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Public Meeting Report
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Report To: Planning and Development Committee
Date of Meeting: October 2, 2017
Report Number: PSD-066-17 Resolution Number:
File Number: ZBA 2015-0022 By-law Number:
(Cross-reference SPA 2015-0022)
Report Subject: A revised rezoning application by 1891211 Ontario Limited to permit
three apartment buildings containing 425 dwelling units,
Bowmanville West Urban Centre
Recommendations:
1.That Report PSD-066-17 be received;
2.That the revised application to amend Zoning By-law 84-63 submitted by 1891211
Ontario Limited continue to be processed including the preparation of a subsequent
report; and
3.That all interested parties listed in Report PSD-066-17 and any delegations be advised of
Council’s decision.
#PD-179-17
Municipality of Clarington
Report PSD-066-17 Page 2
Report Overview
This is a 2nd Public Meeting report to provide an overview of revised applications received for
lands located southeast of the intersection of Regional Road 57 and King Street West in
Bowmanville. The Owner is seeking to rezone this property, in conformity with the Official Plan
and Bowmanville West Town Centre Secondary Plan, to allow for three apartment buildings.
The application has been revised as follows:
Original Application Second Submission
Three Apartment Buildings Three Apartment Buildings
(Six storeys each) between 6 and 12 storeys
TOTAL: 414 units TOTAL: 425 units
1. Application Details
1.1. Owner/Applicant: 1891211 Ontario Limited
1.2. Agent: YYZed Project Management
1.3. Proposal: Revised rezoning application to permit three apartment
buildings, between 6 and 12 storeys, containing a total of 425
dwelling units
1.4. Density 148 units per net hectare
1.5. Area: 2.87 hectares
1.6. Location: Part of Lot 14, Concession 1, Former Town of Bowmanville
215, 219 & 223 King Street West, Bowmanville
1.7. Within Built Boundary: Yes
2. Background
2.1 The subject applications and supporting studies have been under review since late
December 2015. The following is a chronology of the applications:
Activity Date
Applications Deemed Complete December 8, 2015
Public Information Centre hosted by Applicant January 28, 2016
Statutory Public Meeting held by Council February 22, 2016
Revised Application received prompting a 2nd Public Meeting August 16, 2017
Municipality of Clarington
Report PSD-066-17 Page 3
2.2 Following the first Public Meeting in January 2016, the applicant worked towards
addressing staff and agency comments.
2.3 As identified in the first Public Meeting report (PSD-017-16), traffic and access were
identified as major issues to address. As a result of Engineering staff’s request that the
entrance be signalized, and spacing requirements for signalization, the proposed access
to King Street has shifted approximately 30 metres to the east.
2.4 In addition to revising the access location, the latest revised plan was submitted to
address other comments relating to servicing and grading, urban design and site layout to
avoid significant noise barriers adjacent to the railway. The revision to the built form has
not significantly changed the density of the project, but the height of the buildings are now
between 6 and 12 storeys, compared to the original plan for three buildings, all six
storeys in height.
2.5 The site benefits from a very prominent location southeast of Regional Road 57 and King
Street West in Bowmanville. The designation permits high density residential
development and is a key site in the West Town Centre of Bowmanville. The proposed
revised site plan and perspective drawing are included as Figure 1 and 2, respectively.
2.6 The following studies were submitted in support of the proposed rezoning application and
concurrent site plan application. These reports have been updated where necessary to
address comments following the first Public Meeting and in support of the revised plan:
Functional Servicing Report
Transportation Study
Noise Impact Study
Urban Design Brief
Energy Conservation and Sustainability Plan
Stage 1 & 2 Archaeological Assessment
Geotechnical Investigation
Phase 1 Environmental Site Assessment
Municipality of Clarington
Report PSD-066-17 Page 4
Figure 1: Proposed Site Plan
Figure 2: Building Perspective Drawing
Municipality of Clarington
Report PSD-066-17 Page 5
3. Land Characteristics and Surrounding Uses
3.1 The subject lands are located at the southeast corner of Regional Road 57 and King
Street West in Bowmanville. The triangular-shaped parcel is relatively flat but because of
grade separations for crossing the railway is well below the road grade at the west end
abutting Regional Road 57 at the railway, it is well above the grade of Highway 2 where it
is crossed by the railway. Vegetation on the site has regenerated over time, and is not
identified as a significant natural heritage resource.
Figure 3: Key Map
3.2 The surrounding uses are as follows:
North - Liberty Pentecostal Church
South - CP Railway; existing residential development
East - CP Railway overpass at King Street West; existing residential development
West - Future Retail/Commercial Development
Municipality of Clarington
Report PSD-066-17 Page 6
4. Provincial Policy
4.1 Provincial Policy Statement
The Provincial Policy Statement identifies settlement areas as the focus of growth. Land
use patterns shall be based on densities and a mix of land uses that efficiently use land,
resources and infrastructure. Opportunities for redevelopment and intensification must be
promoted. Municipalities must provide a variety of housing types and densities, and a
range of housing options that are affordable to the area residents.
Healthy and active communities should be promoted by planning public streets to be
safe, meet the needs of pedestrians, foster social interaction and facilitate active
transportation and community connectivity. Compact and diverse developments promote
active modes of transportation such as walking and cycling.
4.2 Provincial Growth Plan
The subject lands are within the defined Built Boundary of Bowmanville. Population and
employment growth will be accommodated by directing a significant portion of new
growth to the built up areas through intensification and efficient use of existing services
and infrastructure. The development of complete communities is encouraged by
promoting a diverse mix of land uses, a mix of employment and housing types, high
quality public open space and easy access to local stores and services. New transit-
supportive and pedestrian-friendly developments will be concentrated along existing and
future transit routes. A minimum of 40 percent of all residential development occurring
annually within each upper tier municipality will be within the built up area.
5. Official Plans
5.1 Durham Regional Official Plan
The subject lands are within a Regional Centre. Regional Centres provide a full array of
institutional, commercial, major retail, residential, recreational, cultural, entertainment and
major office uses. Regional Centres function as places of symbolic and physical interest
for the residents, and shall provide identity to the area municipalities within which they are
located. The subject lands are also located along a Transit Spine, being the Highway
2/King Street corridor.
Regional Centres shall support an overall, long-term density target of at least 75
residential units per gross hectare and a floor space index of 2.5.
Development in Regional Centres shall be based on the following principles:
Compact urban form which is transit-supportive;
Provides a mix of uses and opportunities for intensification;
Follows good urban design principles with focus on public spaces and pedestrian
connections, with parking sited to the rear or within buildings; and
Municipality of Clarington
Report PSD-066-17 Page 7
Enhances grid connections for pedestrians and cyclists.
The lands are within the Built Boundary. The Clarington urban area shall be planned to
accommodate a minimum 32 percent of all residential development occurring annually
through intensification within the built-up area.
Transit Spines facilitate inter-regional and inter-municipal transit services along arterial
roads (GO Transit), and intersect with local transit services (Durham Regional Transit).
Development along Transit Spines shall provide for complimentary higher densities and
mixed uses in accordance with the Regional Corridor policies.
Since the site is bound by Regional Road 57 and King Street West (both identified as
arterial roads) and the railway to the south, noise and vibration impacts must be mitigated
in accordance with Ministry of Environment guidelines.
By 2015, and each year thereafter, urban areas across the Region shall be planned to
accommodate a minimum 40 percent of all residential development occurring annually
through intensification within built-up areas. The Durham Regional Official Plan requires a
minimum intensification target of 32% for lands within the built boundary in Clarington.
Transit Spines facilitate inter-regional and inter-municipal transit services along arterial
roads (GO Transit), and intersect with local transit services (Durham Regional Transit).
Development along Transit Spines shall provide for complimentary higher densities and
mixed uses in accordance with the Regional Corridor policies.
Since the site is bound by Regional Road 57 and King Street West (both identified as
arterial roads) and the railway to the south, noise and vibration impacts must be mitigated
in accordance with Ministry of Environment guidelines.
5.2 Clarington Official Plan
The lands are designated Urban Centre and are within Bowmanville West Town Centre
Secondary Plan area. The West Town Centre has a housing target of 3041 units,
including 2557 high density units and 484 medium density units.
Urban Centres will be planned and developed as a centre of regional significance
providing the highest level of retail and service uses and are the primary focal point of
cultural, community, recreational and institutional uses in Clarington. Urban Centres are
designed to be complete communities, and are also identified as Priority Intensification
Areas, which allows for flexibility on parking requirements.
Urban Centres are planned to provide a mix of uses, encourage active street life, and
develop in a manner that supports transit and pedestrian connectivity. The urban design
policies of the Town Centre designation are implemented through the review and
approval of development applications.
The site is within a Prominent Intersection and must also satisfy the Official Plan’s
comprehensive Urban Design policies that encourage a high quality public realm, and
give priority to sustainable design, including environment-first principles, walkability, land
efficiency, compact and connected communities and resource and energy efficiency.
Municipality of Clarington
Report PSD-066-17 Page 8
Attractive and safe communities are encouraged to create a sense of place and a
diversity of built form. The built form should facilitate active transportation and public
transit.
The land’s location near the future planned Go train station is supportive of high density
apartment use.
Regional Road 57 and King Street West are identified as arterial roads consistent with
the Durham Regional Official Plan.
5.3 Bowmanville West Town Centre Secondary Plan
The subject lands are designated as Office Commercial in the Bowmanville West Town
Centre Secondary Plan. The designation allows for residential development up to a
maximum density of 150 units per hectare. The policies do not require the integration of
retail and service uses within the residential development at this location, however,
providing a mix of uses is encouraged.
In addition to the Urban Design and Town Centre policies that give direction to site plan
design, the Bowmanville West Town Centre Secondary Plan contains detailed Urban
Design policies, including an Urban Design Guideline, and policies specific to apartment
buildings.
6. Zoning By-law
Zoning By-law 84-63 zones the subject lands Agricultural (A). A rezoning is required to
place the lands in an appropriate urban zone to permit the apartment buildings.
7. Public Notice and Submissions
7.1 A notice of this second Public Meeting was mailed on September 11, 2017 and revised
signs were posted on the property. A special page on the Municipal Website continues to
be dedicated to the subject development proposal, and reflects the latest plan.
7.2 The list below reflects all comments received on the development proposal to date.
Through the revised notification period, one new interested party contacted staff with
concerns about traffic at the intersection of Highway 2 and Regional Road 57. One other
resident that had previously contacted staff raised concerns about traffic and safety.
The development is resulting in too much density.
The buildings are too tall.
Concerns raised about adding more traffic in the vicinity of a busy intersection.
Development adjacent to railway and busy road is unsafe for residents and children.
It would be difficult to turn in and out of the site along busy King Street.
The development would have a negative impact to property values.
Can suitable fire protection be provided?
Concerned about the length of construction period and impacts from construction,
such as noise, dust, traffic.
Municipality of Clarington
Report PSD-066-17 Page 9
What will the building look like from walking along Highway 2.
Keep the Bowmanville corridor ‘historic’.
Would the tenure of the building be condominium or rental?
Additional children from development would result in school overcrowding.
Noise from railway will bounce off the buildings and impact the Waverley
neighbourhood.
Additional development would result in increased crime rates.
The development will have negative environmental impacts.
7.3 Staff have also been contacted by individuals looking to purchase units, and those in
support of the project.
8. Agency Comments
8.1 Regional Municipality of Durham
At the time of writing this report, comments from the Region of Durham on the revised
application have not yet been received.
8.2 Central Lake Ontario Conservation Authority
The Conservation Authority has not provided comments on the revised application, but
previously forwarded several comments on the technical studies, and comments relating
to stormwater management, grading and servicing must be resolved prior to providing
their support on the applications.
8.3 Canadian Pacific Railway
On the initial preliminary site plan, the Railway provided no objection to a reduced
setback from 30 metres to 20 metres, subject to installation of a safety berm and
engineered crash wall.
CP Railway will review the latest revised site plan and engineering submission in detail
and will require supporting material to be peer reviewed.
8.4 Other agencies
During the review period for the initial submission, Veridian, Kawartha Pine Ridge District
School Board, Peterborough Victoria Northumberland Clarington Catholic District School
Board, Canada Post and Enbridge Gas had no objections to the proposal for the 414 unit
project, and standard conditions of approval were forwarded to the applicant.
Municipality of Clarington
Report PSD-066-17 Page 10
9. Departmental Comments
9.1 Engineering Services
The applicant must satisfy the Engineering Services Department regarding the following
concerns and conditions:
Traffic
The applicant submitted a Transportation Study in support of the application. The
study is under review. Staff support the shifting of the entrance to the east, and future
signalization.
Grading, Drainage and Servicing
The applicant submitted a Functional Servicing Report which includes the proposed
grading, drainage, and servicing of the site. The plans are under review.
Storm Water Management
The Functional Servicing Report addresses the proposed post-development runoff to
King Street West and the proposed post-development runoff to the railway lands, from
both a water quantity and water quality perspective. Stormwater management is under
review, and is subject to the approval of the Municipality, the Conservation Authority
and Canadian Pacific Railway.
9.2 Emergency and Fire Services
Clarington Emergency and Fire Services provided comments relating to the location of
fire routes and hydrants, and notations on the site plan drawings. “No parking” signage
will be required along all fire routes and detailed on the site plan.
The Department must be satisfied with access to the site from an emergency response
perspective.
9.3 Operations Department
Operations provided comments relating to grading, providing suitable fencing along the
railway, upgrading street lighting, designating snow storage areas and landscaping
treatment along King Street West. The comments will need to be addressed in their future
revised submission.
9.4 Building Division
The Building Division provided several comments specific to providing barrier-free paths
of travel and the location of fire routes and hydrants. The Building Division is requesting
more detailed servicing and grading plans in order to complete their review.
Municipality of Clarington
Report PSD-066-17 Page 11
9.5 Accessibility Committee
The Accessibility Committee met to discuss the applications and has provided detailed
comments on the current development proposal related to site plan matters for their
consideration and action. The committee will continue to be involved in the review of
subsequent submissions.
10. Discussion
10.1 The site of this proposal is located at one of the most prominent intersections in
Clarington and represents a key residential development opportunity in the Bowmanville
West Town Centre. The development has the potential to integrate well with existing and
planned residential, commercial, retail and office, and institutional uses in the West Urban
Centre. The site is centrally located to also support businesses.
10.2 The application was revised to address the significant concerns raised by staff and
agencies on the original concept plan. Shifting the access has resulted in a redesign of
the site. The revised material is under review by staff and agencies, however, the major
critical issues continue to be the same issues identified during the first public meeting
phase:
Traffic and access;
Satisfying Railway requirements;
Servicing, Grading and Stormwater Management; and
Urban Design.
10.3 The proposed development would result in a density of 148 units per hectare, a small
increase from the original submission, which was calculated at 144 units per hectare.
However, the revised entrance location has resulted in taller buildings now permitted in
Urban Centres under the Clarington Official Plan. At the same time, the easterly portion
of the site will be retained as open space.
10.4 The purpose of the Public Meeting is to provide an opportunity for further public input.
These public comments will be reviewed by staff and the applicant and addressed in a
subsequent staff report.
11. Concurrence
Not applicable.
12. Conclusion
The purpose of this report is to provide background information on the revised application
submitted by 1891211 Ontario Limited for the Public Meeting under the Planning Act.
Staff will continue processing the application including the preparation of a subsequent
report upon resolution of the identified issues.
Municipality of Clarington
Report PSD-066-17 Page 12
13. Strategic Plan Application
The application assists to implement the Strategic Plan action to support a variety of
affordable mixed housing types.
Submitted by: Reviewed by:
David J. Crome, MCIP, RPP Andrew C. Allison, B. Comm, LL.B,
Director of Planning Services CAO
Staff contact: Anne Taylor Scott, Senior Planner, 905-623-3379 ext. 2414 or
ataylorscott@clarington.net
A list of the interested parties to be notified of Council’s decision is available in the Clerk’s
Department.
CP/ATS/tg/ah