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HomeMy WebLinkAboutPSD-068-10~al'li[l~`t011 Leading the Way REPORT PLANNING SERVICES PUBLIC MEETING Meeting: GENERAL PURPOSE AND ADMINISTRATION COMMITTEE Date: June 7, 2010 Resolution #: G pA -33yy0By-law #: N/A Report #: PSD-068-10 File #'s: COPA 2009-0006, S-C-2009-0003 and ZBA 2009-0023 Subject: APPLICATIONS TO AMEND THE CLARINGTON OFFICIAL PLAN AND ZONING BY-LAW AND FOR A PROPOSED DRAFT PLAN OF SUBDIVISION TO PERMIT 116 RESIDENTIAL UNITS APPLICANT: LAMBS ROAD SCHOOL PROPERTY LTD. RECOMMENDATIONS: It is respectfully recommended that the General Purpose and Administration Committee recommend to Council the following: THAT Report PSD-068-10 be received; THAT the applications to amend the Clarington Official Plan (COPA 2009-0006) and Zoning By-law 84-63 (ZBA 2009-0023) and for a proposed Draft Plan of Subdivision (S- C-2009-0003) continue to be processed, including the preparation of a subsequent report considering all agency comments and concerns raised at the Public Meeting; and 3. THAT all interested parties listed in Report PSD-068-10 and any delegations be advised of Council's decision. Submitted by: G Reviewed by: ~ ~{ ~-4JL-~Lt.. a~ a La g id, FCSLA, MCIP Franklin Wu Acting Director, Planning Services Chief Administrative Officer ATS/CP/df June 1, 2010 CORPORATION OF THE MUNICIPALITY OF CLARINGTON 4D TEMPERANCE STREET, BOWMANVILLE, ONTARIO L1C 3A6 T (905)623-3379 F (905)623-0830 REPORT NO.: PSD-068-10 PAGE 2 1.0 APPLICATION DETAILS 1.1 Applicant/Owner: Lambs Road School Property Ltd. (LRSP Ltd) 1.2 Proposed Official Plan Amendment: To amend "Map A3 -Land Use Bowmanville Urban Area" by: Relocating the existing Community Park designation currently at the corner of Lambs Road and Concession Street East northward to reflect the location of the historic buildings; ii) Redesignating the existing Community Park as Urban Residential; and iii) Adding a Medium Density Residential symbol at the northwest corner of Lambs Road and Concession Street East. 1.3 Proposed Zoning By-law Amendment: To rezone the subject lands from Urban Residential Exception (R1- 10) to appropriate zones to implement the proposed draft plan of subdivision. 1.4 .Proposed Draft Plan of Subdivision: To permit the development of 116 dwelling units comprised of 32 single detached dwellings on freehold lots; 36 single detached dwellings and 48 townhouse units with condominium tenure; a stormwater management block; roads and related services. 1.5 Area: 28.3 ha (lands subject to application) 1.6 Location: The subject lands are located in part Lot 7, Concession 2, former Township of Darlington. The subject lands are also referred to as 2020 Lambs Road (Attachment 1) 2.0 BACKGROUND 2.1 Lambs Road School Property Ltd. (LRSP Ltd.) owns approximately 42 hectares at the northwest corner of Concession Street East and Lambs Road in the Bowmanville urban area: The property-can be described as if it was divided into thirds. The proposed Official Plan amendment applies to the southerly two-thirds of the site while the proposed draft plan of subdivision and rezoning would apply to approximately the most southern third. The northern third is not the subject of any planning applications at this time. An air photo (Attachment 2) illustrates the subject property and existing buildings. 2.2 The subject property is well known for being the location of a boys' training school commencing in 1925 and also a German Prisoner of War Camp (Camp 30) during World War II. Various institutional uses continued following the termination of Camp 30 in 1945 REPORT NO.: PSD-068-10 PAGE 3 until October of 2008. These include: Ontario Training School for Boys, Pine Ridge School, St. Stephen's Catholic Secondary School, Great Lakes College, and Darul Uloom. 2.3 The property is of national, provincial and local historical and architectural significance. Given the architecture of the buildings and their historical significance, specific buildings have been placed on the Municipal Register which allows for additional time to review demolition applications and to possibly initiate heritage designation under the Ontario Heritage Act. Council has authorized the demolition of certain buildings, some are dilapidated, others have limited significance both architecturally and historically. 2.4 The subject applications were received in December 2009 and deemed complete in April 2010. The owners are applying to relocate the Community Park designation to the middle third of the property to encompass the location of the historic buildings. The southern third would be redesignated Urban Residential Area with a Medium Density Residential symbol to allow for 116 residential units as laid out in the proposed draft plan (Attachment 3). The rezoning would implement the draft plan of subdivision. In October 2009, LRSP Ltd. proposed to give the middle third of the property to the Municipality of Clarington. 2.5 In order to assess the applications from an environmental perspective, the preparation of an Environmental Impact Study (EIS) is required. The EIS has been broadened to review the natural heritage components of a Subwatershed study. In tandem, a scoped Subwatershed study is being prepared to satisfy the requirements of the Official Plana These two studies are underway. In addition, the following studies/reports in support of the draft plan of subdivision have been submitted: • Phase 1 Environmental Site Assessment • Geotechnical Report • Hydrogeological Study • Transportation Study • Noise Report • Functional Servicing/Stormwater Management Report • Phase 1 Archaeological Report The reports must be completed to the Municipality's satisfaction prior to staff supporting the approval of the proposed development applications. Review of these reports has not been completed afthis time. Staff will review the findings with the applicant where additional work is required. 3.0 SITE CHARACTERISTICS AND SURROUNDING LAND USES 3.1 The middle third of the subject property is the location of the former institutional uses and buildings. The southern third is the location of the former playing fields and is vacant (save for one storage building approved for demolition). The lands slope gradually in a .south-westerly direction towards Soper Creek which runs along the westerly limits of the site. The valleylands are treed. The southern third is grassed with limited coniferous and deciduous tree plantings. REPORT NO.: PSD-068-10 PAGE 4 3.2 Surrounding Uses: North - Lands owned by LRSP Ltd. and others (designated "Future Urban Residential"); CP Railway forms the north limit of Bowmanville urban area South - Proposed residential subdivision (File S-C-2005-002) including 273 single detached dwellings and 268 medium density units East - Vacant agricultural land (designated "Future Urban Residential") in the Bowmanville urban area West - Soper Creek and associated valleylands; single detached dwellings along Guildwood brive 4.0 PROVINCIAL POLICY 4.1 2005 Provincial Policv Statement The Provincial Policy Statement identifies settlement areas as the focus of growth. Land. use patterns within settlement areas shall be based on the efficient use of land, infrastructure and other public services, such as public transit. Opportunities for intensecation and redevelopment shall be indentified and promoted. A land use pattern, density and mix of uses should be promoted to minimize vehicle trips and support transportation choices, including public transit. Natural features and areas shall be protected for the long term. The diversity and connectivity of such features should be maintained, restored or, where possible, improved. Development and site alteration shall not be permitted on lands adjacent to significant natural heritage features unless the ecological function of the adjacent lands has been evaluated and it has been demonstrated that there will be no negative impacts on the natural features or on their ecological functions. Significant built heritage resources and significant cultural heritage landscapes shall be conserved. 4.2 Growth Plan for the Greater Golden Horseshoe The Provincial Growth Plan provides a framework for accommodating growth in both existing built up areas, through intensification and redevelopment. The subject Draft Plan is within the defined built up area. By 2015, a minimum of 40 per cent of all residential development occurring annually within the Region of Durham will be within the built-up area and will be further allocated through the Clarington Official Plan. Reducing dependence on the automobile is achieved through the development of mixed-use, transit-supportive, pedestrian-friendly urban environments. Complete communities are those that offer a mix of land uses and high quality public open spaces with easy access to local stores and services. Major growth is to be directed to areas serviced by existing orplanned municipal infrastructure, such as water and sewer services. Natural heritage features that complement, link or enhance natural systems shall be identified and protected. REPORT NO.: PSD-068-10 5.0 5.1 OFFICIAL PLAN POLICIES Durham Regional Official Plan PAGE 5 Within the Durham Regional Official Plan, the lands are designated as Living Area and Open Space to reflect Soper Creek and the valleylands. Lands designated as Living Area permit the development of communities with defined boundaries, incorporating the widest possible variety of housing types, sizes and tenure. Home occupations and convenience stores, in addition to certain public and recreational uses are permitted provided they are compatible with their surroundings. Limited office development and retailing of goods and services in appropriate locations, as components of mixed use developments, provided that Local Centres are designated in the area municipal official plan, and the functions and characteristics of such Centres are not adversely affected. The natural environment, including natural heritage and hydrologic features, shall be given. paramount consideration in light of their ecological functions and scientific, educational and health values. The subject lands are located along Lambs Road, which is designated as a Type "B" Arterial, and Concession Street East, which is designated as a Type "C" Arterial. In consideration of development applications in designated Living Areas, regard shall be had for the intent of the proposed plan to achieve the following: • A compact urban form; • The use of good urban design principles; The provision of convenient pedestrian access to public transit, educational facilities and parks; • A grid pattern of roads; • The provision and distribution of parks, trails and pathways and educational facilities; • The types and capacities of the existing municipal services, infrastructure and the feasibility of expansion; and • The balance between energy efficiency and cost. 5.2 Clarington Official Plan In the Clarington Official Plan, the Soper Creek and associated valleylands are designated as Environmental Protection Area. The lands outside the Environmental Protection Area in the southern third of the property are designated Community Park and the remainder of the LRSP Ltd. property is designated Future Urban Residential. The Environmental Protection Area includes Soper Creek and associated significant valleylands and a portion of significant woodlands as identified on Map C1, Natural Heritage System. The subject site is not within the Lake Iroquois Beach or impacted by wetlands. An Environmental Impact Study (EIS) is required to be completed in REPORT NO.: PSD-068-10 PAGE 6 consideration of development applications located on lands within or adjacent any natural heritage feature identified on Map C1. The preparation of an EIS is underway. Prior to municipal approval of any draft plan of subdivision, preparation of a subwatershed plan is required. Where a master drainage plan has been approved, the master drainage plan will substitute for the requirement for a subwatershed plan. In the cases of the subject development, the applicant is preparing a scoped subwatershed study to: provide findings and recommendations on the hydrologic. features of the subwatershed; update floodplain mapping if necessary; complete an erosion analysis; and to prepared a stormwater management strategy for the subwatershed area. The natural heritage components of a subwatershed study will be captured by the EIS. The predominant use of lands within the parks system shall be for active and passive recreational and conservation uses: Buildings and structures accessory to the permitted uses are also permitted. Community Parks are intended to serve the recreational needs of a series of neighbourhoods, providing outdoor and indoor recreational facilities. They shall serve a population of 15,000 to 25,000 persons. These parks shall have a size of between 4 to 12 hectares and be connected to the trail system and shall be provided at a standard of 0.6 hectares per 1,000 persons of population. Future Urban Residential Areas are those lands not required for residential purposes within the timeframe of the Official Plan (2016). Detailed land uses have not been determined. Consideration of these lands for residential development would take place following a comprehensive review and update of the Official Plan by the Municipality. According to Map 63 -Transportation - Bowmanville Urban Area, the subject lands are bounded by Lambs Road to the east which is a Type B Arterial Road and by Concession Street East to the south which is a Type C Arterial Road. Type B Arterial Roads are designed to move significant volumes of traffic at moderate speeds from one part of the Municipality to the other. Type B Arterial Roads shall have aright-of-way width ranging from 30 to 36 metres. Type C Arterial Roads are designed to move lower volumes of traffic at slower speeds and have aright-of-way width ranging from 26 to 30 metres. The Official Plan provides policies to support the conservation and enhancements of cultural heritage landscapes including structures and sites that have historic and/or architectural significance. Where original uses cannot be maintained, the adaptive reuse of heritage structures will be supported. LRSP Ltd. have applied to amend the Official Plan (Attachment 4) by: i) Relocating the existing Community Park designation currently at the corner of Lambs Road and Concession Street East northward to reflect the location of the historic buildings; REPORT NO.: PSD-068-10 PAGE 7 ii) Redesignating the existing Community Park to Urban Residential Area; and iii). Adding a Medium Density Residential. symbol at the northwest corner of Lambs Road and Concession Street East. The Urban Residential designation would allow for Low Density residential development between 10 - 30 units per net hectare. A Medium Density Residential symbol would allow for townhouses ahd low rise apartments with a density between 31 - 60 units per net hectare. 6.0 ZONING BY-LAW 6.1 Within Comprehensive Zoning By-law 84-63, as amended, the lands are "Urban Residential Exception (R1-10)". The R1-10 zone permits a private school therefore a zoning by-law amendment is required in order to implement the proposed Plan of Subdivision. 7. 0 PUBLIC NOTICE AND SUBMISSIONS 7.1 Public Notice was given by mail to each landowner within 120 metres of the subject site and public meeting signs were posted at Lambs Road and Concession Street East. All interested parties relating to the discussion of the historic buildings (PLN File 34.5.2.64) on the subject lands also received the notice. 7.2 As of the date of writing this report, staff has not received any inquiries relating to the subject applications. 8.0 DEPARTMENT AND AGENCY COMMENTS- 8.1 A number of agencies have been circulated the applications to amend the Official Plan and Zoning By-law in addition to the proposed draft plan of subdivision. To date, comments have not been received from the majority of the circulated agencies including the following departments and agencies: • Region of Durham Planning Department • Region of Durham Works Department • Central Lake Ontario Conservation • Bell Canada • Canada Post • Separate School Board • Hydro One Networks Inc. • Ministry of Environment REPORT NO.: PSD-068-10 PAGE 8 8.2 .The Clarington Engineering Department has provided comments and offers the following: 8.2.1 Prior to final approval of the subject site plan/subdivision the applicant will be required to satisfy the Engineering Services Department regarding the following concerns and conditions: • Traffic • Road Widenings and Geometric Alignment • Drainage and Stormwater Management • Noise Attenuatioh • Community Park • Lambs Road and Concession Street East reconstruction • Pedestrian connectivity 8.2.2 The applicant has submitted a Traffic Impact Study and a Parking Plan in support of this application. These studies are currently being reviewed. Further comments may be forthcoming. 8.2.3 The portion of Lambs Road located immediately north of the intersection with Concession Street East must be realigned so that this section of the road aligns with the portion of Lambs Road located immediately south of the intersection. The centreline radius of the section of Lambs Road located immediately to the north of the intersection must meet the minimum criteria for an arterial road. 8.2.4 The applicant's engineer will be required to prepare a Preliminary Master Grading and Drainage Plan that details the configuration of the on-site storm sewer system (minor system) and the conveyance of the overland flow (major system) from the subject development. Sewer grades are to be shown on the Functional Servicing Plan. 8.2.5 The applicant must demonstrate that Block 35 (Storm Water Facility) has been adequately sized to address the ultimate flow for the entire watershed. 8.2.6 This development cannot proceed until such time that the Municipality has approved the expenditure of funds for the provision of the reconstruction of Concession Street East and Lambs Road to an urban standard. The required reconstruction shall include sidewalks and street illumination as well as any other external works or services which have been included in the Municipality's Development Charge By-Law and have been deemed necessary by the Director of Engineering Services to service this development. 8.2.7 The proposed Community Park site would have difficulty achieving objectives of the Official Plan to provide for outdoor and indoor recreational needs of a series of neighbourhoods if relocated northerly to the lands containing the existing historical buildings- the existing location is superior given its access, servicing, visibility and site characteristics: Outdoor sports fields would be difficult to develop and the costs to develop a Community Park on the site would be higher than typical; Consideration should be given if another Community Park site could be designated to serve the needs of the community; and REPORT NO.: PSD-068-10 PAGE 9 • The historic buildings will require a viable use(s), abusiness-plan and economic development strategy prior to making a decision as to whether the Municipality should accept ownership of them. 8.3 Clarington Community Services have similar concerns regarding the relocation of the Community Park designation. The current park location provides opportunities for traditional outdoor and indoor facilities such as an arena or pool. The department similarly highlights the potential to incur additional costs to redevelop the historic site/buildings and indicates that a needs assessment for an indoor recreation facility be completed if use of the existing historic buildings for the Community Park designation is approved. 8.4 Clarington Operations Department requires additional design details for the stormwater management facility. The department requests additional information on the function of the revised Community Park location. 8.5 Kawartha Pine Ridge District School Board indicates that the subject lands are within the John M. James Public School catchment area. Sidewalks should be built along both municipal streets and along private roadways held by the eventual condominium corporation. Sidewalks should also be constructed along the north side of Concession Street East from Soper Creek Drive to the proposed public street in the subject plan upon the construction of the intersection. 8.8 Clarington Heritage Committee passed a motion recommending that the architectural style of the new residential structures include elements of the Arts and Crafts/Prairie style architecture to complement the existing historically significant structures. 8.7 Clarington Emergency. and Fire Services Department, Clarington Building Division, Enbridge Gas, and Rogers Cable, have offered no objection. 9.0 STAFF COMMENTS 9.1 The purpose of the Public Meeting is to gather public input in accordance with the Planning Act. 9.2 The proposed Official Plan Amendment would place the historic boys' training school/ Camp 30 site in the Community Park designation.. Staff will review the appropriateness of relocating the Community Park designation in order to facilitate a possible reuse of the site. Preserving the historical significance of the property and facilitating a reuse of some of the buildings is an opportunity and would closely follow intensification, redevelopment and preservation policies that are either already in place, or being contemplated, at all levels of government. However, developing a solid business plan is critical as the applications move forward to ensure that the Municipality's financial position is not negatively impacted. This would also help better determine the appropriate future land use. 9.3 Allowing for residential development in place of the existing Community Park designation will be reviewed in further detail. Concerns regarding removing the park REPORT NO.: PSD-068-10 PAGE 10 from the intersection of two (2) arterial roads and applying the Community Park designation to the historic buildings has been identified, including the possibility of detracting from the Municipality's ability to provide for traditional indoor and outdoor recreational facilities. The costs of the work required to create usable facilities from the existing historic buildings may be significantly different than those required to develop new facilities on vacant, unencumbered land. The need for and cost of specific facilities in this area of Bowmanville requires further review. 9.4 The merits of the proposed 116 unit subdivision will continue to be reviewed in the context of the policy direction of the proposed Official Plan amendment. Densities are required to meet the intensification and redevelopment objectives of the Provincial Growth Plan and the Region of Durham Official Plan through its conformity exercise. 9.5 Municipal staff and circulated agencies will be given sufficient time to review the development applications and supporting studies and reports, including the EIS and scoped subwatershed study once completed. The applicant will be required to satisfactorily address staff and agency comments prior to Council considering a recommendation report in the future. 10.0 CONCLUSIONS 10.1 It is recommended that the applications to amend the Clarington Official Plan and implementing Zoning By-law and the proposed draft plan of subdivision, continue to be processed, including the preparation of a subsequent report considering all agency comments and concerns raised at the Public Meeting. Staff Contact: Anne Taylor Scott Attachments: Attachment 1 - Key Map Attachment 2 - Air Photo Attachment 3 - Proposed Draft Plan of Subdivision Attachment 4 - Proposed Official Plan Amendment Interested parties to be advised of Council's decision: Lambs Road School Property Limited, c/o Kelvin Whalen Clarington ACO, clo Clarke Morawetz Clarington Museums and Archives, clo Martha Rutherford-Conrad Ministry of Culture, c/o Tamara Anson-Cartwright Ontario Heritage Trust, c/o Sean Fraser Ontario Heritage Trust, c/o Thomas Wicks Sernas Associates, c/o Bryce Jordan CHC, c/o Isabel Little Mike Domovich Attachment) to Report PSR-068-10 Attachment 2 to Report PSD-068-10 Attacf to Report PSD~ ---- -_ ~ ~ ~ ~ ~ ~I Plan FqE Draft ,,. P.. _ - I I ~Q~ PRNTOF LOTI, GONGESSION2 I MUNIGIRA LITY OF CLARINGTON ~ I NETYJNa1 uurvlcNUm aF ouNwun k • 1 ' ~ L3 ' ~` ~ l r r , . , r ~ > ",.ry ~f~f ~ t ' . 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LOFPI PAE\C£911BN691Y1 • 89 IGgnNlµ Camp 30 DP-1 invent 3 068-10 Attachment 4 to Report PSD-068-10 PROPOSED AMENDMENT TO THE MUNICIPALITY OF CLARINGTON OFFICIAL PLAN PURPOSE: The purpose of this Amendment to the Municipality of Clarington Official Plan is to relocate the existing Community Park, at the intersection of Lambs Road and Concession Street, northward in order to retain the existing heritage structures within the allocated park and to re-designate the existing Community Park as Urban Residential to permit the development of approximately 7 net hectares development at the intersection. LOCATION: The lands subject to this Amendment are located in Part of Lot 7, Concession 2 within the Bowmanville Urban Boundary. BASIS: This Amendment is based upon an Official Plan Amendment Application filed by Lambs Road School Property Ltd., which seeks to relocate the existing Community Park northward to retain the existing heritage structures and to redesignate the existing Community Park as Urban Residential. ACTUAL AMENDMENT: The Municipality of Clarington Official Plan is hereby amended as follows: "By Amending "Map A3: Land Use Bowmanville Urban Area' by: a) Relocating the existing Community Park designation currently at the comer of Lambs Road and Concession Street northward; b) Redesignating the existing Community Park as Urban Residential; and c) Adding a Medium Density Residential symbol at the northwest corner of Lambs Road and Concessicn Street. All as shown on Exhibit "A" attached hereto and forming part of the Amendment. IMPLEMENTATION: The provisions set forth in the Municipality of Clarington Official Plan as amended, regarding the implementation of the Plan shall apply in regard to this Amendment. INTERPRETATION: The provisions set forth in the Municipality of Clarington Official Plan, as amended; regarding the interpretation of the Plan shall apply in regard to this amendment. Exhibit'A" To Dfficial Plan AmendmentNo• ,The Municipality OfClarington S ~,~"' ~ ~` -~ O „~~ ,~ ~ f ~' ~_ V _ _ t!y i1~ Cpl (U ', v • a~ ~ 0 .~,. n ~ >r ~ ~ .r- ~ ~ , ;~ ,_ ~~ ~ ~~~. ApAP A3 LAND USE BOWNIANVILLE URBAN AREA DFFICIAL PLAN Pv1UNICIPALiTY OF GLARINGTON JANUARY 2, ZQ77 nhs roasrln>wrxw ~s;.nuyl[ro F;r, r xr~wuvice olav +wi aEaRr.sr,Rrz mN¢srec un,~xrnrxws~xnun!wu, a ~ ~i ~ • ~ :ul © I Ir KT Ac ca4e ~B~WN._ttRter _~ .. _ ..__ O W' ~~ ~I ~ ~ I~ r r f 1 I r-- ~ ' S ~~ - ~ s was - ~ '. I LAKE ONTARIO j TOURISM NODE PRESTIGE PUBLN: EMPLOYMENT Af1EA SECONDARY SCHOOL URBAN BOUNDARY UGHT WOUSTRIAL AREA ~ ICI SEPARATE SECONDARY SCHOOL '' ~i FUTURE ' ' GENERAL ~ PRIVATE '^ .. ,~ URBAN RESIDELTIAL INDIJSTRIAI. ARE0. SECONDARY SCFY~OL i URBAN RESIDE4TIAL ' 'JTIUT~~ ~ ~ PUBLIC , - -__ I ELEMENTAH'V S(:HOOI MEDIUM DENSITY j l ENVIRONMENTAL ~ SEPARATE - RESIDENTIAL ._ PROTECTION ARE4 ELEMEMARY SCHOOL -~ H{GH DENS97Y GREEN SPACE PRIVATE ~G_~ RESIDENTIAL ^ u ELEMENTARY SCHOOL - TOWN CENTRE WATERFRONT ~ ~ ® SECONDARY 6REENWAV PLANNING AREA NEIGHBOURHOOD CENTfiE COMMUNI TV PARK ..... o.• SPECIAL FOLICV AFEA HIGHWAY COMMERCIAL ® pISTRICT PARK ••a•••••se• SPECIAL STUDY AREA AGGREGATE E TRACT • NEIGHBOURHOOD GC75TA-ION ~ % ION AREA PAPJC ~,