmentintensification or the promotion of transit-orienteddevelopment.

• This is very different than the notion of a “need” tochange uses or convert employment land from theprivate landowners’ perspective, which is determinedmainly by the presence of market demand.

• Given that there is market demand for all types of urbandevelopment in Mississauga, and that the ProvincialGrowth Plan and Mississauga Official Plan both seek toachieve specific economic development andemployment land objectives, the issue of where andwhat type of change may be appropriate is consideredfrom this perspective.

For these reasons, this report does not recommend majorchanges in the planning of employment land in Mississauga.Instead, recommendations are made to assist the City inputting in place a framework that allows for some limitedchange to occur — where appropriate compelling local landuse planning reasons are identified — without significantlyaccelerating declines in the size and diversity of the City’seconomic base, which would be contrary to both City andnew Provincial policy objectives for economic development.

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C. THIS REPORT IS ORGANIZED INTO FOUR CHAPTERS

The following report provides a review of the City ofMississauga employment land supply, with a specific focus onthe City’s mature employment districts, and reachesconclusions on where, and what type of changes may beappropriate. It is organized into four chapters.

• This introduction provides an overview of the overallobjectives of the study and the policy context in whichits major conclusions are reached.

• Following this introduction, the second chapterprovides a review of the employment land supply,including the occupied and vacant supply, densities, theeconomic activities accommodated and the adequacy ofthe supply to accommodate future demand. Conclusionsare provided on the areas in the City of Mississaugawhere no changes to the employment land supplyshould be considered.

• The third chapter turns to a discussion of the areaswhere some changes may be considered, including theresults of field work and a number of working sessionsheld with the study Working and Steering Committeecomprised of staff from City Departments. Conclusionsare provided on the types of changes that may beconsidered for these areas.

• Based upon these conclusions, the final chapterrecommends a number of new official plan policydirections, including the overall policy framework,conversion policies and direction for specific areaswithin the City.

This report is intended to provide direction on the future ofemployment land development in the City of Mississauga,and recommend new policies to be considered by City staff.Specific policies, including the necessary official plan amend-ments, will be determined through more detailed workincluding a consideration of other studies being undertaken,such as the study of nodes and corridors, the office strategystudy, the Port Credit and Lakeview District Policies Reviewand the transit ridership growth strategy.

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II MISSISSAUGA HAS A LARGE AND COMPETITIVE SUPPLY OF EMPLOYMENT LAND

This chapter presents an overview of Mississauga’semployment land supply, including the occupied and vacantsupply, the profile of the vacant inventory, land usedesignations and employment densities, as well as adescription of the types of economic activities and built formsthat are accommodated throughout the City.

The City of Mississauga has performed very well in theGTAH employment market over the past three decades.Mississauga has a large employment base of over 425,000jobs, accounting for 70% of Peel Region employment, andcontinues to be a net importer of labour within the GTAH.1

One of the main reasons for the City’s success is a large andcompetitive employment land supply, which is nearly fullydeveloped. A wide range of economic activities areaccommodated, with major concentrations of traditionalindustrial activity.

A. MISSISSAUGA’S EMPLOYMENT LAND SUPPLY ISNEARLY FULLY DEVELOPED

Mississauga has the largest supply of employment land in PeelRegion and one of the largest supplies in the GTA. Theselands contribute substantially to the City’s economic base,and provide a major contribution to local employment.

Nearly all of the City’s employment land supply is developed,the result of the City’s age and a combination of goodemployment land planning, resistance to conversion pressure,provision of services, a competitive location and awell-developed transportation network. The City has a totaldesignated supply of approximately 6,480 net ha ofemployment land, of which approximately 5,510 ha, or 85%,is occupied.

The employment land supply is primarily located in theCity’s nine designated Employment Districts, particularly thelarge areas around LBPIA, with a small additional amount insmaller occupied areas and vacant sites within some of theCity’s Residential Districts. The City of Mississauga’semployment land supply is illustrated on Map 1 on thefollowing page.

1 2006 Census results indicate Mississauga, Vaughan,Markham, Newmarket and Toronto are the only municipalities in theGTAH that are net importers of labour — Mississauga had a 2006resident employed labour force of just over 350,000 compared to the totaljobs in the community of just over 425,000. These five communities alsohave the highest activity rates, with Vaughan the highest at 64% andMississauga just below at 63%, compared to a GTAH average of 53%.

MAP 1: CITY OF MISSISSAUGA EMPLOYMENT LAND SUPPLY

Highway 407

GatewayMeadowvale

CITY OF BRAMPTON

Derry Road

LBPIANortheast

MeadowvaleBusiness

Park

Gateway

Northeast

Britannia Road

AirportCorporateNortheast

Western

Highway 403

Employment Districts

Eglinton Avenue

Burnhamthorpe Road

Eastgate Pkwy

Dixie

Mavis-Erindale

SheridanPark

WesternBusiness Park Designated Employment

Lands Outside ExistingEmployment Districts

City Centre

Scattered Vacant EmploymentSites In Residential Districts

Dundas Street

Queensway

Queen Elizabeth Way

Southdown

> 25ha

5ha to 25ha

< 5ha

Lakeshore Road

Queen Elizabeth Way

Note: Map is conceptual.Source: Hemson Consulting Ltd. based on the City of Mississauga Official Plan

NTSNTS

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1. Employment Land Supply is Concentrated in the Northand West

Mississauga’s employment land supply is heavily concentratedin the north, particularly in the large areas around theLBPIA, and to the west along Highway 401 in theMeadowvale Business Park. The remainder is distributed insmaller, older areas throughout central and southeastMississauga.

• The Employment Districts around the LBPIA includethe Gateway, Airport Corporate and NortheastEmployment Districts. The concentrations ofemployment development in the vicinity of LBPIAextend beyond Mississauga into Toronto in the Rexdalearea and into Brampton in the area around AirportRoad.

• There are two smaller employment areas in centralMississauga: the Mavis-Erindale and Dixie EmploymentDistricts; which are located along major arterial roadsand within areas that are now well-established withresidential uses. The Dixie Employment District formspart of a much larger employment concentrationentering into Toronto in the South EtobicokeEmployment District.

• To the southwest, there are three other employmentareas: the Western Business Park, the Sheridan ParkEmployment District and the Southdown EmploymentDistricts, the last of which is the City’s primaryconcentration of traditional industry.

• There are also some scattered vacant employment landparcels within the City’s Residential Districts, and someother smaller pockets of development employment landin other areas such as the Lakeview and Port CreditResidential Districts.

2. Approximately 5,510 Net Ha are Occupied and 970net Ha Are Vacant

Of the City’s total employment land supply of 6,480 net ha,approximately 85%, or 5,510 net ha are occupied. Theremaining 970 net ha, or about 15% of the supply, is vacant.The City of Mississauga’s employment land supply issummarized in Table 1, which shows the estimated netoccupied and net vacant supply by area for 2008. At 85%developed, the City’s employment land supply is rapidlynearing full build out.1

1 The net supply is adjusted to account for land that will belost to roads and other servicing for larger parcels in the inventory.Employment land supplies are considered to be fully built out at 95%development. This is because the "tail end" of the employment landsupply is typically made up of sites that are a challenge to develop,and remain vacant over the long-term. This is referred to as “longterm vacancy” for the purposes of employment land planning.

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Table 1City of Mississauga Employment Land Supply Net Total, Occupied and Vacant Area (ha)

EmploymentDistricts andBusiness Parks

Total Occupied NetVacant*

PercentVacant

NortheastGatewayMeadowvale BPSouthdownDixieWestern BPAirport CorporateMavis-Erindale Sheridan Park

2,5301,220 850 580 390 270 190 170 110

2,3501,030

63043037022015016070

1801902201602050401040

7.3%15.9%25.9%26.7%5.6%

17.8%22.1%7.6%

39.1%

Supply Outsidethe DesignatedEmploymentDistricts

170 130 50 26.5%

Grand TotalSupply

6,480 5,510 970 14.9%

Source: Hemson Consulting Ltd. based on City of MississaugaPlanning and Building Department data.

Note: Totals may not add due to rounding.

Net vacant supply adjusted for parcels greater than 10 haas shown in the City’s 2008 inventory. The total (gross)area of these parcels is adjusted downwards by 15% toestimate the net supply. The total adjustment amounts toapproximately 70 ha.

The supply outside the designated Employment Districtsis made up of the smaller areas and scattered parcels thatare not within the designated Employment Districts, butare designated for either Business Employment orIndustrial use in the City’s Residential Districts.

3. Only a Small Portion is Considered Readily AvailableFor Development

Despite an apparently large amount of vacant employmentland — almost 1,000 net ha — only a small portion isconsidered readily available for development. These are thelarge greenfield parcels focussed in the Gateway EmploymentDistrict, the Meadowvale Business Park and the SouthdownEmployment District.

As shown in Table 2, most of the City’s vacant employmentland supply is in the form of smaller parcels which are likelyto remain vacant over the long-term, consistent with theexperience of most other communities.1

The location of the major parcels are shown on Map 2 on thefollowing page.

1 These sites remain vacant for a variety of reasons. Theymay be being held for expansion purposes, or constrained for otherphysical reasons such as site configuration, access, contamination orreasons related to the landowners' business decisions. Within thissupply (excluding large greenfield parcels), some of these vacantparcels are also often used for temporary functions such as overflowparking or non-permanent storage. These may be low-intensity usesbut are still important for the businesses using the land.

MAP 2: CITY OF MISSISSAUGA LARGE VACANT EMPLOYMENT LAND PARCELS

Derry Road

GatewayMeadowvale

CITY OF BRAMPTON

LBPIANortheast

BusinessPark

Gateway

Northeast

Britannia Road

Eglinton Avenue

Burnhamthorpe Road


L V t P l


Highway 403Eastgate Pkwy

Dundas Street

Large Vacant Parcels(Greater than 10 ha)

City Centre

Scattered Vacant EmploymentSites In Residential Districts

Dixie

Mavis-Erindale

WesternBusiness Park

SheridanPark

Queensway

Lakeshore Road

> 25ha

5ha to 25ha

Park Queen Elizabeth Way

Note: Map is conceptual.Source: Hemson Consulting Ltd. based on the City of Mississauga 2007 Vacant Employment Lands

NTSNTS

Southdown

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Table 2Summary: City of Mississauga Employment District

Land Supply, 2008

Component of Estimate Net ha

Occupied Net Vacant Total Land Supply

5,510970

6,480

Net Vacant Land Supply is made up of large parcels(greater than 10ha):

Airport CorporateGatewayMeadowvale Business Park NortheastSheridan ParkSouthdownWestern Business Park Supply outside the designated employment

districts

Sub-Total Large Parcels

Vacant Supply in smaller parcels ( less than 10ha)

Total Net Vacant Supply(including long-term vacancy)

1050

1205020

1301030

410

560

970

Share OccupiedShare Large Vacant SitesShare Other Vacant

85% 6%9%

Source: Hemson Consulting Ltd. 2008, based upon City ofMississauga Employment Land Supply Data.


4. Land and Building Supply Has High Occupancy

The supply of land and buildings in the City of Mississauga isvery well occupied, as reflected in relatively highemployment densities and low building vacancy rates in theCity’s Employment Districts. Significantly lower employmentdensities and building vacancies are only observed for one ofthe City’s Employment Districts (Southdown) and smallersites and areas outside of the Employment Districts.

As discussed in the 2005 report, Understanding EmploymentLand in the Region of Peel, the City of Mississauga’s overallemployment density is estimated to be approximately 38employees per net ha, excluding land occupied by free-standing offices and land occupied by population-relatedemployment uses such as commercial and institutionalfacilities.1

As shown in Table 3, employment land employmentdensity— excluding offices and major retail and institutionalconcentrations — ranges from a low of 11 jobs per net ha inthe Southdown Employment District to a high of 51 jobs pernet ha in the Western Business Park.

1 The City of Mississauga includes these uses in themeasurement of employment land density, resulting in a City-wideestimate of 44 employees per net ha. For details, see the 2007Employment Profile report, prepared by the Mississauga Planningand Building department.

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Table 3Employment Densities in Employment Districts

City of Mississauga

Employment District Jobs pernet ha

Western Business ParkNortheastGateway DixieMavis-ErindaleMeadowvale Business Park Airport Corporate Sheridan Park Southdown

Supply Outside the Designated EmploymentDistricts

514743373533322111

17

Overall Employment Density 38

Overall employment density, excludingspecialized low-density areas

42

Source: Hemson Consulting Ltd. based on City of MississaugaPlanning and Building Department data.

The employment land employment density of 38 jobs per netha may seem low compared to typical industrial-typebuildings — a building at 35% lot coverage with 80 m 2 peremployee would be about 44 employees per net ha.

A number of unique uses with very low employmentdensities, however, tend to reduce the overall average. Theindustries in the Southdown Employment District and atsome other scattered locations, such as oil refineries andcement plants, for example, have a much lower employmentdensity than typical development because they are moreland-extensive uses.

Excluding these low-density areas from the calculation resultsin an employment land density of 42 jobs per net ha.Mississauga’s employment density compared to other GTAHcommunities is shown in Table 4.

Table 4Estimated Employment Land Densities

Selected Municipalities in Ontario, 2003

Municipality Employees per net ha

Town of Richmond HillTown of Markham City of TorontoCity of Burlington City of OttawaCity of BramptonTown of OakvilleCity of Mississauga Town of CaledonCity of VaughanTown of Whitby

6560455448424038353530

Source: Estimates prepared by Hemson Consulting Ltd. based ona range of data sources including municipal land andemployment data and Census employment data.

Note: This measure of Mississauga’s employment densityincludes specialized low-density areas.

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The vacancy rates for standing space in both the industrialand office markets indicate that Mississauga and the GTAWest market have moderate and competitive vacancy rates,as shown in Table 5. The relatively low vacancy ratesindicate continued market demand for space in the area, butthe rates are not so low that there is a significant limitationto the availability of space that would result in upwardpressures on rents.

Table 5Industrial and Office Vacancy Rate

City of Mississauga, 2007

Industrial Space

MississaugaGTA West Market Area (Peel & Halton)GTA

6.6%6.4%5.5%

Competitive Office Space

MississaugaGTA West Market Area (Peel & Halton)GTA

8.2%6.9%6.2%

Source: Cushman and Wakefield LePage, Greater TorontoIndustrial Report, Fourth Quarter 2007.

Cushman and Wakefield LePage, Toronto Office Spacemarket, Fourth Quarter 2007. The vacancy of the City ofMississauga is from the Second Quarter of 2007.

On balance, the City’s employment land supply hasdeveloped very successfully and continues to display signs ofa healthy and growing market, recognising that the long-termsupply of new development opportunities is increasinglylimited. The supply is nearly fully developed and the vacancyrates of existing industrial and office buildings comparefavourably to other markets in the GTAH.

B. PATTERN OF DEVELOPMENT REFLECTS THECITY’S INDUSTRIAL HISTORY

The type of activities accommodated on employment land inthe City of Mississauga reflects the historic pattern ofindustrial land development, which began in the south withthe establishment of the Dixie area in the 1950s. This wasfollowed by the Sheridan Park Research Centre in 1964 andadditional development in the Southdown and Mavis-Erindale Employment Districts.

Beginning in the early 1970s, significant development beganto occur in areas around the LBPIA and along Highway 401.These areas tend to be larger and newer, and accommodatedevelopment at higher densities than the older areas to thesouth. The older employment areas of central and southMississauga are characterized by smaller lots, and a more fine-grained pattern of development.

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Like the City of Toronto, the diversity of age and type inMississauga’s employment land and building supply can be aneconomic advantage. All of the City’s Employment Districtsplay an important economic role, from accommodating majorconcentrations of economic activity to providing relativelylower-cost space to users who value a central location in thecommunity.

1. Employment Districts Accommodate About 284,000Jobs

The City’s Employment Districts, according to the City’s2007 employment survey accommodate about 284,000 jobs.Of this total about 210,000 jobs would be in industrial-typeemployment-land employment, about 63,000 jobs would bein major office development and about 11,000 jobs would bein major retail centres. Like land supply, jobs are mostlyconcentrated in the areas around LBPIA, as shown in Table6 below.

Table 6Employment in Employment Districts

City of Mississauga

NortheastGatewayMeadowvale Business Park Airport Corporate DixieWestern Business Park Mavis–Erindale SouthdownSheridan Park

117,60054,00040,60023,00016,80011,7008,6006,2005,800

Total 284,300

Source: City of Mississauga Planning and Building Department,2007 Employment Profile.


One area of interest that is not included in this analysis isLBPIA itself. The following points with respect to the airportwarrant attention from the perspective of employment landanalysis:

• According to the City’s 2007 employment survey theAirport site accommodated about 20,000 employees.This is a significant amount of employment for a singleuse in a community.

• Much of this employment is of a similar character toemployment-land employment; examples include aircargo and aircraft maintenance.

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• Despite this character, however, LBPIA employment isnot included in the Employment District analysis, sinceit does not have a specific employment land baseassociated with it, nor are most of the planning policiesassociated the Employment Districts applicable to theAirport site.

• However, a major issue that is related to developmentaround the Airport site — which does involve theCity’s Employment Districts — is road congestion andgoods movement.

As described in Understanding Employment Land in theRegion of Peel, prepared for the Regional Municipality ofPeel in 2005, actions need to be taken to ensure thatthe full economic potential of the areas around theLBPIA are realized. In the report, a transportationdemand strategy is recommended for considerationbecause the economic activity around LBPIA dependson goods movement.

A transportation demand strategy could suggestinitiatives to improve the efficiency of thetransportation network. These initiatives could includeproviding transit service to connect employers in airportareas with local communities, promoting car pooling,adding truck-only lanes to area expressways, andidentifying possible dedicated expressway links and highspeed rail to connect the airport to other urban centres.In addition, restricting business in the area surroundingthe airport to higher order uses would promoteintensification of employment areas.

2. Employment Districts Accommodate a Wide Range ofEconomic Sectors

The profile of employment in the Employment Districtsindicates a wide range of economic activities. As notedabove, about one-quarter of employment in the Districts ismade up of major office employment and a smaller amount ofemployment in retail centres.

Within the Employment Districts, office uses areconcentrated in the Airport Corporate Employment Districtand the Meadowvale Business Park. The retail centresprimarily consist of the “power centre” on Dundas Street inthe Western Business Park, retail in Mavis–Erindale, alongDundas Street in Dixie, and retail along Dixie Road in theNortheast Employment District.

Notwithstanding real and perceived changes in the GTAHeconomy, Mississauga’s Employment Districts remain verymuch concentrated in many of the traditional industrialsectors of manufacturing, wholesale trade, and transportationand warehousing. This is summarized in Table 7 below.

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Table 7Clusters of Leading Employment Sectors

City of Mississauga

Sector Predominant Locations

Wholesale Trade Airport Corporate, Dixie,Gateway, Mavis-Erindale,Meadowvale Business Park,Northeast, Western BusinessPark

Manufacturing Dixie, Gateway, Mavis-Erindale, MeadowvaleBusiness Park, Northeast,Sheridan Park, Southdown, Western Business Park

Transportation andWarehousing

Airport, Airport Corporate,Dixie, Gateway, Mavis-Erindale, Northeast, WesternBusiness Park, scattered sitesin all other employment areas

Source: City of Mississauga 2007 Employment Profile

In terms of overall employment, these three sectorsaccommodate nearly half (46%) of the total employment inthe City of Mississauga, the vast majority of which is locatedin the City’s Employment Districts and, in the case oftransportation, the LBPIA and surrounding areas.

3. Pockets of Employment Land Outside the Districts AreAlso Attractive Business Locations

In addition to the Employment Districts, there are also anumber of smaller occupied industrial employment areasthroughout the community:

• The largest of these pockets of employment uses are inthe Clarkson-Lorne Park, Port Credit, Streetsville andLakeview Districts.

• Most of the pockets of employment land outside of thedistricts are generally older, traditional developmentsoriented towards rail transportation along the railwaytracks in the these Districts.

• One of the largest of these pockets is located in theLakeview District on the south side of Lakeshore RoadEast abutting the Lakeview Generating Station, and theLakeview water and wastewater treatment plant sites.

Within these scattered locations there is also a range ofeconomic activities, however, with a somewhat greaterconcentration of businesses in some of the service industriesserving the local population such as indoor and outdoorstorage and auto maintenance and repair.

Based on visual observation of these smaller areas, themajority remain attractive locations for businesses, as theyhave near full land occupancy and low building vacancy.

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4. Buildings Reflect The Age and Characteristics ofDifferent Employment Districts

Generally, the older Employment Districts in central andsouthern Mississauga are characterized by smaller lots, smallerbusinesses and more of a fine-grained pattern of developmentwith both the land and building supply near full occupancy.While specific data are not available, these areas appear tohave a similar vacancy level to the rest of the City. Forexample:

• The Dixie Employment District is characterized by apattern of smaller lots and smaller buildings, which areolder but occupied at a relatively high density.

• This is consistent with the pattern of development inareas that are of a similar age in the City of Toronto andelsewhere. Typical building and lot sizes withinindustrial areas have increased significantly over thepast 40 years and particularly in the last 15 years, as isnotable in the Gateway area.

• Although Dixie is mostly characterized by smaller lots,it does accommodate a number of large users, such asAstraZeneca Canada Inc. The Mavis–ErindaleEmployment District is similar in character to Dixie,but, on average, accommodates somewhat newerdevelopment.

There are two specialised Districts in southern Mississauga,Southdown and Sheridan Park, which are distinct from otherparts of the City:

• The Southdown Employment District is based mainlyon industrial activities and, as a result, has a pattern ofgenerally large development parcels.

• With an entirely opposite character, the Sheridan ParkEmployment District is an historic research park, mainlyaccommodating office and research uses, some datingback to the early days of its development in the 1960s,but also accommodating recent office and researchfacilities.

Unlike older areas in the south, the newer EmploymentDistricts in the north are characterized by larger industrialbox buildings and are oriented primarily towards the majorHighways, such as Highways 401, Highway 403, Highway4271. Among the characteristics of these areas are:

• The Employment Districts around the LBPIA are hometo larger buildings and larger employers. Most of theCity’s businesses with 300 employees or more areaccommodated in the Gateway and Northeast Employ-ment Districts and the Meadowvale Business Park.

1 The Western Business Park, while located in the southernpart of Mississauga is much newer than the other Districts in thesouth. For the purpose of this discussion, Western has thecharacteristics of the newer northern districts.

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• Office development is found in a number ofEmployment Districts in the north, generally alongHighway 401, with particular concentrations in theAirport Corporate Employment District (one of themost desirable office nodes in the GTAH), as well as inother locations in the Meadowvale Business Park andthe Gateway Employment District.

• The Meadowvale Business Park Employment Districtaccommodates office uses, in addition to a range oflarge, “big-box” buildings fronting on to major highwaysand arterial roads, such as Highway 401, MississaugaRoad, and Erin Mills Parkway

5. An Emerging Trend is For Community Uses to LocateWithin Employment Districts

Overall, the City’s official plan policies for employment landhave been implemented very effectively. The predominantland uses within each of the City’s employment areascorrespond well to the specific designations that have beenapplied to each area.

There are, however, some non-industrial uses, notably someolder residential development and more recently a pattern ofcommunity uses locating within Employment Districts. Notincluding transit stations, the main types of community usesthat tend to locate within the City’s Employment Districtsare schools (mainly private), community and recreationcentres and other institutional uses such as cultural centresand places of religious assembly. Examples include:

• The Gateway Employment District, which containsnumerous non-industrial uses, such as institutional uses,which are located south of Derry Road at Capital Court,North of Brumel Road at Kennedy Road, West ofChedworth Way at Matheson Blvd, and other locations.

• The Mavis–Erindale Employment District, which has

existing institutional uses abutting BurnhamthorpeRoad, Central Park West, and Wolfdale Road on landsthat are designated Business Employment.

• The Meadowvale Business Park, which has institutionaluses in areas designated for Business Employment atQueen Street and Alpha Mills Road, North of KitimatRoad at Rinmi Mews, and North of Britannia RoadWest. The City has received an application for thedevelopment of a place of religious assembly at TenthLine West south of Highway 401, in a locationdesignated for business employment uses.

• The Northeast Employment District contains a numberof non-industrial uses, including a school north ofBeverley St. at Kennedy Rd., a school south of EglintonAvenue east, and schools in other locations.

Institutional uses will often seek to locate withinemployment areas, mainly because of the high price of landwithin residential neighbourhoods — an unintendedconsequence of planning to achieve higher densities. Inseveral cases non-industrial institutional uses withindesignated employment areas are located in close proximityto residential areas.

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This trend is expected to continue as the City’s urban landsupply becomes increasingly constrained for all types of usesand begins to provide more “central place” functions,including a wider range of community uses to serve a morediverse and older population.

The land and building supply in the City of Mississauga iswell-occupied, in a manner that reflects the age and characterof the areas. Areas closer to central Mississauga developedwhen goods movement was primarily by rail, and many olderbuildings in these areas have now been re-used for otheremployment uses. The highway-oriented areas located aroundthe LBPIA are larger, newer and home primarily home tomodern industrial uses, including offices.

C. ALL OF THE CITY’S EMPLOYMENT DISTRICTS PLAYAN IMPORTANT ECONOMIC ROLE

Employment land plays a key role in accommodatingemployment. Across all of the City’s employment districtsthere are major concentrations of economic activity,particularly in traditional industrial sectors such as manufact-uring, wholesale trade, and transportation and warehousing.While the built form varies, all employment areas play animportant role in the City’s economy.

1. Large Northern Employment Districts Are The MajorEconomic Concentrations

The economic role of the City’s northern EmploymentDistricts is to accommodate the bulk of the City andRegional employment base, including traditional economicsectors important to the southern Ontario economy. Asshown previously Table 6, the areas around the LBPIA aloneaccount for nearly 200,000 jobs, which is more jobs than arein Toronto’s financial core.

The City’s northern Employment Districts are home to manyof the City’s largest employers, including major offices, whichis a very intensive employment land use and a rare form ofdevelopment for most communities.

As shown in Map 3 on the following page, a strongconcentration of new offices focussed in Airport Corporate,and increasingly to the east in the Northeast District abuttingAirport Corporate Employment District.

A similar picture is painted by examining the change in landvalues. As illustrated in Figure 1 below, the value ofindustrial land has risen rapidly in the northern EmploymentDistricts, particularly around the Airport and in theMeadowvale Business Park. This strong rise in land valuesfurther reflects the market attractiveness of these locationsfor employment land development, including major offices.

MAP 3: LOCATION OF OFFICE DEVELOPMENT WITHIN MISSISSAUGA OFFICE BUILDINGS 1990 – PRESENT

Gateway

CITY OF BRAMPTON

Derry Road

MeadowvaleBusiness

Park LBPIANortheast

y

Gateway

Northeast

Britannia Road

AirportCorporate

Northeast

Highway 403

Eglinton Avenue

Eastgate Pkwy


City Centre

New Major Office Building(> 20,000 square feet)

Dixie

Mavis-Erindale

Sheridan

WesternBusiness Park

Burnhamthorpe Road

Dundas Street

Queensway(> 20,000 square feet)(Built Since 1990)

SheridanPark

Lakeshore Road

Queen Elizabeth Way

Note: Map is conceptual.Source: Hemson Consulting Ltd.

NTSNTS

Southdown

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ABSOLUTE CHANGE IN INDUSTRIAL LAND VALUES 1987 - 2007

Airport CorporateMilton

407 BramptonLBPIA Mississauga

MeadowvaleOakville

South MississaugaBurlingtonVaughan

Aurora NewMarket

Richmond HillRexdale/North Etobicoke

AjaxSouth Etobicoke

MarkhamNorth ScarboroughSouth Scarborough

PickeringOshawa

Hwy 400 /DownsviewWhitby

$0 $100 $200 $300 $400 $500$-100

Land Value/Acre (current dollars 000s)

Source: Hemson Consulting Ltd., based on data from Toronto Real Estate Board*Note: Airport Corporate refers to the larger area in Mississauga of the same name abutting the district in Toronto

Figure 1

Interestingly, the value of industrial land has also increasedin a number of the older Employment Districts in southernMississauga, indicating that these areas are also attractivelocations for new investment.

2. Older Employment Districts Are Also AttractiveBusiness Locations

In addition to the strong performance and attractiveness ofthe City’s northern Employment Districts, the City ofMississauga’s older Employment Districts, including Dixie,Mavis-Erindale, and Southdown, also play a key role ineconomic development:

• They accommodate a number of major employers, andare attractive for a wide range of economic use,including activities servicing the service sector andsupporting office development, a role for these olderareas which will become increasingly important overtime.

• They are also attractive for a range of other commercialactivities for which relatively cheaper space is anadvantage, or for higher impact uses that are notappropriate for other locations in the City, such as auto-repair or recycling facilities.

• “New economy” uses are increasingly seeking locationswithin older industrial area. The “new economy”generally refers to the shift from a manufacturing-basedemployment to a service and knowledge-basedeconomy. This shift increases the importance of datamanagement and telecommunications infrastructure.New facilities depend on extraordinary goods movementnetworks, and are focussed around highways. Thebuildings can be larger, more automated and oftencombine storage with other functions such as office,assembly and sometimes manufacturing in a low-profile,large-scale format. These tend to be relatively morebenign in their impacts on neighbouring uses comparedto industrial uses although they depend upon truckaccess. These flex-space facilities are not what wasimagined by some analysts who thought that job growthwould only favour knowledge-workers in offices and notnew kinds of manufacturing and assembly combinedwith creative work.

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• Existing building stock in areas vacated by industry alsoprovides a wide variety of space in different locations, ofdifferent size and levels of finish, at prices that cannotbe duplicated in new buildings. Start-up firms that needspace immediately and firms looking for less capital-intensive space seek out these spaces which increasesthe mix of uses in employment areas. Many of these usescan also be found in the pockets of industrial areaslocated outside of the Employment Districts.

• While the shift does not appear to be reducing theoverall need for employment land, it is having othereffects. One of which is the transformation of the cityfrom a suburban community to a mature urban place.

• The attractiveness of these areas for a wide range of usesis reflected in the rise in land values and also throughcontinued interest in re-use of the existing buildingstock for many economic activities. To this end, anemerging trend in the older Employment Districts is theconversion of multi-unit industrial buildings tocondominium ownership, which has the effect ofsecuring long-term certainty in employment land use.

The City’s older Employment Districts are a valuableeconomic asset, since most of these areas have not yetreached the age where rapid business turnover and reducedfunctionality can be expected.

One of the main challenges for future planning for theseareas will be to maintain the quality of infrastructure and theoverall design and streetscapes in order to support thecompetitiveness of these areas.

3. Industrial Character of Southdown Gives the District aMore Limited Market Appeal

There is a total of 160 net vacant hectares of employmentland in the Southdown District, consisting of a number oflarger parcels and some smaller scattered sites. Generallythese lands, particularly the larger sites, are best suited andmost attractive to industries, given the character of existingdevelopment.

At the current City-wide employment density, excluding lowdensity areas, of 42 jobs per net hectare, and assuming 95%development, this vacant supply could accommodateapproximately 6,400 jobs. The potential to capitalize on thisopportunity, however, is limited by the current land usecontrols and the pattern of development.

The appearance of existing industrial development acts as adisincentive to a many modern employment land users,particularly light industrial or office uses. There is also astrong potential for land use conflicts as traditional industrialuses tend to have noxious impacts, outdoor storage ofmaterials, outside operations and generate heavy truck traffic.These conditions present a number of significant challengesto making a more efficient use of the vacant employmentland supply.

4. Some Large Occupied Properties Outside the DistrictsMay be Challenging To Develop

Like the Southdown District, some of the large occupiedproperties scattered outside the designated EmploymentDistricts may also be a challenge to develop.

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• These parcels include the larger, older, occupied orunder-utilized parcels outside of the designatedEmployment Districts that may be home to some verylong-standing uses that may be nearing the end of theirlife-cycle, or are standing vacant.

• The supply includes some of the older commercialproperties along arterial roads, such as old supermarkets,and some older industrial properties along the lakefront,such as in Port Credit and Lakeview.

• These parcels are likely to be a challenge to redevelopfor continued employment land use because of acombination of real estate economics, surrounding landuses and, in some cases, contamination.

• Many of these parcels are also within, or in closeproximity to established residential areas, raising thepossibility of land use conflicts.

Notwithstanding some of these challenges to developing abroader range of economic uses, overall the City ofMississauga’s employment land supply is very well-suited forcontinued employment use. The supply is large, verycompetitive, nearly fully-developed and accommodates awide range of economic activities and built forms. On thewhole, it is very well-suited for modern employment use inthat all of the City’s employment districts have:

• Good transportation access;

• Good access to the LBPIA with a large surroundingconcentration of firms, customer base and availablelabour force; and

• Have already been planned to minimize conflict withnearby residential uses.

Notwithstanding these strong locational advantages, thereare a limited number of sites within the currently designatedemployment land supply where some land use change may beappropriate for site-specific planning reasons. The nextchapter turns to a discussion of these areas, and the types ofchanges that may be considered.

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III CHANGES TO THE EMPLOYMENT LAND SUPPLY ARE ONLY APPROPRIATE FOR MARGINALVACANT SITES AND SOME AREAS WITH SPECIAL CONDITIONS

The appropriateness of permitting changes to the City’semployment land supply is considered primarily within thecontext of the adequacy of the supply to accommodategrowth projected by the City and Provincial Growth Plan andits competitiveness and suitability for continued employmentland use.

Within this context, it is clear that the vast majority of theCity’s employment land supply should be retained forcontinued employment land use. Demand for employmentwill remain strong in the GTAH. Virtually the entire supplyis competitive and suitable for continued employment landuse. It needs to be retained to achieve City and ProvincialGrowth Plan employment forecasts.

There are some scattered and marginal sites, however, thatmay be suitable for other use, as well as a number of low-intensity uses along major arterial roads where some changemay also be appropriate. This includes marginal vacant siteslocated outside of the designated Employment Districts andsome large low-intensity uses located along major arterialroads and the City’s waterfront. Refer to Map 2.

A. VAST MAJORITY OF THE EMPLOYMENT LANDSUPPLY SHOULD BE MAINTAINED

As discussed in previous assignments undertaken for the Cityof Mississauga, demand for employment land in the GGH isanticipated to remain strong. Neither the “new economy” northe evolution of manufacturing appears to be significantlyreducing the need for employment land. Traditionalemployment areas are still required, including those inMississauga.

1. Employment is Forecast to Grow Strongly

The employment outlook in the Provincial Growth Plan is forcontinued strong performance in the GTAH and broaderGGH to 2031. The strong employment outlook is based onthe continued attractiveness of the southern Ontarioeconomy for new investment and a strategic location relativeto markets in the United States.

A significant component of the future employment growthwill be accommodated in industrial-type buildings onemployment land, consistent with the current built-formdemanded by businesses. As shown in Figure 2 below, theGTAH is the most industrialized metropolitan economy inCanada and the United States.

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INDUSTRIAL FLOOR SPACE PER CAPITASelected Major North American Cities - 2007

GTACHICAGO

DALLAS-FT.WORTHATLANTA

CALGARYDETROIT

MONTREALLOS ANGELES-ORANGE COUNTY

VANCOUVERHOUSTON

REGINASASKATOON

PHILADELPHIAEDMONTON

SAN FRAN-OAKLAND-SJBOSTON

BALTIMORE-WASHINGTONOTTAWAHALIFAX

0 20 40 60 80 100 120 140 160

Per Capita Square Feet

Source: Hemson Consulting Ltd. estimates based on data from the North American Office and Industrial Real Estate Survey.Note: GTA estimates do not include the City of Hamilton

Figure 2

GTAH EMPLOYMENT BY TYPE 2007

Trade

Ed/Health/Social

Manufacturing

Business & Related

Cult/Rec/Acc/Food

FIRE

Construction & Utilities

Trans/Warehousing

Other

Public Admin.

Primary

0 100 200 300 400 500 600

Employment (000s)

Source: Statistics Canada, Labour Force 71F0004XCB. GTAH defined as Toronto, Hamilton & Oshawa CMAs

Total 2007 Employment -3,419,000

Figure 3

2. Employment Land is Required to Accommodate FutureGrowth in Jobs

As shown in Figure 3, manufacturing and trade remain twoof the largest sectors of employment in Mississauga, and theseeconomic activities are overwhelmingly accommodated inindustrial-type buildings on employment land.

Although the transportation and distribution sector appearssmall from an employment perspective, it has significantimplications for employment land. Much of the economicactivity accommodated in these sectors is in the form of largedistribution facilities at fairly low densities. Balancing these,however, are other uses such as manufacturing and officesdeveloped at higher densities.

From the graph, it is interesting to note that — for the firsttime in decades — manufacturing is not the largest sector ofemployment. This is the result of many factors, includingchanges in the nature of work, increased productivity andlikely a range of other changes that are commonly attributedto the rise of the service economy.

Although some changes are occurring in the nature of workfor some people, this has not been sufficient to change theoverall structure of the GTAH and GGH economy. Asshown in Figure 4, manufacturing output continues to growat a more rapid rate than manufacturing employment.

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MANUFACTURING OUTPUT & EMPLOYMENTONTARIO 1990 - 2007

1990 1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 20070.8

1

1.2

1.4

1.6Index (1990 = 1)

Source: Hemson Consulting Ltd. based on data from Statistics Canada, Labour Force Statistics and Ontario Ministry of Finance, Ontario Economic AccountsNote: Output defined as Manufacturing GDP in 1997 dollars

Output

Employment

Figure 4

In our view, it is not appropriate to conclude from thisobservation that manufacturing as an economic activity isdeclining, though there are strong cyclical factors at play in2007 and 2008. As a result, there is no indication that theneed for employment land is declining:

• The GTAH is still an industrial-based economy, withsignificant components of the economic baseaccommodated on employment land.

• When the output of manufacturing is taken intoconsideration, it appears as if the GTAH economy isstill oriented towards manufacturing, contrary torumours of the “death” of manufacturing due toeconomic shifts; and

• If anything, new generation facilities which combinestorage with other functions such as office, assembly andmanufacturing, may increase demand for industrial-typebuildings in employment areas.

Employment land continues to play a major role in thecompetitiveness of the GTAH and the broader GGH, andneeds to be retained to accommodate the employmentoutlook in the Provincial Growth Plan.

Although the Region of Peel has yet to allocate the GrowthPlan forecasts, the anticipation is that most of the supply willbe retained as employment land, including the occupiedsupply in older industrial areas. These older industrial areas,particularly in southern Peel Region, play a key role ineconomic development through the use and re-use of existingindustrial buildings.

Our experience from the City of Toronto indicates that manyservice economy uses, such as printing companies, caterersand other support services such as secure file destruction andstorage, are accommodated in older buildings in olderemployment areas. This is different than the commonperception of the service economy as being primarilyaccommodated in large office buildings.1

As a result, the City of Mississauga needs to retain the vastmajority of its Employment District land supply in order toaccommodate projected growth:

1 For detail see City of Toronto Employment Land Strategy(Phase 2 Report) prepared by Hemson Consulting Ltd, in January2007.

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• The occupied supply must be protected to maintain theexisting economic base and ensure that existing usersremain satisfied. This focus should support businessretention and protect opportunities for employmentintensification.

• The vacant supply must be protected in newer areas toaccommodate investment opportunities in modernindustrial uses and in older areas to provideopportunities for uses that value a central location andaccess to large labour force; and

• Although some of the vacant supply may remain vacantin the long term (referred to as “long-term vacancy”)these sites are not appropriate for conversion because ofthe potential for destabilisation in the vicinity.

3. Limited Change, However, May be Appropriate toAchieve Other Planning Objectives

This is not to say, however, that no change for employmentland should ever be considered or permitted. There willclearly be some cases where a conversion of employment landis considered to be good planning based on site-specificreasons. A number of key points warrant attention in thisregard:

• The Regional forecast in the Growth Plan accounts forMississauga’s shift to a maturing community and thecontinued evolution of older employment areas,including wider range of use or limited conversions tonon-employment uses. 1

• Some change may allow the City to make more efficientuse of the employment land supply by permitting awider range of economic use in certain areas. These usesmay include business employment and institutional usessupporting the City’s vision for mixed-uses and allowingthe City to achieve other planning objectives, such asredevelopment and employment intensification. Itwould also help ensure that non-employment uses,including educational and cultural facilities, can bedeveloped.

• Change to permit a wider range of economic use issupported as opposed to residential redevelopment,which has potential to destabilise areas and therefore isnot consistent with City and Provincial objectives.

While conversions to residential use are almost alwaysvery desirable from a private market perspective, from apublic policy perspective they are detrimental to othercommunity-wide planning objectives, such as the City’scontinued strong employment and economic growth.

1 For detail on the method for employment forecasting usedto create the employment allocations in the Growth Plan , seeHemson’s 2005 Growth Outlook for the Greater Golden Horseshoe.

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HEMSON

Any proposals for conversion of employment lands toresidential use should require a comprehensive studyundertaken on an area-wide basis. Otherwise, thepotential for severe land use conflicts with long-termindustrial operations and quality of life impacts for newresidents risk destabilizing area employment land.Residential infilling on an ad hoc basis (even alongedges or peripheries of employment districts) could alsoundermine the stability of employment land, or whereconversion may be desired over the long term, mayintroduce built form and use patterns that prevent goodquality urban place-making.

Conversion of employment land to more mixed usesrequires substantial public investment to upgradestreetscapes and community facilities to serve newresidents. The City should ensure that the policyframework for conversions directs the use of Section 37of the Planning Act, the aggressive implementation ofurban design guidelines, and other methods to ensurethat a high quality urban environment is produced.

A limited amount of change would also not affect the City’sability to achieve Growth Plan forecasts. The employmentforecast accounts for the evolution of the industrial supply,including some limited changes to other uses. Significantchange, however, is not desirable.

4. Major Redevelopment Opportunity is For LargerParcels Outside the Employment Districts

For the most part, the large designated Employment Districtsshould be maintained as currently planned, given theimportant role the occupied and vacant land supply will playin their future economic development and the risk ofdestabilisation through conversion.

While some marginal or “edge” sites may be appropriate fora wider range of use, from a planning perspective the vastmajority of the employment land supply should bemaintained. The major redevelopment opportunities foremployment land are with the scattered vacant orunderutilized sites outside the districts:

• Within the City of Mississauga, there are a number oflarger industrial parcels located outside of the designatedEmployment Districts in residential planning districts,including many older industrial areas along thewaterfront.

• There is the potential for carefully managed change ofthese parcels assuming that they could be plannedcomprehensively and buffered from surrounding areas.Other parcels, however, may be suitable for continuedemployment use given their market prospects.

• The primary opportunity within this class of sites are theparcels of larger, former industrial operations for whichthe prospects of redevelopment for continued industrialuse are very low.

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• These types of sites present no particular economicadvantage to the City and will likely be a challenge todevelop. Where environmental contamination is anissue, only higher value land uses may be possible.

• In the interest of making more efficient use of theexisting land supply and achieving other City andProvincial policy objectives for more intensive forms ofdevelopment, these sites may be considered for othertypes of uses.

While the vast majority of the City’s employment land supplyshould be retained, there are some cases where change maybe appropriate to achieve other planning objectives.Accordingly, the following sections set out our conclusionsand recommendations on where, and what type of changesshould be considered for the City’s employment land supply.

Incorporated into our conclusions is input received duringtwo Employment Lands Workshops held with City andRegion of Peel staff and two meetings held with the projectsteering and working committee as well as Region of Peelstaff.1

Based on the foregoing review of the employment landsupply, City and Provincial planning objectives and inputfrom the workshops and meetings with City staff, the keyrecommendations are as follows.

B. MINOR CHANGES ARE RECOMMENDED IN THENORTHERN EMPLOYMENT DISTRICTS

Generally, no significant change should be considered for thenorthern Employment Districts, which include the Gateway,Northeast and Airport Corporate Employment Districts andthe Meadowvale Business Park. These areas contain majoreconomic concentrations and are healthy and competitive forcontinued employment land use. Two minor changes,however, are recommended.

1. A Small Boundary Change May be Appropriate ForAirport Corporate

A small boundary change is being recommended for theAirport Corporate Employment District to expand themarket opportunities to accommodate major officedevelopment in this location:

1 The first workshop was held on November 27th, 2007 andthe second on December 4th, 2007. Each of the workshops was afull-day event, comprised of morning field work by way of a bus tourto visually examine each of the areas, followed by an Strengths,Weaknesses, Opportunities and Threats (SWOT) analysis in theafternoon. The SWOT analysis provided input for the analysiscontained in this report, however the recommendations contained inthis report are based on Hemson’s experience in employment land

planning in Mississauga and other communities in Southern Ontario.

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HEMSON

• A significant number of prestige industrial sites andmajor office buildings have been developed on theeastern boundary of the Northeast Employment Districton lands abutting the Airport Corporate EmploymentDistrict. The market for this type of office developmentis attracted to this location because of thetransportation access with Highways 401, 400 and 427nearby, the clustering of other major offices, as well asa tributary of the Humber River providing a measure ofnatural amenity.

• While the supply of land to accommodate major officedevelopment in the City is nearly unlimited, there is amore limited supply of lands in the City suited for thecampus-style of office development occurring in thisarea. Therefore, there may be advantages to expandingthe boundaries of Airport Corporate from a land supplymarketing perspective. From a planning perspective,expansion beyond that is not recommended, as thiswould begin to include some of the more standardindustrial users who are more appropriately associatedwith the bulk of like uses in the Northeast EmploymentDistrict.

• Since the planning objective for the Airport CorporateEmployment District is to accommodate mainly prestigeand office-type uses, extending the area too far maygenerate a number of non-conforming uses and mayrestrict future flexibility to accommodate more generalindustrial development.

• The SWOT analysis undertaken as part of this exerciseconfirmed that, for the most part, the City’s northernEmployment Districts were high-performing, highdemand and appropriate locations for continuedemployment land use.1

2. A Broader Range of Use May be Appropriate on OneParcel in the Meadowvale Business Park

The parcel located west of Winston Churchill Boulevard andsouth of Highway 401, in the southeast quadrant of theHighway 401 – Highway 407 interchange may be appropriatefor a broader range of use:

• The parcel in question is considered to be distinct fromthe main area of the Business Park by the nature of bothits location and recent development patterns.

• Located on the west side of Winston ChurchillBoulevard, the parcel is relatively isolated and recentlyhas been developed for major retail. A new GO Transitstation has also been recently constructed southwest ofthe retail development.

• Although it is located at a major highway intersection,access to the site is far from ideal: the area suffers froma lack of local road access, which presents at least ashort-term constraint to development.

1 See Appendix A for complete details on the employmentland supply SWOT and workshops.

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HEMSON

• The combination of stand-alone large-format retail uses,poor local road access and the presence of higher-ordertransit has led to suggestions that a wider range of usesmay be appropriate in this location. The potential forchange must be considered from both an economicdevelopment and land use planning perspective.

• From an economic development perspective, the parcelshould be retained as employment land. TheMeadowvale Business Park is one of the most successfulemployment areas in the GTAH, and one ofMississauga’s premier locations for office and prestigeindustrial development.

• While the parcel may suffer from short-term accessconstraints, these could be addressed. The parcel inquestion also contains a number of the few remaininglarge greenfield employment land sites in the City, andis therefore considered to be an asset for accommodatingnew investment.

From a site-specific and use planning perspective, however,and given the presence of a higher-order transit facility it maybe appropriate to consider allowing for a more intense patternof mixed-use. The usual concerns regarding residential usesdestabilising employment areas are greatly diminished herebecause of the site’s isolation from the rest of the BusinessPark.

At minimum, the site constraints, location and improvedtransit access suggest a broader range of employment uses areappropriate for the site, possibly including office, businesscommercial and institutional uses.

The most appropriate change in our view would be todevelop a mixed employment–residential district geared tothe transit station and securing a very high proportion ofemployment uses within the employment–residential mix.

3. A Parcel in the Streetsville District, Abutting theMeadowvale Business Park May Be Suitable for Change

The second area where a broader range of use may beappropriate is in the Streetsville Planning District, abuttingthe southeast corner of the Meadowvale Business Park, wherethe pattern of larger industrial land uses shifts to a smallerscale of local retail and commercial service uses found alongthe Mississauga Road corridor in the Streetsville PlanningDistrict:

• During the SWOT analysis undertaken for this exercise,this area was identified by City of Mississauga staff as azone of limited activity between Streetsville node andsouth end of Meadowvale and contains a number ofsites with awkward configurations.1

• The area also accommodates some municipal uses suchas works yards and vehicle storage facilities, along withother larger commercial and institutional uses.

• A wider range of economic use may be appropriate forthe west side of Mississauga Road, recognizing that thisarea is firmly entrenched in employment use and acts asa buffer to nearby residential.

1 See Appendix A for complete details on the employmentland supply SWOT and workshops.

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HEMSON

• A wider range of use may also may be appropriate at theintersection of Britannia Road West and MississaugaRoad to improve the linkage between the Streetsvilleand Meadowvale areas.

• Through the SWOT analysis, it was noted that theremay be an opportunity to encourage a concentration ofinstitutional uses in this location, recognizing thebroader trend for these types of uses to demand space inor near employment districts.

• The suggested changes were for the potentialdevelopment of an “institutional campus”, andpermission for residential development up to MatlockAvenue on the east side of Mississauga Road.

For both of these areas, further analysis is required through acomprehensive, area-wide study to identify the specificpattern of use that is most appropriate to take advantage ofopportunities for transit-oriented development whileprotecting the economic advantages of such well-located andcompetitive employment land sites.

C. CHANGE MAY BE APPROPRIATE FOR SOME OLDERARTERIAL FRONTAGE LANDS

Like the northern Employment Districts, the City’s olderEmployment Districts should also be largely retained asemployment land. The City’s older Employment Districtsremain important business locations, both foraccommodating long-standing major employers as well as therange of service-type activities that value a lower-cost,central-city location, such as business start-ups and informalbusiness incubators.

As a result, no change is recommended for the interiorportions of any of the City’s Employment Districts. Change,however, may be appropriate for some of the arterial frontagelands in the older areas, particularly in locations that areplanned for higher order transit or have strong potential forredevelopment.

Planned higher-order transit facilities, combined with thepattern of development along the major arterial frontages inthe Mavis– Erindale and Dixie Employment Districts providea major opportunity for mixed-use corridor development tosupport the City Centre, and other transit-oriented develo-pment goals that are identified as desirable in both City andProvincial policies.

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HEMSON

1. Planned Higher-Order Transit May Be an ImportantChange for Older Employment Districts

One of the more common arguments used to support theconversion of employment land is that it would supporttransit use. However, experience from the City of Torontoindicates that transit actually works best where it servesconcentrations of employment. This includes centralToronto and the major transit nodes located along YongeStreet between Downtown and Steeles Avenue.

In partnership with the Province, the City of Mississauga isplanning to undertake a number of transit improvements,including planned higher-order transit along some of themajor arterial roads. A combination of both a wider range ofeconomic use, including Business Employment andinstitutional uses and changes to other use may be consideredfor its transportation corridors. It should be noted thatcontrary to popular perception in planning, employmentland uses can be amenable to transit-oriented development.1

Presently, the existing and planned transit corridors areBurnhamthorpe Road in Mavis-Erindale and Dundas East inDixie. The primarily low-intensity commercial character ofthese locations speaks to the potential for more intenseemployment uses or, as appropriate, mixed use development.

2. Burnhamthorpe Road May Provide An Opportunity fora Mixed-Use Gateway to the City Centre

During the SWOT analysis undertake for this exercise, thenorth and east edges of the Mavis-Erindale District wereidentified as having potential to accommodate a wider rangeof uses, which may include a greater emphasis on commercialand mixed uses. In particular, there is a strong potential forredevelopment along the arterial frontage of BurnhamthorpeRoad because of the area’s proximity to the Erindale GOstation, the existing office development at Central ParkwayWest and relatively good local transit service.

• The main opportunity that was identified by staff wasfor a mixed-use gateway along Burnhamthorpe Road toCity Centre, which ends west of Erindale, to provideadditional commercial services for the local populationand to fill in and improve the streetscape with morepedestrian-oriented uses.

• It was agreed by the participants in the SWOT analysisand workshops that the existing conversions tocommercial uses along these frontage lands has notseemed to impair functioning of internal industrialusers, which remain strong.

1 Experience in the GTAH suggests that transit actuallyworks best where destinations include concentrated employmentopportunities. This is contrary to the popular planning perception thatthe success of transit depends mainly on the density of residentialdevelopment. Within employment lands, some of the employmentuses that are amenable to transit oriented development include officedevelopment and business employment, but in addition, low-densityindustrial land uses, including manufacturing and warehousing cansupport transit-oriented development depending on the relativelocation of and access to the station.

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HEMSON

• To permit residential uses, however, would require acommitment to the overall mixed-use character of thearea. Proposals for developments including a residentialcomponent could be considered if the project is ofsufficient size to be planned comprehensively in thecontext of an area-wide study. Buffering of employmentuses to the south, possibly with a backlot road and othermitigation measures, is a priority. Creating acomfortable and lively pedestrian-oriented streetscapewould be part of the comprehensive planning approach.

3. Mavis Road May Provide Opportunities For a WiderRange of Use

The opportunities for redevelopment along Mavis Road wereviewed as somewhat more limited because of the presence ofa number of stable and entrenched industrial uses. These arescrap yards and industrial uses serving municipal functionsthat play an important economic role and have fewrelocation options.

Notwithstanding these limitations, both frontages of MavisRoad were identified as areas that should be examined toaccommodate a wider range of use. The area has good accessand connection to Highway 403. The general appearance ofthe area could be improved through encouraging low-intensity employment uses.

4. Dundas Street East Provides an Opportunity toDevelop a Mixed Use Corridor

Like Burnhamthorpe Road, the Dundas Street East frontagewithin the Dixie Employment District was also identifiedthrough the SWOT analysis as having potential forredevelopment. Much of the redevelopment potential andopportunities along Dundas Street East are the same as thosealong Burnhamthorpe Road, including:

• Most of the existing development along Dundas Streetis in retail and service uses and has not been industrialin character for a very long time.

• Good accessibility to transit, roads and highways and apattern of strong internal employment land use.

• Planned transit improvements, including a possibleHigher Order Transit and other initiatives intended tocreate the potential for “nodes” at key locations such asCawthra or Dixie Roads;

• The presence of a number of larger development parcelswhich are unlikely to redevelop for modern industrialuses given their location in close proximity toestablished residential communities to the north; and

• The potential for linkages to employers and residentialcommunities along the Dundas East Corridor to theCity of Toronto, including the large employers withinthe South Etobicoke Employment District andresidential neighbourhoods to the north.

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HEMSON

Based upon the pattern of development and planned higherorder transit initiatives, the potential for redevelopmentalong the arterial frontages in both the Mavis-Erindale andDixie Employment Districts has been identified.

Carefully managed change in these locations may beappropriate to advance both City and Provincial planningobjectives for a more efficient use of the urban land supplyand for the development of transit-oriented use. Furtheranalysis, however, will be required to identify the uses thatwill be most supportive of the planned transit investment,how this relates to the current pattern of land use and optionsfor promoting a wider range of use.

As discussed in the following section, change may also beappropriate for a number of scattered, marginal sites outsideof the designated Employment Districts.

D. CHANGE MAY BE APPROPRIATE FOR MARGINALSCATTERED SITES

The scattered sites located outside of the designatedEmployment Districts consist of two broad categories: vacantparcels designated for either Business Employment or Industrialin the City’s Residential Districts, and the larger, occupiedparcels that are developed with a low-intensity use or arecurrently vacant. This latter category tends to beconcentrated in the older areas of the City, particularly alongthe waterfront, and older arterial frontages.

1. No Change Should be Considered for Scattered VacantSites In the Employment Districts

Within the City of Mississauga’s employment land supply area number of parcels that are likely to remain vacant over thelong term, as a result of physical or other constraints todevelopment. This is referred to as long-term vacancy foremployment land planning.

Some planners have suggested that such sites in long termvacancy should be allowed to convert to other uses, becausetheir development prospects as employment land are limitedand such changes would serve broader planning goals such asintensification:

• While this may be true, it does not mean that thiswould be good planning from the broader community’sperspective. Permitting non-employment uses on thesesites is not appropriate because of the potential for landuse conflicts and area destabilisation, which are contraryto City and Provincial policies.

• Permitting a conversion of such sites would have theeffect of lowering the perceived risk of failure in seekingconversion of other parcels in the vicinity, which inturn would increase the land value expectations ofnearby land owners.

• Long-term vacant sites should be largely retained asemployment land for all areas, including the olderEmployment Districts in central and southernMississauga.

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Where already noted in Dixie and Mavis-Erindale, carefullymanaged change may be appropriate based on analysisthrough a comprehensive, area-wide analysis of the long-termvacant sites along major arterial frontages in some designatedDistricts.

2. Vacant Sites Outside Designated Employment DistrictsMay be Suitable for Other Uses

The vacant sites outside of the designated EmploymentDistricts are defined as scattered vacant sites outside of thedesignated Employment Districts in the City’s ResidentialDistricts. The lands in Churchill Meadows, while technicallyin this category are vacant greenfield lands of some scale (notjust District on its own) and should be retained as part of theremaining greenfield supply in the City in accordance withthe still-relatively-new Secondary Plan.

For the other scattered sites, we would make the followingobservations:

• These are the vacant sites that are “remnant” orotherwise may be constrained and unlikely to developas employment land for physical planning reasons suchas site size, configuration or access.

• Conversion of some of these sites would make moreefficient use of the urban land supply and therefore helpto achieve related City and Provincial planning goals,such as intensification.

• Others may be suitable for retention as employmentland based on local land use conditions. In particular,sites that may be very large and in close proximity toexisting designate Employment Districts may be suitablefor employment land if properly planned. For examplethe small industrial area directly south of Sheridan Parkin Clarkson-Lorne Park, should be retained asemployment land because the uses are healthy and fullyoccupied.

• Similarly, some of these scattered sites may faceconstraints in development for non-employment usesdue to other factors, such as their location within theAirport noise influence area. These sites should not beconverted to other sensitive uses.

In most cases, change in uses among the scattered sites can beresponsive to redevelopment applications. Sites that areappropriate for conversion are those where there arecompelling local land use planning objectives whichoutweigh the property’s desirability as a continued locationfor employment.

3. New Uses May be Appropriate for Some LargerIndustrial Properties Outside the Districts

Consideration of new uses through comprehensive, area-widestudies may be appropriate for some of the larger industrialproperties that are unlikely to redevelop for modern industrialuse:

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HEMSON

• The larger industrial sites that may no longer be suitedto industrial use are the areas along the Lakeshore in thePort Credit and Lakeview Planning District. They maybe suitable for a broader mix of use because of theirlimited feasibility and competitiveness for continuedindustrial use and the presence of Lake Ontario as anatural amenity.

• Significant investments in parks and open space alongthe waterfront combined with the presence of severallarge under-utilized parcels suggest a potential forcomprehensive redevelopment.

• To this end, the Port Credit and Lakeview Districtvisioning exercise will provide key input to the typesand location of change that are appropriate.

• The major exception is the substantial employment areaon the south side of Lakeshore Road East in Lakeview,abutting the Lakeview generating station site. It isdifferent from other larger vacant sites because this areais nearly fully occupied and appears to be a small, buthealthy employment area. It does, however, abut thelarge Lakeview generating station site and the future ofthe generating station site will in many ways dictate thefuture character of the entire area. If a new generatingstation is approved, the Lakeview employment areashould be retained. If the generating station site is to beredeveloped as a mixed-use or residential area, theapproach to employment land would have to berevisited. Even with large-scale redevelopment of thegenerating site, employment uses should be privilegedbut with a broad range of business commercial and otheruse.

E. SOUTHDOWN SHOULD BE RETAINED FORINDUSTRIAL USE

Southdown is an industrial district with businesses operatingwith outdoor processing and storage. These businesses arelarge land users with outdoor operations and storagegenerating noise, vibration, dust and truck traffic. This areaplays a significant role in the City’s economic base, and theseindustrial-type activities are important to the economy ofsouthern Ontario generally. The viability of this area must besupported but on the edges of the District a broader range ofemployment uses may be considered to support the City’sinvestment in park redevelopment, including Lakeside Parkand Park 389.

While industrial designations internal to the District shouldmaintain the supply of industrial lands over the long term,the corridors along the edges of the District could support abroader range of some types of business employment uses tocreate a more comfortable pedestrian experience and link theCity’s neighbourhoods to the lake. Public and privateinvestment along the corridors should result in an improvedstreetscape by creating a street wall to buffer users fromindustrial operations. Recognition that heavy truck trafficwill have to be accommodated and that this area is to remainindustrial in character over the long term may require acreative approach to revitalization.

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The recommendation is for the Southdown District beretained primarily for continued industrial use. Given thatmany other communities in the GTAH are activelydiscouraging industrial activity, the supply of vacant land inthe Southdown District is considered a unique competitiveadvantage.

Consistent with City and Provincial policy directions foremployment land, most of the City’s employment land shouldremain in its current use, with only a limited number of sitespecific changes recommended to achieve other planningobjectives in the community.

A small number of minor boundary and permitted usechanges are recommended for the major EmploymentDistricts in the north, and the only major changerecommended for some of the City’s older EmploymentDistricts is on key arterial frontage lands which provide anopportunity to create key mixed-use gateway features orcorridors.

Although there may be potential to allow a wider range ofuse in Southdown, the potential to disrupt existing usersleads us to the conclusion that the area should be maintainedprimarily in industrial use. The area can be revisited at thetime of the next five-year review as land use patterns or otherconditions may change.

The areas which have been identified as appropriate forchange in this chapter are identified in the following pagesshown as Map 4 and Map 5:

• Map 4 shows the areas where no change in userecommended;

• Map 5 shows the areas where some change may beappropriate.

Following the two maps, in the final chapter we turn to adiscussion of the policy directions that are required toimplement these recommendations.

MAP 4: AREAS WHERE NO CHANGE IN USE IS RECOMMENDED

Gateway

CITY OF BRAMPTON

Derry Road

LBPIANortheast

y

MeadowvaleBusiness

Park

Gateway

Northeast

Britannia Road

AirportCorporate

Northeast

Highway 403

Eglinton Avenue

Eastgate Pkwy

DixieSheridan

WesternBusiness Park Employment Districts

City Centre

No Change in Permitted Use Within Employment Districts

Burnhamthorpe Road

Dundas Street

Queensway

Mavis-Erindale

SheridanPark

Scattered Vacant Employment Sites In Residential Districts

> 25ha

5ha to 25ha

5h

Lakeshore Road

Queen Elizabeth Way

Southdown

Note: Map is conceptual.Source: Hemson Consulting Ltd.

NTSNTS

< 5ha

MAP 5: AREAS & TYPE OF CHANGE APPROPRIATEIN MISSISSAUGA’S EMPLOYMENT DISTRICTS

Highway 407

GatewayMeadowvale

CITY OF BRAMPTON

Derry Road

LBPIANortheast

MeadowvaleBusiness

Park

Gateway

Northeast

Britannia Road


Western

Highway 403


Managed Change in ExistingEmployment Areas

Designated Employment

Eglinton Avenue

Burnhamthorpe Road

Eastgate Pkwy

Dixie

Mavis-Erindale

SheridanPark

WesternBusiness Park Lands Outside Existing


Managed Change OutsideExisting Employment Areas

City Centre

Dundas Street

Queensway

Queen Elizabeth Way

Southdown

Scattered Vacant Employment Sites In Residential Districts

> 25ha

5ha to 25ha

< 5ha

Lakeshore Road

Queen Elizabeth Way

NTSNTS

Note: Map is conceptual.Source: Hemson Consulting Ltd. based upon City of Mississauga Official Plan.

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IV THREE MAIN POLICY DIRECTIONS ARE RECOMMENDED

The conclusions of this study are:

• The key conclusion is that the vast majority of the Cityof Mississauga’s employment land supply should beretained as currently planned. The supply is large andcompetitive and nearly fully developed, with all of theEmployment Districts playing a key role inaccommodating economic activity

• Based on this conclusion, change is only recommendedfor a small portion of the City’s northern EmploymentDistricts, including: a boundary adjustment of theAirport Corporate Employment District; a change in useto a parcel within the Meadowvale Business Park and aparcel abutting it to the southeast; some of the olderarterial frontage lands in the Dixie and Mavis-ErindaleDistricts; and for some marginal scattered vacant sitesoutside of the designated Employment Districts.

• Parcels within the designated Employment Districts thatmay form part of the City’s long-term vacancy are notrecommended for conversion because of the potentialfor area destabilisation.

• The Southdown Employment District is an area forwhich change in land use is very challenging. For thisreason, it should continue to play its current role inaccommodating industrial use.

In order to implement these recommendations, the followingpolicy directions should be included in the new official plan.These are summarized below and described in more detail inthe remainder of the chapter.

1. Strong policies for employment land retention should bedeveloped. In the context of a constrained urban landsupply for all types of uses, and a widening valuedifferential between employment and non-employmentuses, strong employment land retention policies arerequired to ensure that City and Provincial economicobjectives are implemented;

2. Site-specific policies and employment land designationsshould be developed for those sites where conversionmay be considered appropriate. A set of criteria shouldbe established to guide the transition of these areas toother urban uses over time; and

3. A series of other policy updates should be made toreflect changing development conditions as the Citymakes the transition to a more mature community andaccommodates more central place functions.

44

HEMSON

A. DEVELOP STRONG POLICIES FOR EMPLOYMENTLAND RETENTION

Notwithstanding that new Provincial policy directions bringa greater emphasis to protecting employment land andminimizing conversions to non-employment uses, the highdemand and high value of residential land will continue toprovide a strong incentive for private landowners to seekconversions to other uses.

The main factor driving pressure for conversion ofemployment land will be the nearing build-out of the supplyof land for ground-related housing. This pressure will becompounded by the Provincial Growth Plan target for allmunicipalities to accommodate 40% of new units after 2015within the existing urban area. Mississauga needs to continueto resist pressure to convert employment land — as it has inthe past — in order to achieve both the City’s and Provincialeconomic objectives.

1. The Importance of Employment Land Needs to BeMade Clear

A separate section describing the importance of employmentland, pressure for conversion and the rationale for retainingthe vast majority of the employment land supply is recom-mended. This could take the form of a refinement of Section2.3 of the Mississauga official plan and Section 3.3 and 3.4 toreinforce the need to retain, support and improve conditionsfor businesses in employment lands in the city. This would beconsistent with the need for the City to conform to theemployment land policies of the Growth Plan.

It is important to note that diversity in land and buildingspace is an economic advantage. The City has the capacity toaccommodate the new facilities housing mixed warehousing,assembly and office space that are participating in the neweconomy as well as more traditional industrial uses, the reuseof older industrial buildings, and basically everything inbetween. This ability to promote economic vitality througha variety of employment land opportunities meets City andProvincial economic objectives.

2. Specific Policies Need to be Incorporated into theOfficial Plan

Following this context piece, specific policies regardingemployment land retention should be included in the officialplan along with policies to address employment landconversion. It should be indicated that conversion is onlybeing considered for a limited number of sites for specificlocal planning reasons.

The retention policies will be a key implementing tool toensure that the City and Provincial economic objectives areachieved, within the context of a constrained land supply forall urban uses, and a widening value differential betweenemployment land, and land for residential or major retaildevelopment.

The specific policies could include:

• Need for employment land in both new and older areasgiven that they all play a vital economic role in theoverall community.

45

HEMSON

• Related to the need for employment land, new policydirections are required to clarify the role that majoroffice employment will play in the future of the City,and counter the mistaken proposition that conversionsof employment land are appropriate because most futurejobs will be in major offices.

• Need to resist conversion pressure in the vicinity ofhigher order transit, by highlighting the roleemployment land plays in supporting transit use.Transit-supportive uses are not limited to residential,and transit actually works well where destinationsinclude concentrated employment opportunities; and

• Need to maintain competitiveness of existing occupiedareas including a focus on the areas around the Airportand the other large northern employment area, andimproving the quality of streetscapes in the olderindustrial areas to support reuse to a range of bothtraditional and non-traditional employment activities.

B. DEVELOP SITE SPECIFIC POLICIES ANDEMPLOYMENT LAND DESIGNATIONS

In order to implement the recommendation that somecarefully managed change may be appropriate, site specificpolicies and employment land designations will need to bedeveloped for the affected areas.

The first step would be to identify those specific parcels orareas where a change in use over time may be appropriate.Once the sites or areas are identified, the parcels should beremoved from the employment land inventory and placedinto one of two new designations:

• If the preferred land use is known, then that specificdesignation may be put in place — residential,commercial, institutional, etc. and the desiredproportions of each if mixed-use; and

• If the preferred use is not known, or a range of uses ispossible, the parcels or area should be put into a specialpolicy designation with the preferred use to bedetermined through further analysis.

This approach will give the City the ability to proactivelyplan for the role of these areas in the long-term urbanstructure, rather than respond on site-by-site basis toindividual applications. The approach would also removeparcels from consideration in next 5-year review.

1. First Step is to Identify Sites or Areas WhereConversion May be Appropriate

The area-by-area review in Chapter III has identified theareas where changes in the employment land base may beappropriate. These areas will still need to be clearly definedand mapped. The locations and boundaries may be clear forindividual scattered sites.

46

HEMSON

Other areas, such as the arterial road frontages will needsignificant additional local analysis to determine theappropriate extent and depth of the properties to beconsidered. Sites thus identified could then be removed fromthe employment land inventory and placed in one of twodesignations.

2. If the Appropriate Use is Clear, That DesignationShould Then Be Applied

If there are situations where it is clear and appropriate as towhat an alternative use may be, these changes could beundertaken in the near term. None of the parcels we havediscussed are, to our knowledge, yet in this category.

Small scattered sites in the middle of residential areas thathave no reasonable prospects for redevelopment could well beconverted if requested, but this need not be done in advanceas it would unnecessarily create a number of legal non-conforming uses.

However, criteria and a system to consider such changesshould be incorporated into the planning regime, such thatapplications which may occur will not need to wait for thenext five-year municipal comprehensive review.

3. If the Appropriate Use is Not Clear, A Special PolicyDesignation Should be Applied

If the preferred land use is not known,, the lands could begiven some type of special policy designation. Thedesignation would allow for continuation of existingindustrial uses. It would also allow the planning for changeand, ultimately the implementation of change withoutneeding to wait for the next five-year municipalcomprehensive review.

If there is interest in converting such lands to another landuse, a series of criteria would need to be satisfied, includingbut not limited to:

• City and Provincial land use planning and economicobjectives.

• Land use compatibility; and

• Potential effects on current and future planned uses,including industries that are located in close proximity.

The redesignation of these sites or areas will occur as part ofthe preparation of the City’s new official plan policies, landuse designations and zoning districts.

Future land uses would be identified as part of the City’sofficial plan review, where there is an opportunity to considerthe results of other studies and initiatives underway as part ofthe review process.

47

HEMSON

C. UPDATE OTHER CITY-WIDE EMPLOYMENT LANDPOLICIES

A number of other updates are recommended in order toreflect the City’s transition to a more mature, urbancommunity. Many of these issues were raised through theSWOT analysis and staff workshops. They are discussed inmore detail below.

1. Guidelines For Community Uses in Employment AreasAre Required

The location of community uses in employment areas is anestablished trend in Mississauga and elsewhere and is unlikelyto change in the future. Indeed, these uses are often part ofsound creative reuse of existing buildings in employmentareas.

Based on the discussions in the workshops, what is requiredare some new policies to direct, restrict, or concentrateinstitutional uses in ways that minimize disruption anddestabilisation to industrial-type users and to ensure that thecommunity uses are well-planned in respect to such mattersas parking and well-integrated into the surrounding areas.

2. Strategy For the Southdown Employment District isRequired

As discussed elsewhere in this report, the Southdown area isto remain focussed on industrial uses. However, there may beopportunities to allow a wider range of uses on the peripheryof the District to support the development of edge corridorsthat create a comfortable link between the community andpark areas.

Within this context, a wider range of use permission would beacceptable on the arterial road frontages of Southdown whereit can be demonstrated that such uses would not interferewith or restrict existing industrial operations or their futureon-site expansion. Options for greening the waterfront canbe investigated, but must be planned to recognize theoperational needs of existing industries.

3. A Range of Specific Policy Matters Should Also BeConsidered for the New Official Plan

In addition to the land designation and other policy mattersalready discussed, there are a number of specific issues relatedto employment lands that should be considered for inclusionin the City’s policy regime:

• Guidelines for converting multi-unit industrialdevelopment to industrial condominiums should beconsidered. Commercial–industrial condominiums aredesirable to ensure that employment use locates in anarea over the long term, however they also could limitpossibilities for the long-term development andredevelopment of lands in employment areas, forinstance along arterial road frontages whereredevelopment may be encouraged.

• Guidelines for the site positioning of office buildings canprovide for longer-term employment intensificationpotential. Office buildings are often sited in the centreof a property and surrounded by surface parking.Buildings sited to one side or a corner of a site wouldallow for future additional development with structureparking, should that become an economic developmentform in the future.

48

HEMSON

• Clarification of policies respecting daycare facilitieshave been suggested to assure that daycare can be madeavailable in employment areas, but also to assure thatlocations are appropriate for this sensitive use.

The City of Mississauga is entering an important transitionperiod where it will move from a rapidly growing urbancommunity to a more mature, urban community whereredevelopment and intensification will become moreimportant. A number of issues related to employment landneed to be addressed, particularly the need to protect themajority of the supply in the face of what is anticipated to berising pressure for conversion.

At the same time, however, there will be some limitedcircumstances where the conversion of employment land maybe considered to be good planning, particularly for some ofthe larger and older scattered sites in southern Mississaugaand along some of the City’s older arterial frontages. We trustthat the initiatives recommended in this report are ofassistance to staff and Council as they look forward to thenext exciting chapter in the City’s history.

HEMSON

APPENDIX

EMPLOYMENT LANDS WORKSHOP

SWOT ANALYSIS

Empl

oym

ent L

ands

Wor

ksho

p W

est S

ites,

Nov

embe

r 27,

200

7 1

E

mpl

oym

ent L

ands

Wor

ksho

p W

est S

ites

Nov

embe

r 27

, 200

7

SWO

T A

naly

sis

Empl

oym

ent L

ands

Wor

ksho

p W

est S

ites,

Nov

embe

r 27,

200

7 2

Mav

is E

rind

ale

– B

urnh

amth

orpe

Roa

d W

est (

Site

3a)

St

reng

ths

• cl

ose

to E

rinda

le G

o St

atio

n •

exis

ting

offic

e at

Cen

tral P

kwy

Wes

t •

Ade

quat

e bu

s ser

vice

– p

art.

alon

g B

urnh

amth

orpe

•

prox

imity

to C

ity C

entre

•

prox

imity

to ra

il lin

e go

od fo

r ind

ustry

Wea

knes

ses

• si

ngle

stor

ey c

omm

erci

al

• lo

ts o

f par

king

•

exis

ting

cont

amin

atio

n an

d em

issi

ons

• la

ck o

f com

mun

ity fa

cilit

ies i

n ex

istin

g ar

ea –

nee

d to

cro

ss m

ajor

stre

ets (

eg. k

ids t

o sc

hool

) •

entre

nche

d us

es th

at a

re n

ot m

ovin

g (e

g. a

uto

body

, che

mic

al p

lant

) •

cost

of f

iner

grid

of r

oads

)

Opp

ortu

nitie

s •

pote

ntia

l for

mix

ed u

se g

atew

ay to

City

Cen

tre w

hich

nat

ural

ly e

nds w

est o

f Erin

dale

•

mor

e se

rvic

es fo

r loc

al re

side

ntia

l pop

ulat

ion

to th

e no

rth a

nd e

mpl

oym

ent u

ses i

n in

terio

r •

pote

ntia

l to

impr

ove

upon

the

stre

etsc

ape

with

bet

ter t

rans

it sh

elte

rs, m

ore

pede

stria

n or

ient

ed u

ses (

elim

inat

e hi

ghw

ay c

omm

erci

al o

rient

ed d

esig

n)

• po

tent

ial t

o in

clud

e m

ore

affo

rdab

le h

ousi

ng

• ne

ed to

dec

ide

wha

t we

wan

t bef

ore

we

pric

e ou

rsel

ves o

ut o

f fut

ure

oppo

rtuni

ty e

.g.

expr

opria

tion

• B

urnh

amth

orpe

fron

tage

land

s cou

ld h

ave

som

e liv

e/w

ork

with

tran

sitio

n to

indu

stria

l us

es

• ca

n al

so se

rvic

e re

side

ntia

l com

mun

ity to

the

sout

h of

the

Mav

is-E

rinda

le In

dust

rial a

rea

• co

uld

intro

duce

new

road

s to

impr

ove

the

mov

emen

t net

wor

k by

pun

chin

g ou

t new

nor

th

–sou

th st

reet

s sou

th o

f Per

ival

e •

coul

d im

prov

e ac

cess

for a

ll em

ploy

men

t lan

d us

es w

hich

don

’t al

l hav

e ra

tiona

l or

logi

cal a

cces

s poi

nts o

r pro

per v

isib

ility

•

impr

oved

road

net

wor

k in

crea

ses c

apac

ity a

nd in

crea

sed

valu

e of

this

are

a (e

cono

mic

an

alys

is sh

ould

be

done

i.e.

wha

t is t

he n

et b

enef

it of

bui

ldin

g ne

w ro

ad A

.) •

can

Bur

nham

thor

pe R

OW

be

shift

er so

uth

to c

reat

e de

eper

futu

re d

evel

opm

ent p

arce

ls o

n th

e no

rth si

de o

f the

stre

et. S

omet

hing

to th

ink

abou

t if w

e ev

er w

ant t

o ex

prop

riate

thes

e la

nds!

•

pote

ntia

l to

gree

n M

avis

Roa

d an

d W

olfd

ale

Cre

ek

• co

nsid

er d

istri

ct e

nerg

y fo

r em

ploy

men

t use

s and

oth

er m

ore

gree

n in

itiat

ives

T

hrea

ts

• la

nd u

se c

onfli

ct w

ith in

dust

ries

• co

ntin

ued

conv

ersi

on to

com

mer

cial

•

need

to so

rt ou

t a p

rope

r vis

ion

for t

his a

rea

Empl

oym

ent L

ands

Wor

ksho

p W

est S

ites,

Nov

embe

r 27,

200

7 3

App

lyin

g C

onve

rsio

n C

rite

ria

a)

Ex

istin

g co

nver

sion

to c

omm

erci

al is

not

real

ly im

pact

ing

the

inte

rnal

indu

stria

l use

s. In

trodu

ctio

n of

resi

dent

ial u

ses m

ay c

ause

som

e co

mpa

tibili

ty is

sues

but

thes

e co

uld

prob

ably

be

addr

esse

d b)

Doe

s not

com

prom

ise

othe

r pla

nnin

g ob

ject

ives

of t

he C

ity, i

nclu

ding

pla

nned

co

mm

erci

al

c)

Con

vers

ion

will

like

ly b

enef

it co

mm

unity

, new

resi

dent

s, cl

ose

to p

ark,

new

serv

ices

for

loca

l are

a d)

Cou

ld a

ffec

t lon

g te

rm v

iabi

lity

of e

xist

ing

land

use

s e)

D

-Ser

ies G

uide

lines

– n

ot la

w o

nly

guid

elin

es a

nd w

hen

is th

e la

st ti

me

they

wer

e up

date

d? A

re th

ese

actu

ally

app

lied

in p

ract

ice?

The

OM

B d

id n

ot p

ay h

eed

to th

em fo

r th

e O

MB

hea

ring

on S

ithe’

s Pow

er P

lant

app

licat

ion.

Empl

oym

ent L

ands

Wor

ksho

p W

est S

ites,

Nov

embe

r 27,

200

7 4

Mea

dow

vale

Bus

ines

s Par

k-L

isga

r (S

ite 5

) St

reng

ths

• pr

oxim

ity to

401

/ 40

7 in

terc

hang

es

• pa

rt of

hig

hly

succ

essf

ul B

usin

ess P

ark

• Li

sgar

Go

stat

ion

• A

rgen

tia R

oad

exte

nsio

n to

9th

Lin

e •

401

/ 407

vis

ibili

ty /

high

pro

file

site

•

larg

e la

nd h

oldi

ng

• in

tere

st fo

r ind

ustri

al a

nd o

ffic

e •

new

inve

stm

ent

W

eakn

esse

s •

visi

ble

but n

ot a

cces

sibl

e •

traff

ic c

onge

stio

n •

not s

een

as p

art o

f Mea

dow

vale

Bus

ines

s Par

k •

big

box

com

mer

cial

– re

duce

s attr

activ

enes

s and

und

erm

ines

Em

ploy

men

t Nod

e •

hydr

o co

rrid

or is

olat

es a

rea

• “l

and

lock

ed”

– po

or a

cces

s •

limite

d ac

cess

to ra

il lin

e •

no se

rvic

ing

for v

acan

t lan

ds in

the

shor

t ter

m –

hig

h co

sts t

o de

velo

p •

MTD

ow

ners

hip

• ne

w c

omm

erci

al –

lim

ited

oppo

rtuni

ty fo

r red

evel

opm

ent

• H

alto

n st

udy

uses

– li

mite

d po

tent

ial r

oad

impr

ovem

ent a

nd a

dditi

onal

inte

rcha

nges

•

expe

ct re

tail

to b

e bi

g bo

x un

til 2

031

Opp

ortu

nitie

s •

407

Tran

sit w

ay p

lann

ed –

opp

ortu

nitie

s for

con

nect

ion

to G

o •

long

term

opp

ortu

nity

for r

esid

entia

l int

ensi

ficat

ion

at S

mar

t Cen

tre

• w

iden

ing

of H

wy

401

with

a c

olle

ctor

syst

em w

ill le

ssen

con

gest

ion

Thr

eats

•

Ove

r loa

ded

inte

rsec

tion;

Arg

entia

/ W

inst

on C

hurc

hill

•

logi

stic

s typ

e us

es w

ill c

ontin

ue to

gro

w a

nd e

xace

rbat

e co

nges

tion

• op

erat

iona

l saf

ety

issu

es o

ccur

whe

n in

terc

hang

e ar

e to

o cl

ose

toge

ther

•

if to

o m

any

inte

rcha

nges

then

it re

duce

s the

eff

ectiv

enes

s of t

he h

ighw

ay to

mov

e go

ods

and

peop

le

• ne

w c

orrid

or p

rote

ctio

n fo

r new

n/s

hig

hway

initi

ated

by

Bra

mpt

on to

serv

ice

new

gr

owth

in B

ram

pton

•

Plac

e of

Wor

ship

pro

pose

d fo

r N/E

cor

ner o

f 401

and

10th

line

•

com

mer

cial

exp

ecte

d to

rem

ain

for a

long

tim

e

Empl

oym

ent L

ands

Wor

ksho

p W

est S

ites,

Nov

embe

r 27,

200

7 5

Cla

rkso

n –

Lor

ne P

ark

–Lan

ds a

long

Sou

th S

heri

dan

Way

(Site

2)

St

reng

ths

• Q

EW lo

catio

n / v

isib

ility

•

goo

d ac

cess

•

prox

imity

to S

herid

an R

esea

rch

Park

•

prox

imity

to re

side

ntia

l – li

ve /

wor

k op

portu

nity

•

empl

oym

ent s

outh

of Q

EW

• bu

ffer

to re

side

ntia

l to

the

sout

h •

no m

ajor

nox

ious

use

s (eg

. co

ntam

inat

ion,

noi

se)

• go

od “

catc

h-al

l” a

rea

for u

ses d

iffic

ult t

o lo

cate

W

eakn

esse

s •

conf

igur

atio

n ( l

ong

/ nar

row

) •

adja

cent

to re

side

ntia

l (se

nsiti

ve la

nd u

ses)

•

road

net

wor

k –

does

not

supp

ort t

rans

it •

not p

art o

f a b

usin

ess p

ark

• no

con

veni

ence

reta

il to

serv

ice

empl

oym

ent u

ses

• no

t ide

al re

side

ntia

l loc

atio

n –

adja

cent

to m

ajor

hig

hway

•

if m

aint

ain

empl

oym

ent a

rea,

too

muc

h in

stitu

tiona

l •

not i

deal

for r

etai

l – a

cces

s •

poor

app

eara

nce

Opp

ortu

nitie

s (fo

r en

hanc

ing

empl

oym

ent u

ses)

•

inst

itutio

nal c

ampu

s

– le

nds i

tsel

f to

this

bec

ause

not

hea

vy u

sers

, no

cont

amin

atio

n •

car d

eale

rshi

p ca

mpu

s

–

not a

pre

stig

e ga

tew

ay im

age

• ho

tels

•

offic

es /

flexi

ble

– of

fice

/ inc

ubat

or sp

ace

• lo

w c

ost s

pace

•

trans

it hu

b at

Win

ston

Chu

rchi

ll (e

g. sh

ared

par

king

/ tra

nsit)

O

ppor

tuni

ties (

if co

nsid

erin

g co

nver

ting)

•

coul

d be

com

e in

stitu

tiona

l pow

er c

entre

or c

omm

unity

use

cam

pus

• po

ssib

le c

omm

unity

use

cam

pus (

i.e. a

s in

Bra

mpt

on B

ovai

rd a

nd 4

10)

• no

che

mic

als o

r hea

vy in

dust

rial u

sers

•

good

cat

chal

l are

a fo

r use

s diff

icul

t to

loca

te?

• no

t an

idea

l res

iden

tial l

ocat

ion

for c

onve

rsio

n to

resi

dent

ial

• no

t an

idea

l ret

ail l

ocat

ion

Thr

eats

•

coul

d be

com

e bi

g bo

x re

tail

•

detra

cts f

rom

the

city

imag

e as

a g

atew

ay in

to th

e ci

ty

• po

tent

ial l

and

use

conf

lict

• re

side

nt o

ppos

ition

to d

evel

opm

ent

Empl

oym

ent L

ands

Wor

ksho

p W

est S

ites,

Nov

embe

r 27,

200

7 6

Mea

dow

vale

/ St

reet

svill

e –S

ite 4

Stre

ngth

s •

exis

ting

smal

l off

ice

– pr

ovid

es g

ood

incu

bato

r spa

ce

• so

me

limite

d in

vest

men

ts o

ccur

ring

• fo

rms e

xten

sion

of M

eado

wva

le B

usin

ess P

ark

– su

ppor

ts M

BP

(eg.

rest

aura

nts)

•

good

acc

ess /

401

and

rail

•

wes

t sid

e fir

mly

ent

renc

hed

as e

mpl

oym

ent u

ses

Wea

knes

ses

• aw

kwar

d la

nd p

arce

ls /

site

con

figur

atio

n •

poo

r roa

d ne

twor

k •

“dea

d” z

one

betw

een

node

s •

“det

ract

s” fr

om S

treet

svill

e •

bus s

tora

ge d

etra

cts f

rom

pre

stig

e in

dust

rial u

ses

• sc

hool

site

hol

ding

scho

ol fo

r Cat

holic

Boa

rd

O

ppor

tuni

ties

• to

get

a m

ix o

f use

s •

poss

ible

inst

itutio

nal c

ampu

s or o

ther

com

mun

ity u

ses

• pr

ovid

e lin

kage

bet

wee

n St

reet

svill

e an

d M

eado

wva

le N

ode

• en

hanc

e st

reet

scap

e to

pot

entia

lly e

ncou

rage

re-in

vest

men

t •

cons

ider

resi

dent

ial d

evel

opm

ent u

p to

Mat

lock

Ave

on

east

side

•

low

inte

nsity

use

s may

off

er o

ppor

tuni

ty to

ext

end

node

s ( S

treet

svill

e)

• tra

nsiti

on u

ses b

etw

een

resi

dent

ial a

nd in

dust

rial u

ses o

n w

est s

ide

of Q

ueen

St.

Thr

eats

•

pote

ntia

l for

land

use

con

flict

s (eg

. res

iden

tial)

• co

ndo

offic

es in

dem

and

and

a co

ncer

n •

cond

o of

fices

will

stay

that

use

fore

ver o

r mor

e di

ffic

ult t

o re

-des

igna

te

• m

ore

com

mon

dem

and

in n

on-p

rime

empl

oym

ent a

reas

•

empl

oym

ent a

nd c

omm

erci

al a

re se

para

ted

• m

ix e

mpl

oym

ent a

nd c

omm

erci

al u

ses a

nd re

mov

e st

orag

e an

d al

low

inst

itutio

nal u

ses

Empl

oym

ent L

ands

Wor

ksho

p W

est S

ites,

Nov

embe

r 27,

200

7 7

Fair

view

/ M

avis

Roa

d –

Site

3b

Stre

ngth

s •

Fairv

iew

pro

vide

s tra

nsiti

on b

etw

een

Mav

is /

Erin

dale

indu

stria

l and

City

Cen

tre

• st

able

/ en

trenc

hed

indu

stria

l use

s –

Use

rs (e

g. sc

rap

good

s) h

ave

few

relo

catio

n op

tions

•

rail

– lin

e •

stro

ng c

ity p

rese

nce

/ ser

ve m

unic

ipal

func

tion

• go

od a

cces

s / c

onne

ctio

ns to

Mav

is /

403

hwy

W

eakn

esse

s •

“loo

k” o

f use

s •

limite

d op

portu

nity

to im

prov

e th

e ar

ea –

lim

ited

new

app

licat

ions

•

low

inte

nsity

em

ploy

men

t use

•

odd

conf

igur

atio

n re

mai

ning

for F

ield

ing

Che

mic

al

• en

croa

chm

ent o

f ret

ail u

ses

O

ppor

tuni

ties

• to

“gr

een”

Mav

is R

d / W

olfd

ale

Cre

ek

• di

stin

ct e

nerg

y fo

r em

ploy

men

t use

s

Empl

oym

ent L

ands

Wor

ksho

p Ea

st S

ites,

Dec

embe

r 4, 2

007

1

Em

ploy

men

t Lan

ds W

orks

hop

Eas

t Site

s D

ecem

ber

4, 2

007

SW

OT

Ana

lysi

s

Empl

oym

ent L

ands

Wor

ksho

p Ea

st S

ites,

Dec

embe

r 4, 2

007

2

Dix

ie –

Dun

das F

ront

age

(Site

3)

Stre

ngth

s •

Dix

ie G

o st

atio

n •

truck

acc

essi

bilit

y to

401

(Dix

ie) a

nd Q

EW

• in

form

atio

n of

pow

er p

lant

stre

ngth

ens e

mpl

oym

ent u

ses

W

eakn

esse

s •

mul

tiple

driv

eway

acc

esse

s •

lots

of r

etai

l com

mer

cial

infil

tratin

g em

ploy

men

t are

a •

som

e pr

oper

ties (

eg. C

hine

se C

entre

Dun

win

) are

not

goi

ng to

cha

nge

in th

e lo

ng te

rm

• re

tail

does

n’t s

erve

loca

l res

iden

tial c

omm

unity

wel

l – “

Wal

-Mar

t” w

ould

be

wel

com

e •

maj

or c

onta

min

atio

n •

qual

ity o

f the

reta

il is

dec

linin

g •

poor

imag

e / s

treet

scap

e •

pote

ntia

l flo

odin

g re

ar E

tobi

coke

Cre

ek a

nd D

ixie

Rd

Dun

das S

t int

erse

ctio

n

Opp

ortu

nitie

s •

poss

ible

LR

T (b

eyon

d 20

31?)

•

long

term

opp

ortu

nity

to ra

tiona

lize

acce

ss

• im

prov

e su

rfac

e tra

nsit

in sh

ort t

erm

•

crea

te “

node

s” a

t key

loca

tions

(eg.

Caw

thra

Rd

or D

ixie

Rd)

•

larg

er p

rope

rties

and

old

er p

rope

rties

hav

e re

deve

lopm

ent p

oten

tial

• so

me

oppo

rtuni

ty fo

r res

iden

tial w

est o

f Dix

ie R

d •

intro

duct

ion

of in

stitu

tiona

l / c

omm

unity

use

s •

intro

duct

ion

of a

ffor

dabl

e ho

usin

g •

coul

d im

prov

e ro

ad g

rid –

but

truc

ks d

iffic

ult t

o cr

oss –

gra

de se

para

tion

T

hrea

ts

• co

nver

sion

may

occ

ur b

efor

e tra

nsit

inve

stm

ent b

egin

s •

if tra

nsit

only

lane

intro

duce

d m

ay im

pact

truc

k m

ovem

ents

for t

he e

mpl

oym

ent a

rea

behi

nd D

unda

s St

• se

vera

l opp

ortu

nitie

s for

con

vers

ion

of in

dust

rial t

o bi

g bo

x re

tail

•

som

e ef

forts

by

land

owne

rs to

con

vert

to re

side

ntia

l •

if re

side

ntia

l was

n’t d

one

com

preh

ensi

vely

, wou

ldn’

t cre

ate

attra

ctiv

e re

side

ntia

l are

a •

resi

dent

ial s

ervi

ces (

eg. s

choo

ls) a

cros

s bus

y ar

ea m

ay li

mit

pede

stria

n ac

cess

•

seve

ral p

rope

rties

und

er c

omm

on o

wne

rshi

p –

has a

sked

abo

ut c

onve

rsio

n •

dom

ino

effe

ct if

allo

w so

me

conv

ersi

on

Empl

oym

ent L

ands

Wor

ksho

p Ea

st S

ites,

Dec

embe

r 4, 2

007

3

Air

port

Cor

pora

te E

xpan

sion

into

Nor

thea

st (S

ite 4

) St

reng

ths

• ca

ptur

e m

omen

tum

for o

ffic

e de

man

d in

adj

acen

t par

cels

•

BR

T st

atio

ns

Wea

knes

ses

• w

eake

n A

C “

bran

d”

• st

able

use

s (eg

. gat

eway

) •

cons

ider

able

land

s aro

und

Tom

ken

are

natu

ral a

reas

: onl

y ab

out h

alf t

he a

rea

is

deve

lopa

ble

• m

ulti-

use

cond

o –

off D

ixie

– lim

ited

rede

velo

pmen

t opp

ortu

nitie

s •

diff

icul

t to

asse

mbl

e ex

istin

g de

velo

ped

land

s O

ppor

tuni

ties

• in

crea

se d

ensi

ty a

roun

d To

mke

n an

d T

ahoe

BR

T st

atio

n •

shou

ld d

isco

urag

e lo

w d

ensi

ty e

mpl

oym

ent u

ses

high

er d

ensi

ty u

ses a

roun

d Ta

hoe

Blv

d st

atio

n be

fore

low

den

sity

use

s dev

elop

ed

• w

ould

be

desi

rabl

e to

enc

oura

ge re

deve

lopm

ent o

f exi

stin

g us

es o

n w

est s

ide

of E

astg

ate

– ac

ross

from

BR

T st

atio

n –

enco

urag

e hi

gher

den

sitie

s •

mul

ti-un

it de

velo

pmen

t can

be

quite

den

se c

ompa

red

to si

ngle

use

bui

ldin

g

Thr

eats

•

wou

ld li

mit

Bus

ines

s Em

ploy

men

t use

s (eg

. tru

ckin

g st

orag

e; c

reat

e no

n-co

nfor

min

g)

• ap

plic

atio

n fo

r “al

umib

unk”

off

Tom

ken

Rd

Empl

oym

ent L

ands

Wor

ksho

p Ea

st S

ites,

Dec

embe

r 4, 2

007

4

Lak

evie

w –

Sou

th S

ide

of L

akes

hore

Roa

d E

ast

Stre

ngth

s •

sign

ifica

nt e

mpl

oym

ent

• pr

oxim

ity to

serv

ices

for e

mpl

oyee

s (co

uld

wal

k to

Lak

esho

re E

ast)

• st

able

, ful

ly o

ccup

ied

• bu

ildin

g st

ock

OK

•

olde

r est

ablis

hed

busi

ness

es

• lo

w tu

rnov

er

• su

ppor

t to

loca

l com

mer

cial

bus

ines

ses

• bu

ffer

to O

PG la

nds

• co

mpa

tible

with

wat

er /

sew

age

treat

men

t pla

nt

• m

inim

al tr

affic

and

noi

se c

onfli

cts w

ith p

ark

usag

e •

empl

oym

ent c

lose

to re

side

ntia

l in

the

sout

h •

prox

imity

to L

ong

Bra

nch

GO

W

eakn

esse

s •

resi

dent

ial c

omm

unity

wou

ld li

ke to

see

conv

ersi

on

• ac

cess

to in

dust

rial (

no h

ighw

ay)

• at

tract

ed to

a li

mite

d ty

pe o

f bus

ines

s •

poor

air

qual

ity fr

om p

last

ics p

lant

O

ppor

tuni

ties

• re

tail

/ com

mer

cial

reta

il al

ong

Lake

shor

e fr

onta

ge

• im

prov

ed st

reet

scap

e al

ong

Lake

shor

e fr

onta

ge

Thr

eats

•

conv

ersi

on to

resi

dent

ial o

r ret

ail c

omm

erci

al a

long

Lak

esho

re R

d E

• if

pow

er g

ener

atio

n di

dn’t

occu

r, po

ssib

le re

deve

lopm

ent a

s wat

erfr

ont d

estin

atio

n •

conv

ersi

on p

ress

ure

prio

r to

com

preh

ensi

ve p

lann

ing

• la

nd sp

ecul

atio

n

Empl

oym

ent L

ands

Wor

ksho

p Ea

st S

ites,

Dec

embe

r 4, 2

007

5

Port

Cre

dit/L

akev

iew

– L

ands

alo

ng R

ailw

ay

St

reng

ths

• bu

ffer

to ra

ilway

trac

ks

• se

rvic

e pu

rpos

e fo

r bus

ines

ses

• in

cuba

tor f

unct

ion

for s

mal

l bus

ines

ses

• st

able

•

low

impa

ct o

n ne

ighb

ourin

g re

side

ntia

l •

few

resi

dent

ial c

ompl

aint

s •

resi

dent

ial a

ccep

ted

exis

ting

indu

stria

l (ad

just

ed)

• pr

oxim

ity to

aff

orda

ble

hous

ing

Wea

knes

ses

• so

me

limite

d im

pact

on

resi

dent

ial (

nois

e)

• sh

allo

w la

nds

• un

suita

ble

for r

esid

entia

l or r

etai

l com

mer

cial

use

s •

poor

pro

perty

stan

dard

s •

not s

ubje

ct to

site

pla

n ap

prov

al

• sm

all p

rope

rties

and

cle

an-u

p co

st li

mit

conv

ersi

on p

oten

tial o

f lan

ds so

uth

side

of Q

ueen

St

.

T

hrea

ts

• po

ssib

le c

onta

min

atio

n •

may

be

used

for i

llega

l res

iden

tial d

wel

ling

spac

e O

ppor

tuni

ties

• la

nds o

n so

uth

side

of Q

ueen

cou

ld b

e re

side

ntia

l •

mak

e su

bjec

t to

site

pla

n ap

prov

al to

impr

ove

appe

aran

ce a

djac

ent t

o re

side

ntia

l •

north

side

of r

oad

in P

ort C

redi

t sho

uld

be u

sed

for p

arki

ng

• ar

tist s

tudi

os /

crea

tive

clas

s uni

ts

• po

ssib

le e

xpan

sion

spac

e / p

arki

ng fo

r men

tor c

olle

ge

Empl

oym

ent L

ands

Wor

ksho

p Ea

st S

ites,

Dec

embe

r 4, 2

007

6

Em

ploy

men

t Are

as

Gen

eral

Issu

es

1.

la

nd v

alue

s aro

und

BR

T St

atio

ns (a

ny e

ffec

t?)

2.

mul

ti-un

it in

dust

rial

– co

nver

sion

to c

ondo

C

once

rn

– pa

rkin

g (e

g. b

anqu

et h

all)

– ca

nnot

inte

nsify

land

s bec

ause

ster

ilize

with

frag

men

ted

owne

rshi

p Po

sitiv

e

– lo

ng te

rm in

vest

men

t –

prop

erty

stan

dard

s mai

ntai

ned

3.

co

mm

unity

use

s in

empl

oym

ent a

reas

–

intro

duce

s non

-com

patib

le u

ses?

– so

me

are

used

dur

ing

wee

kday

s –

PRA

’s h

ave

dayc

ares

, sch

ools

– c

onfli

ct o

f use

s –

shou

ld b

e on

frin

ges (

edge

s), c

lose

to re

side

ntia

l

4.

how

to b

ette

r util

ize

/ (eg

. off

ice

site

s – p

lace

men

t of b

uild

ing

on a

n an

gle)

–

polic

y in

pla

n fo

r sitt

ing

of b

uild

ing

(eg.

Nor

th O

akvi

lle)

5.

su

rfac

e pa

rkin

g –

how

do

we

deal

with

this

?

6.

dayc

ares

(not

allo

w) i

n ai

rcra

ft ar

eas

7.

ou

tdoo

r sto

rage

–

offic

es c

an b

e bu

ilt b

esid

e pr

estig

e of

fice

area

–

curr

ently

has

a c

ap th

roug

h Zo

ning

–

is in

tegr

al to

som

e bu

sine

sses

ther

efor

e it’

s nee

ded

but s

houl

d be

regu

late

d

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