Zoning Amendment Application (17-Z-09)
Religious Institutions in Industrial Zones

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CONCLUSION

The applicant, who is a faith-based organization, proposes to amend the Regina Zoning Bylaw No. 9250 (Zoning Bylaw) to allow Religious Institutions as a permitted use in the industrial zones. Currently, religious institutions are not permitted or discretionary in industrial zones. The Administration has assessed the proposal and is recommending approval of amendments to accommodate the change in IT- Industrial Tuxedo Park Zone.

From time to time, the Administration receives interest by the faith-based organizations for reuse of existing industrial/warehouse space within industrial zones. Properties in industrial zones are attractive to religious institutions because of access to parking, cost and accessibility. They typically operate off-peak hours from adjacent users and land use conflicts with existing businesses are minimal.

At this time, the Administration recommends the amendment be limited to the IT – Industrial Tuxedo Park zone only. Limiting the amendment suits the interests of the City. Characteristics of the area would be attractive to religious institutions. Accordingly, the Administration supports the recommendations contained within this report.

BACKGROUND

A Zoning Bylaw Amendment application has been submitted to add Religious Institutions as a permitted land use in certain Industrial Zones.

This application is being considered pursuant to the Zoning Bylaw, Design Regina: The Official Community Plan Bylaw No. 2013-48 (OCP), and The Planning and Development Act, 2007.

DISCUSSION

Zoning Amendment Proposal

An application has been received for an amendment to the Zoning Bylaw that would allow religious institutions as a permitted use in industrial zones. The Administration originally reviewed the application by considering amending all industrial zones to allow religious institutions as a permitted use in all industrial zones with the exception of IC and IC1 – Heavy Industrial Zones. Currently, religious institutions are discretionary in all residential zones, permitted or discretionary in most commercial zones and permitted in the I-Institutional Zone.

While there is merit in considering an amendment that would apply more broadly to other industrial zones, in light of other current policy reviews researching barriers and opportunities to industrial development, the Administration is recommending that the amendment be limited to the IT-Industrial Tuxedo Park Zone. Depending on outcomes of these policy reviews, regulations respecting the location of religious institutions may are expecting to continue to evolve.

The proposed amendment to the IT – Industrial Tuxedo Park Zone will allow opportunities for religious institutions to develop close to employment populations. While the OCP speaks to protecting industrial lands for employment purposes, it also suggests that services that are of value to the employment population be permitted. The proposed rezoning strikes a balance between those two policy objectives. The IT - Industrial Tuxedo Park Zone already has a mixed-use character with services such as community centres and clubs, restaurants and is in close proximity to other cultural assets in the city.

Furthermore, allowing for greater flexibility of location will benefit all religious groups seeking new spaces. Within the context of growth of international migration to the city, this amendment will facilitate settlement and integration of those groups. Some religious groups have been known to open their doors for use of space for cultural or social gatherings and events.

Trends in Religious Institution Development

As society’s relationship with organized worship has changed over the decades, so too have land use and transportation patterns. The most notable societal change is that Canada-wide from 1971 to 2011 there was an overall increase in those claiming no religious affiliation from four per cent to 24 per cent. Those who claim religious affiliation is also changing: during the same time period there was a reported decline in those who identify as Catholic from 47 per cent to 39 per cent; and, a decline of those identifying as Protestant from 41 per cent to 27 per cent. However, other religions have experienced growth over the same time period from four to 11 per cent (1971-2001 Census; 2011 NHS).

Assuming the Canada-wide trends resemble those in Regina, this shift has produced different land use and transportation patterns. Anecdotally, it has been observed that smaller churches, typically more integrated into residential communities are closing and consolidating into larger facilities, fewer and further between. Those historical facilities were built with very little parking on site because people would live nearby and walk with their families to services. Some other religious institutions are growing, but prefer much larger, multi-purpose buildings, which serve a much broader geographic area. The Administration has consulted with smaller organizations who may be new to the city who have had difficulty finding space for a small community, due to lack of suitable space, often due to parking or land use restrictions.

The result is that religious institutions more often draw from city-wide areas rather than the immediate community, which generates more demand for parking and traffic. Historical facilities in residential areas with good attendance of services occasionally create conflicts with residential areas due to lack of parking. Religious groups are looking to alternative locations to suit their needs. There have been no new religious institutions built in new residential neighbourhoods (235,000 growth scenario) and only a few built throughout the city in recent years.

There are now a wider variety of affiliations who use space differently. For instance, worship schedules may be more frequent than weekly. In some cases worship is perhaps one component to other uses in the facility. Some denominations also use spaces for ethno-cultural community centre, cultural school, community fund-raising activities, open recreation, and food preparation as part of custom. From this respect there are blurred lines between the definition of a religious institution and a community centre or club as defined in the Zoning Bylaw.

Land Use Compatibility and Comparable Use

Industrial areas and religious institutions would be compatible for a variety of reasons:

·         Industrial sites are often larger and have opportunity for ample parking.

·         Traffic and parking impact should be of less concern as compared to religious institutions in some other areas such as residential. Peak times for religious institutions are usually off peak from surrounding businesses.

·         Some religions may also allow for routine prayer times at their facilities for their followers, and in this respect would act as a service to the local employment population.

·         Community centres, clubs, and recreation service facilities are comparable permitted uses in industrial zones, and places of worship are a closely related land use to those, which already exist in industrial zones.

Applications for permitted land uses are reviewed for compliance with the development standards contained in the Zoning Bylaw through the development/building permit process. This includes consideration of site development elements such as landscaping, parking, building location, loading and building height.

RECOMMENDATION IMPLICATIONS

Financial Implications

There are financial implications to the City of Regina as Religious Institutions that are owned and operated by the institution do not pay property tax. However, based on land values, on balance there would be a negligible difference to the City’s financial interests if a religious institution chose to locate on an industrial site versus a commercial or institutional site.

Environmental Implications

None with respect to this report.

Policy/Strategic Implications

The proposal relates to the policies contained within Part A of the OCP with respect to:

Section D5: Land Use and Built Environment

Goal 4 – Employment Areas: Provide appropriate locations and development opportunities for a full range of industrial, commercial and institutional activities.

7.21 – Ensure an adequate supply of serviced industrial land to maintain a diverse range of development opportunities.

7.23 – Protect industrial lands by avoiding re-designations or industrial areas, except where the City determines that a different land use is more beneficial.

7.24 – Within industrial areas, permit supporting services or amenities that complement industrial uses or cater to industrial employees and customers.

Section D8: Culture

Goal 2 – Inclusion: Ensure learning opportunities, resources and activities provided by the City are culturally inclusive.

10.12 – Respond to the cultural needs and aspirations of Regina’s increasingly diverse population through culturally relevant programs, services and facilities.

Goal 5 – Social Inclusion: Ensure that Regina is socially inclusive and strives for social equality regardless of age, ethnicity, religion, income, sexual orientation, ability or family structure.

13.22 – Identify opportunities to collaborate with the community and support the improved settlement and integration of international immigrants.

Other Implications

None with respect to this report.

Accessibility Implications

Any new religious institution would be required to conform to any accessibility standards, including but not limited building standards and accessible parking standards.

COMMUNICATIONS

Communication with the public is summarized as follows:

The proposal was originally reviewed as to apply generally to all industrial zones other than the IC and IC1 – Heavy Industry Zones. A decision was made after public consultation to recommend amendments only to the IT Zone. Comments received from the public are in reference to the broader scope amendment. In order to get input the Administration used social media to advise the general community about the amendment and to seek feedback through its website. Comments received were in response to that original proposal.  The City received 143 responses before the deadline. A detailed account of the comments and Administration’s response is provided in Appendix B of this report.

DELEGATED AUTHORITY

City Council’s approval is required, pursuant to Part V of The Planning and Development Act, 2007.

Ben Mario, Senior City Planner and Punya Sagar Marahatta, City Planner II