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Report
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Report To: Planning and Development Committee
Date of Meeting: October 2, 2017
Report Number: PSD-072-17 Resolution Number:
File Number: PLN 41.2 By-law Number:
Report Subject: Update of the Secondary Plans and Zoning for the Bowmanville West
Urban Centre and the Bowmanville East Urban Centre
Recommendations:
1.That Report PSD-072-17 be received;
2.That staff be authorized to undertake a review of the Bowmanville West Urban Centre
Secondary Plan and the Bowmanville East Urban Centre Secondary Plan and to issue
the appropriate requests for proposal; and
3.That all interested parties listed in Report PSD-072-17 be advised of Council’s decision.
#PD-183-17
Municipality of Clarington
Report PSD-072-17 Page 2
Report Overview
The Planning Services Department is preparing to update the Secondary Plans and zoning for
the Bowmanville West Urban Centre and the Bowmanville East Urban Centre. These updates
will bring the policies of both plans into conformity with the Clarington Official Plan and
Provincial and Regional policies, address current and anticipated market trends as well as
reflect the unique development potential within each area.
In Bowmanville West, the creation of the Bowmanville Transportation Hub will form a key
component of the revised Secondary Plan.
In Bowmanville East, redevelopment of the former Goodyear lands will form a key component
of the revised Secondary Plan.
1. Secondary Plan Overview
1.1 Within the Official Plan, specific areas of the community are subject to planning through
Secondary Plans. Secondary Plans offer more specific direction on how the community
will grow at a neighbourhood scale. These Secondary Plans are often more detailed than
the main Official Plan and they are able to account for the specific context and character
of each Secondary Plan area.
1.2 The Bowmanville West Urban Centre (BWUC) and the Bowmanville East Urban Centre
(BEUC) are two of the current Secondary Plan areas in Clarington. Both of these
Secondary Plans have existed in their current form for over 10 years. The last update of
the BWUC was in 2006 and the BEUC in 2003. Over that time they have guided new
growth and redevelopment within these parts of the community. However, recent policy
changes and unique development opportunities within each area means it is the
opportune time to review and update these Secondary Plans and related zoning.
2. Why an Update Is Necessary
2.1 Provincial Policy and Regional Official Plan Policy
Changes to Provincial and Regional policy now require that a greater amount of growth
be directed to corridors and centres. The BWUC and BEUC are both identified as Urban
Centres in the Regional Official Plan. The current policies in both the BWUC and the
BEUC Secondary Plan need to be amended to promote these new densities.
An update is also needed to incorporate changes to the Provincial Growth Plan and other
Provincial direction on issues like climate change and active transportation.
Municipality of Clarington
Report PSD-072-17 Page 3
2.2 Updates to the Clarington Official Plan
Amendment Number 107 to the Municipality of Clarington Official Plan was approved by
the Region of Durham on June 19, 2017.
The updated Official Plan identifies the BWUC and BEUC Secondary Plans as key
intensification areas. The new policies are designed to promote more walkable
neighbourhoods, attractive public spaces, and complete streets that are designed for
people and not just cars. The BWUC and BEUC Secondary Plans need to be updated to
reflect the changes made to the Clarington Official Plan.
2.3 Market Trends
Over the past several years, the retail market has experienced significant changes.
Online retail is reshaping the shopping experience. New forms of retail experience, such
as mixed-use and lifestyle centres, are growing in popularity and offer an alternative to
the existing big-box format found in the BWUC area. In the BEUC area, traditional anchor
tenants or attractions, such as banks and the post office, are seeing their influence wane.
Commercial centres are having to redefine themselves in order to remain relevant and
vibrant in light of a changing economy and changing technology.
2.4 Development Opportunities
Each Secondary Plan area also faces unique development opportunities that will need to
be incorporated into the review and update of these Plans. The BWUC will develop a
transportation hub to support the GO rail service scheduled to begin in 2024. The BEUC
will investigate the redevelopment potential of the former Goodyear lands.
3. The Bowmanville West Urban Centre
3.1 Background
The Bowmanville West Urban Centre (BWUC) Secondary Plan was approved by the
Ontario Municipal Board in 1993 and updated in 2006. It is located along the Durham
Highway 2 / King Street corridor in the west end of Bowmanville.
Development in this area began in the late 1980’s. Over time this area has grown to
include a diverse mix of commercial, residential and institutional buildings.
Municipality of Clarington
Report PSD-072-17 Page 4
Figure 1 – Bowmanville West Urban Centre
The property ownership in the BWUC area has accommodated the development of new
retail formats. As a result, the BWUC area now serves as the retail services hub for
Bowmanville and many parts of Clarington. The commercial buildings are comprised of a
mix of big-box stores and street-related restaurants and retailers. While not all of the
commercial land has yet been developed a couple of the commercial properties (the
former Zellers and the former Canadian Tire) have already been redeveloped to
accommodate a second round of commercial tenants.
The current residential development includes Seasons Clarington assisted living
retirement residence and a multi-storey condominium building on Prince William Drive.
Throughout the BWUC there are a number of additional residential projects that are in
various stages of review. These include medium-density townhouse developments as
well as multi-story condominiums and rental apartments.
The institutional buildings include the Garnet B. Rickard Recreation Complex, Clarington
Central Secondary School, and two churches. There is also 1 hectare of land owned by
the Municipality for a future park.
Municipality of Clarington
Report PSD-072-17 Page 5
Through the recent update of the Official Plan the BWUC now includes lands on the
south side of the C.P. rail line on the north side of Aspen Springs Drive. This expansion
has added approximately 13 hectares of developable land to the BWUC and includes:
The future GO rail station;
Several multi-storey condominium buildings; and
A proposed Tim Hortons restaurant and fuel bar.
Through the previous update to the BWUC Secondary Plan a Streetscape
Implementation Plan was prepared. This document gave direction to the design of the
public streets and sidewalks in the BWUC. While the implementation of this plan is still
ongoing much of this work can already be enjoyed along Durham Highway 2 and
Clarington Boulevard. Partial funding for the high quality streetscape improvements
along Durham Highway 2 have resulted from negotiations with the commercial
developers.
3.2 Bowmanville Transportation Hub
The Bowmanville Go Rail Station has been planned since the inception of the BWUC and
initial steps were taken to acquire the lands in 2004 and subsequently build a commuter
parking lot for bus service. The GO train extension to Bowmanville by 2024 offers an
opportunity to plan for development and redevelopment which will support a good quality
of life and enhance economic development through job creation and investment in the
community.
The area around the Bowmanville Transportation Hub is planned for a mix of uses that is
expected to include up to 3,300 residential units and over 25,000 square metres (270,000
square feet) of office and retail space.
With the major investment in Go Rail Service to Bowmanville by 2024 it is critical that the
built form around the station be designed to maximize this opportunity for the
Municipality. The Bowmanville Transportation Hub, together with all the land within a 500
metres radius of the station, are considered a Major Transit Station Area within the
Provincial Growth Plan. Major transit station areas must be planned for a minimum
density target of 150 residents and jobs combined per hectare to support this enhanced
transit service. The Growth Plan prohibits land uses and built form that prevent the
achievement of the minimum density targets.
3.3 Active Transportation, Complete Streets and Connectivity
The BWUC is the primary focus for intensification to be built to a density that is transit-
supportive and that supports active transportation (walking, cycling, etc.).
The existing policies and zoning regulations already direct new buildings to be located
near the street with connections from the sidewalk directly into the businesses. In
addition, many of the private streets that have been built within the big box plazas will
become public streets over time as these properties are built out. Updated policies are
required to address the future of the BWUC as it continues to mature over time.
Municipality of Clarington
Report PSD-072-17 Page 6
Supporting active transportation will also include redesigning streets so that they can
better accommodate multiple forms of transportation such as cycling. The existing grid of
sidewalks and paths that connect the Durham Highway 2 corridor with the surrounding
neighbourhoods, shopping areas, high school and parks will need to be further enhanced
to support pedestrian activity.
4. The Bowmanville East Urban Centre
4.1 Background
The Bowmanville East Urban Centre (BEUC) Secondary Plan was approved as part of
the Official Plan in 1996. It was later updated through a review exercise in 2003. The
BEUC Secondary Plan follows the King Street corridor from the traditional downtown area
and Bowmanville Creek at its west end to the Bowmanville Mall and the Soper Creek in
the east.
The BEUC is comprised of two distinct areas:
The Downtown (west of Liberty Street); and
The East Business District (east of Liberty Street).
Figure 2 – Bowmanville East Urban Centre
Municipality of Clarington
Report PSD-072-17 Page 7
4.2 The Downtown
The mix of uses and the historical architecture in the traditional downtown area create an
appealing pedestrian experience. The buildings are constructed beside the sidewalk and
contain large display windows. Pedestrians are buffered from the street by parked cars
along the curb.
The eclectic mix of building types and lot sizes has led to a varied assortment of
businesses throughout the traditional downtown area. This has the benefit of offering a
greater range of rents and allows the area to serve as a small-business incubator.
4.2.1 Heritage
The BEUC reflects the community’s history from its founding through the post war era
until today. The downtown in particular includes many great examples of heritage
architecture.
In recognition of the historical resources in this part of the community the current
Secondary Plan has the stated goal of accommodating redevelopment and increased
densities with an emphasis on heritage preservation and quality urban design.
These policies, together with the strong support of Council and the Clarington Heritage
Committee, have allowed many of the built heritage resources in Bowmanville to be
preserved. The updated Secondary Plan will review and strengthen the heritage policies
in the BEUC.
4.2.2 Goodyear Redevelopment Area
As part of the Secondary Plan review the former Goodyear (Continental) lands will added
to the BEUC Secondary Plan. This 15 hectare property represents a unique
redevelopment opportunity in the centre of Bowmanville adjacent to the Bowmanville
Creek.
There are a number of existing buildings on the property that will need to be assessed
and evaluated for structural integrity, heritage value, remediation and the potential for re-
use. Cost-sharing opportunities will be explored with the owners of the Goodyear lands
to incorporate more detailed studies needed for this site.
The technical expertise that will be needed for the review of the former Goodyear lands
will encompass professionals in cultural heritage, natural heritage, site remediation,
stormwater management and municipal services, land use planning and urban design.
4.2.3 Civic Precinct
The Municipal Administration Centre and the Bowmanville branch of the Clarington
Library generate a lot of activity into Downtown. As the community continues to grow the
need for increased and expanded Municipal administration and other services will
become more critical. The Secondary Plan review process will examine the opportunities
of future expansion of Municipal facilities and amenities in the Downtown through the
Municipality of Clarington
Report PSD-072-17 Page 8
creation of a civic precinct. This will offer guidance to the Municipality in future expansion
plans. It will also reinforce to the business community and the public the Municipality’s
commitment to support the continued prosperity of Downtown.
4.2.4 Intensification
As a key intensification areas review of the BEUC Secondary Plan will include
recommendations on opportunities for redevelopment at higher densities than exist today.
That updated Secondary Plan and zoning will provide direction for future redevelopment
to proceed in a manner that continues to respect the character of the Downtown and uses
compatible transition to areas of lower density.
In order to facilitate future intensification an assessment will be prepared to evaluate the
capacity of existing municipal infrastructure. This will include an assessment of sanitary
and storm sewers, water service, Municipal parks and parking.
Parking is particularly important to downtown since there is a tendency to tear down
building to create parking lots to compete with plazas. In the end, the gap this creates in
the urban fabric undermines the character of the downtown with “parking craters”. The
assessment will evaluate the current stock of on-street and off-street public parking. It
will also research the best practices used by other municipalities to address their parking
needs. The recommended updates to the Secondary Plan will include a parking strategy
that preserves the right amount of parking in the Downtown without sacrificing
opportunities for redevelopment.
4.3 The East Business District
By contrast, the existing development east of Liberty Street is a much different
experience with buildings designed in a plaza or mall format. In this area many sites
have been designed with parking areas located between the building and the street. The
majority of land within the BEUC area has already been developed so the secondary plan
will be a plan for redevelopment.
4.3.1 Bowmanville Memorial Hospital / Lakeridge Health Expansion
For over 100 years, the “Bowmanville Hospital” (Lakeridge Health Bowmanville) has
provided medical services to the community. Major expansions to the hospital building
and campus are expected to occur in the next several years. As a key property owner
and stakeholder in the BEUC the update to the Secondary Plan and zoning will support
the ongoing operations of the hospital and their long-term presence in the community.
4.3.2 Active Transportation, Complete Streets and Connectivity
The layout and design of the Downtown (i.e. short blocks, buildings near the street and
facing the street, mix of uses) strongly supports active transportation. However, the post
war construction of several buildings and plazas in the East Business District offers a
much different experience for pedestrians and cyclists.
Municipality of Clarington
Report PSD-072-17 Page 9
Along the East Business District many properties have parking lots located between the
building and the street. Many properties do not include a mix of uses. The existing
sidewalks are narrow, unshaded and are situated beside fast moving traffic. As a result,
the Secondary Plan review will offer further solutions to continue the transformation of
this area that began with the update of the Secondary Plan in 2003.
The BEUC is located between the Bowmanville Creek trail in the west and the Soper
Creek trail in the east. The current connection between these two trail systems through
the BEUC should be improved to better promote the use of these existing community
resources.
5. Secondary Plan Review Process
5.1 The Planning Services Department will be seeking outside assistance for the review of
the Bowmanville West and the Bowmanville East Urban Centre Secondary Plans. Two
Requests for Proposal will be issued shortly – one for each Secondary Plan.
5.2 The Secondary Plan update will include the following components:
Background Analysis - The current conditions within the Secondary Plan and the
external factors influencing its development will be documented. This will include a
review of demographic data, land use policies, market trends, servicing capacity,
community and heritage resources, traffic and parking needs, as well as best
practices in urban design and sustainability.
Public Engagement - The successful consulting team will be expected to plan and
facilitate a number of public engagement sessions, including online surveys and
charrettes that will involve the community in shaping the future of these two
Secondary Plan areas.
Agency Engagement - Clarington’s partner agencies will be invited to collaborate in a
manner that will not only provide technical expertise to the project but will ensure that
the comprehensive plan that is developed is achievable over the long term.
Alternative Scenarios and Draft Plan - The consulting team to create a number of
growth scenarios for each Secondary Plan area. This will assist Council and the
public with visualizing different versions of the future. Based on the response to these
alternative scenarios a final set of policies and regulations will be drafted.
Report Back to Council for Final Approval - The consultant will deliver their final
recommendations to Council at a formal Public Meeting. Subsequently appropriate
amendments to the zoning and Official Plan will be considered for adoption.
6. Financial Considerations
The 2017 Planning Services budget includes funds for the update of the BEUC
Secondary Plan and the BWUC Secondary Plan. In order to successfully examine the
potential of the Goodyear site in enough detail, additional fund would be required from
Continental ContiTech. If Continental ContiTech does not participate, the scope of work
would be adjusted.
Municipality of Clarington
Report PSD-072-17 Page 10
7. Conclusion
The Bowmanville Town Centres are Clarington’s primary centres from an economic,
cultural and administrative perspective. Changes to Provincial and Regional policy, along
with changes in market trends and unique development opportunities in each area now
make it necessary to update the BWUC and the BEUC Secondary Plans and the zoning
regulations for these areas. The purpose of this report is to inform Council of the initiation
of an update of the Secondary Plans and zoning for the BEUC and the BWUC.
8. Strategic Plan Application
The recommendations contained in this report conform to the Strategic Plan.
Submitted by: Reviewed by:
David J. Crome, MCIP, RPP Andrew C. Allison, B.Comm. LL.B
Director of Planning Services CAO
Staff Contact: Paul Wirch, Senior Planner, 905-623-3379 ext. 2418 or pwirch@clarington.net
Carlos Salazar, Manager, 905-623-3379 ext. 2409 or csalazar@clarington.net
The following is a list of the interested parties to be notified of Council’s decision:
Historic Downtown Bowmanville Business Improvement Area
Continental ContiTech
Bowmanville Community Improvement Plan Liaison Committee (c/o Faye Langmaid)
Lakeridge Health
Clarington Heritage Committee (c/o David Addington)
PW/COS/ah;tg
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