Regina Business Park Study: City of Regina March 8, 2012

Prepared by: MacNaughton Hermson Britton
Clarkson Planning Limited (MHBC)

Contact: David A. McKay, MSc, MCIP, RPP
Partner, MHBC
7050 Weston Road, Suite 230
Woodbridge, ON L4L 8G7
T 905 761 5588 x214
F 905 761 5589
REGINA BUSINESS PARK STUDY
City of Regina
March 8, 2012
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Table of CONTENTS

1.0
Introduction 1
1.1 Purpose 1
1.2 Objectives 2

2.0
Existing Conditions 3
2.1 Background 3
2.2 Economic Context 3
2.2.1 Population and Employment Growth 4
2.2.2 Land Use and Development Profile 5
2.3 Summary of Policies, Plans and Regulations 5
2.3.1 Regina Development Plan 5
2.2.2 Regina Zoning Bylaw 7
2.4 Business Park Development in Regina 8
2.4.1 Distinctive Features of Business Park Development 8
2.4.2 Advantages of Business Park Development 8

3.0
Demand Projections for Office Uses 10
3.1 Assumptions 10
3.1.1 Floor Space per Employee 10
3.1.2 Employment Projection Numbers 10
3.1.3 Office Worker Projection Numbers 11
3.1.4 Tracked and Untracked Office Space 12
3.2 Methodology & Calculations for Office Space Demand 12

4.0
Distribution and Balance of Office Space 15
4.1 Existing Distribution of Office Space 15
4.2 Approved and Proposed Office Space 16
4.3 Distribution of Projected Office Space Scenarios 19
4.4 Land Supply 22

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5.0
Business Park Policy Best Practice Analysis 23
5.1 Size Thresholds Major Office 23
5.2 Maximum Density 24
5.3 Location Criteria 24
5.4 Zoning Standards 24
5.5 Parking Standards 25
5.6 Parking Configuration Incentives 25
5.7 Phasing 27

6.0
Policy Recommendations 29
6.1 Recommended Location Criteria 29
6.1.1 Proximity and Access to Existing Infrastructure 30
6.1.2 Potential Synergies with Adjacent Land Uses 32
6.1.3 Analysis 33
6.1.4 Findings 34
6.2 General Policy Framework 36
6.3 Phasing of Multiple Business Park Developments 37
6.4 Parking Reduction / Configuration Incentives & Policies 38
6.5 Alternative or Complimentary Control Tools 39
6.5.1 Alternative 1 Consider Business Park Development as a Subdivision 39
6.5.2 Alternative 2 Make All Business Park Developments Contract Zones 40
6.5.3 Alternative 3 Make All Business Park Developments Direct Control Districts 41
6.6 Proposed Zoning By-law Regulations for Business Parks 42

7.0
Business Park Design Recommendations 45
7.1 Public Realm Principles 45
7.1.1 Overall Business Park Design 45
7.1.2 Street Network 46
7.1.3 Streetscapes 46
7.1.4 Open Space 47
7.2 Private Realm Principles 47
7.2.1 Yards 47
7.2.2 Parking 47
7.2.3 Landscaping 48
7.2.4 Shared Amenities 49

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7.3 Built Form Principles 49
7.3.1 Massing and Orientation 49
7.3.2 Building Elevations and Materials 49
7.3.3 Building Entrances 50
7.3.4 Outdoor Storage 50
7.4 Sustainability Principles 50
7.4.1 Site Features 50
7.4.2 Building Features 51

8.0
Conclusions 52

Tables
Table 1: Summary of Office Permissions in Regina Commercial Zones 7
Table 2: Calculated Demand for Office Space for Regina CMA, 2010-2035 13
Table 3: Projected Demand for Office Space for Regina CMA, 2010-2035 13
Table 4: Summary of Total Office Space Requirements by 2035 14
Table 5: Existing Distribution of Office Space, Regina CMA 15
Table 6: Approved and Proposed Office Space, 2012 17
Table 7: Summary of Total Approved and Proposed Office Space, 2012 17
Table 8: Distribution of Office Space Existing + Approved, 2012 Regina CMA 18
Table 9: Distribution of Office Space Existing, Approved +Proposed, 2012 Regina CMA 18
Table 10: Distribution by Scenario of Office Space (2035) 20
Table 11: Location Criteria Analysis Summary 34

Charts
Chart 1a: Existing Distribution of Office Space, Regina CMA 16
Chart 1b: Existing Distribution of Office Space, Regina CMA 16
Chart 2a: Distribution of Existing + Approved Office Space 19
Chart 2b: Distribution of Existing + Approved + Proposed Office Space 19
Chart 3a: Scenario 1 Status Quo 21
Chart 3b: Scenario 1 Status Quo 21
Chart 4a: Scenario 2 Low Introduction of Business Park 21
Chart 4b: Scenario 2 Low Introduction of Business Park 21
Chart 5a: Scenario 3 Medium Introduction of Business Park 21
Chart 5b: Scenario 3 Medium Introduction of Business Park 21
Chart 6a: Scenario 4 High Introduction of Business Park 21
Chart 6b: Scenario 4 High Introduction of Business Park 21

Figures
Figure 1: Existing Infrastructure 31
Figure 2: Synergies 33
Figure 3: Findings 35
Regina Business Park Study
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1.0
INTRODUCTION

After an extended period of slow and steady growth, Regina has expanded significantly over the past five
years and is now one of several cities leading the country in economic and population growth. Reginas
success in attracting new residents and businesses is owed to its balance of rural and urban amenities,
resource-rich location attributes, affordability and quality of life. As a rapidly growing city with significant
opportunities, land use and development patterns must be carefully managed to meet the full range of
current and future needs of citizens and investors. This is the case for all types of land uses, including a
range of employment and office uses.

Regina currently enjoys a vibrant downtown commercial district, where the majority of office uses in the
City are concentrated. Regina is also experiencing one of the tightest commercial office markets in Canada,
with the current office vacancy rate at one percent. This has fuelled demand for new construction while
also increasing leasing rates. As the capital city and primary centre for commerce and public
administration in the province, it is critical to ensure that a sufficient supply and mix of land is available for
the development of a variety of employment uses. This includes encouraging a healthy office market that
supports opportunity for business expansion and investment as the city grows. This will be accomplished
by balancing the intensification and diversification of existing employment areas with the sustainable
development of new office space on greenfield lands.

MHBC has been retained by the City to prepare a limited study intended to determine the feasibility of
office development in a business park context without jeopardizing the viability of the Downtown as the
primary office and employment hub of the City.

1.1 Purpose

This study is intended to assist with the development of policies for regulating the development of offices
within a business park context, should the City support this development concept. To this end, this study
examines existing and projected market demand for office space, development policy conditions, trends,
and best practices as a basis for developing measures for managing the quantity, quality, balance and
distribution of future business park development with a significant office component.

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1.2 Objectives

The key objectives of the study are:

1. To assess historical and forecasted demand for office space based on existing studies and analysis
conducted to date.

2. To determine an appropriate and acceptable balance of business park development and
downtown office development, including:
a) Recommendations for maximum floor area allowances for business park development per
building, per business park development, per identified business park development area and
maximum city wide; and
b) Targets, upset limits and evaluation tools for monitoring demand, balance, mix and phasing
of business park development over time, ensuring the viability of the downtown office
market and preserving downtown as the primary employment hub.
3. To identify appropriate and inappropriate uses and supporting services (e.g. tenant types) for
business parks to ensure that demand for downtown office space is not compromised.

4. To identify location criteria that ensure business parks are located in a way that:
a) Support pedestrian, transit and vehicular access;
b) Support access to compatible land uses, such as major residential areas, airports, and
business parks, and;
c) Limits business park proliferation and limits development to specific ideal locations.
5. To identify design guidelines pertaining to business park sites, buildings and the relationship
between site components and adjacent land uses, which are intended to:
a) Support aesthetic considerations relating to good design, pedestrian/human scale and place
making;
b) Optimize transit, vehicle and pedestrian accessibility, and integration with surrounding
development; and
c) Distinguish business park buildings, and set parameters for optimal form, massing, and
design.
6. To identify detailed direction and recommendations respecting appropriate policy, zoning
regulations and design guidelines that are intended to address and support objectives 2 5
above.

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2.0
EXISTING CONDITIONS

2.1 Background

A range of studies and reports have already been completed by the City of Regina that provide significant
background and context to this Study. Most of these studies have been undertaken as part of the
preliminary analysis for the preparation of a new Official Community Plan (OCP), intended to replace the
existing Plan, which dates to 1984. The new OCP will guide the growth and development of Regina for the
next 25 years. This study, like the studies below, is intended to inform the policy and regulatory framework
for growth management and community planning contained in the OCP and Zoning Bylaw. This Study
builds on data and research emerging from these and other studies and sources, with particular emphasis
on the following:

Population, Employment and Economic Analysis of Regina, prepared for the City of Regina by
Derek Murray Consulting and Associates (DMCA), June, 2010
Where Business Grows Business Development and Employment Trends, prepared for the City
of Regina by Derek Murray Consulting and Associates (DMCA) September, 2010
Land Capacity Study (LCS), prepared for the City of Regina by Cushman & Wakefield Ltd.
(LCS), September, 2011
Regina Office Study (ROS), prepared for the City of Regina by Dialog (ROS), January, 2012
Regina Downtown Development and Market Opportunities Study, prepared for the Regina
Downtown Business Improvement District by MHBC (May, 2011)
Commercial Office Impact Analysis, prepared for the Regina Downtown Business
Improvement District by MHBC (March, 2011)

Three sets of forecasted population, economic, and labour force growth scenarios were proposed in the
studies conducted by Derek Murray Consulting and Associates. For the purposes of this report, the
Medium Growth Scenario was adopted in every category for estimating current and future growth in
Regina. A moderate economic growth scenario to 2035 assumes annual GDP growth of 1.5% to 3.0% with
a labour force participation rate of 68% to 69%.

2.2 Economic Context

The City of Regina is the capital of Saskatchewan, and the financial, professional, and administrative centre
of southern Saskatchewan, encompassing a trade area of about 500,000 people. Located in the heart of
western Canada, Regina is close to the midway point between Winnipeg and Calgary on the Trans-Canada
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Highway. Well integrated via infrastructure with all major western Canadian cities and the US Midwest, the
city is the southern gateway to a mineral and resource rich export economy.

Regina is enjoying a period of significant growth and economic expansion, underpinned primarily by
resource sector expansion in potash, oil & gas, coal and uranium, and expansion in infrastructure and
construction. GDP growth is forecast to grow between 1.5% and 3.0% annually to 2035. As global demand
for Saskatchewans natural resources have grown, the economic fortunes of the province and the city have
shifted significantly in the past few years. While Saskatchewan and Regina were experiencing a long-term
trend of out-migration less than a decade ago, Saskatchewan is now forecast to lead all Canadian
provinces in economic and population growth over the coming years.

Historically, major areas of growth for Regina have included professional, scientific and technical services;
mining, oil and gas, and construction; and finance, insurance and real estate. Between 1987 and 2009, the
greatest employment growth occurred in the professional, scientific and technical, and finance, insurance
and real estate sectors. Today, Regina captures the greater share of the utilities sector, due to its status as
the service base for provincial utilities, such as Crown Corporations SaskEnergy, SaskPower, and Sasktel.
Regina is also leading in the provincial capture of information and cultural industries, finance and
insurance, arts/entertainment and recreation, and public administration sectors. Growing or emerging
industries include mining, oil and gas, manufacturing and construction, and transportation and
warehousing sectors.

2.2.1 Population and Employment Growth

The DMCA studies, completed in 2010, identified current economic, business and employment trends, and
provided population and employment projections to 2035. With an existing City population of about
200,000 residents (CMA population of 218,000), and growing by 1.5% per year, the City expects to add
64,657 residents (72,305 for the CMA) by 2035 for a total population of 257,950 (282,000 for the CMA).
Assuming moderate economic growth levels, Reginas population will have to grow by 3,750 to 4,500
annually in order to meet labour force requirements. This would be a significant departure from long-term
historic growth patterns.

Employment in the Regina CMA grew by 11.5% between 1998 and 2009. Projections show continued and
diverse employment growth for Regina, at an annual increase of 1.3% from 2010 to 2035. Job growth has
steadily increased since 2005, and Regina is experiencing one of the lowest unemployment rates in the
country at 3.8%.
1
Employment growth has outpaced population growth over the past 10 years, adding
1,438 jobs annually compared to population growth of 1,125 annually. Labour force growth has outpaced
population growth at a rate that has resulted in high labour force participation rates, low unemployment
rates, and labour shortages, a situation that is not sustainable in the long term unless supported by
additional and sustained population growth. Labour force shortages are increasingly problematic for
growing businesses, to the point where shortages are now constraining growth. To support the addition
of the forecasted 17,800 jobs (a rate of 1,600 annually) to 2035, Regina will require significant in-migration
to the labour market, continued growth of participation rates and intensification of appropriate and
effective skills training in order to meet the economic growth projections.

1
Statistics Canada, Labour Force Survey, January, 2012
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2.2.2 Land Use and Development Profile

Occupying a land area of 118.87 square kilometres, with a population density of 1,508 inhabitants per
square kilometre, Regina is situated on flat, treeless, mixed-grass plains. The only topographic feature of
note is a small creek, which feeds into the man-made Wascana Lake. Wascana Park itself is one of the
largest urban parks in North America, and home to the legislative buildings of Saskatchewan. Regina has
grown in a classic pattern, expanding fairly evenly in each direction from the Downtown along an
extended grid street system and dividing functions and uses into distinct, clearly defined areas.

While the residential population is fairly evenly distributed throughout the city, office employment is
highly concentrated in Reginas downtown core. This is reflected in the concentration of office space, of
which 84% is located downtown and in the area surrounding downtown (the Inner City), with the
remaining 16% distributed across the city, primarily along mixed-use corridors and adjacent to major
institutional uses. Major industrial uses are concentrated on the north eastern edge of the city, and also in
the southwest in close proximity to the airport where a new transportation and logistics hub is under
development.

Only one business park has been developed in Regina to date. Regina Research Park, otherwise known as
Innovation Place, is owned and operated by a Provincial Crown Corporation. Located adjacent to the
University of Regina, this research park was designed as an incubator for research-related businesses and
organizations in the information technology, petroleum, and environmental sciences sectors. Innovation
Place is home to approximately 40 organizations in six buildings, employing more than 1,600 people.
Major tenants include the Petroleum Technology Research Centre, the Greenhouse Gas Technology
Centre, the Saskatchewan Disease Control Laboratory, and ISM Canada.

Another site for business park development has been proposed by private sector proponents for the area
south of the Regina Airport at the western edge of the city. While approval has been given for the
construction of one, 3,717 sq m (40,000 sq ft) office building, further development of office uses on the site
has been restricted pending further study by the City.

2.3 Summary of Policies, Plans and Regulations

2.3.1 Regina Development Plan

The Regina Development Plan is the Citys official policy guide for the use and development of land. The
plan consists of multiple parts, but the general policies are contained in Part A. The overall planning
approach is based on the concept of sustainable development, which is reflected in the two fundamental
planning principles, as well as the general objectives of Part A. The Plan clearly identifies Downtown as the
focus of commercial activity and investment in the City, and contains a range of policies intended to
reinforce Downtowns role as the primary employment and cultural hub of the city. The Plan encourages
Major Office to locate Downtown, and limits the development of employment nodes outside the
downtown to local services or uses which are otherwise considered inappropriate for locating in the
Downtown.

The Development Plan does not specifically designate land uses except within the context of Specific Area
Plans and Secondary Plans. Land use policy is further detailed through the Regina Zoning By-law. The Plan
divides the city into five sectors for which there are detailed sector plans. Each sector plan contains a high-
level conceptual land use structure, development objectives and policies to guide development for the
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sector area, as well as policy directions for commercial development and sensitive integration of
commercial land uses with adjacent uses.

The exception is the Sector Plan for the Inner City. This plan is limited in scope compared to the other
sector plans, as the neighbourhoods identified as part of the Inner City each have neighbourhood plans
that contain specific and textured policies for those defined areas. A new comprehensive plan for
Downtown was created in 2009, but has not yet been approved as a bylaw amendment to Part G
Downtown of the Regina Development Plan.

Policies considered to be of particular relevance to this study are as follows:

To promote the downtown as the key element of city life containing the widest range of
goods and services and the largest concentration of commercial employment
opportunities for Regina residents (Section 4.1.a).

To direct new urban development in a sustainable manner, which supports economic
sustainability by minimizing the cost of developing and maintaining services, social
sustainability by giving proper emphasis to neighbourhood renewal and revitalization,
and environmental sustainability by promoting a compact, balanced urban form that
minimizes travel distances and supports transit (Section 4.1.b).

To ensure that Reginas existing and future land supply are adequate in relation to the
requirements of industrial and commercial development in the city by:

(i) Facilitating the implementation of an economic development strategy from a land
use perspective;
(iv) Integrating non-aviation industrial and commercial development of Regina Airport
with the citys overall development;
(v) Promoting the continued development of the downtown as Reginas primary
business, office, cultural and administrative centre;
(vi) Identifying opportunities for new forms of development specific to potential for
economic development (e.g. office business park, low service industrial area);

(Section 4.1.f)

That the City of Regina shall encourage the retention and enhancement of the downtown
as the primary business, office, cultural and administrative centre of the city (Section
4.10.a).

That major office uses, hotels, convention centres, government buildings, entertainment
uses and cultural facilities shall be encouraged to locate in the downtown (Section 4.10.b).

That the downtown shall be maintained and enhanced as the principal office
employment centre (Section 5.3.e).

That employment nodes outside the downtown should be limited to local services or uses
which are otherwise inappropriate downtown (Section 5.3.f).

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That commercial uses should be allocated through the process of subdivision design and
zoning in a manner which facilitates combined trips (Section 5.3.g).

That larger neighbourhood or district scale facilities should be located on transit routes in
order to provide an alternative to automobile use (Section 5.3.k).

2.3.2 Regina Zoning By-law

The designation and regulation of land uses is primarily established in Chapters 3 and 5 of the Regina
Zoning By-law. Detailed regulations for individual commercial zones and specific commercial uses are
provided in Chapter 7 Commercial Zone Regulations. Office uses are defined as follows:

Office - a place where non-retail business affairs and conducted for the following purposes:

(a) Administration;
(b) Sales;
(c) General business;
(d) Professional services;
(e) Real estate; or
(f) Insurance offices.

The following sixteen different zones allow permissions for commercial office development:

Table 1: Summary of Office Permissions in Regina Commercial Zones
Designated Shopping Centre (DSC) Permitted Use, no restrictions
Downtown (D) Permitted Use, no restrictions
Highway Commercial (HC) Discretionary Use, no restrictions
Local Commercial One (LC1) Permitted Use: GFA of 200 sq m or less on a single lot basis
Discretionary Use 34: GFA greater than 200 sq m but less
than 300 sq m is at Councils discretion
Local Commercial Two (LC2) Permitted Use: GFA of 200 sq m or less on a single lot basis
Discretionary Use 34: GFA greater than 200 sq m but less
than 300 sq m is at Councils discretion
Local Commercial Shopping Street
(LC3)
Permitted Use: GFA of 150 sq m or less, GFA greater than
150 sq m but less than 300 sq m is at Councils discretion
Mixed Residential Business (MX) Permitted Use, no restrictions
Mainstreet (MS) Permitted Use: GFA of 500 sq m or less on a single lot basis
Discretionary Use: GFA more than 500 sq m on a single lot
basis
Major Arterial Commercial (MAC) Permitted Use: GFA of 500 sq m or less on a single lot basis
basis
Major Arterial Commercial Three
(MAC3)

Permitted Use: GFA of 500 sq m or less on a single lot basis
basis
Neighbourhood Convenience (NC) Permitted Use, no restrictions

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Industrial Zones
Light Industrial (IA, IA1) Discretionary Use
Prestige Industrial Service (IP)

Permitted Use: GFA of 500 sq m or less on a single lot basis
Discretionary Use: GFA greater than 500 sq m on a single
lot basis
Industrial Tuxedo Park (IT) Discretionary Use, no restrictions
Dewdney Avenue Warehouse (WH) Discretionary Use, no restrictions

The majority of these Zones, while permitting office uses, have either limitations placed on them outright
or are treated as discretionary uses where limitations can be placed on them through the development
approvals process.
2.4 Business Park Development in Regina
2.4.1 Distinctive Features of Business Park Development
Business parks have three features that make them a form of development that is distinct from other office
designations. First, business parks are designated areas for business and economic uses that require some
degree of separation from residential areas, either to facilitate their operations or to prevent negative
impacts on other land uses. Second, business parks are designed to be a lower density form of
development than is found in mixed use corridors or dense urban cores. Land use needs for prestige
industrial, office and supporting services are different from the types of employment typically found in
downtown financial districts, in that they require more land to accommodate mechanical equipment,
vehicles, or other uses within the lands and buildings that they occupy. For example, a technology
development company may require facilities that can accommodate a significant amount of office space
in addition to laboratories and research facilities on the same site.
Thirdly, business parks are typically designed to allow an agglomeration of companies to locate in close
physical proximity to one another in a designated setting. The mix of uses available in a business park is
typically limited to employment and light industrial type uses, offices, and supporting services. Designed
to cater to the specific needs of companies, they tend to serve companies engaged in research, trade,
industry, and a range of commercial activities that do not typically locate in dense urban districts.
2.4.2 Advantages of Business Park Development
There are several advantages by permitting business park development in Regina. Markets with a diverse
range of options for office space in terms of building size, design, location and features are more capable
of attracting and retaining business; maintaining employment growth; and support the diversity of a
municipalitys economy.
From an economic development perspective, business parks allow for synergies to be created from
clustering similar companies and functions in an area which can result in innovation and business growth.
Business parks are particularly attractive for medium to large sized companies that require larger floor
plates and a range of features than smaller companies typically locating in offices that are wrapped into
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buildings or developments with other uses. However, business parks are suitable for a very particular
market segment, and the lower intensity of land use found in business parks is something that should be
carefully regulated to ensure growth management and sustainability goals of the community are met.
It is our opinion that Regina is underserved not only in terms of office space, but the diversity and choice
available for office space. There are currently few options in suburban locations, and providing a greater
variety of office types would be beneficial to the Citys economic health. There is considerable demand for
new office space in Downtown and elsewhere in Regina. Where the existing range and diversity of office
space is very limited, allowing a low to medium introduction of business park development would
enhance availability and choice in a currently narrow market, providing opportunity for new and existing
businesses room to grow. It is critical that new business park development is well planned and regulated
to ensure the continued success of the downtown office market, while providing sufficient flexibility to
meet market demands in the City.

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3.0
DEMAND PROJECTIONS FOR
OFFICE USES

The job growth projected for the Regina CMA will increase the demand for space in new offices, hotels,
stores, warehouses and other employment buildings. Demand for office space is the sum of the demand
for new and replacement space as employment growth occurs. How much land is needed for office uses
depends on the number of annual expected jobs, and the proportion of jobs in each sector that will
require office space. It also depends on what densities are expected in different types of office
development, and the proportion of land allocated for each type of office development. For example, we
would expect a high rise office tower to have a much higher employment density than a low-rise
suburban office building, although they may both occupy a similar land area.

3.1 Assumptions

The following assumptions were used in the calculations and analysis conducted in this report.

3.1.1 Floor Space per Employee

The space occupied by office employees is calculated in terms of square metre or square feet of office
space per employee. Estimations and targets for the average square footage requirements per employee
vary, but the industry standard for office space is approximately 23 sq m per employee (250 square feet per
employee). MHBC has chosen to use this standard for calculating land use demand, rather than the 226
square feet (21 sq m) used in the ROS report, or the 134 sq ft per employee used in the DMCA report.

3.1.2 Employment Projection Numbers

The service base for the citys economy is the CMA. Regina draws a commuter shed from across the CMA
and surrounding region, stretching out about 100 kilometres in each direction from the city. A high
proportion of residents in the commuting area come to Regina for employment on a regular basis.
Growth projections for Reginas commuting region show the area will grow to 282,000 by 2035, based on
a less than average growth rate (1.08% annually) for CMA growth in Canada. MHBC has used CMA
numbers for calculating office space demand. The Where Business Grows study by DMCA notes the
significance of using CMA numbers in creating growth demand scenarios for employment:

The reason communities are included in the CMA of a surrounding city is that at least half of the
communitys workforce is working in the respective city. As an example, if half of Indian Heads
workforce was found to be working in Regina, they would be added to Reginas CMA. The city
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labour force projections for the city alone are for people who work and live in Regina only, not
including those who live outside Regina but work in Regina. As such, the CMA projections are
closer to the actual total labour force in Regina, regardless of whether the employees are Regina
residents or not.
2

This assumes that within reason, Regina captures a significant amount of employment from the
surrounding region, and therefore also supports this employment via infrastructure and the development
of industrial and commercial lands. For this reason, MHBC has selected to use CMA data sets and
projection numbers for calculating the demand for future office space land uses in Regina, rather than the
City projections used in the ROS report.

It is also worth noting that MHBC has chosen to use only the 2010-2035 projection period numbers from
the DMCA report for calculating demand. The report also provides tables and data sets showing projected
labour force growth from 2010 to 2020, which were used to calculate the office demand in the ROS report.
MHBC has selected the 2010-2035 numbers for two reasons:

1) The 2035 projection period is a time horizon that aligns with the time horizon of the Official
Community Plan. The bulk of the data in the DMCA report uses this projection period. It is
also an appropriate time period to use for growth management planning of this scale. An
eight-year time horizon between now (2012) and 2020 is not sufficient for illustrating the
impact of the growth scenarios in this report over time.

2) The rate of employment growth is more aggressive in the first few years of the projection
period (now until 2020) after which it slows, particularly in certain sectors such as
transportation and warehousing, finance, construction. The rate of growth per year changes
most significantly after 2015. Therefore, calculations based on projections to 2020 will
produce greater employment figures and office space demand than if using calculations for
the entire projection period (2010 to 2035). The numbers even out over the longer time
period and are therefore more appropriate to use for planning purposes.

3.1.3 Office Worker Projection Numbers
Only a portion of the jobs in Regina, today and in the future, will require office space. In order to accurately
estimate the number of office workers from the total employment projection numbers, the number of
office jobs required per sector must be determined. For example, the number of office jobs (and therefore
office space) produced by growth in the agriculture sector differs vastly from the number of office jobs
produced by growth in the financial sector. In order to project the number of office jobs by sector,
average office space utilization ratios (demand factors) were applied to the projected employment
demand in each sector to determine the number of office workers needing office space by sector and in
total. MHBC used the same demand factors as DMCA (Howland and Wessel and Conference Board of
Canada), as we felt that those used in the ROS were out of date and less accurate.
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2
Where Business Grows Business Development and Employment Trends, prepared for the City of Regina by Derek Murray
Consulting and Associates (DMCA) September, 2010\
3
Sources: Where Business Grows Study, Derek Murray Consulting and Associates, 2010; Projecting Suburban Office Space Demand:
M. Howland and D. Wessel, Alternative Estimates of Employment in Offices, Journal of Real Estate Research, Summer, 1994, 369-
389; Conference Board of Canada, Office Space Utilization Averages and Projecting Office Space Demand, 2009.
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3.1.4 Tracked and Untracked Office Space
As per the industry standard, we have used only tracked office space, meaning competitive and non-
competitive buildings in Class A, B+ and B categories, to quantify office space in Regina.
4
These are
buildings considered to be of sufficient size and quality as to accommodate most office uses. Untracked
office space, such as buildings less than 929 square metres (10,000 square feet) in size, or small office uses
in retail strips or within major institutions like hospitals, are not included in our quantification and
projection of office space.
3.2 Methodology & Calculations for Office Space Demand
MHBC has chosen to employ a different methodology for calculating land demand than is found in the
studies already completed for the City. This results in slightly different demand projections for the amount
of office space than that found in the Regina Office Study.
As noted above, we have used the Regina CMA employment growth projections and other data provided
in the DMCA studies and employed a method similar to that used in the Where Business Grows Study as
follows:
1) Use employment growth projections from Where Business Grows Study by DMCA
CMA numbers used (not City numbers) from 2010-2035
Based on the medium growth scenario, projected employment growth for the Regina
CMA to 2035 will be 47,718.

2) Apply demand factors to employment growth projections by sector (NAICS) to calculate the
number of office workers (employees) requiring office space to 2035
Standard ratios used, ratios differ by sector
We applied the same average office space utilization rates (by sector) used in the Where
Business Grows Study, and calculated the projected number of employees that will require
office space to 2035 (6,805 employees to 2035 or on average 272 office employees per
year)

3) Apply space required per worker to total number of offices workers
We then applied the industry standard of 23.225 sq m per employee (250 square feet per
employee) to the total number of projected office workers requiring office space to
determine the total demand for office space 158,046 sq m (1,701,193 sq ft).

4) Calculate annual demand between 2010 and 2035 results in 6,322 sq m (68,048 sq ft) per year of
office demand

4
Avison Young Regina Office Market Report, 2011 and 2012. Colliers International Quarterly Market Reports, 2010 and 2011.
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These calculations are summarized in the following table:

Table 2: Calculated Demand for Office Space for Regina CMA, 2010-2035
Employment Growth 47,718
Office Workers Needing Office Space 6,805
Space per Office Worker 23.225 sq m (250 sq ft)
Total Demand for Office Space to 2035 158,046 sq m (1,701,187 sq ft)
Annual Demand for Office Space to 2035 6,322 sq m (68,048 sq ft)
Note: calculations may not equal due to rounding and conversion of areas between metric and imperial units

With the pure demand for office space calculated, we can summarize the total existing and calculated
demand for office space as follows:

Table 3: Projected Demand for Office Space for Regina CMA, 2010-2035
Metric (sq m) Imperial (sq ft) Percentage
Existing Competitive Office Space 331,293 3,566,005 57%
Existing Non-Competitive Office Space 253,515 2,728,814 43%
Total Existing Office Space 584,808 6,294,819 100%
Total New Office Space Demand to 2035 158,046 1,701,193 27%
Total Existing & New Office Space to 2035 742,854 7,996,012

Healthy office markets should provide choice and flexibility in the market in terms of size, location, and
building characteristics. In addition to the above pure demand calculations, we have added the following
factors which are representative of healthy market conditions.

Vacancy Rate Factor

As businesses grow their needs change, and a healthy market will always have a range of available space
to accommodate new and expanding businesses. Industry standards dictate that a healthy office market
should have an 8% to 10% vacancy rate at any given time, to allow flexibility and choice for a diversity of
firms and business needs. We have allowed for a vacancy rate factor of 5% for existing office space and
10% for new office space to recognize a normalized office market. The differentiation between existing and
new office space vacancy rates acknowledges a variety of considerations, including long term tenant
leases in existing space, generally lower lease rates in existing versus new office space, and the reality that
new space often takes longer to lease than existing space.

Market Contingency Factor

The supply of office space should also provide choice and flexibility in terms of location, size and building
characteristics. As buildings age or are converted to other uses, some space will be deemed obsolete or
undesirable for conventional office space over the course of time. For example, there are several office
buildings in Downtown Regina that have been converted to residential use in the past few years. Others
have aged or do not have key features, such as underground parking, that are considered desirable by
Class A and B tenants. In some cases, landowners will choose not to develop their properties for their
planned uses. While some of this space may remain on the market, it may be downgraded to lower class
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space, which often goes untracked, or may be converted for other uses. Planning for these contingencies
allows for the natural dips in the market as existing space becomes obsolete or undesirable. This factor is
subjective, with it ranging from 10 to 20% in other municipal studies. We have allowed for a conservative
10% market contingency factor for planning purposes in this Study.

These two factors, when applied to existing and forecasted office space demand, result in an additional
projected office space. The table below summarizes our analysis:

Table 4: Summary of Total Office Space Requirements by 2035
Metric (sq m) Imperial (sq ft)
Projected Office Space Demand to 2035 158,046 1,701,193
Existing Office Space 584,808 6,294,819
Total of Existing and Projected 2035 Office Space 742,854 7,996,012
5% Vacancy Factor Existing Office Space 29,239 314,741
10% Vacancy Factor New Office Space 15,804 170,119
10% Market Contingency Factor 74,283 799,601
Total New Office Space Required 277,367 2,985,654
TOTAL OFFICE SPACE REQUIRED BY 2035 862,155 9,280,467

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4.0
DISTRIBUTION AND BALANCE
OF OFFICE SPACE

MHBC used the tracking data from the 2011 Avison Young Regina Office Market Report and the DMCA
Report to recalculate the existing distribution of office space in Regina. We found that the DMCA Where
Business Grows Study missed some suburban buildings and originally misallocated some downtown office
buildings to other neighbourhoods when that analysis was completed in 2010. Following the
neighbourhood boundaries identified in Part G of the Regina Development Plan, we recalculated the
distribution of tracked office space by class and neighbourhood.

4.1 Existing Distribution of Office Space

In summary, the total percentage of existing office space distribution for the Downtown is 68%, and 16%
each for the Inner City and Suburban locations. In the DMCA reports, the Downtown and Inner City was
combined (totalling 84%). We have provided charts and tables with these areas being separated and
combined as per the DMCA reports. We believe that showing the spatial distribution in this manner is
critical given Downtown Reginas importance as a separate and distinct planning area in the city (apart
from the Inner City neighbourhoods) and to provide a clear understanding of the current and future
breakdown of office space in the city.

Below is a table summarizing the existing distribution of built and leasable office space as it stands today
as well as pie charts showing the distribution in the City.

Table 5: Existing Distribution of Office Space, Regina CMA
Downtown 397,936 4,283,351 68%
Inner City 91,189 981,547 16%
Downtown and Inner City 489,125 5,264,898 84%
Suburban (Rest of City) 95,683 1,029,921 16%
Total Existing Office Space 584,808 6,294,819 100%

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Compared to other major Canadian cities, Regina
has a very high Downtown/Inner City (84%) to
Suburban (16%) split of office space inventory.
For example, Toronto is at 48% Downtown versus
52% Suburban; Calgary is at 62% Downtown
versus 38% Suburban; Ottawa is at 42%
Downtown versus 58% Suburban; and Vancouver
is at 46% Downtown versus 54% Suburban. The
Canadian average is 53% Downtown versus 47%
Suburban.

The existing split reflects the existing policy
direction of having downtown as the primary
location for major office. In many ways, this can
be viewed as an advantageous position for
Regina. The centralization of employment
Downtown supports a compact urban form and a
more vibrant retail environment, and a dense,
walkable and transit-supportive urban core.
Current policy also supports the direction of the
new Downtown Neighbourhood Plan.

However, the existing split also provides
opportunity to offer other forms of office
development that dont currently meet the needs
of certain types of businesses. The Regina
Development Plan recognizes that not all office
uses are appropriate for Downtown, and from an economic development perspective, it is desirable to
cultivate a diverse and flexible office market in order to meet the short and longer-term needs of a diverse
range of businesses. We believe that there is sufficient room in the existing distribution of office space
inventory to allow for a controlled amount of suburban business park development without negatively
impacting Downtown as the office employment centre of the city.

4.2 Approved and Proposed Office Space

Due to strong market demand and positive development conditions, there has been an increase in new
applications for office development city wide. Some of these developments have been approved in the
past two years, some are already under construction, and others are in various stages of proposal
development. Not all approved and proposed developments will necessarily be built. However, once a
development obtains approval for development, we assume that it is highly likely that development will
occur. Proposed developments are far less certain, as the feasibility and city approval for these projects
have not yet been determined. For this reason, we have split proposed projects into two categories;
approved and proposed. Approved projects where construction has already commenced are marked with
an asterisk.

Because none of the approved or proposed projects are complete (existing leasable office space), for the
purposes of this study we have not included them in our analysis of existing office space. However, in
order to illustrate the potential impact of approved and proposed office developments on the distribution
of projected space, we have included a summary and breakdown by geographic area below:
68%
16%
16%
Chart 1a: Existing Distribution of Office
Space, Regina CMA
Downtown
Inner City
Suburban (Rest
of City)
84%
16%
Chart 1b: Existing Distribution of Office
Space, Regina CMA
Downtown and
Inner City
Suburban (Rest
of City)
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Table 6: Approved and Proposed Office Space, 2012
Approved Proposed
Location Metric (sq m) Imperial (sq ft) Metric (sq m) Imperial (sq ft)
Downtown
Albert Street and 11
th
Avenue* 7,432 80,000
Hill Centre Tower III Hamilton Street & 12
th
Avenue* 20,438 220,000
Crossroads Building Broad Street & 11
th
Avenue 2,973 32,000
Rose Street Building Rose Street and 12
th
Avenue 40,597 437,000
Subtotal Downtown 71,410 769,000

Inner City
Subtotal Inner City**

19,416 209,000
Suburban
Harbour Landing Business Park Building 1 3,716 40,000
Harbour Landing Business Park - Buildings 2, 3 and 4 11,148 120,000
Quance and Prince of Wales* 1,004 10,807
Subtotal Suburban 4,720 50,807 11,148 120,000

Total Space by Status Category 76,160 819,807 30,564 329,000

Note: * Construction is already underway for this development.
Note: ** Amount represents the total of five proposed buildings building locations have been withheld due to application status
Note: Calculations may not equal due to rounding and conversion of areas between metric and imperial units
Source: Regina Office Market, 2012 Report, Avison Young Commercial Real Estate (Sask) Inc.; and City of Regina

Table 7: Summary of Total Approved and Proposed Office Space, 2012
Metric (sq m) Imperial (sq ft)
Total Approved Office Space 76,160 819,807
Total Proposed Office Space 30,564 329,000
Total Approved and Proposed Office Space 101,522 1,092,809

When the approved space is added to the existing office space, the distribution of space does not change
significantly. As illustrated in the Table 8 and Chart 2a, the total amount of Downtown office space
increases from 68% to 71% and when combined with the Inner City increases from 84% to 85%. The ratio
of suburban office decreases by 1%.

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Table 8: Distribution of Office Space Existing + Approved, 2012 Regina CMA
Approved Downtown 71,440 769,000 11%
Existing + Approved Downtown 469,379 5,052,351 71%
Approved Inner City 0 0 0%
Existing + Approved Inner City 91,189 981,547 14%
Existing + Approved Downtown and Inner City 560,568 6,033,898 85%
Approved Suburban (Rest of City) 4,720 50,807 <0.1%
Existing + Approved Suburban 100,403 1,080,728 15%
Total Existing + Approved Office Space 660,971 7,114,626 100%

When the approved and proposed space is added to the existing office space, the distribution of space is
redistributed back to the exact balance existing today as shown in Table 9 and Chart 2b. Therefore, if all
office space currently proposed was approved, the distribution of office space in Regina would remain
unchanged once fully built out. It should be noted, however, that the approvals should be phased in order
to maintain a year-over-year balanced ratio.


Table 9: Distribution of Office Space Existing, Approved + Proposed, 2012 Regina CMA
Proposed Downtown 0 0 0%
Proposed + Existing + Approved Downtown 469,363 5,052,351 68%
Proposed Inner City 19,416 209,000 3%
Proposed + Existing + Approved Inner City 110,602 1,190,547 16%
Proposed Downtown and Inner City 19,416 209,000 3%
Proposed + Existing + Approved Downtown and
Inner City 579,965 6,242,898 84%
Proposed Suburban (Rest of City) 11,148 120,000 2%
Proposed + Existing + Approved Suburban 111,551 1,200,728 16%
Total Proposed, Existing & Approved Office
Space 691,516 7,443,662 100%
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4.3 Distribution of Projected Office Space Scenarios

Based upon the projected office space demand calculations, we have formulated four scenarios for the
distribution of office space to 2035:

Scenario One: Status Quo this scenario assumes that the existing percentage split between the
Downtown, Inner City and Suburban stay consistent at their current percentages. This scenario
assumes that any business park proposal is included within the Suburban component, rather than
as a separate category.

Scenario Two: Low Introduction of Business Park this scenario introduces a separate business
park category at a percentage of 5%. The Downtown receives a small reduction to 65% with the
rest of the decline coming from the Inner City and Suburban areas (reduced by 1% respectively).

Scenario Three: Medium Introduction of Business Park this scenario introduces a separate
business park category at a percentage of 14%. The Downtown remains the dominant office area
at 60%, with the Inner City and Suburban areas being reduced to 13% respectively.

Scenario Four: High Introduction of Business Park this scenario introduces a separate
business park category at a percentage of 16%. The Downtown remains the dominant office area
at 58%, with the Inner City and Suburban areas being reduced to 13% respectively.

The analysis is summarized in Table 10 and Charts 3a to 6b.

68%
16%
16%
Chart 2b: Distribution of Existing + Approved +
Proposed Office Space
Proposed + Existing
+ Approved
Downtown
Proposed + Existing
+ Approved Inner
City
Proposed + Existing
+ Approved
Suburban
71%
14%
15%
Chart 2a: Distribution of Existing + Approved
Office Space
Existing +
Approved
Downtown
Existing +
Approved Inner
City
Existing +
Approved
Suburban
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Table 10: Distribution by Scenario of Office Space (2035)

Percentage
Split of
Total
Office
Space
Sq m of
Total
Office
Space
Sq ft of
Total
Office
Space
Sq m of
Projected
Demand &
Factors
Sq ft of
Projected
Demand &
Factors
Percentage
Split of
Projected
Demand &
Factors
Scenario One - Status Quo
Downtown 68% 586,266 6,310,717 188,342 2,027,366 68%
Inner City 16% 137,945 1,484,875 46,759 503,328 17%
Downtown + Inner City 84% 724,210 7,795,592 235,101 2,530,694 85%
Suburban 16% 137,945 1,484,875 42,265 454,954 15%
Total 100% 862,155 9,280,467 277,367 2,985,648 100%
Scenario Two - Low Introduction of Business Park
Downtown 65% 560,401 6,032,303 162,478 1,748,952 59%
Inner City 15% 129,323 1,392,070 38,138 410,523 14%
Suburban 15% 129,323 1,392,070 33,644 362,149 12%
Business Park 5% 43,108 464,023 43,108 464,023 16%
Total 100% 862,155 9,280,467 277,367 2,985,648 100%
Scenario Three - Medium Introduction of Business Park
Downtown 60% 517,293 5,568,280 119,370 1,284,929 43%
Inner City 13% 112,080 1,206,461 20,895 224,914 8%
Suburban 13% 112,080 1,206,461 16,401 176,540 6%
Business Park 14% 120,702 1,299,265 120,702 1,299,265 44%
Total 100% 862,155 9,280,467 277,367 2,985,648 100%
Scenario Four - High Introduction of Business Park
Downtown 58% 500,050 5,382,671 102,114 1,099,320 37%
Inner City 13% 112,080 1,206,461 20,891 224,914 8%
Suburban 13% 112,080 1,206,461 16,397 176,540 6%
Business Park 16% 137,945 1,484,875 137,945 1,484,875 50%
Total 100% 862,155 9,280,467 277,367 2,985,648 100%

Based on the above analysis, and comparing Regina to other major Canadian cities, it is our opinion that
suburban office development should occur at a greater percentage than which currently exists today. We
recommend adoption of the Medium Introduction of Business Park (Scenario Three). This would result in a
split of 73% Downtown / Inner City versus 27% Suburban / Business Park. This will continue the trend of
the Downtown as the centre of major office development in the City, while allowing it to achieve a
broader planned function through the introduction of other land uses (i.e. residential) which will make the
Downtown a more complete and sustainable neighbourhood.

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84%
16%
Chart 3b: Scenario One - Status Quo
Downtown +
Inner City
Suburban
68%
16%
16%
Chart 3a: Scenario One - Status Quo
Downtown
Inner City
Suburban
65%
15%
15%
5%
Chart 4a: Scenario Two - Low
Introduction of Business Park
Downtown
Inner City
Suburban
Business Park
73%
13%
14%
Chart 5b: Scenario Three - Medium
Downtown +
Inner City
Suburban
Business Park
60%
13%
13%
14%
Chart 5a: Scenario Three - Medium
Downtown
Inner City
Suburban
Business Park

58%
13%
13%
16%
Chart 6a: Scenario Four - High
Downtown
Inner City
Suburban
Business Park
71%
13%
16%
Chart 6b: Scenario Four - High
Downtown +
Inner City
Suburban
Business Park
80%
15%
5%
Chart 4b: Scenario Two - Low
Downtown +
Inner City
Suburban
Business Park
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Alternatively, should the City wish to be more cautious, Scenario Two (or similar lower business park
percentage) could be adopted with increases in the business park split after further review and evaluation
occurs over a specific time frame (i.e. five years). Adoption of Scenario Two would result in a split of 79%
Downtown / Inner City versus 21% Suburban / Business Park. However, it would only allow for a total of
5% of the Citys office space to locate in a business park context. Applied in square footage, this is a very
conservative scenario.

Notwithstanding the above, no matter what scenario is chosen, it is our opinion that controls and phasing
of business park development needs to occur to ensure that the Downtown is not adversely affected by
this new form of office development. This is discussed in further in Section 6.0 of this report.

4.4 Land Supply

The Land Capacity Study (LCS), completed in September of 2011, reviewed current and projected supply
and demand considerations for residential and non-residential land, identified long-term floor space
requirements, and provided recommendations for growth management, community design, and meeting
future land supply needs. The LCS used employment projections for the City, rather than the Census
Metropolitan Area, to calculate demand for employment lands. Key highlights applicable to this study from
the LCS include:

There is a supply of greenfield lands for new development for both residential and
employment growth.
There is a supply of vacant lands/infill opportunities to accommodate residential and
employment intensification.
There are redevelopment opportunities for under-utilized sites in both the Downtown and
Warehouse District.

After an extensive review of office employment densities from different communities and developments
across Canada (and specifically Ontario which has a mature office sector), we feel that the densities
assumed in the LCS and ROS are extraordinarily high. For example, the Downtown employment ratio used
in both reports is significantly higher (net densities of 3,770 jobs per ha) than those used in the planning of
the Urban Growth Centres of Toronto (400 persons / jobs per ha). It appears, that the higher densities
used in both reports assumed that all development would occur at densities based on the most intensive
development scenarios used to develop their ratios. In our opinion this is not realistic or feasible. In our
opinion and based on our research, the following Gross Employment Density assumptions are more
appropriate for Regina:

Gross Density per Hectare by Location
Downtown 400 jobs per ha
Inner City
250 jobs per ha
Suburban / Business Park 75 to 125 jobs per ha

Using the above density assumptions the land supply needed for the projected office demand results in a
Business Park land supply need by 2035 as follows for the two recommended scenarios:

Scenario 2: between 15 and 25 hectares
Scenario 3: between 42 and 69 hectares

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5.0
BUSINESS PARK POLICY -
BEST PRACTICE ANALYSIS
We have reviewed the available business park policies in municipal development control documents for
over 30 municipalities across Canada. We specifically looked at land use designations and zones tailored to
office and business parks. The themes we explored in these examples included office size thresholds,
density thresholds, location criteria, zoning standards, and parking standards. We also looked for how these
municipalities dealt with phasing of multiple development.

The following is a thematic summary of policies and practices found that exhibit good city building
fundamentals and potential to achieve the objectives of this study.

5.1 Size Thresholds - Major Office

Some municipal plans make a distinction between office uses and major office. Major office is typically
used to describe large multi-storey office developments, and are usually directed towards downtowns,
other centres, and major corridors. The intent of these plans is to direct large office uses to locations which
optimize existing infrastructure and synergize with existing uses due to their density, such as downtown
areas. This allows control of major office development, restricting such uses in suburban or greenfield
areas.

We did not find a consistent floor area or density threshold where office uses are categorized by size. In all
cases, size and density restrictions and categorizations were sensitive to the local context. For example:

The Town of Richmond Hill distinguishes major office from other office uses, and defines major office
as office uses with a gross floor area of 10,000 square metres or more.
The City of Vaughan uses 12,500 square metres per lot as its threshold for major office. Major office as
defined is directed to central areas and intensification corridors.
The City of London restricts office uses outside of its downtown through its Zoning By-law. The
restriction allows a maximum of 5 storeys or 5,000 sq. m of office space in suburban locations with any
offices greater in height or density being directed to the Downtown.
The draft Official Plans of the Cities of Kitchener, Waterloo, Oakville and Mississauga define major office
as 10,000 square metres or office uses with 500 jobs or more. This is generally the definition
established in the Growth Plan for the Greater Golden Horseshoe, a provincial growth management
plan applying to municipalities in southern Ontario.
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We note that these definitions do not provide for a distinction between different office users that may
require a large floor area.

The size criteria for office uses that we uncovered in our research focused on major office, and there were
very few examples of intermediate or small sized office thresholds. Generally, office uses that do not fit the
definition of major office, were permitted in various designations across each municipality reviewed. The
consistent intent in most of these municipal planning documents was to direct major office uses to
downtowns, centres and corridors, while permitting non-major office uses in various other locations.

5.2 Maximum Density

We did not find any consistent density regulations for business parks in the municipal planning documents
we reviewed. Where specific density requirements were established, they were site-specific or area-
specific, and did not apply across the municipality.

5.3 Location Criteria
Of the documents that contained location criteria for office uses outside of the downtown, the criteria
most often used include:

Frontage or flankage on an arterial road, access to major transportation infrastructure (London,
Kitchener, Vaughan, Barrie, Calgary)
Adjacent to, or within, activity nodes, centres, and corridors (London, Kitchener, Vaughan, Richmond
Hill)
Accessibility of public transit (London, Vaughan)
Availability of municipal services (London)
Compatibility with adjacent uses (London, Barrie)
Large land area (Kitchener, Barrie)
In some cases, new business parks are required to demonstrate that they can meet the location criteria
when being considered through the planning process. This allows the municipality to have control over
new business park locations when private sector applications occur.

5.4 Zoning Standards
Of the municipal Zoning By-laws that contained specific business park zones, there were no consistent
standards. Many business park zones we reviewed allowed for a mixture of high-end manufacturing,
technology, research and development, and pure office uses. We did not find any zones which were
strictly designed to regulate or provide for office uses alone.

The various zoning by-laws we reviewed showed an inconsistent approach to business park zoning
standards, suggesting that regulation of business parks is sensitive to the local context.

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5.5 Parking Standards
Most municipalities express parking standards by use, as a function of floor area. The average parking rate
for office uses found in the business park zones we reviewed was approximately 1 space per 34 square
metres of floor area. The range of parking rate to floor area ratios was significant, with a low requirement of
1 space per 69.7 square metres (Winnipeg), to a high requirement of 1 space per 25 square metres (Surrey,
Charlottetown). By comparison, the City of Reginas parking rate for office uses outside of the Downtown is
1 space per 60 square metres, making the City of Regina one of the municipalities requiring a lower
parking supply. A higher ratio results in fewer parking spaces required, which in turn results in smaller
parking areas and savings for the developer, while achieving various city building and sustainability goals.

The recently approved Zoning By-law for North Oakville contains special provisions for office parking. In
the Trafalgar Urban Core Zone, the minimum parking rate is 1 space per 37 square metres of floor area, and
the maximum parking rate is 1 space per 30 square metres. No additional parking spaces above the
minimum rate are permitted, unless such parking is located in a parking garage. In that by-law, parking
garage includes both above-grade and below-grade parking structures.

Parking lot design criteria were found in some Zoning By-laws. Barries Business Park Zone in the in-effect
Zoning By-law restricts surface parking to 150 spaces per lot, and where multiple lots are required, no
more than 100 spaces in each lot. Where multiple parking lots are required, they must be separated by
three metre soft landscaped areas.

The City of Calgary has similar standards in its Land Use By-law for its Industrial Business District. The
regulations require landscaping in a parking area when the total surface area of the parking lot is greater
than 5,000 square metres. This landscaping must include:

0.15 square metres of landscaping for every 1.0 square metres of the total surface area of the
parking lot;
Landscaped islands in the parking lot, with the following requirements:
o Islands must be provided at the beginning and end of every row of parking spaces;
o Islands must be provided at intervals between every 20 parking spaces;
o Islands must be a minimum of 12 square metres with at least one side being a minimum
length of 2.0 metres;
o Islands must contain a minimum of 1 tree and 2 shrubs;
o Islands must be surrounded by a concrete curb; and
Sidewalks connecting the public entrance to a public sidewalk

We note that increased landscaping within a parking lot increases the overall size of the parking lot
proportionally, where the amount of parking spaces remains constant.

5.6 Parking Configuration Incentives
We did not discover any incentives designed to influence parking lot configurations (i.e.
structured/underground vs surface) in business parks. The biggest factor in influencing the configuration
of parking is land value. Higher land values such as downtown areas favour underground or structured
parking. Lower land values such as in suburban areas favour surface parking. As identified in the Regina
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Downtown Development and Market Opportunities Study, without either subsidies or the cost of land being
sufficiently high valued, underground and structured parking are a financial burden on project pro formas.

Rather than trying to influence the configuration of parking, many municipalities have sought to reduce
overall parking through a variety of programs and regulations. Reducing parking requirements can have
similar city building advantages as requiring structured or underground parking.

A specific example of reducing parking requirements to achieve city building objectives was found in the
City of Calgary. The Citys Land Use By-law allows for reductions in required parking in its Industrial-
Business District, as well as many other districts. Where an office use is within 400 metres of a major transit
station, required parking may be reduced by 10%. Where an office use is located within 150 metres of a
frequent bus service route, the allowed reduction is 5%. The City allows reductions for motor vehicle
parking spaces in exchange for bicycle parking spaces as well. For every six bicycle parking spaces
provided above the minimum requirement for the use, the required vehicle parking spaces may be
reduced by one. Further, an additional required motor vehicle space may be removed for every two
lockers provided in a shower and change room facility.

The City of Ottawa has similar policies in its Zoning By-law. Maximum parking rations apply where uses,
including office uses, are located within 600 metres of a rapid transit station. The maximum rates are as
follows:

Central Area: 1 space per 100 sq m
Inner City Area: 2.2 spaces per 100 sq m
Suburban and Rural Area: 2.7 spaces per 100 sq m

We also found incentives to reduce general parking demand, thereby helping control the size of parking
lots. The City of Calgary has been using a Restricted Parking Area for its downtown for several decades. The
Restricted Parking Area is regulated by a by-law that allows developments to pay cash-in-lieu for up to 50%
of their parking requirements. These moneys are then directed towards building municipal parking
structures near transit stations so people drive to the transit stations and take transit to the central core.
This reduces overall parking demand in the downtown core, and controls the configuration and nature of
parking downtown.

Both of these programs, in conjunction with support for transit and carpooling, have reduced parking
requirements downtown and allowed the City to achieve a 50-50 split between transportation modes
going into its downtown core. The principles of this approach can be applied to comprehensively
designed business parks. The overall parking requirement could be allowed to be reduced through
support for alternative means of transportation, while the cash-in-lieu money could be used to construct a
municipal parking structure adjacent to or within the business park to serve the business park users.

In our research, we found other incentive options for reducing parking, which could also be used to
control the configuration of parking. These options include:

Managing Supply:

a) Reduce parking requirements and add parking maximums in the Zoning By-law: Increase the
minimum ratio of parking spaces to floor area for office uses, and establish a maximum ratio in the
Zoning By-law.

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b) Allow for parking reduction options: Allow for reduced parking at a set rate where alternative
travel options are provided on site. For example, allow one less parking space below the minimum
requirement where a specified amount of bicycle parking facilities are provided. This could be set
out in the Zoning By-law.

c) Require shared parking with nearby sites and uses: Require comprehensive developments such as
business parks to share a centralized parking structure or parking lot.

d) Collect cash-in-lieu of parking: Collect funds in exchange for reduced parking spaces, at a set dollar
amount per space set out in the Zoning By-law. A minimum percentage of the required parking
should still be required.

Managing Demand:

a) Prepare a Transportation Demand Management Plan: Prepare and implement a comprehensive
City-wide transportation demand management plan. This document would be the overarching
framework to implement the supply and demand management objectives and tools discussed in
this section.

b) Provide and encourage alternative modes of transportation: Require preferred parking close to
building entrances for carpool or car share vehicles and/or require bicycle parking spaces and
shower/change facilities in the Zoning By-law;

c) Encourage employer programs: Include in development agreements that building
owners/managers will offer employees working in the building the choice between a parking
space, or a free yearly transit pass. Require building owners to provide preferential parking for
carpoolers.

d) Unbundling parking from leases or sales: Include in development agreements that building
owners/managers will sell or lease parking spaces separately from suites, thereby allowing
reductions in rents or sales for suites that do not need as many parking spaces. Any unused
parking spaces can be leased to other businesses needing them.

e) Pricing parking: Include in development agreements that building owners/managers will charge a
set amount for parking.

f) Prepare adaptive parking contingency plans: Include in development agreements that building
owners/managers prepare adaptive parking contingency plans where one or more of incentives c)
through e) are required.

5.7 Phasing

We did not discover any examples where business park development is subject to phasing requirements.
We are aware of examples of general development phasing, including York Regions new Official Plan,
which requires 75% of a residential area be built before a subsequent phase may be registered. Although
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geared towards managing the orderly growth of residential areas, the same principle could apply to any
use. This may be an applicable example for the City of Regina, as a similar policy could allow the City to
control the rate of office development within the City based on how much is approved and in
development at any given time.

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6.0
POLICY RECOMMENDATIONS

Several municipalities we studied use specific office and business park designations in their Official Plans
and Zoning By-laws. Such designations allow for greater control of this type of land use through policy and
sets a clear and consistent vision for this type of development. This also allows the municipality to clearly
distinguish the appropriate location for business park development. Other municipalities do not have a
specific designation or zone for business parks, instead using standard industrial or prestige industrial type
zones with no specific controls for integrated office campus style development. In these latter cases, these
municipalities do not have the same need or desire to regulate business parks as the City of Regina does.

Based on our review of the Regina office market, best practices, and our experience with land use planning
policy, we recommend an approach which sets out a separate Official Community Plan designation and
Zoning By-law category to identify the unique needs and challenges of office business parks. We
recommend a very specific policy regime with a clear intent and definition to provide certainty and
consistency in interpretation.

This policy regime would include objectives under the Growth Management section (Section 4.0) of the
Regina Development Plan. A Development Plan designation for office business parks would allow the City
to express a specific land use intent in the development of business parks, which would provide
developers with certainty and clarity when proposing this use. This is consistent with the approach taken
in Sections 4.8-4.13 of the Development Plan regarding specific land use issues.

The more detailed requirements for business parks could be established through a new business park
zone in the Regina Zoning By-law.

6.1 Recommended Location Criteria

Business Park designations and zones should be clearly identified and delineated in the Development Plan
and Zoning By-law, to specify appropriate locations for business park development. To this end, the City
should be proactive in defining the location of business park growth. In order to properly assess what
locations are appropriate new business parks outside of Reginas Downtown core, we reviewed the
findings of our best practice analysis and undertook an evaluation of factors in the Regina context that
would be relevant to the success of business parks in the City. These factors include:

Proximity and access to existing infrastructure, including:
Highways
Major roads
Public transit
Regina International Airport
Municipal water and wastewater services
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Potential synergies with adjacent uses, including:
Existing and emerging business areas
Commercial areas, colleges, universities, hospitals
Major institutional or public uses
An existing industrial or commercial land use designation

Site specific factors, including
Large lots or a large overall site for office clustering
Easy integration with and compatibility with existing nearby land uses
These factors were considered within the Citys future growth areas and potential infill/redevelopment
areas as indicated on Figure 1.

6.1.1 Proximity and Access to Existing Infrastructure

There are a number of benefits to locating a business park adjacent to or in close proximity to existing
infrastructure, such as highways, major road, transit and the airport. Providing easy access and movement
to and from the business park, both for the tenants clients and its workforce, increases user desire to
locate in the business park. Taking advantage of existing infrastructure is also a financial benefit of the City;
by utilizing the available forms of infrastructure, the City can optimize the use of existing assets rather than
expanding those assets.

The most desirable state for a business park is to have multiple transportation options available to access
the business park. A location that is in close proximity to highways, major roads, transit and airports offers
a high level of mobility for perspective business tenants within the park. Best practices indicate a
preference to locate business parks along highway and major road corridors, and if possible, at
interchanges, ensuring a high level of access and connectivity to the transportation network. In addition to
access, proximity to high traffic roadways offers corporate tenants the opportunity display their corporate
branding as a prestige element to passers-by.

Public transit offers alternative sustainable modes of access to business parks, particularly with respect to
employees working in the park. Public transit is often linked with major road corridors, allowing greater
optimization of existing infrastructure. Where public transit is not already in place, major road corridors
offer prime candidates for future services, ensuring that a business park will one day have access to transit.
Easy access to the airport supports inter-regional, inter-provincial and international exchange of business
with the City.

In evaluating the City of Regina as shown in Figure 1 a number of potential areas emerge as possible
locations to take advantage of existing infrastructure. These locations are numbered in the above figure
and their advantages are described further below.

Area A would be a desirable location for a business park as it abuts 9
th
Avenue, which connects with the
ring road network in the City. A new interchange would be necessary to enhance access to the business
park, and transit services could be extended from the east and south to service the park. The lack of direct
connection to the airport however may be a disadvantage to this location.
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Area B and C are northern gateway locations, situated near both the Louis Riel Trail and Highway 6, both of
which have a close connection with the Ring Road. The gateway potential and exposure along these
major roads are desirable qualities for a business park. Area B has the added benefit of being able to
extend transit easterly from Rochdale Boulevard to service the business park. Similar to Area A however,
the lack of direct connection to the airport may be a disadvantage to these two locations.

Area D and E are situated in close proximity to the airport, particularly with respect to Area E, taking
advantage of a major transportation infrastructure piece and a business driver. Area D also has the added
benefit of being adjacent to the Ring Road/Trans-Canada Highway, and existing transit could be extended
westerly from Gordon Road to accommodate the business park. Area E has similar advantages and is also
adjacent to City owned land within the Lakeside Secondary Plan which has been identified as being
appropriate for prestige office uses given the proximity to the airport. While close to Lewvan Drive, new
transit services may be required for business park development in these areas.

Area F offers an existing urban, but underutilized, location in the City and could be developed for a
business park as part of a revitalization effort by the City. The site has many existing infrastructure
advantages. Connections to two interchanges along the Ring Road exist today via Victoria Avenue and
Dewdney Avenue East. Furthermore, transit exists along Victoria Avenue and Park Street. Notwithstanding
these advantages, the area has poor connections to the airport, and there are added complications in
redeveloping existing properties, such as site contamination, conflicts with existing land uses, and higher
land values. The other areas assessed above do not have these disadvantages. Should Area F be
considered, factors such as the remediation of contaminated lands, lot assembly, infrastructure
realignment, and the potential relocation of existing businesses would all have to be considered up front
and early to ensure a business park is successful. Mitigation of potential impacts to existing residential
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areas between the Area F lands and the Ring Road would also play a factor in the feasibility of this
potential business park location.

Area G, while not an identified growth area, represents vacant lands located adjacent to the Trans-Canada
Highway between the academic campuses of the University of Regina and the Saskatchewan Institute of
Applied Science and Technology. This location is served by existing transit and can provide connections
to the airport on Lewvan Drive via the Trans-Canada Highway. Development of business parks in this area
will depend on the Province of Saskatchewans appetite for new development.

6.1.2 Potential Synergies With Adjacent Land Uses

Business parks tend to be successful when they can leverage the benefits or successes of other land uses,
business networks, or infrastructure within in the City. This relationship, which we call synergies, plays an
important role in the location of a new business park.

Locating next to an existing employment or commercial area allows for direct business-to-business
synergies between the tenants of both areas, helping to strengthen the economic viability of both the
employment areas, and the businesses that reside in them. Employees can benefit by having access to
stores and services near to their place of employment. Having a business park in close proximity to an
academic campus supports cross-synergies where businesses and corporations benefit from the
educational research and development of an institution, and a readily available pool of employment
candidates. Successful examples of this cross-synergy model include the University of Waterloo Research
and Development Park in Waterloo, Ontario, the MARS centre in Toronto, Ontario, and of course the
University of Regina associated Innovation Place in Regina, Saskatchewan.

In evaluating the City of Reginas potential business park locations shown in Figure 2, the following
locations offer synergies to build upon.

Area B has the benefit of building upon an existing commercial node in the City. The business park can
rely on the nearby retail commercial area to accommodate the day-to-day needs of their operations and
employees. In turn, as the commercial area will evolve to accommodate the business park, a more diverse
mix and range of tenants would emerge, providing more choice to businesses and residents in the
surrounding community.

Area E has the benefit of building on the proposed Harbour Landing office development as well as City
owned land within the Lakeside Secondary Plan which has been identified as being appropriate for
prestige office uses. A more extensive and comprehensive business park environment could be achieved
here as an extension of that development. An added benefit to this extension is that office outside of the
downtown is focused into one area instead of spread throughout the City. In addition to building
synergies with the Harbour Landing office development, Area E could position itself as an airport business
park, feeding off the advantages of airport-generated business.

The advantages of Area D are similar to that of Area E, where opportunities to build upon the synergies of
an emerging commercial node could be made. It is also close to the airport and thus allows mobility
synergies to occur. This business park location could be seen as an anchor which could help enhance the
desirability of the area and spark interest to complete this portion of the community sooner rather than
later.
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Area F has the benefit of being close to the Downtown core, the Warehouse District, and the established
employment area to the north. A business park in this area could build on the existing synergies of this
area, and establish new synergies depending on the type of tenants occupying the park.

Area G has the benefit of being adjacent to an existing academic institution and an established
academic/business park, Innovation Place. As noted previously there is a strong relationship between
academia and business, where business benefits from the educational research and development of an
institution, and a readily available pool of employment candidates. High tech, pharmaceutical, renewable
energy and other emerging industries would be attracted to lands that have a direct relationship with an
academic institution. In addition, Area G also has the added benefit of being adjacent to an attractive park-
like setting along the Wascana Lake/Creek, and having the Wascana Country Golf Course to the east as an
amenity.

6.1.3 Analysis

After having outlined the criteria important in locating a future business park, and identifying potential
locations that achieve those criteria, we felt it was important to analyse rank the desirability of the criteria
to determine the strongest candidate locations. The following table provides a comparison of the areas
evaluated and their ranking of meeting the criteria listed:

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Table 11: Location Criteria Analysis Summary

Criteria Area A Area B Area C Area D Area E Area F Area G
Existing Infrastructure
Close Proximity to a Highway
/ Major Road
X X X X X X X
Direct Access to a Highway /
Major Road
X X X X X X
Proximity to Transit

X X X X X X X
Ease of extending Transit to
Directly Service Area
X X X X X X
Ease of Access to the Airport X X X
Synergies
Potential With Existing /
Proposed Employment Areas
X X
Potential With Existing /
Proposed Commercial Areas
X X X
Potential With Academia

X
Potential With Airport

X
Total Criteria Met 4 5 3 6 7 5 6

6.1.4 Findings

Based on a combination of the above location criteria, we have found that the strongest candidate
locations for a new business park in the City of Regina are Areas B, E and G as identified in Figure 3. It is
important to note that while Area D also had a high ranking, since Area D and E were in a relatively close
location, and Area E provided higher potential for synergies, we found that Area E was the stronger option
for that quadrant of the City. In addition, while Area F had a similar ranking to Area B, because of the
added complications in redeveloping properties in an established area, such as site contamination,
conflicts with existing land uses, higher land values and possible infrastructure reinvestment, we found
that that Area B was a less complicated, and thereby more desirable option from an economic and
feasibility perspective. In addition, as Area F is close to the downtown, selecting this location may have the
effect of further concentrating office in the downtown area and would therefore not represent a true
alternative location. The strengths of Areas B, E and G are as follows.

Area B represents a northern gateway location, situated along a major roadway that has good exposure
and connections to the transportation network. This area could encourage the extension of public transit
easterly from Rochdale Boulevard, to service the business park and surrounding area. The lack of direct
connection to the airport may be a disadvantage to this location. The business park would be an extension
of existing retail and service-commercial uses in the area that could be an amenity to day-to-day needs of
business operations and employees, and encourage land use synergies. We anticipated that the existing
commercial areas will evolve, diversifying to accommodate the business park, offering more choice to
business and residents in the surrounding community.
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Area E represents an opportunity to capture synergies with the airport. This location takes advantage of
the airport, which is a major piece of transportation infrastructure, and a business driver for the City. The
location also builds upon the proposed Harbour Landing office development, allowing for a more
comprehensive business park environment. As office uses are already approved here, with the potential for
expansion, this location also encourages an office sector focal point outside of Downtown, thereby
reducing the spread of office uses across the City.

Area G represents an academic business park option. The vacant lands located adjacent to the Trans-
Canada Highway between the academic campuses of the University of Regina and the Saskatchewan
Institute of Applied Science and Technology are well connected and accessible. The intrinsic relationship
between academia and business would make this area attractive to new businesses and emerging
industries. Being located along the Wascana Creek, and having the Wascana Country Golf Course to the
east as an amenity, further enhances the desirability of this area. Whether there is a desire by the Province
of Saskatchewan to develop these lands for business park purposes needs to be confirmed.

It is important to note that these candidate site locations are approximate at best. A further detailed
evaluation of constraints would be necessary in order to delineate preferred boundaries and areas for any
future business park in the area of the candidate locations.

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6.2 General Policy Framework
With the appropriate location of future business parks considered above, a strong policy framework can be
implemented to consider these areas for future business park development in a controlled manner. The
City of Regina should implement a new policy under its Growth Management objectives (Section 4.0) of
the Regina Development Plan as the basis of this control. We recommend the following policies /
principles be incorporated into any new policy regime for the City relative to the establishment of business
parks with significant office components.

a) That the City continue to ensure that major office is directed to the Downtown except in appropriate
locations as identified for business parks in the Official Community Plan.

b) To provide for the changing needs of business while protecting the Downtowns primacy for office
development, office uses that are considered Major Office uses and proposed outside of the
Downtown are only permitted in designated Business Park areas.

c) Major Office uses should be defined as office uses which include 4,000 square metres of gross leasable
floor area in a single tenancy, or in the case of multiple tenancies, 4,000 square metres of gross floor
area in aggregate, per lot.

d) That applications for new Business Park area designations not shown in the Official Community Plan
be controlled and have to meet strict criteria before approval will be granted by Council. We
recommend the following criteria be used and that all of the criteria be met before approval is
granted:

i. The lands to be designated are located on an arterial road with access to public transit;

ii. The lands are adjacent to two or more of the following features:
(a) An existing controlled-access expressway;
(b) An existing major institution or public use;
(c) An existing major transportation facility; or
(d) An existing industrial or commercial land use designation.

iii. The lands offer large lots or a large overall site so that Major Office uses can be consolidated
into a cluster;

iv. The lands are already serviced or can be serviced by municipal water and wastewater services;

v. The lands can be integrated with and are compatible with existing nearby land uses;

vi. The applicant submit a market study demonstrating, to the satisfaction of the City, that there is
a conspicuous demand for the major office floor space, and that the office space cannot be
accommodated within an existing Business Park area or the Downtown; and

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vii. The study outlined in v. above also demonstrates that the proposed office space will not have
an adverse impact on the Downtown office market in terms of vacancy, rents, and tenant mix.
Said market study will be subject to peer review at the expense of the applicant.

e) For further clarity, a new Business Park area designation in support of less than three buildings shall
not be permitted. Individual office buildings shall be directed to other designations where permitted,
or to the Downtown, in accordance with the land use policies in this plan and the Zoning By-law.

f) That specific areas which the City deems to be appropriate for development / redevelopment outside
of the Downtown and Business Park designations are permitted for Major Office development outside
of the analysis outlined in Item d) above. In our opinion these specific areas should be distinct and fit
within the overall city building vision. To this end we recommend the following areas be considered:

a. The conversion of designated heritage buildings in the Warehouse District;
b. The redevelopment of lands in Tuxedo Park;
c. Where the Major Office use is associated with a major institutional land use, such as a
university or hospital but excluding a government administrative office, and is in close
proximity to that institution, provided that the office use does not exceed 4 storeys in height.
In addition to the above, as discussed in Section 2.3.2 of this report, the City allows office development in
many of its commercial and industrial zones already, regardless of whether they are located Downtown or
on the suburban periphery. Some of these zones that permit office uses do not restrict that use to any
maximum floor area. For a consistent approach to office uses outside the Downtown or designated
business parks, we recommend that maximum floor areas for office uses be established in all zones
permitting such uses, except Downtown commercial zones and business parks. Such floor area maximums
could range from 200-500 square metres of gross floor area to be consistent with existing zone
permissions. Should the City wish to expand these permissions, we would recommend a maximum
permission of 1,000 square metres of gross floor area.

6.3 Phasing of Multiple Business Park Developments

As noted previously, we did not find any examples of business park phasing policies in our best practice
review. The general phasing policies we did find were based on orderly sequencing of contiguous
development. This does not necessarily apply to business parks in the Regina context, as these parks may
not always be contiguous. Therefore we recommend a demand-based monitoring and phasing policy
framework, which allows a limited amount of office space on a yearly basis.

Based on our review of office demand in the City of Regina, we recommend the Development Plan include
a policy framework which allows approximately 5,100 sq m (55,000 sq ft) of business park office
development on a yearly basis. This amount was derived from the Scenario Three projection, taking into
account the first phase of Harbour Landing and reducing the timeframe of the office demand period to 23
years (2012 to 2035) given there has not been substantial business park development since 2010. Should
the City wish to proceed with the Scenario Two projections, the annual amount of business park office
development would be reduced to approximately 1,700 sq m (18,000 sq ft).

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The City should monitor office development on a yearly basis to track how much of that demand has been
satisfied by approved development, and then allocate the remainder for that year to subsequent approved
applications. A suitable supply of office development could remain in the pipeline awaiting allocation,
and if deemed necessary, special dispensation could be given for special types of office, or additional floor
area to relieve unexpected surges in demand (i.e. a high priority multinational or national tenant is looking
for business park space in the City). We further recommend that the City review the office demand
projections every five years to ensure the projections are accurate and up to date.

6.4 Parking Reduction / Configuration Incentives & Policies

In order to curb surface parking, we recommend a three-pronged approach. The first two parts of the
recommended strategy are to reduce parking demand and parking supply respectively, thereby reducing
parking overall. The second is to regulate parking configurations in business parks through the
Development Plan and Zoning By-law, to control how much parking is visible.

In order to reduce parking demand, several municipalities have implemented transportation demand
management plans. These plans include carpooling programs, improving public transit, and establishing
pricing schemes for parking. As these programs are independent of business park development, and apply
to the City in general, they are outside the scope of business park policies. In general, we recommend the
City consider the following parking demand management programs:

Organizing a carpool exchange program and website, and implement minimum parking
requirements or parking reductions for where reserved carpool spaces are provided;

Only allow strategic land uses to develop where public transit exists or is planned; and

Require through direct control districts or contract zones that parking be unbundled from leases
or sales, if possible.

In conjunction with reducing parking demand, the City also has several options for reducing parking
supply. Parking supply can generate additional demand when single-occupant motor vehicle trips are
easier than all other alternatives. Reduced parking supply helps level the playing field for other alternatives
by removing the guarantee of a free parking space at the end of a trip. Parking supply reduction can also
be achieved through regulatory means, and can be directed specifically at business parks. We recommend
the business park policy framework include the following parking supply reduction measures:

Reduce minimum parking standards, and establish a maximum parking ratio in the Zoning By-law,
with parking above the maximum being permitted subject to being located in an above-grade or
below-grade parking structure.

Allow reductions in required parking on a site in exchange for cash-in-lieu;

Collect funds through development and cash-in-lieu of parking; and construct shared municipal
parking structures nearby;

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Allow parking reductions in the Zoning By-law where alternatives are provided, for example
reduction of one vehicle parking space in exchange for six bicycle parking spaces and one
shower/change facility; and

Include zoning provisions for preferred parking close to building entrances for alternative
transportation options such as bicycles/scooters/motorcycles, carpooling, and alternative fuel
vehicles.

The above supply and demand reduction measures would allow developers some flexibility in parking lot
construction, rather than adhering to a defined minimum requirement. Further, overall reduced parking
requirements can save developers money, as the cost of parking spaces that would otherwise have to be
provided would be a financial burden on the developer/owner over the life of the development.

With the parking reductions achieved through the above measures, the remaining parking area would be
significantly smaller. In order to influence the configuration of the remaining parking, we recommend the
following measures:

Require all surface parking areas to implement design and landscaping guidelines established in
the Zoning By-law;

Require all parking above the maximum requirement to be located in an above-grade or below-
grade parking structure through the Zoning By-law.

The above parking demand reduction recommendations will require City consideration outside of this
business park review exercise. The parking supply and configuration recommendations above can or have
been considered through the proposed policy framework for business park development outlined in this
report.

6.5 Alternative or Complimentary Control Tools

6.5.1 Alternative 1 - Consider Business Park Development as a Subdivision

The City of Reginas Subdivision By-law requires that applicants wishing to subdivide land provide a written
report on the proposed subdivision that must include discussion of the following:

the need for the subdivision;
the suitability of the land for the proposed development including a general description of
existing topographic and physical features in the area;
an explanation of the proposed development including anticipated population densities, school
population projections and the relationship of the development to existing and proposed services,
road networks and land uses in the immediate environs;
the feasibility and approximate cost of installation of engineering and utility services including
design and standards of services to be required, the services to be installed by the owner and the
City and the approximate time of installation of such services.
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In addition to this written report, the by-law requires applicants to have regard for:

The suitability of land;
The need for the subdivision;
Access to lots and parcels;
Municipal services;
Environmental reserves;
Buffer strips;
Public streets;
Lanes and walkways;
Vesting;
Lots and parcels;
Replotting (where required); and
Servicing agreements.

The Regina Development Plan also contains specific energy and water conservation guidelines for
subdivisions that could apply to development. Additional requirements in the plan relate to residential
subdivisions, but could be amended to include business park subdivisions.

As the City is the approval authority for subdivisions, through the Development Officer, the City has
powers to review and decide on the details of subdivision applications. The by-law allows for circulation to
various agencies and detailed technical review. As most business parks will consist of comprehensively
designed and constructed office buildings that are likely to be subdivided into individual lots, the same
controls in the subdivision by-law would apply.

The by-law could be amended to give City staff additional direction in reviewing business park proposals,
such as allowing review of design, parking, and density. The by-law could also require that applications for
subdivision of business parks be bumped up to Council as described in Section 3A. 3) of the by-law. The
Regina Development Plan could include a policy requiring office developments with three or more
buildings to be located on individual lots, thereby triggering the amended requirements of the subdivision
by-law.

The use of subdivision controls could work cooperatively with an established policy framework for
business parks. We do not recommend that subdivision controls be used exclusively to regulate business
parks, as not all applications may trigger subdivision review.

6.5.2 Alternative 2 - Make all Business Park Developments Contract Zones

Section 9.11 of the Regina Development Plan includes guidelines for applying contract zones. Contract
zones are site-specific zones with their own regulations. The use of contract zones enables City staff and
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City Council to exercise flexibility in the accommodation of specific development and subdivision
proposals which:

Conform to the general intent of a particular land use designation;
May not otherwise conform to established site, development and/or servicing standards for that
land use designation;
Represent a unique and positive development opportunity; and
May require special consideration or protection of an indentified public interest.

The City may enter into a zoning contract or agreement with the applicant, for the purpose of
accommodating a contract zone, where the proposal is consistent with one of a number of principles. Of
these principles, the most applicable to new business parks would be to ensure that an appropriate
interface with surrounding development is achieved. Specific guidelines are in place in the Regina
Development Plan and Planning and Development Act that allow detailed review of the following aspects
of development through contract zones:

The uses of land and buildings or the forms of development;
The site layout and external design, including parking areas, landscaping and entry and exit ways,
but not including the colour, texture or type of materials and architectural detail;
That on the rezoning of the land, none of land or buildings shall be developed or used except in
accordance with the proposal, terms and conditions and time limits prescribed in the agreement.

Such review is scoped by the Planning and Development Act, but still could be useful in controlling
business park development. As business parks have been identified as requiring special consideration and
have been identified as being of public interest, the use of contract zones for business park development
would be an alternative to a new policy framework. The use of contract zones could work within the
existing policy framework. We note that the approved first phase Harbour Landing building was dealt with
through a contract zone.

Notwithstanding the above, the exclusive use of contract zones results in inconsistent application of the
Citys goals and intent, as each application is dealt with on a site-specific basis. Further, the use of contract
zones in place of a formal policy framework denies the City the ability to plan in the long term for
suburban office development, as no overarching long term policies would be in place. Contract zones
should only be used to regulate office development in concert with an established policy framework for
such uses.

6.5.3 Alternative 3 - Make all Business Park Developments Direct Control Districts

The City may consider designation of direct control districts in areas which may require a more sensitive,
flexible means of land use and development control. When a development application is submitted to the
City that meets certain thresholds of size or use which would suggest a suburban business park, the City
could review the proposal in accordance with Section 9.12 of the Regina Development Plan.
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Developments which may trigger the need for a direct control district include those in areas which exhibit
features such as:

A unique physical, historic or cultural character or ambiance;
A significant environmental condition or concern; and
Special historic, cultural, archaeological, natural, scientific or aesthetic sites identified under
municipal, provincial, or federal legislation

We note that the use of direct control districts are limited by the Planning and Development Act.

The current Development Plan policies allow City consideration of the following criteria within Direct
Control Districts:

i. The development shall provide for a reasonably compatible interface with adjacent land use and
development;
ii. The development shall provide for adequate vehicular and pedestrian access, giving consideration
to surrounding traffic circulation patterns;
iii. The development shall contain an amenity area for the use and enjoyment of its occupants (i.e.
landscaping, recreational facilities);
iv. The development shall accommodate and coordinate with all relevant public service facilities (i.e.
sanitation, transportation, communication, energy, emergency services); and
v. The development shall be designed in a manner which addresses applicable environmental
concerns (i.e. pollution noise, sun-shadows, wind, etc).

These powers could be used to allow for a more extensive review of a suburban business park. These
powers could be implemented through the existing Development Plan framework.

We recommend that direct control districts be considered for larger or overall business park
developments, to ensure a high level of integration with surrounding land uses and infrastructure.

6.6 Proposed Zoning By-law Regulations for Business Parks

Should the City wish to create a Zone for Business Parks, we recommend the following regulations be
used.

1. A clear and concise statement for the Business Park Zone should be established which
establishes the intent and purpose of the zone. For example, the statement could be
written as:

This zone is intended to provide for the location of a cluster of prestige employment and
office uses located in a campus-like setting, designed, situated, and connected to form a
coherent, unified and definable grouping.
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2. The list of permitted and discretionary uses should be specific in both the type of uses and users.
Relative to office uses we recommend that the permitted size be limited to 4,000 sq m of gross floor
area per lot and that office uses be limited to those which, in our opinion, would not conflict or
inherently affect the Downtown. To this effect, we recommend office uses be limited to those
related to the following businesses:

a) Land development industry, construction companies, and real estate companies
b) Engineering, architectural, survey companies and technical services
c) Oil and gas sector and related services
d) Agricultural and mining sector and related services
e) Manufacturing, warehousing, and distribution sectors and related services
f) Logistics, inventory, management and transportation related
g) Pharmaceutical and health sector sales and service offices
h) Technology and telecommunications related businesses
i) Medical or related offices
j) Educational related office
k) Trade and immigrant related services
l) Science, technology and research and development related
Relative to other uses, we recommend the following would be appropriate in a business park
development either as primary or ancillary roles:
a) Light Manufacturing with no outdoor storage
b) Data Centres
c) Financial Institution
d) Restaurant
e) Licensed Restaurant
f) Licensed Dining Room
g) Bakery Shop
h) Fast Food Outlet
i) University, College and Professional School
j) Public Use
k) Park and Open Space
l) College, Community
m) Community Centre
n) Day Care Centre, Child
o) Day Care Centre, Adult
p) Laboratory, Industrial
q) Laboratory, Medical/Dental
r) Parking Lot, Paved
s) Recreational Service Facility
t) School, Vocational
u) Post Office
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Lastly we recommend the following uses be discretionary in that they are only permitted on the
ground floor of an office building:
a) Convenience Store
b) Personal Service Establishment
c) Confectionary Store

3. Relative to development standards, we recommend the following:

a) Minimum Lot Area: 2,000 sq m
b) Minimum Frontage: 30 m
c) Minimum Front or Exterior Yard Setback: 3 m
d) Maximum Front or Exterior Yard Setback: 6 m
e) Minimum Rear Yard Setback: 50% of the height of the adjacent wall; and
10 m from any lot in a residential zone
f) Minimum Side Yard Setback: 3 m; and
10 m from any lot in a residential zone
g) Maximum Site Coverage: 50%
h) Minimum Building Height: 8 m or 2 storeys
i) Maximum Building Height: 16 m or 4 storeys, whichever is less
j) Maximum Floor Area Ratio: 2.5
k) Minimum landscape open space: 15% of the lot area
l) Outdoor storage, display, or sales are prohibited.

4. Relative to parking standards, as per our discussions above, we recommend that the minimum
parking ratio for office uses be 1 space per 34 sq m with a maximum parking ratio of 1 space per 27
square metres.

We further recommend that design requirements for office use parking be set out as follows:
a) Parking for office uses beyond the maximum requirement is permitted, provided that said
excess parking must be located in a below-grade or above-grade structure.
b) Parking up to the maximum requirement may be provided in surface parking lots, provided
that such parking lots must be broken up by three metre wide soft landscaped areas with a
maximum of 100 contiguous parking spaces.
c) Parking within the required front yard be prohibited and is to be located in a side yard not
abutting a public street, or in the rear yard. Where both side yards and/or the rear yard abut a
public street, parking shall be located no closer to the lot line than the width of a five metre
soft landscape strip.
We believe the above zoning regulations will result in an appropriately designed campus style business
park which is differentiated from the Downtown such that it does not compete directly with the
Downtowns role as the primary office location in the City.

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7.0
BUSINESS PARK DESIGN
RECOMMENDATIONS

Under the proposed policy framework outlined above, the City will be able to deal with the design of
business parks more effectively. The following represents a set of urban design principles intended to
provide the City of Regina with a clear direction of how to implement the Citys intent and vision for
business parks. These principles represent an amalgamation of best practices from successful business
parks across Canada, tailored to fit the Regina context. These principles supplement the policy and
regulation recommended in this report, and should be further refined as part of a comprehensive urban
design strategy or guidelines tailored for the desired location.

7.1 Public Realm Principles

7.1.1 Overall Business Park Design

The new business park area should take into consideration the character and form of surrounding
developed areas, and provide for a building typology and streetscape design that integrates the
business park development into the larger urban fabric.

New business parks are encouraged to provide a variety of retail and service uses as ancillary uses to
maintain activity throughout the day, and to enhance the overall enjoyment of the area by visitors
and employees. Dry cleaners, restaurants, fitness facilities, copy shops and other incidental uses
would serve employees of the business park as well as the adjacent neighbourhoods.

If any cultural or natural heritage features exist, the proposed business park design should embrace
and incorporate these features as an amenity or a functional component of the business park. This
will enhance the park-like environment, and also achieve the Citys natural heritage preservation
goals.

The development of the business park should make efforts to work with the existing topography
where feasible to minimize the extent of site works necessary, and allow for variation in grade
throughout the park.

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7.1.2 Street Network

New business park areas shall extend existing street connections and maintain consistency with
surrounding existing streetscape patterns, while taking into account issues of truck movements,
traffic circulation and pedestrian comfort.

The business park should orient itself towards the primary road in the park. Major facilities in the
business park, such as open spaces, anchor tenants, or large multi-tenant buildings should be
organized around this central axis. This orientation will allow the primary road to serve as a focal
point for built form and main circulator for pedestrians, cyclists, transit, and automobiles.

Roundabouts should be incorporated as part of the overall design of the primary road network to
give the road and business park prominence and prestige as people move through the space.

A separate painted bicycle lane should be provided on the primary road within the business park
development, to promote sustainable forms of movement and access to the park.

All other roads within the proposed development would be secondary roads and should provide
direct access off the primary road. On-street parking should be promoted along these roads to
encourage animation along the street faade and reduce parking demands on private properties.

The primary right-of-way should generally be a width of 26 to 30 m, and secondary roads should
generally be a width of 18 to 22 m. This width provides for sufficient space to accommodate tree-
lined boulevards, sidewalks, bicycle lanes, and parked cars.

7.1.3 Streetscapes

Public right-of-ways should be designed to offer maximum pedestrian and cyclist comfort, and
provide for the highest levels of safety for both.

Pedestrian sidewalks should be approximately 1.7 m wide, and constructed of durable materials that
can withstand the rigors of the typical freeze-thaw cycles of Canadian climates.

Street trees should be lined along all streets within the overall business park development.

Pedestrian crosswalks should be clearly marked through material change or painted lines at all
intersections or mid-block connections within the business park.

Street lighting should be provided along all roads within the development for illumination of both
the roadway and the sidewalk. Light standards should be coordinated and distinct from the greater
community to help create a sense of place for the business park.

Street furniture such as benches, waste receptacles and bicycle locks should be of a coordinated
design with street lighting, and should be designed in coordination with bus shelters/pads along
the road network.

Transformers and cable/telephone boxes should be screened with landscaping where feasible.
Utility overhead wires should be buried where possible to remove clutter from the public realm.
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7.1.4 Open Space
Wherever possible, existing open space areas should be preserved and enhanced as passive
recreation space.

All open space areas, whether existing or proposed, should be integrated into the overall business
park development such that the features serve as a focal point or vistas for the development
through the following initiatives:

- aligning buildings and roads towards the open space area;

- providing for continuous pedestrian and cycling connections to and from the open space area; and,

- providing for connections from open space area to other amenity areas within the proposed
business park development.

Connections such as bicycle routes and pathways to any adjacent open space external to the
business park development should be promoted and encouraged to build a seamless, connected
urban experience.

7.2 Private Realm Principles

7.2.1 Yards

Building setbacks from the street should be minimized such that a defined street wall is created to
animate the streetscape and create a sense of place. A minimum setback of 3 metres and a
maximum setback of 6 metres are recommended, with additional setback requirements when
abutting a residential zone. This shall be in coordination with the design of the building to ensure
that an acceptable level of pedestrian comfort is achieved.

Yards should be designed to encourage as many pedestrian connections as possible from the
building to the public sidewalk.

Front and side yards should be enhanced through a mixture of vegetation and landscape design
elements to provide for visual interest and pedestrian amenity.

Where a rear or side yard abuts a residential zone, a minimum 10 m setback should be provided,
supported by a dense planting strip and opaque fencing.

7.2.2 Parking

A minimum and maximum parking ratio should be enforced for all buildings subject to the business
park policy framework. Part of the recommended policy framework of this report is to require that
any development that exceeds the maximum parking ratio is to be provided by way of structured or
underground parking.

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Any proposed parking structures should be hidden from the public realm. Where parking structures
are visible from or adjacent to the public realm, they should be of a high architectural design and
quality that is complementary to the primary buildings.

Parking structures should not exceed the setback of the primary building on the property, and
should not exceed the height of the main building.

Surface parking areas shall be broken up through the strategic placement of landscaped islands
within the parking field. Landscape islands should be of a sufficient size (3m in width) to support
growth of trees and landscaping.

Pedestrian walkways should be incorporated throughout all parking areas to provide safe
connections to building entrances and to the street. Parking areas should be designed to direct
movement along these pedestrian walkways.

Driveway connections to the street shall be minimized to reduce the risk to pedestrians and cyclists
and to provide for a more continuous active streetscape. Under no circumstances should the
parking areas be located between a street and the front building wall.

Trees should be provided adjacent to all exposed surface parking areas to add additional screening.
These trees would be in addition to proposed street trees in the public realm and low-lying
landscaping in the private realm.

Plug-ins should be available in the parking field and/or parking structures to keep block heaters
warm in the winter, and to accommodate electric vehicles.

Loading areas shall be located at the rear or side of the building away from the street, and shall be
sufficiently screened to minimize impacts to surrounding uses and to pedestrians. Screening may
consist of an architectural wall, vegetation, or a combination of both.

7.2.3 Landscaping

Landscaping should be utilized to break up long expanses of blank building facades with a
combination of horizontal and vertical species. Species such as Ivey can also be considered along
building facades to complement landscape planting.

Landscaping should be incorporated along the property line to delineate the separation of public
space from private space. This could include trees, low walls, shrubbery, or others vegetative
elements.

Shade trees should be incorporated in strategic locations to provide seasonal outdoor break areas
for employees. Additional landscape features such as benches, tables and other amenities should be
provided in these locations. Such outdoor furniture should be consistent with the design and
materials of street furniture in the adjacent public realm.

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7.2.4 Shared Amenities

Where a campus-style business park is proposed, the developer should provide interior circulation
opportunities between buildings.
Parking areas should be designed to allow for connected movement between property lines, to
reduce pressure on primary and secondary streets and to promote a campus-like connectivity.

Consider the use of shared courtyards, landscaped pathways, water features, open space areas, and
shared active recreation facilities such as soccer pitches to serve the business park and the greater
community.

7.3 Built Form Principles

7.3.1 Massing and Orientation

Buildings shall be located close to the street to promote a sense of enclosure and animation along
the public realm.

Buildings should be designed such that their active uses are oriented towards the street. This creates
a sense of shared ownership of the public street and aids in the promotion of safe, active
streetscapes within the business park.

Building massing should be varied to remove any potential for monotonous facades, and should be
coordinated to take advantage of significant views and vistas within the business park.

Buildings should be situated on the site such that new users can be accommodated through
infilling and intensification as the business park evolves over time.

7.3.2 Building Elevations and Materials

Office buildings should be a minimum two storeys and a maximum of four storeys in height, and
articulated to achieve visual interest along the street.

Building heights should be sensitive to existing lower-density areas, and transition in height
accordingly.

All buildings should use a minimum of three material texture changes in the building facades, with
at least one of those materials being a clear accent colour, to encourage a high level of architectural
design appropriate for a business park. For example, a building using a combination of brick, EIFS
paneling, aluminum paneling and vision glass represents four material changes.

Vision glass should be provided generously along facades that abut a street.

Buildings located on properties that intersect with the primary road should provide enhanced
architectural treatment at the corner. This can include a combination of additional height,
fenestration, planting, lighting, and signage to bring prominence to the corner.

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Up-lighting should be considered only on the street-fronting elevations of all buildings to give
prominence to the business park tenants.

A coordinate signage program should be implemented to unify the areas identity and enhance the
aesthetics of the business park.

7.3.3 Building Entrances

Entrances to the office buildings shall be provided from the public street in addition to any internal
parking fields. These entrances should be designed with prominence such that they are clearly
identifiable from a pedestrian level.

A continuous, uninterrupted path of travel should be provided between the entrance and the
public sidewalk. Site design should consider pedestrian desire-lines when proposing the path of
travel.

On corner lot locations, the building entrance should be located at close to the corner to reinforce
the corner.

7.3.4 Outdoor Storage

Outdoor storage should generally be prohibited, however, if permitted it should be located at the
rear of buildings and should be sufficiently screened to minimize impacts to surrounding uses and
to pedestrians.

7.4 Sustainability Principles

7.4.1 Site Features

A central stormwater management facility or pond should be used to control quality and quantity
storm flows for the overall business park. This pond should be integrated as part of an open space
area to function as an amenity to the business park.

Permeable paving should be considered for sidewalks and parking areas to further promote
stormwater infiltration and to enhance the look, feel and quality of the business park.

Xeriscaping or drought resistant local planting species should be considered to reduce
consumption of water for irrigation. Alternatively, stormwater retention for irrigation should be
considered.

Landscaped bioswales should be considered in public and private areas as amenity features in
parking fields or along the streetscape.

Light coloured materials with a high solar reflectance should be used for parking surfaces and
walkways to reduce urban heat island effect.

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LED or other low/zero energy consumption outdoor lighting should be considered in the
streetscape and on private properties.

Carpooling and car-sharing opportunities should be promoted for each new development in the
business park.

Bicycle parking should be provided internal to office buildings to offer a warm, dry storage location
for commuters who cycle. Change rooms and showers should be considered to further support
cyclists.

Site design for buildings should address and support the location of any existing or proposed transit
stops.

7.4.2 Building Features

Buildings are encouraged to achieve LEED status.

Green or white roof technology is encouraged on all buildings to reduce height island effect.

Buildings should be designed to maximize the amount of natural light entering the building,
helping to reduce energy costs.

The first 12 metres of building facades should be designed with bird-friendly initiatives to support
migratory bird movements. Such initiatives can include, canopies and awnings, angled or in-set
windows, window density pattern treatments such as film or decals, louvers or grills, and non-
reflective surfaces.

Low flow fixtures such as toilets and faucets are encourages. Recycling greywater from faucets for
use in fixtures such as toilets is also encouraged.

Use of energy efficient lighting and movement-censored lighting within buildings is encouraged.

Renewable energy devices such as turbines or solar panels should be promoted as part of the
architectural design of buildings.

Use of recycled, regionally sourced and/or durable materials should be promoted in the
architectural design of buildings to promote the regional economy and building longevity.

Construction finishing materials with low-emitting VOCs should be considered for the health and
safety of employees in the buildings.

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8.0
CONCLUSIONS

With the Citys economy expanding, there is a need to respond effectively and efficiently to market
demands for office space. Tempering this response is the need to ensure that the Downtown, the heart of
the City, is not adversely affected by a proliferation of suburban office space.

Through our review and analysis, we have provided a number of recommendations to assist the City in
striking a balanced and reasonable approach to manage the supply and demand of office space. This
balanced approach includes a provision for office space in formal business park(s) established by the City
through appropriate location criteria. A policy framework is recommended which will allow the
establishment of office space outside of the Downtown, but at a rate which we believe will not adversely
impact the Downtown or result in undermining the Downtowns primacy in office employment.
Combined with appropriate phasing policies, we are recommending that a strong regulatory approach be
taken to ensure that business parks are developed as high quality environments and in a sustainable
manner.

Please feel free to call should you have any questions on our analysis or recommendations.

Thank you.

Yours truly,
MHBC

David A. McKay, MSc, MCIP, RPP Eldon C. Theodore, MUDS, MCIP, RPP LEED AP
Partner Associate / Senior Urban Designer

Ryan Moore, MPl, LEED AP
Senior Planner

Regina Business Park Study: City of Regina March 8, 2012

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Prepared by: MacNaughton Hermson Britton

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