Agenda - Council Workshop - 20231003Town of Aurora
Council Workshop/Education Session
Agenda
Date:Tuesday, October 3, 2023
Time:5:45 p.m.
Location:Council Chambers, Aurora Town Hall
Meetings are available to the public in person and via live stream on the Town’s YouTube channel.
Pages
1.Call to Order
2.Land Acknowledgement
3.Approval of the Agenda
4.Declarations of Pecuniary Interest and General Nature Thereof
5.Consideration of Items Requiring Discussion
5.1 Development Charges 1
(Presentation to be provided by Gary Scandlan, BA, PLE, Director, and
Byron Tan, MBE, PLE, Manager, from Watson & Associates Economists
Ltd.)
6.Adjournment
Development Charges Council WorkshopOctober 3, 2023Town of Aurora1Page 1 of 35
Agenda•Introductions•Study Timelines•Legislative Changes: Bill 23•Development Charges Overview•Exemptions, Current Rates, and Assumptions for the 2024 D.C. Study•Next Steps•Questions2Page 2 of 35
Timeline3طJune 2023 - OngoingReview of background data, modelling, meetings with staffOctober 3, 2023Council WorkshopWinter 2023Stakeholder Meeting #2• Draft Service Standard Calculations and Capital Program• Draft RatesEarly 2024Release Background StudyEarly 2024Public MeetingMinimum of 60 Days After the Release of the ReportConsideration of the D.C. By-lawطSeptember 14, 2023Stakeholder Meeting #1 – Overview of the D.C. Study ProcessPage 3 of 35
Development Charges (D.C.)Purpose:•To recover the capital costs associated with residential and non-residential growth within a municipality•The capital costs are in addition to what costs would normally be constructed as part of a subdivision (i.e. internal roads, sewers, watermains, sidewalks, streetlights, etc.)•Municipalities are empowered to impose these charges via the Development Charges Act (D.C.A.)4Page 4 of 35
Legislative Changes to the D.C.A.5Town of AuroraPage 5 of 35
History of D.C.’s6Amendments to D.C.A. 19971Bill 73: January 20162Bill 108: June 6, 20193Bill 138: December 10, 20194Bill 197: July 21, 20205Bill 213: December 8, 20206Bill 109: April 14, 20227Bill 23: November 28, 2022Planning Act(lot levies)D.C.A.1989D.C.A.1997• Mid 1950’s to 1989• November 1989 to Aug.1999• September 1999 to presentPage 6 of 35
Recap on the D.C. Legislation ChangesMany of the changes to the D.C.A. were implemented as part of the Town’s D.C. Update Study in 2021. These changes were provided through the following Bills:•Bill 108: More Homes, More Choice Act, 2019•Provided timing of payment provisions (for Rental Housing, Institutional development, and non-profit housing), D.C. rate freeze for site plan and zoning by-law amendments, and allows for interest to be applied•Bill 138: Plan to Build Ontario Together Act, 2019•Removed instalment payments for commercial and industrial•Bill 197: COVID-19 Economic Recovery Act, 2020•Provides a list of D.C. eligible services, classes of services, and removal of the 10% mandatory deduction and 10-year planning horizon•Bill 213: Better for People, Smart for Business Act, 2020•Mandatory exemption for universitiesSince the completion of the D.C. Update Study in 2021, further legislative changes have been made to the D.C.A. through Bill 109, More Homes for Everyone Act, 2022 (additional reporting requirements) and Bill 23, More Homes Built Faster Act, 2022 (discussed further on the next slides).7Page 7 of 35
•The Province passed Bill 23: More Homes Built Faster Act, 2022 on November 28, 2022•This Bill amends a number of pieces of legislation, including the Development Charges Act (D.C.A.), and the Planning Act•These changes impact development charges (D.C.s), community benefits charges (C.B.C.s), and parkland dedication•The changes provided through Bill 23 would impact the Town’s ability to collect revenues to fund growth-related capital expenditures8Changes to the D.C.A.Bill 23Page 8 of 35
Changes to the D.C.A.Additional D.C. Exemptions:•Affordable Rental Unit: Where rent is no more than 80% of the average market rent, as defined by a new Bulletin,published by the Ministry of Municipal Affairs and Housing. •Affordable Owned Unit: Where the price of the unit is no more than 80% of the average purchase price, as defined by a new Bulletin, published by the Ministry of Municipal Affairs and Housing.•Attainable Unit: Excludes affordable units and rental units, will be defined as prescribed development or class of developmentand sold to a person who is at “arm’s length” from the seller.•Note: for affordable and attainable units, the municipality shall enter into an agreement which ensures the unit remains affordable or attainable for 25 years.•Inclusionary Zoning Units: Affordable housing units required under inclusionary zoning by-laws.•Non-Profit Housing: Non-profit housing units are exempt from D.C. installment. Outstanding installment payments due after this section comes into force will also be exempt from payment of D.C.s.•Additional Residential Unit Exemptions (units in existing rental buildings, 2nd and 3rd units in existing and new singles, semis, and rowhouses)9Bill 23•Affordable Rental Unit: Where rent is no more than 80% of the average market rent, as defined by a new Bulletin,published by the Ministry of Municipal Affairs and Housing. •Affordable Owned Unit: Where the price of the unit is no more than 80% of the average purchase price, as defined by a new Bulletin, published by the Ministry of Municipal Affairs and Housing.•Attainable Unit: Excludes affordable units and rental units, will be defined as prescribed development or class of developmentand sold to a person who is at “arm’s length” from the seller.•Note: for affordable and attainable units, the municipality shall enter into an agreement which ensures the unit remains affordable or attainable for 25 years.Currently NOT in force•Inclusionary Zoning Units: Affordable housing units required under inclusionary zoning by-laws.•Non-Profit Housing: Non-profit housing units are exempt from D.C. installment. Outstanding installment payments due after this section comes into force will also be exempt from payment of D.C.s.•Additional Residential Unit Exemptions (units in existing rental buildings, 2nd and 3rd units in existing and new singles, semis, and rowhouses)Currently in forcePage 9 of 35
Changes to the D.C.A.D.C. Discounts:•Rental Housing Discount (based on number of bedrooms – 15%-25%)D.C. Revenue Reduction:•Removal of Housing as an Eligible D.C. Service•Capital Cost Amendments (restrictions to remove studies and land)•Mandatory Phase-In of D.C. (Maximum charge of 80%, 85%, 90%, 95%, 100% for first 5 Years of the by-law) -These rules apply to a D.C. by-law passed on or after January 1, 2022•Historical Levels of Service from 10 years to 15 years10Bill 23Page 10 of 35
Changes to the D.C.A.D.C. Administration:•Maximum Interest Rate for Installments and D.C. Freeze (maximum interest rate would be set at the average prime rate plus 1%)•Requirement to Allocate 60% of the monies in the reserve funds for Water, Wastewater, and Services Related to a Highway•D.C. by-law expiry extended to 10 years11Bill 23Page 11 of 35
Development Charges OverviewTown of Aurora12Page 12 of 35
Relationship Between Needs to Service Growth vs. Funding13Service New Growth/UsersDevelopment ChargesRates, Taxes, Reserves, etc.Page 13 of 35
MethodologyThe following provides the overall methodology to calculating the charge:1.Identify amount, type and location of growth2.Identify servicing needs to accommodate growth3.Identify capital costs to provide services to meet the needs4.Deduct:i.Grants, subsidies and other contributionsii.Benefit to existing developmentiii.Amounts in excess of 15-yearhistorical service calculationiv.D.C. Reserve funds (where applicable)5.Net costs then allocated between residential and non-residential benefit6.Net costs divided by growth to calculate the D.C.14*Amended as per Bill 23Page 14 of 35
D.C. Eligible Services1.Water2.Wastewater3.Storm water drainage4.Services related to a highway5.Electrical power services.6.Toronto-York subway extension.7.Transit 8.Waste diversion9.Policing Services10.Fire protection11.Ambulance12.Library13.Long-term Care14.Parks and Recreation15.Public Health services16.Childcare and early years services17.Housingservices18.Provincial Offences Act19.Emergency Preparedness20.Airports (Waterloo Region only)15These D.C. eligible services are the Town’s current services. *Amended as per Bill 23Page 15 of 35
Service Standards•Service Standard measure provides a ceiling on the level of the charge which can be imposed•D.C.A., 1997, as amended, provides that the ceiling is based on the “average of the past 15 years”•The D.C.A. requires a detailed review of service levels and requires consideration of both “quality” and “quantity” measures•This involves reviewing capital inventories in detail over past 15years•Note that this measure does not apply to water, wastewater, storm water and transit (which now has a forward-looking service standard)16*Amended as per Bill 23Page 16 of 35
Example Service Standard Worksheet17Town of AuroraService Standard Calculation SheetClass of Service:Public Works - FacilitiesUnit Measure:sq.ft. of building areaDescription 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 20212022 20232019Bld'g Value ($/sq.ft.)2024Bld'g Value ($/sq.ft.)Value/sq.ft. with land, site works, etc.Building A 11,00011,00011,00011,00011,00011,00011,000--------$344$555$724Building B 4,4624,4624,4624,4624,4624,4624,462--------$344$555$724Public Works Depot 6,4006,4006,4006,4006,4006,4006,400--------$344 $555 $724Salt/Sand Dome 1,923 1,923 1,923 1,923 1,923 1,923 1,923--------$189$305$449Waterworks Storage Shed 96969696969696--------$189 $305 $449Joint Operations Centre - 66,000 sq.ft. (PW Share 59%)-------38,94038,94038,94038,94038,94038,94038,94038,940$349$563$814Total 23,881 23,881 23,881 23,881 23,881 23,881 23,881 38,940 38,940 38,940 38,940 38,940 38,940 38,940 38,940Population 51,337 52,710 53,203 52,938 52,868 52,383 52,976 55,444 59,111 60,031 60,521 61,358 62,057 62,829 63,277Per Capita Standard 0.4652 0.4531 0.4489 0.4511 0.4517 0.4559 0.4508 0.7023 0.6588 0.6487 0.6434 0.6346 0.6275 0.6198 0.615415 Year Average2009 to 2023Quantity Standard 0.5551Quality Standard $771Service Standard $428D.C. Amount (before deductions)2031Forecast Population 13,163$ per Capita $428Eligible Amount $5,632,448Page 17 of 35
18Example Service Standard WorksheetTown of AuroraService Standard Calculation SheetService: Public Works - FacilitiesUnit Measure: Value of facilities ($)Description 2009 2010 2011 2012 2013 2014 2015 2016 2017 2018 2019 2020 20212022 2023Building A 7,964,000 7,964,000 7,964,000 7,964,000 7,964,000 7,964,000 7,964,000--------Building B 3,230,488 3,230,488 3,230,488 3,230,488 3,230,488 3,230,4883,230,488--------Public Works Depot (Scanlon) 4,633,600 4,633,600 4,633,600 4,633,600 4,633,600 4,633,600 4,633,600--------Salt/Sand Dome 863,427 863,427 863,427 863,427 863,427 863,427 863,427--------Waterworks Storage Shed 43,104 43,104 43,104 43,104 43,104 43,104 43,104--------Joint Operations Centre - 66,000 sq.f-------31,697,16031,697,16031,697,16031,697,16031,697,16031,697,160 31,697,160 31,697,160Total 16,734,619 16,734,619 16,734,619 16,734,619 16,734,619 16,734,619 16,734,619 31,697,160 31,697,160 31,697,160 31,697,160 31,697,160 31,697,160 31,697,160 31,697,160Population 51,337 52,710 53,203 52,938 52,868 52,383 52,976 55,444 59,111 60,031 60,521 61,358 62,057 62,829 63,277Per Capita Standard 325.98 317.48 314.54 316.12 316.54 319.47 315.89 571.70 536.23 528.01 523.74 516.59 510.77 504.50 500.9315 Year Average 2009 to 2023Service Standard $ per Capita $428Page 18 of 35
Capital Costs•Capital Cost definition has been broadened to include:•Acquire land or interest in land•Improve land•Acquire, lease, construct or improve buildings, facilities and structures (includes furniture and equipment)•Equipment and rolling stock•Capital component of a lease for the above•Circulation materials for Libraries•Interest on money borrowed to pay for the above•Any planning horizon for future capital needs can be used, except for Transit (which is limited to 10 years)•Capital costs must be reduced by grants, subsidies and other contributions.•May include authorized costs incurred or proposed to be incurred by others on behalf of a municipality/local board19*Amended as per Bill 23 (see next slide)Page 19 of 35
Limitations on Capital•Certain Capital Costs may not be included:•Parkland Acquisition•Vehicle & Equipment with avg. life of <7 yrs•Computer Equipment that is not integral to the delivery of the service•Studies•Possible removal of land acquisition for services (yet to be defined by the regulations)20*Amended as per Bill 23Page 20 of 35
21Example Capital WorksheetInfrastructure Costs Included in the Development Charges CalculationTown of AuroraClass of SPublic WorksLess: Potential D.C. Recoverable CostPrj. NoUseful Life (years)Residential ShareNon-Residential Share2024 to 204368% 32%110 yr Debenture at 3.7% (Discounted Interest)2018-2022 574,018 574,018 - 574,018 - 574,018 390,332 183,6862 JOC Additional Work 28 2018-2019 1,456,800 2,350,000 - 2,350,000 - 2,350,000 1,598,000 752,0003 JOC debt 10 year (principal) 2018-2028 3,245,000 3,245,000 - 3,245,000 - 3,245,000 2,206,600 1,038,4004 JOC debt 10 year (discounted interest) 2018-2028 229,668 229,668 -229,668 - 229,668 156,174 73,4945 Water truck 10 2022 81,100 131,000 - 131,000 13,100 117,900 80,172 37,7286 Provision for additional vehicles & equipment 10 2020-2023 600,000 968,000 - 968,000 - 968,000 658,240 309,7607 New Snow Blower Attachments 10 2019 135,000 218,000 - 218,000 - 218,000 148,240 69,7608 Electric Utility Vehicle 10 2020 80,000 129,000 - 129,000 - 129,000 87,720 41,2809 By Law Vehicle 10 2019 60,000 97,000 - 97,000 - 97,000 65,960 31,04010 By Law Vehicle 10 2028 50,000 81,000 - 81,000 - 81,000 55,080 25,92011 Trackless s/w plow 10 2019 175,000 282,000 - 282,000 - 282,000 191,76090,24012 3/4 Ton Truck 10 2023 50,000 81,000 - 81,000 - 81,000 55,080 25,92013 2 Ton Truck 10 2027 70,000 113,000 - 113,000 - 113,000 76,840 36,16014 Plows - Contract 10 2019-2031 1,800,000 2,904,000 1,335,800 1,568,200 - 1,568,200 1,066,376 501,82415 Sidewalk plows - Contract 10 2019-2031 360,000 581,000 261,500 319,500- 319,500 217,260 102,240 Total 8,966,586 11,983,686 1,597,300 - 10,386,386 13,100 - 10,373,286 7,053,835 3,319,452Service Standard 12,135,600Amount Utilized 10,373,286Available 1,762,314Gross Capital Cost Estimate(2024$)Benefit to Existing DevelopmentGrants, Subsidies and Other Contributions Attributable to New DevelopmentTotalIncreased Service Needs Attributable to Anticipated DevelopmentTiming (year)Gross Capital Cost Estimate(2019$)Post Period BenefitOther DeductionsNet Capital CostPage 21 of 35
Summary of the D.C. Calculation22$Cost of Infrastructure Required to Accommodate GrowthResidential and Non-residential GrowthDevelopment Charge per Unit (for Residential Growth)Development Charge per Sq.ft. (for Non-residential Growth)Development ChargesPage 22 of 35
Local Service Policies•Section 59.1(1) and (2) of the Act “No Additional Levies” - prohibits municipalities from imposing additional payments or requiring construction of a service not authorized under the D.C.A. therefore, need to be clear:•What will be included in the D.C.; and•What will be required by developers as part of their development agreements•Items considered in Local Service Policies may include:•Local, rural, collector & arterial roads,•Intersection improvements & traffic signals,•Streetlights & sidewalks,•Bike Routes/Bike Lanes/Bike Paths/Multi-Use Trails/Naturalized Walkways,•Noise Abatement Measures,•Land dedications/easements,•Water, Wastewater & Stormwater, and•Park requirements.•May need to revise the policy from previous study based on discussions with staff.23Page 23 of 35
Local Service Policy24WATERWASTEWATERSWMRoadsSupplyTreatment TreatmentStorage BiosolidsMunicipal-Wide Development ChargeLarge System PumpingLarge System PumpingArterial Roads External to DevelopmentLarge Trunks Large TrunksCollector Roads External to DevelopmentLocalized Area PumpingLocalized Area PumpingDrain Enclosures, land, Traffic Signalization Internal or External to Developmentlocalized PS,Large Mains Large MainsSWM Ponds and Large MainsTraffic Control SystemsDirect Developer Responsibility (i.e. Local Service)Small Local MainsSmall Local MainsLocal Mains Road Improvements for AccessInternal Local Roads, Sidewalks, Streetlights and associated infrastructureAllocations of Services Included in Capital ChargesPage 24 of 35
D.C. Exemptions, Current Rates, and Assumptions for the 2024 D.C. Study25Town of AuroraPage 25 of 35
ExemptionsMandatory Exemptions•Upper/Lower Tier Governments and School Boards;•Industrial building expansions (may expand by 50% with no D.C.);•May add up to 2 apartments in an existing or new detached, semi-detached, or rowhouse (including in an ancillary structure);•Add one additional unit or 1% of existing units in an existing rental residential building;•Development of lands intended for use by a university that receives operating funds from the Government (as per Bill 213);•Affordable and Attainable units (to be in force at a later date);•Affordable inclusionary zoning units;•Non-profit Rental Housing; and•Discount for Rental units based on bedroom size.Discretionary Exemptions•Reduce in part or whole D.C. for types of development or classes of development (e.g. industrial or churches);•May phase-in over time (note mandatory phase-in from Bill 23); and•Redevelopment credits to recognize what is being replaced on site (not specific in the Act but provided by case law).26*Amended as per Bill 23Page 26 of 35
Current Discretionary Exemptions27•Private schools;•Cemetery or burial grounds;•Places of worship;•Agricultural uses; and•Public hospitals.Page 27 of 35
Current D.C. Rates28Effective July 1, 2023Non-ResidentialServiceSingle & Semi DetachedMultiplesApartments 700 sq.ft. and OverApartments Under 700 sq.ft.Special Care/Special Dwelling Unitsper sq.mGeneral ServicesFire Protection Services 1,272 947 769 526 393 6.00Parks and Recreation Services 20,974 15,593 12,667 8,683 6,462 10.00Library Services 2,179 1,620 1,316 901 671 1.00Growth Studies 1,108 825 670 458 341 5.00Total General Services 25,533 18,985 15,422 10,568 7,867 22.00Engineering ServicesServices Related to a Highway 8,769 6,519 5,298 3,632 2,702 39.00Wastewater Services 1,048 781 633 436 322 5.00Water Services 538 401 325 222 166 2.00Total Engineering Services 10,355 7,701 6,256 4,290 3,190 46.00Total Services 35,888 26,686 21,678 14,858 11,057 68.00ResidentialPage 28 of 35
Residential D.C. Rates29$0$20,000$40,000$60,000$80,000$100,000$120,000$140,000$160,000$180,000$ per Single Detached DwellingUpper Tier ChargesLower/Single Tier ChargesEducation DC'sPage 29 of 35
Non-Residential Retail D.C. Rates30$0$10$20$30$40$50$60$70$80$90$100$ per sq.ft.Upper Tier ChargesLower/Single Tier ChargesEducation DC'sPage 30 of 35
Non-Residential Non-Retail D.C. Rates31$0$10$20$30$40$50$60$70$80$90$100$ per sq.ft.Upper Tier ChargesLower/Single Tier ChargesEducation DC'sPage 31 of 35
Assumptions for the 2024 D.C. Study32•The 2024 D.C. Study could be considered an interim process due to the following:•The capital program within the Town’s budget reflects a 10-year forecast, which is consistent with the analysis undertaken during the 2019 D.C. study•The Town is currently undertaking a review of their growth forecast, which was recently presented to Council•The proposed growth forecast will provide the basis for Master Plans that are expected to be updated over the next few years•Upon completion of the Master Plans, the Town will update the D.C. study to reflect a longer-term forecastPage 32 of 35
Next Steps33Town of AuroraPage 33 of 35
Next Steps34طJune 2023 - OngoingReview of background data, modelling, meetings with staffطOctober 3, 2023Council WorkshopWinter 2023Stakeholder Meeting #2• Draft Service Standard Calculations and Capital Program• Draft RatesEarly 2024Release Background StudyEarly 2024Public MeetingMinimum of 60 Days After the Release of the ReportConsideration of the D.C. By-lawطSeptember 14, 2023Stakeholder Meeting #1 – Overview of D.C. Study ProcessPage 34 of 35
Questions35QuestionsPage 35 of 35