HomeMy WebLinkAbout09/14/1995 (Special)~-_ .~
MUNICIPALITY OF
~arington
ONTARIO
SPECIAL COUNCIL AGENDA
PRAYERS
ROLL CALL
PUBLIC MEETING
DATE: SEPTEMBER 14 AND 15, 1995
TIME: 9:00 A.M.
PLACE: COUNCIL CHAMBERS
Report PD-88-95 - Response to the Public Submissions on the
Clarington Draft Official Plan
Note: Due to the large volume of public submissions, the
public meeting will be divided .into topical sessions which
will be held at the following times:..
Thursday, September. 14, 1995
- 9:00 a.m. - 12:00 p.m. - Urban Boundary Issues
- 1:00 p.m. - 4:30 p.m. - Bowmanville and Orono Issues
- 7:00 p.m. - 10:00 p.m. - Other Issues
Friday, September 15, 1995
- 9:00 a.m. - 12:00 p.m. - Courtice Issues
- 1:00 p.m. - 2:30 p.m. - Newcastle Village and Rural Issues
- 2:30 p.m. - 4:30 p.m. - Council Debate and Decision
The above times are approximate and may vary as required to
accommodate speakers.
BY-LAW TO APPROVE THE ACTIONS OF COUNCIL
ADJOURNMENT
CORPORATION OF THE MUNICIPALITY OF CLARINGTON
40 TEMPERANCE STREET • 80WMANVILLE -ONTARIO • lTC 3A6 (905) 623-33)9 fAX 623.4169
RECMCLED •~VER
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Public Consultation Report 7
Phase Four
REVIEW OF
PUBLIC SUBMISSIONS
ON DRAFT OFFICIAL PLAN
.~~- ~~
CLARINGTON
OFFICIAL PLAN REVIEW
Department of Planning and Development • Municipality of Clarington August 1995
DH: OP.GPA THE CORPORATION OF THE MUNICIPALITY OF CLARINGTON
REPORT
`' Meeting: Council Fle #
Date: September 14 & 15, 1995
PD-8$-95 Res. #
Report #: Fle #: By-law #
Subject: RESPONSES TO PUBLIC SUBMiSSiONs
ON THE CLARINGTON DRAFT OFFICIAL PLAN
Recommendations:
It is respectfully recommended to Council the following:
1. THAT Report PD-88-95 be received;
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2. THAT the appended Public Consultation Report No. 7, and the
recommendations contained therein, be approved for inclusion
into the Recommended Clarington Official Plan to be brought
forward. to Council for consideration and approval; and
3. THAT all delegations be acknowledged and thanked for their
inputs and be notified of Council's decision.
1. INTRODIICTION:
1.1 The preparation of a new Clarington Official Plan commenced in
February of 1992. One key objective of the Municipality was to
encourage broad participation in preparing a new official plan.
A variety of mechanisms have been employed to encourage the
participation of residents, landowners and community groups. A
series of newsletters have been released throughout the process.
In the first phase, the. Municipality undertook a public
attitudes survey which was sent to each home in the
Municipality. Most importantly, there has been a series of open
houses and public meetings. at each stage of the preparation of
a new official plan. In total, the Municipality received 241
verbal and written submissions for the first two phases of the
Official Plan preparation process.
...2
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REPORT NO.: PD-88-95 PAGE 2
1.2 In May of 1994, a draft Official Plan was RELEASED by the
Municipality for review and discussion. A series of open houses
was held at four centres in mid-June of 1994. In late June,
there was a series of Public Meetings at which 38 verbal
submissions were made. Subsequently, 119 written submissions
have been made on the Draft Official Plan. All written
submissions are reproduced in a three volume Public Consultation
.Report No. 5 which were forwarded to members of Council earlier.
Agency~s comments are contained in Consultation Report No. 6.
2. PURPOSE:
The purpose of the appended Public Consultation Report No. 7 is
to present staff responses and recommendations to the
submissions made on the Draft Clarington Official Plan.
3. THE PUBLIC SIIBMISSIONS:
3.1 Of the 119 submissions made
majority of the submissions
locations are identified on
purposes. (Attachment No. 1)
to the Draft Official
are property-related.
the attached maps for
Plan, a
Their
reference
3.2 During the course of reviewing all the submissions, several
things became obvious:
a) Many submissions touched on the same subject matters with
either divergent or similar viewpoints.
b) Some submissions are in excess of several typed pages and
touched on the many issues contained in the Draft Official
Plan.
c) Some submissions are ambiguous.
d) In some instances, the submitters made several submissions
on the same issues or property.
...3
REPORT NO.: PD-88-95 PAGE 3
3.3 As a result of the above, it became necessary to do the
following:
a) Meet with the submitters where necessary to seek
clarification. In total, about 100 meetings- have been
held;
b) Group those submissions that deal with common issues.
4. PUBLIC CONSULTATION REPORT NO. 7:
4.1 In consideration of the large volume of submissions; the
complexity of the issues raised; as well as the varying nature
of the submissions, it is not possible to arrive at
recommendations that would address each and every issue raised
by the submitter. Notwithstanding, every submission has been
reviewed in detail. For each submission, the issues were
summarized with brief comments and recommendations. These are
found in tabular chart form in the appendix of the Report.
4.2 With regard to common issues that were raised in two or more
submissions, the issues are grouped under the following sections
with more detailed comments and recommendations:
• Growth Management Issues
• Environmental Issues
• .Urban Issues
• Waterfront Issues
• Rural Issues
• Transportation Issues
• Implementation and Interpretation Issues
The recommendations are highlighted throughout the Report and..
are grouped together for quick reference at the beginning of the
Report.
5. PUBLIC NOTICE:
5.1 To ensure the public will have the opportunity to address
Council with respect to the staff comments and recommendations
on their submissions, it is necessary to afford the public the
opportunity to address Council through a public meeting process.
...4
REPORT NO.: PD-88-95 PAGE 4
In this regard, notices of the public meeting (Attachment No. 2)
were placed in the following newspapers for the week of August
9th and 16th.
• Canadian Statesman/Clarington Independent
• Clarington This Week
• ,Courtice News
• Orono Times
In addition, all submitters and all those who requested to be
notified were sent personal notices.
5.2 Several submissions are related to development applications for
which the Municipality has held public meetings but yet to
render any decision. In these instances, staff extended the
public notice requirement by sending a personal notice to those
individuals that have previously expressed concerns to the
development applications. We feel this extra step will provide
the opportunity for the concerned individuals to address Council
on the submissions.
6. CONCLIISION:
Upon Council rendering its decision on the Report
recommendations, staff will be able to proceed to finalize a
Recommended Clarington Official Plan to be presented to Council
for consideration and approval. Barring an unforeseen
circumstance, staff is working towards scheduling a public
meeting for the Recommended Official Plan sometime in early
December of this year.
Res lly submitted, ~ Reviewed b ,
Da i Crowe, Manager W. H. Stockwell
St tegic Planning Branch Chief Administrative
/~ ~~ _ ~, ~~ Officer
Franklin Wu, M.C.I.P., R.P.P.
Director of Planning
and Development
FW*j ip
August 8, 1995
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ORAFT OFFlCL4L PLAN
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MUNICIPALITY OF CLARINGTON
DRAFT OFFICIAL PLAN
MAY 1994
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PUBLIC MEETING '
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CLARINGTON •
OFFICIAL PLAN REVIEW
Council will hold public meetings to consider a report dealing with the recommendations
on the public submissions regarding the Draft Oftldal Plan released in May 1994,
Public Meetings will be held in the Council Chamber in the Municipal Administrative
Centre, 40 Temperance Street, BowmanvAle. I~ue to the large volume of public
submissions, the public meetings will be divided into several topical sessions which will
be held at the following times:
THURSDAY, SEPTEMBER 14, 1995 ~
Morning Session 9:00 - 12:00 p.m. Urban boundary issues
Afternoon Session 1:00 - 4:30 p.m. Bo4vmanville and Orono issues
Evening Session 7:00 -10:00 p.m. Other Issues
FRIDAY, SEPTEMBER 15, .1995
Morning Session 9:00 -12:00 p.m. Courtice Issues
Afternoon Sessions 1:00 - 2:30 p.m. NeHrcastie Village and rural issues
2:30 - 4:30 p.m: Council debate and decision
* Please note that these times are approximate and may vary as required to
accommodate speakers.
Anyone, and particularly those who have made a verbal or written submission at an
earlier date may speak at the Public Meetings. If you wish to address Coundl, you are
encouraged to register ahead of time by contacting Ms. Teresa Houben or Ms. Cynthia
Strike at 623-3379.
Staff s recommendations concerning individual submissions on the Draft Oftidal Plan
released in May 1994, wiA be mailed to each submitter. Individuals may also•purchase
• a complete submission document and accomparrying Staff Report from the Planning
. Department. The complete set of documents will be available by August 18, 1995 at a
cost of $20.00 (G.S.T. included).
Copies of the documents will be available for public viewing in all branches of the Library
and the Municipal Administrative Centre.
"~' " Franldin Wu, M.C.I.P., R.P.P.
-- MUNICIPALITY OF Director of Planning and Development
`~r+jn fOn Munldpality of Clarington
~~ 9~~~ 40 Temperance Street
'ONTARIO Bowmanville, Ontario
L1 C 3A6
DepartmenYof Planning and Oevelopme~t • ,Municipality of Clarington August 1995
PUBLIC CONSULTATION REPORT #7
STAFF RESPONSE TO PUBLIC SUBMISSIONS
Table of Contents
SUMMARY OF RECOMMENDATIONS .......................... iv
1. INTRODUCTION ........................................... ~
2. GROWTH MANAGEMENT ................................... 2
2.1 Provincial and Regional Policy .............................. 2
2.2 Rate and Balance of Growth ............................... 3
2.3 Interim Urban Area Boundary for Residential Areas ............... 6
2.4 Phasing and Prematurity Policies ........................... 19
3. ENVIRONMENTAL ISSUES .................................. 21
3.1 Provincial and Regional Policy ............................. 21
3.2 Watershed Planning .................................... 22
3.3 Natural Heritage System ................................. 26
3.4 Woodlot Policies ....................................... 29
3.5 Lake Iroquois Beach .................................... 37
4. URBAN ISSUES ........................................... 40
4.1 Provincial and Regional Policies ........................... 40
4.2 Residential Neighbourhoods ......................... , .... 41
4.3 Main Central Areas .................................... 44
4.4 Parks ............................................... 48
4.5 Schools .............................................. 55
S. WATERFRONT ISSUES ..................................... 61
5.1 Provincial and Regional Policy ............................. 61
5.2 Shoreline Hazard Zone and Public Acquisition of Waterfront Lands 61
5.3 Existing Residential Communities .......................... 65
5.4 St. Marys Cement and Westside Creek Marsh .................. 68
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6. RURAL ISSUES ........................................... 71
6.1 Provincial and Regional Policy ........................ 71
6.2 Oak Ridges Moraine .................................... 72
6.3 Golf Courses ......................................... 75
7. TRANSPORTATION ........................................ 78
7.1 Provincial and Regional Policy ............................. 78
7.2 Highway 407 and Connecting Freeway Link ................... 78
7.3 Transportation Network for Courtice ........................ 80
8. IMPLEMENTATION AND INTERPRETATION ISSUES ............ 83
8.1 Transitional Policies .................................... 83
APPENDIX A
Written Submissions
Phase 3: Draft Official Plan
APPENDIX B
Verbal Submissions
Phase 3: Draft Official Plan
APPENDIX C
Written Submissions
Phase 2: Planning Issues and Options
APPENDIX D
Written Submissions
Phase l: Background
APPENDIX E
.Verbal Submissions
Phase 1: Background
ii
1.
2.
3.
4.
5.
6.
7.
8.
9.
10.
11.
12.
13.
LIST OF MAPS
Requested Changes to Interim Urban Area Boundary -Courtice ............... 12
Requested Changes to Interim Urban Area Boundary - Bowmanville ............ 13
Requested Changes to Interim Urban Area Boundary -Newcastle Village ........ 14
Recommended 2016 Urban Area Boundary -Courtice ....................... 16
Recommended 2016 Urban Area Boundary - Bowmanville .................... 17
Recommended 2016 Urban Area Boundary -Newcastle Village ................ 18
Submissions on Woodlots -Courtice ..................................... 33
Submissions on Woodlots - Bowmanville .................................. 34
Community Park Sites -Courtice ........................................ 51
Community Park Sites - Bowmanville .................................... 52
Community Park Sites -Newcastle Village ................................ 53
Submissions on School Sites -Courtice ................................... 59
Submissions on School Sites - Bowmanville ................................ 60
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SUMMARY OF RECOMMENDATIONS
A comprehensive review of all submissions on the Draft Official Plan was undertaken by Municipal
staff. The detailed response to each submission is contained in Appendix 1 to this report. For key
issues or common issues raised by at least two or more submissions, there is more detailed discussion
contained in the body of this report.
A summary of the recommendations is as follows:
Growth Management
2-1 That the policies of the Official Plan indicate that Council may require the preparation of
a financial impact analysis of a major residential development proposal.
2-2 That the Official Plan be prepared on the basis of the following assumptions:
• a 20 year timeframe;
• Bowmanville being the dominant growth centre;
• a population target of 130,000 and a household target of 47,600 at 2016;
• a rural growth target of 900 additional dwelling units by 2016; and
• an intensification target of approximately 5000 dwelling units by 2016.
2-3 That the recommended 2016 urban area boundaries as shown on Maps 4 to 6 be utilized for
the Recommended Official Plan.
2-4 That the policies contained in Section 5.3.6 of the Draft Official Plan be modified to be
consistent with Amendment No. 59.
Environmental
3-1 That the Official Plan require the preparation of subwatershed plans rather than Master
Drainage Plans prior to the approval of plans of subdivision or other urban development
applications.
3-2 That a watershed plan for the Farewell Creek be prepared prior to the designation of land
uses in the Courtice North neighbourhood (Deferral Area 6) in the Durham Regional
Official Plan.
3-3 That the Official Plan indicate the Municipality's support for participation in multi-
stakeholder watershed planning studies.
3-4 That the Official Plan clearly identify that the Municipality will undertake subwatershed
studies, in co-operation with the Region, the Conservation Authority and the Ministry of
Natural Resources, for urbanizing sub-watersheds subject to satisfactory cost-sharing
arrangements.
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3-5 That the Implementation policies of the Official Plan indicate that, among other matters, the
Municipality will in consultation with all interested parties, develop a monitoring system to
evaluate cumulative impacts on the natural environment.
3-6 That a new land use designation known as "Environmental Protection Areas" be introduced
covering the most significant natural heritage features and areas.
3-7 That the Official Plan recognize a variable setback zone requirements for stream valleys
based on environmental or slope stability concerns. In no case, however, would the setback
be less than a minimum 5 metres standard.
3-8 That the draft policies be modified to clari that onl hazard lands valle land and wetlands
fY Y Y
would be requested for gratuitous dedication to the Municipality as a condition of
development approval.
3-9 That the Official Plan designate the most significant woodlots in both the rural and urban
areas as "Environmental Protection Areas".
3-10 That the less significant woodlots in Urban Areas be designated for Residential or
Employment Area uses but be subject to an environmental impact analysis.
3-11 That the designation for woodlots be retained save and except for the following:
a) That the designation of the Curtis-Nekkers-Dalidowicz woodlots be adjusted to
remove the lands south of the future Springfield Drive extension.
b) That the designation of the Kemp woodlot be adjusted to reflect the actual limits of
the woodlot.
3-12 That the Official Plan recognize a variety of mechanisms to achieve the preservation of
woodlots with municipal ownership pursued for only the most significant woodlots.
3-13 That the Municipality enact a tree preservation by-law under the Municipal Act. r
3-14 That the use of alternative storm water management measures to facilitate the maintenance
of ground water functions be required for any development within the Lake Iroquois Beach
area.
3-15 That the relationship between the natural feature policies for the Lake Iroquois Beach and
the land use designation be clarified.
Urban r
4-1 That the Official Plan should provide for a variety of housing forms but allow greater
flexibility to account for specific circumstances which may limit one subdivision proposal
from providing a full array of housing forms.
4-2 That the Official Plan provide for the integration of assisted (rent-geared-to-income) housing
and social housing into residential neighbourhoods without reference to "concentration" of
- such housing types.
4-3 That the Low Density II range be increased from 15-25 to 15-30 units per net hectare and
that limited street-townhouse forms be permitted in the Low Density Area.
4-4 That Section 10.3.6 be clarified to require the rezoning of lands for all commercial proposals
greater than 2,500 square metres or for the designation of new Central Areas.
4-5 That Section 17.3 be clarified as to the scope of the secondary plan and urban design study
for the Courtice Main Central Area including specifically that the allocation of commercial
floorspace to the Valiant site would not be reduced through such study.
4-6 That the boundary of the Newcastle Village Main Central Area be extended southerly to
Emily Street and a secondary plan be prepared to be incorporated in the Recommended
Official Plan.
4-7 That the Bowmanville East Community Park be relocated southerly to the northwest corner
of Lambs Road and Concession Street.
4-8 That the configuration of the Newcastle Village Community Park be revised to reduce the
frontage on Highway #2.
4-9 That section 18.3.4 be clarified to indicate that it is a service standard objective of the
Municipality.
4-10 That the public secondary school site in Liberty Rills Neighbourhood in Bowmanville be
relocated southerly to front on Concession Road 3.
4-11 That the separate elementary school site within Avondale Neighbourhood in Courtice be
relocated from the west side to the east side of Avondale Drive.
Waterfront
5-1 That a Shoreline Hazard Zone be defined to encompass the lands subject to flooding and
erosion and the dynamic beaches of the Lake Ontario Shoreline.
5-2 That new building or structures of any type within the Shoreline Hazard Zone not be
permitted.
5-3 That existing residences within the Shoreline Hazard Zone be permitted aone-time
expansion, up to a maximum of 20 % of the ground floor area or 30 square metres,
whichever is less, provided that:
a) the structure is not located in the floodplain of a stream;
b) the structure is not located on a dynamic beach or within an identified damage
centre;
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c) new or existing hazards or adverse environmental impacts are not created or
aggravated; and
d) the relevant conservation authority and the Municipality have approved a
floodproofing and/or erosion control plan.
e) vehicles and people have a way of safe entering and exiting the area during times of
flooding and erosion emergencies.
5-4 That the Official Plan increase the period allowed for the reconstruction of a destroyed or
demolished building in the Shoreline Hazard Zone from 12 months to 24 months.
5-5 That the draft policy be clarified that it is not the intent of the Municipality to necessarily
acquire lands designated Waterfront Greenway.
5-6 That the Cove Road area be identified as a Special Study Area inclusive of the St. Marys
Cement land.
5-7 That the lands owned by St. Marys Cement Company between the west side of Waverly
Road and West Beach Road be identified as a Special Study Area inclusive of the Cove
Road Area (see previous recommendation).
Rural
6-1 That the Official Plan define limits for the Major Tourist and Recreation Nodes in the Oak
Ridges Moraine at the Kirby Ski Area and Mosport Park on the basis of their existing
property boundaries; .
6-2 That the Draft Plan be clarified to specifically exclude residential uses in Major Tourist and
Recreational Node.
6-3 That the draft policies be amended to permit existing uses only on the Mosport Park land
6-4 That the Official .Plan clarify that the prohibition of aggregate activity applies to the
establishment of new aggregate extraction operations or the expansion of existing aggregate
expansion operations and identifies the specific area to which the policy will apply, being the
upper Ganaraska River watershed.
6-5 That the Official Plan permit golf courses by site specific amendment within Prime
Agricultural Areas provided such lands do not have an agricultural soil capability rating of
1 to 4.
Transportation
None
vii
Implementation & Interpretation
8-1 That the text of the Plan be clarified to indicate that the policies of the new Official Plan
.would only be applied to a previously draft-approved plan of subdivision in the event of
significant revisions proposed by the applicant.
8-2 That policy 24.13 be revised to indicate only that Council will "review" and not necessarily
"void" privately-initiated amendments which have not been built prior to the time of the next
Official Plan Review.
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1 1. INTRODUCTION
In May of 1994, a draft Official Plan was published by the Municipality for review and
discussion. A series of open houses was held at four centres in mid-June of 1994. In late
June, there was a series of Public Meetings at which 38 verbal submissions were made.
Subsequently, 119 written submissions have been made on the proposals contained in the
draft Official Plan.
The purpose of this report is to respond to the submissions made on the draft Official Plan
as well as to establish the principles to be contained in the Recommended Official Plan.
This report contains recommendations related to each submission. This has been prepared
in tabular form on the Chart which forms Appendix 1 to this report.
The main report reviews the common issues that have been raised in at least two or more
of the submissions. These issues are discussed under the following sections:
• Growth Management Issues
• Environment Issues
• Urban Issues
• Waterfront Issues
• Rural Issues
• Transportation Issues
•
x
Implementation Issues
For each area of discussion, the relevant submissions are identified, the issues summarized,
the relevant provincial policies and the agency comments are reviewed and staff comments
and recommendations are provided.
It should be noted that where submissions have concerns about the precise wording of a
policy, it is not staff s intent to propose revised wording at this time. The recommendation
deals only with the principle to be imbedded in the policy. The actual wording of a policy
will be part of the Recommended Official Plan that will subsequently be prepared for
Council's consideration.
Discussions and recommendations contained in this Report. are limited to those required to
address the submissions made to the Draft Official Plan and should not be construed as the
only basis of a Recommended Official Plan.
2. GROWTH MANAGEMENT
2.1 Provincial and Regional Policy
Comprehensive Set of Provincial Policy Statements
Section B of the Policy Statements (Economic, Community Development, and Infrastructure
Policies) address growth management issues. Communities are to be planned to use land
efficiently, and promote the efficient use of infrastructure and public service facilities.
Opportunities for a diversified economic base which integrates economic, social and
environmental considerations, are to be provided. Land use planning decisions should also
recognize the linkages between social and human service needs and land use planning.
Expansions to settlement areas will be permitted only if several conditions are met. These
conditions include:
• the amount of land included within the expansion has been justified for a planning
horizon of 15 to 20 years, based on population projections and employment targets,
and land availability within the settlement area;
• new development would be a logical extension of settlement areas;
• a strategy for the staging, financing and construction of infrastructure has been
formulated;
• the extension will have a compact form and densities and uses which efficiently use
land infrastructure and facilities;
• specialty crop land will be avoided and prime agricultural land used only if there is
no reasonable alternative.
Durham Regional Official Plan
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Section 5.3.9 of the Regional Plan requires urban areas to be developed "based on the
principles of sequential development; progressive extension, improvement, rehabilitation and
economical utilization of the Regional water supply and sanitary sewerage systems; and
minimization of the financial impacts on the Region".
Section 5.3.16 further states that "area municipal official plans shall contain detailed phasing
policies which set out short-term implementation strategies to provide for adequate land,
infrastructure. and public facilities over a minimum of five years and which encourage
maximum utilization of existing infrastructure and development opportunities prior to
extending development into the undeveloped areas of the municipality."
2
2.2 Rate and Balance of Growth
Overview
Since the mid-eighties, the Municipality of Claring6on experienced unprecedented residential
growth. This has led to concerns that the Munidpality is growing too fast, that rural land
resources are being diminished and that employmment growth remains slow. The social,
environmental and fiscal impacts of this growth pattern are seen as problematic. Without
stronger employment growth, Clarington will become largely a dormitory community. Sound
growth management practices are required to end-ure orderly, balanced growth.
Submissions
Doug Hately W1S~
John Brudek W1T
Fleurette Wl~,
David Metcalf W2)
Fsther Allin W22.
Caroline Charman W2~~
Mr. & Mrs. John Huber W3~.
Anonymous W34
June Clark W36~
Tom Varley W4~~
Viola Ashton W4a
Janis Tomkinson W43
Save the Ganaraska Again (SAGA) W64
N. Mitchell Wlq~3
Diana Grandfield Wlq~6, V32
Dwayne Tapp W 1 ~ 5
Courtice Heights Development. Wl~l
Oshawa-Durham Home Builders W1~4
Kiddicorp Investments Ltd. W1~7
Roy Forrester V35'
Summary of Issues Identified in Submissions
• Rate of growth.
• Growth versus the protection of rural and environmental resources.
• Achieving a better balance between population and employment growth.
3
Agency Comments
The Region of Durham
The Regional Official Plan emphasizes that the population and employment targets within
the Regional Plan are to be detailed in the area municipal official plan.
Staff Comments
Rate of growth
A number of residents expressed concerns about the rate of growth and, in particular, the
impact on taxes and the ability of municipal services and schools to keep pace with this
growth. Public attitudes were surveyed on this issue in November 1992, at the beginning of
the Official Plan Review process. At that time, the Municipality was growing by
approximately 2,500 persons (or 830 units) .per annum. In response to the question on how
the Municipality should handle future growth, residents responded as follows:
32 % Restrict Growth
40 % Grow at Current Rate (2,500 residents annually)
12 % Encourage growth beyond current
9 % Other - (Link residential growth to industrial growth)
While this would indicate that very few residents would like to see the rate of growth
increase, most residents were not opposed to continued growth. The survey found that
longer term residents favoured a more restrictive growth environment. Interestingly, 9
percent of the respondents chose the "other" category on the survey and usually commented
that residential growth should be linked to employment growth.
The Official Plan does not propose to restrict residential growth but to respond to
anticipated strong market forces. However, the Plan aims to manage growth better by clearly
defining growth areas, by providing better phasing policies, by encouraging infill and
intensification and by promoting compact urban form at higher densities. On the other
hand, the Official Plan seeks to promote employment growth by providing a positive policy
environment.
The growth target to be utilized in the Clarington Official Plan is to achieve a population
of 130,000 persons at 2016. This is considered an optimistic growth target averaging 1300
new households annually.
The key concerns with higher growth rates are the impact on taxes and the ability of the
Municipality and others to provide services to keep up with demands. To assist in assessing
this problem, there needs to be better understanding of financial impacts at the time of the
approval of a-major residential development. Instead of arbitrarily limiting growth, it would
be more appropriate for the Municipality. to have the ability to'request a financial impact
analysis as a result of major residential development proposal. It is prudent that "major" not
4
to be defined to enable Council the. flexibility to exercise such option depending on
circumstances and future economic conditions of the Municipality.
Recommendai~ion
21 That the policies of the O,,~cial Plan indicate that Cowicil may regain the preparation
of a financial impact analysis of a major residential development pmposa~
Growth versus the protection of rural and environmental resources
Clarington has a strong agricultural sector and a vast rural land base. In the Public
Attitudes Survey, residents stated that the protection of agricultural lands was one
of the .top three planning objectives to be reflected in the new Official Plan.
Inevitably there will be the loss of good agricultural land due to the amount of
planned growth over the planning period. The major decision on this issue was
made through the Regional Official Plan Review at which time approximately 5,400
acres of agricultural and rural lands were added to the urban areas.
Within the constraint of these previous decisions, the draft Official Plan has
attempted to protect agricultural and environmental resources in the following ways:
• promotion of compact urban form and higher densities for urban areas
• more restrictive rural residential policies than those contained in the
Regional Official Plan
• more restrictive non-agricultural use policies (eg. golf courses) than
those contained in the Regional Official Plan
• strong environmental policies
The draft Official Plan addresses the desire to protect agricultural lands but only
does this within pre-defined parameters established in the Regional Official Plan.
Recommendation
Nome
Achievine a better balance between population and emnlovment growth
This is one of the most difficult growth management issues to effectively address. 'The
Official Plan encourages economic growth, designates large areas of land as employment
areas and Central Areas and provide strategic policies to foster economic growth with special
emphasis on tourism. Ultimately, however, the ability of Clarington to regulate or link
5
growth from two different market sectors is difficult. The Draft Official Plan establishes
employment and assessment ratio targets. It also encourages residential developers to
develop employment area lands. With some directions from the Municipality, the residential
land developers should take some responsibility to promote a diversified economic base and
a positive assessment ratio.
2.3
Current trends indicate that the Municipality's declining non-residential assessment ratio is
problematic in light of the demands on the Municipality from residential growth. The
Official Plan contains one policy which links residential development and employment
growth. This would permit Council to consider a plan of subdivision premature if the non-
residential assessment ratio declines below 15 %. This matter is review further in Section
2.4 of this Report.
Interim Urban Area Boundary for Residential Areas
Overview
The Durham Regional Official Plan only allows Municipality's to identify a 15-20 year supply
of land for urban development purposes. The Draft Official Plan proposed an Interim
Urban Area Boundary to 2011. Many submissions have been received proposing expansions
to the interim urban area boundary shown on the Draft Official Plan and questioning the
assumptions and criteria to determine these boundaries.
Submissions Received
Northbrook Developers Group W7
Trianka Developments W8
Bramalea Ltd W88 A & B
289143 Ontario Ltd. W101, W104
Stolp Homes & 289143 Ontario Ltd W104, W165
Walter Fracz W114
Courtice. Heights Developments W117, W131
W.M. Tonno Construction Ltd W118, W183, V53
Kingsberry Properties W119
The Kaitlin Group W132
W.M. Tonno Construction, E. & H. Witzke,
and 687120 Ontario Ltd./S. Devesceri Ltd. W134, W189
Oshawa-Durham Homebuilders Assoc. W154
Eric and Geri Cornish W137
Amberglen Developments Inc & Selby Family W159, W179
Schickedanz Bros. Ltd. W166
Joseph Luchka ~ W172
Garthwood Homes Ltd. W174
Robert Sherman W185
Steven Carruthers. W176
Halminen Homes & 3D Development Corp. V15
Kirk Kemp V18
Mario Veltri V19
6
t
Robert Carruthers V25
Josephine Vooys V49
Ken Shaw V54
Summary of Issues Identified by Submission
• The assumptions- used for the land budget in the Draft Official Plan.
• Expansion of the interim urban area boundaries.
Agency Comments
The Region of Durham provided comments requesting a rationale for the population target
of 110,000 to the year 2011. Justification for the density targets of each urban area was also
requested. Similar clarification was requested on the calculation and distnbution of the
intensification target. Lastly a rationale was to be provided for the household occupancy
rates used in the preparation of the land budget.
Staff Comments
The assumptions used for the land budget in the Draft Official Plan
In response to the revised Regional population and household forecast and the submissions,
Staff have undertaken a thorough review of the assumptions and criteria used in preparing
the land budget for the Official Plan. Discussion on the various assumptions used in
formulating the land budget are discussed below.
i) Timeframe
Section 5.3.14 of the Durham Regional Official Plan allows municipalities to designate a 15 -
20 year supply of land. The Draft Official Plan was prepared on the basis of a 2011
timeframe, 15 years from the anticipated 1996 approval. It has been argued on various
submissions that the 2016 timeframe is more appropriate than the 2011. The Municipality
has. the option of either 2011 or 2016 timeframe. Upon review, staff are prepared to use the
full 20 year timeframe to 2016.
ii) Population Forecast
The Draft Official Plan was prepared utilizing the Regional population forecast prepared
in 1990. Since the preparation of the Draft Official Plan, the Regional Planning Department
prepared a revised regional population and household forecast. There are several key
differences in the updated forecast:
7
• the revised forecast provides four alternate scenarios; Low, Reference, High and
Alternate. The alternate forecast is a hybrid utilizing the assumptions of the Low
forecast for the earlier period and shifting to the Reference and High for the later
periods.
• the revised projection applies only to the Region as a whole; the municipal
projections are referred to as "targets" based on the Regional Official Plan objectives
Regional staff are utilizing the Alternate Scenario for regional planning purposes but
recognize that there is a range of alternatives. Submissions were received requesting the
Municipality to utilize the Region's Alternate Target for the purposes of the Clarington
Official plan. Staff have reviewed this matter at length. It is felt that the Region's Alternate
Targets are overly optimistic for the Municipality, are not supported by historic trends in
Durham, are contrary to the opinions expressed in the Public Attitudes Survey and would
generate tremendous financial impacts on the Municipality.
As an alternate, staff have prepared a Median target for use in the land budget process for
the Official Plan. The Median target is the median between the Region's Low and Alternate
targets for Clarington at 2016. This would establish a population target of 130,000 and a
household target of 47,600 at 2016. This Median target has been reviewed with Regional
staff who concur with using these targets in the Clarington Official Plan.
iii) Population Distribution
Population allocations were assigned in the Durham Regional Official Plan for the ultimate
urban area boundary. The fi-gures contained within the Municipality's draft Official Plan are
reflective of the population targets and policies of the Regional Plan. The population
increase for each urban area is proposed to essentially remain proportionate to existing
population figures. The draft Plan is consistent with the Durham Plan policies maintaining
Bowmanville as the dominant urban centre in the Municipality. Submissions argue that
Courtice is growing faster than Bowmanville and therefore, should get a higher percentage
of the population distribution. However, historic growth trends and projected growth based
on units contained within draft approved plans of subdivision, clearly favour Bowmanville
over Courtice. This growth scenario, of proportionate growth to the urban areas, was
recently presented before the O.M.B. at the Bowmanville West Main Central Area hearing,
and accepted by the Board as an appropriate assumption for development in the
Municipality.
iv) Household Size
The household size assumptions used in the Draft Official Plan were adopted from the 1991
Development Charges Report initially prepared by C.N. Watson & Associates. A number of
submissions suggested that a declining household size should be used for the planning period.
The Region's updated Population and Household Forecast projects that Clarington's average
household size will decline from 3.0 to 2.73 by 2016. While the Municipality has been
1
8
i
attracting younger families in recent years and while the average household size actually
increased between 1986 to 1991, most demographers project that household sizes will decline
over time. In revising the Land Budget for the Official Plan, the Region's forecast of a
declining household size has been accepted. The net result is a significant increase in
housing units required as a result of smaller household sizes.
v) High Density Development
Submissions considered the 10% assumption for future high density development too high
for the Municipality of Clarington. The target of 10% of all growth being high density is
reflective of the Municipality's Municipal Housing Statement as approved by the Ministry
of Housing in April of 1993. While the majority of the high density development may not
occur until the later part of the Plan's timeframe the market is .readily subject to change
including such factors as rent controls, non-profit housing programs or the condominium
market. The designation of high density development is appropriate and in conformity with
various policies of the Durham Regional Official Plan and provincial initiatives. It is
essential to provide for higher density dwelling to meet the goal of providing a variety of
housing types. Furthermore, it is appropriate to provide high density designations to support
Central Area uses and future public transit opportunities.
vi) Density within Environmentally Sensitive Areas
Various areas within both north Courtice and north Bowmanville have been identified as
having significant environmentally sensitive features including the Lake Iroquois Beach.
These are locally significant recharge and discharge .areas with high water tables and
contribute significantly to the baseflow of streams. One strategy to preserve the
hydrogeological function of the area is to develop at lower densities to minimize the
impervious surface. This needs to be accounted for in the land budget process.
vii) Fragmented Land in Courtice
One submission suggested that as a result of the unusually high number of fragmented lots
in Courtice, future land requirements for the Courtice urban area should be given a higher
land supply. To date most residential plans of subdivision, have developed on larger land
parcels. This has resulted in pockets of residentially designated land remaining undeveloped
due to the difficulty of assembling fragmented parcels. This occurs in most urban areas but
is most apparent in Courtice due to the existing land ownership pattern. Within a shorter
timeframe, the problems of fragmented land ownership may affect land supply for
development. However, given the extension of the timeframe to the year 2016, it is not
anticipated that this will be a problem. Furthermore, in promoting compact urban form and
sequential development it is desirable to encourage these lands to develop sooner-than later.
9
viii) Rural Growth
In addition to the assumptions questions by the submissions, provincial policy and the
Durham Regional Official. Plan require consideration of rural population growth. Upon
reviewing recent trends in rural lot creation, the stricter policy environment and the key
objectives of the Plan, staff are proposing a moderate rate of rural growth, totalling 900
additional units between 1994 and 2016. On the basis of an average lot size of 0.6 ha (1.5
t acres), rural residential development would consume approximately 550 ha (1,350 acres).
ix) Intensification
Provincial policy and the Durham Regional Official Plan also require consideration of
intensification potential. Although submissions did not question the intensification target,
the Region raised a number of questions, including the- fulfilment of the Regional Plan's
intensification target and the impact of Bill 120. Staff have reviewed this matter further
including the potential for apartments-in-houses, garden suites and conversion of non-
residential lands which had previously not been considered in the land budget analysis. The
various forms of intensification include:
• committed redevelopment
• potential redevelopment
• apartments in houses
• mixed use development
• garden suites
• redesignation of non-residential land
• infilling
A summary of the intensification analysis is shown in Figure 1 below:
FIGURE 1
DWELLING UNITS INTENSIFICATION SUMMARY
DESIGNATION COURTICE BOWMANVILLE NEWCASTLE ORONO TOTAL
Central Areas 280 290 30 0 600
Residential Areas 1200 1240 420 30 2890
Total 1480 1530 450 30 3490
In consideration of the issues raised in the submissions, comments received from agencies,
and provincial and regional policy requirements, staff have reviewed the assumptions
contained in the land budget analysis which .formed the basis for the determination of the
interim urban area boundary. The net result of the analysis is the need for additional urban
residential lands. The key changes in the assumptions are the more optimistic growth target,.
the extension of the Plan's timeframe to 2016, and the anticipation of a declining household
size.
1
10
Reco-n-nendation
2 2 That the O,,~cial Plan be prepared on the basis of the following assumptions:
• a 20 y~ timeframe;
• Bowmanville being the dominant growth centre;
• a population target of 130,000 and a household ' of 47,600 at 2016;
• a rurrtl growth target of 900 additional dwelling units by 2016; and
• an intens{frcation target of approximately 5000 dwelling units by 2016.
Additional lands within the Interim Urban Area Boundary
Twelve submissions were received requesting extensions to the Interim Urban Boundary for
Courtice, Bowmanville and Newcastle Village. These are identified as Areas "A" to "M" on
Maps 1 to 3 respectively. The total areas requested to be included in the urban area
boundary for each of the urban communities are as follows:
Courtice
Bowmanville
Newcastle Village
Total
299 ha (739 ac.)
266 ha (657 ac.)
119 ha _ 294 ac.
684 ha (1,690 ac.)
On the basis of the assumptions reviewed previously, a revised .land budget analysis for the
urban areas has been prepared. (Figure 2)
The land budget analysis indicates additional lands are required to accommodate urban
growth to year 2016. However, the amount of lands to be added within the interim
boundaries are generally less than the amount of lands requested by the submissions. In this
regard, these land parcels were evaluated and prioritized having regard to the following
criteria:
Urban Form
• within 1976 Regional Official Plan urban area boundary
• sequential development/rounding out existing development
Servicing
• ease of sanitary sewer and water supply servicing
• status of master drainage/sub-watershed: plan
• 10 year capital works program
11
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13
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14
Fi(~i1RF
ALLOCATION OF HOUSING TARGET TO 2016
COURTICE BOWIVIANVILLE NEWCASTLE WILMOT CR. ORONO
Total Households 2016 12800 22900 4650 cl~ 868 730
Existing Households 1994 4600 7100 1480 619 (~40
Housing Units Required 8200 15800 3170 249 90
Central Areas
- Committed Intensification 110 210
- Potential Intensification 170 80 30
-Committed New Units
- Potential New Units 130 980
Sub-Total: 410 1270 30 0 0
Residential Areas
- Committed Intensification 330 120
- Potential Intensification 870 1120 420 0 30
-Committed New Units 870 4700 30 249 0
Sub-Total: 2070 5940 450 249 30
Additional New Units Required 5720 8590 2690 0 60
Units within Interim
Urban Area Boundary 4000 5590 2020
Net Additional Units Required 1720 3000 670 0 60
Additional Land Required (ha)
Gross Density (uph) ~ 173 173 13.6
Residential Land (ha) ~'~ 99 174 49 0 0
AYP.S•
(1) Actual units approved in current site plan.
(2) Gross density assumptions for Bowmanville and Courtice do not account for certain areas which have been
identified as developing at a lower gross density due to environmental constraints.
(3) Land area requirements are for developable residential land only.
Access to Services/Employment
• proximity to Main or Sub Central Area
• proximity to existing transit service
• proximity to developed Employment Areas
As a result of the above analysis, revision to the interim urban area boundaries to 2016 have
been prepared and are reflected on Maps 4 to 6.
Recommendation
Z-3 Tfrat the recommended 2016 ur~Crii area boundaries as shown on Maps 4 to 6 be utilized
for the- Recommended 0,,~'icial Plan. ,
15
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16
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17
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~~ REGIONAL URBAN
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18
2.4 Phasing and Prematurity Policies
Overview
The draft Official Plan contains various policies to guide Council's consideration of the
phasing of urban residential areas and considerations for premature draft plans of subdivision
applications. Submissions were received from the development industry expressing concern
with the policies, suggesting some of the criteria were either too restrictive or too arbitrary.
Submissions Received
Courtice Heights Development W131
The Kaitlin Group W132
Oshawa -Durham Home Builders Association W154
Kiddicorp Investment Ltd. W157
Issues Identified
• .Planning policies of Section 5.3.6 and 5.3.9.
• Prematurity policies of Section 5.3.7.
Agency Comments
Region of Durham
The Region of Durham Planning Department requested clarification on how the non-
residential assessment ratio of a minimum 15%, is to be monitored.
Stall Comments
Phasing Policies in Section 5.3.6 and 5.3.9
Section 5.3.6 list seven policies (a) to (g) for the phasing or development of
residential lands in the various urban areas. Section 5.3.9 indicates that Council shall
impose conditions of approval for a draft plan of subdivision to implement the
phasing policies in Section 5.3.6.
Oshawa-Durham Homebuilders Association, Courtice Heights Developments and the Kaitlin
Groupwere concerned about the requirement for sequential development, noting fragmented
ownership and development reluctance as possible reasons for non-sequential development
and leapfrogging. While this may be of concern relative to the several smaller parcels held
by residents, the larger parcels are generally owned by development interests. This policy
would not be contravened if development were to occur around the smaller resident-owned
parcels. The policy is to prevent clearly non-sequential development (such as the Melody
Home Subdivision) and ensure the logical extension of municipal services in a financially
responsible manner.
19 .
Courtice Heights Developments and ICiddicorp Investments Ltd. suggested that both section
5.3.6 and 5.3.9 should provide for flexibility by using alternate wordings such as replacing
"shall be based on" to "shall give consideration to". 'This would seriously weaken the policy
to the extent that if would be difficult to enforce if challenged.
It is noted that Newcastle Limited Partnerships I and II raised concerns with respect to
similar phasing policies which were proposed as part of Official Plan Amendment #59. As
a result of the reconsideration of their concerns, staff have eliminated some of the principles
and revised the text of others. In particular, there was concern with the reference to
indicating "preference" for development in certain areas. Since "preference" was seen as
possibly being applied in an arbitrary manner, staff propose revised wording of "priority" for
intensification and infilling and "priority" far development adjacent to Main Central Areas.
In addition, staff are proposing to eliminate the policy regarding preference for development
of previously designated urban lands in the 1976 Durham Regional Official Plan.
Recommendation
2-4 That the policies contained in Section 5.3.6 of the Draft 0,,~`icial Plan be modified to be
consistent with Amendment No. 59.
Prematurity Policies of Section 5.3.7
Section 5.3.7 contains five conditions by which the Municipality may deem a residential
subdivision application premature. Several submissions considered that these policies are
rigid and arbitrary. These conditions relate to -the Municipality's ability to finance
infrastructure acid services through either development charges or tax assessment, and they
are designed to ensure that the most fundamental growth management goals of the Official
Plan are achieved.
By defining the conditions which the Municipality can. consider a plan of subdivision
premature, there is actually greater assurance that the Municipality will not act in an
arbitrary manner. It is noted that the basic principles of this Plan and the development
charges which contained the Municipality's 10 year capital works forecast can be appealed.
In this sense, there is no possibility of the Municipality acting in an arbitrary manner.
Moreover, the policy is not rigid but relatively flexible since Council still has discretion in the
matter (ie. "may declare" not necessarily "shall declare").
Recommendation
None
t
20
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l
3. ENVIRONMENTAL ISSUES
3.1 Provincial and Regional Policy
Comprehensive Set of Provincial Policy Statements
Section A (Natural Heritage, Environmental Protection and Hazard Policies) and Section
G (Interpretation and Implementation) of the Policy Statements are relevant to the
discussion on the natural environment.
In decisions regarding development, reasonable opportunity is to be taken to maintain and
enhance the quality of air, land, water and biota, maintain biodiversity and protect natural
links and corridors.
Development that will negatively impact ground water recharge areas, head waters, and
aquifers which have been identified as sensitive areas is not permitted. The Implementation
Guidelines for the Policy Statements further state that the identification of areas associated
with sensitive water systems, and the recognition of their inherent connectivity and sensitivity
to development, must be considered in official plan preparation and the approval of site-
specific development applications in order to protect water quality and quantity.
The level of protection afforded natural heritage features and areas is to be based on their
"significance". The determination of "significance" is to be based on criteria and guidelines
established by the province or on comparable municipal evaluations. Natural heritage
features and areas are to be classified into areas where either no development is permitted,
or development is permitted provided it does not negatively impact the features or the
ecological functions for which the area is identified. Development on adjacent lands is also
not permitted to negatively impact these natural heritage features or areas. All development
proposals in or adjacent to an identified natural heritage feature or area require the
submission of a Environmental Impact Study.
Wetlands are to be identified and adequately protected, with no loss of provincially
significant wetlands. The protection of wetlands which are not provincially significant is also
encouraged. Development within 120 metres of'an individual wetland area or a wetland
complex (adjacent lands) may be considered with the preparation of an Environmental
Impact Study.
The Implementation Guidelines prescribe a system of determining woodland significance that,
is largely based on assessing the size of individual woodland areas within the context of the
overall percentage of forest cover in the Municipality. For the majority of the G.T.A.
municipalities, all wooded areas generally larger than 4 ha will be deemed significant.
21
Durham Regional Official Plan
Area municipal official plans are to include policies to address cumulative impacts by
promoting comprehensive planning for natural areas and watersheds, and to require storm
water management, erosion and sedimentation control plans be prepared in the context of
subwatershed plans.
Development applications on or in proximity to environmentally sensitive areas require the
preparation of an environmental impact study to examine the degree of sensitivity and the
assessment of potential cumulative impacts.
The Region, in conjunction with the Provincial government and the respective area
municipality, is.to identify significant wooded areas to be protected, and examine the ways
and means to maintain them as wildlife habitats. Local official plans are to include
provisions for the protection of forest edges and hedge rows. Studies on the impact of
development on significant forests and woodlots are required.
Region of Durham Tree Preservation By-law
Regional By-law 148-91, which was approved under the authority of the Trees Act, restricts
and regulates the destruction of trees by cutting, burning or other means. The By-law
applies to all woodlots of 0.5 acre or more in area and sets out the conditions by which trees
specified by the by-law and located in woodlots may be removed. The destruction of any
tree located in a Sensitive Natural Area is not permitted. Exemptions from the by-law~must
be approved by Regional Council.
3.2 Watershed Planning
Overview
All natural environment functions and features are linked by the continuous and interactive
movement of .ground water and surface .water within distinct ecosystems known as
watersheds. Watershed planning identifies how a watershed ecosystem functions, the role
of various natural features in the maintenance of these and other natural functions, and how
these functions and features can be maintained in the context of land use change.
Submissions Received
SAGA
Pam Callus
Racansky Family
Durham Wetlands and Watersheds
Roy Forrester
Ann Cowman
Tonno Construction Ltd.
W1, W64, V30
W84
W97, W138, W171, V40
W155
V35
V41
W118, W134, W183, V7, V44, V53
22
SummAry of Issues Identified by SuUmissions
• Incorporating watershed planning in the land use planning process.
• The Municipality's involvement in watershed planning.
• Environmental monitoring and cumulative effects assessment be implemented.
Agency Comments
Region of Durham
The Clarington Official Plan should contain policies in accordance with the Regional Plan,
including further details on when watershed plans should be undertaken, what they will
contain or be limited to. A broader definition of'watershed plans' should also be provided.
The Region should be added as a party to any watershed planning study. Given the costs
involved, the proponents of development should be required to fund watershed planning
studies.
Ministry of Natural Resources
The Official Plan should indicate that watershed plans will be prepared in partnership with
the Ministry of Natural Resources, Conservation Authorities and other agencies. The
Official Plan should encourage the preparation of subwatershed plans, not Master Drainage
Plans. The information requirements should be revised to be consistent with the Province's
guidelines for subwatershed plans.
Central Lake Ontario Conservation Authority
Watershed studies should be prepared early in the, planning process. Secondary Plans must
have sufficient flexibility to incorporate the detailed findings of watershed studies. The
Official Plan should indicate the willingness of the Municipality to participate in watershed
studies, and require the preparation of a subwatershed and/or Master Drainage Plan of the
affected subwatershed prior to the approval of a plan of subdivision. Conservation
Authorities should be recognized as the agency responsible for the preparation of watershed
management plans.
A process to monitor the natural environment needs to be established so that sustainable
development concepts can be evaluated. Hydrogeological assessments should address broad
cumulative effects.
If alternative storm water management measures such as surface drains, ditches and
infiltration areas are not used in ground water recharge/discharge areas,-then development
23
t
L
in these areas must be questioned. Higher urban densities may require existing storm water
management facilities and plans to be re-evaluated. Storm water management options must
be developed which will be able to implement the ultimate Master Drainage Plans.
Ganaraska Region Conservation Authority
The Authority is supportive of the need to assess cumulative impacts of future development,
as well as the development of watershed plans. The Municipality's active involvement in.
watershed planning studies, in particular the watershed study for the Ganaraska River
watershed, is encouraged.
The draft Plan's policies on storm water management should specifically address watershed
planning, and should refer to sub-watershed plans rather than Master Drainage Plans.
Statlf Comments
Incornoratine watershed planning in the land use nlAnninQ process
The preparation of comprehensive watershed plans as part of the Official Plan Review would
not have been practical given the enormous costs and time required. Watershed studies
should be undertaken by the conservation authorities and relevant municipalities on a
priority basis. However, each major watershed is divided into several smaller sub-watersheds.
Much of the benefit that would have been derived from large-scale watershed plans can still
be achieved through planning studies based on these smaller sub-watersheds.
In most cases, subwatershed plans can be prepared subsequent to the Official Plan process
and prior to the detailed evaluation stage associated with a plan of subdivision. In such case,
it is necessary to have flexibility ~in the Official Plan to incorporate. the detailed findings of
watershed or subwatershed studies.
In certain instances, where groundwater recharge/discharge areas are significant features and
critical to the health of streams, it is important to have the results of the subwatershed
studies to establish either the principle of development and/or the amount of development
that can be accommodated without undue impact. This approach should be used in the
northerly portions of Courtice. In order to provide for an orderly transition, however, this
approach should not be utilized in areas subject to approved Master Drainage Plans.
Recommendatiions
3-l That the O,,~Fcial Plan nequir~e the p~paralion of subwatershed plans rather thaw Master
Drainage Plans prior to the approval of plans of subdivision or other urban development
applications.
3 2 That a watershed plan for the FareweQ Creek be prepared prior to the designation of land
uses in the Courlice North neighbourhood (Deferral Area ~6) in the Durham Regional
Official. `
24
The Municinalitv's involvement in watershed nlannin
Watershed/subwatershed planning studies are intended to be co-operative exercises among
a number of parties, including the Regional and local governments, the Conservation
~ Authorities, the Ministry of Natural Resources and property owners. As the agency primarily
responsible for local land use decisions and the management of storm water runoff, .local
municipal involvement is particularly important.
In the past in this Municipality, master drainage plans have been prepared by development
proponents. In light of the evolution from master drainage plans (how to dispose of
stormwater) to watershed or watershed plans (how to address environmental impacts of
development on surface and groundwater systems), it is increasingly important for the
Municipality to take on an active role in ensuring the integrity of such plans for the public
benefit.
There are a number of significant watersheds contained completely or partially within
Clarington's municipal boundaries, such as the Black/Farewell Creek system, Bowmanville
Creek, Soper Creek, Wilmot Creek and the Ganaraska River. The costs and benefits of
municipal participation in watershed planning exercises for these and other watercourses
should be assessed on a priority basis.
While the larger studies for an entire watershed are more expensive and have a wider
number of benefiting parties without a direct financial interest, the costs of sub-watershed
studies for urbanizing watersheds are readily affordable to benefiting parties. This process
is currently used for master drainage plans and can be readily adapted by the Municipality
to raise the necessary funds for smaller sub-watershed studies. Complete watershed studies
could possibly be done on amulti-stakeholder cost-shared basis.
Recommendations
3 3 That the O,,~cial Plan indicate the Municipality's support jar participal~ion in multi-
stakeholder watershed planning studies.
3-4 That the O,,~icial Plan clearly identify that the Municipality wiU undertake subwatershed
studies, in co-operation with the Region, the Conservation Authority and the Ministry of
Natural Resources, for urbanizing sub-watersheds subject to satisfactory cost-sharing
arrangements.
Environmental monitoring and cumulative impacts assessment
Environmental monitoring measures how various conditions of the natural environment
change over time, such as the amount of forest cover, stream depth during low flow
conditions, and the .presence and/or absence of certain species of birds, animals and fish.
Watershed plans are an effective tool in determining the cumulative effects of development.
25
L
Many issues have to be addressed in order for environmental monitoring and cumulative
effects assessment to be effectively implemented including sources of funding to establish and
maintain an on-going monitoring program, appropriate thresholds for each environmental
condition monitored, and the ultimate effect on land use decisions should monitoring
indicate that development is having a significant negative impact.
3.3
The details of how to implement such a monitoring process would be identified later in
consultation with other levels of government and the development industry. In light of the
basic directions of the Plan and the provincial and regional policies;~it would be appropriate
at this time to clearly state the Municipality's intentions to monitor cumulative impacts on
the natural environment.
Recommendations
3~ That the Implementab'on policies of the Official Plan indicate that, among other maltas,
the Municipality will in consultation with all interested pmties, develop a monitoring
system to evaluate cumulative impacts on the natrnnl environment.
Natural Heritage System
Overview
Regional and provincial policy require local official plans to identify and protect
environmentally sensitive and significant features and areas, and a connected natural heritage
system. This concept was elaborated in the Phase 2 "Issues and Options" report.
Submissions Received
E. Allin W22
R. Cameron W27
Hans Knecht W31
Durham Region Field Naturalists W48
SAGA W64
Kingsberry Properties W89
Stan Racansky ~ W97
Martha and S. Penfound W123
Dr. T.H. Holmes W125
Courtice Heights Developments W131
Kaitlan Group W132
Haas Shoychet Waisglass Properties W140
Oshawa Durham Home Builders Assoc. W154
Durham 'Wetlands and Watersheds W155
Bowmanville Mall W156
Kiddicorp Investments W157
Aggregate Producers Association of Ontario W164
26
Summary of Issues Identified by Submissions
• The appropriate designation for natural heritage features and areas.
• Development setbacks from streams and valleys be determined.
• Protecting natural heritage features and areas.
Agency Comments
Region of Durham
.The Plan's policies regarding environmentally sensitive areas and natural features need to
be clarified.
Ministry of Natural Resources
The draft Official Plan is an extremely forward thinking, environmentally and ecologically
based plan. The policy requiring the gratuitous dedication of environmentally sensitive areas
as a condition of development is supported.
Central Lake Ontario Conservation Authority
The Green Space designation and policies gives natural areas the .same status as other
planning designations. A comprehensive data base of the municipality's natural systems and
features should be obtained at the start of the planning process.
The setback policy for streams and valleylands should be based on both fixed buffers zones
and flexible performance standards. The requirement for an environmental impact study
should apply to any development activity which could potentially impact on a wetland, even
if located more than 120 metres away.
Ganaraska Region Conservation Authority
The setback where a defined top-of-bank for a stream valley exists should be 10 metres, and
should form the rear lot line in subdivisions. As well, the Plan should state that development
will not be considered where an Environmental Impact Assessment identifies impacts
unacceptable to the municipality or other review agencies.
.The appropriate designation for naturnl heritage features and areas
The draft Official Plan identifies all natural heritage features and areas on Map C, with the
most sensitive being designated "Green Space" on Map A. However, within the "Green
27
Space" designation, no special protection is provided to those natural features and areas
identified as being significant, as required by the Provincial Policy Statements. The definition
of "Environmentally Sensitive Areas" provided in the draft Plan has also been criticized as
being too broad.
The Official Plan should provide different levels of protection for natural heritage features
and areas based on their significance and sensitivity on the basis of the information currently
available. Therefore, it is proposed to establish new land use designation of "Environmental
Protection Area", to recognize the most significant components of the natural heritage system
including:
• all permanent streams and associated valleylands;
• most significant woodlots;
• all wetlands and wetland complexes;
• all areas of Natural and Scientific Interest (ANSI) excluding the
Bowmanville/St. Marys Quarry.
No development would be permitted within the "Environmental Protection Area", except uses
such as passive recreation and structures related to erosion control and storm water
management.
Less significant natural features, including smaller woodlots would continue to be shown on
Map C but would receive a lower level of protection. Development may be permitted
subject to an environmental impact study.
Recommendation
3-6 That a new land use dlesignation known as "Environmental Protection Are+ac" be
introduced covering the most significant natural heritage features and areas.
Develonment setbacks from streams and vallevs.
There are varied opinions on the most appropriate approach to determining development ,
setbacks along stream valleys. The draft Official Plan currently reflects Ministry of Natural
Resources policy by requiring a development setback of 30 metres and 15 metres, as
measured from the edge of channel, for cold water streams and warm water streams r
respectively. These rigid guidelines are easy to administer, but may not protect the valley
system below the top of bank, nor provide an appropriate development setback above the
top of bank. However, flexible standards are only practical where detailed environmental
information is available.
28
It is proposed that a combination of 'a fixed standard and a performance standard be
established to define the development setback areas around stream valleys.. The fixed
standard would be the top-of--bank plus five metres to accommodate maintenance access.
The performance standard would require an increased setback if slope stability or the
sensitivity of natural features warrant such an increase. In no case would the setback be less
than the standard established by the Ministry of Natural Resources.
Recommendation
3-7 That the Official Plan recognize variable setback zone requirements for stream valleys
based on environmental or slope stability concerns. In no case, however, would the setback
be less than a minimum S metres standard.
Protection of natural heritage features and areas
The Draft Official 1?lan requires the gratuitous dedication of all or part of an
environmentally sensitive area located within the limits of a proposed development. This
policy has been criticized because of the broad definition of environmentally sensitive areas
- contained in the Draft Plan, including recharge and discharge areas.
Current Council's policy under By-law 95-104 is to request the gratuitous dedication of
wetlands, creek valley lands, and shoreline hazard lands as a condition of development
approval. It would be appropriate to modify the draft policy to be consistent with current
policy. The protection of other natural heritage areas and features could be accomplished
.through public land acquisition, conservation easements, parkland dedication or other
available regulatory mechanisms.
Recommendation
3-8 77iat the draJi' policies be mod ~ to clarify that only haurrd lmrdr, valleylands and
wetlands would be requested for gratuitous dedication to the Municipality as a condition
of development apprnval.
3.4 Woodlot Policies
Overview
Woodlots are vital elements of the natural environment. They are important as habitat and
movement corridors for wildlife, and for the maintenance of groundwater and surface water
resources. They also form a significant part of the visual landscape of the municipality and
are integral to the quality of life of Clarington residents. For these reasons, woodlot
protection warrants specific consideration in the Official Plan.
29
Submissions Received
SAGA W(4
Jo-Anne Mehring W73
Pam Callus W84
Mark Foley W89
Cliff Curtis W121
John Nekkers W122
Courtice Heights Developments W131
Kaitlan Group W132
Eric and Geri Cornish W137
Stan Racansky W138
Messrs. Schleiss and Holland W151
Oshawa-Durham Home Builders Assoc. W154
Durham Wetlands and Watersheds W155
Kiddicorp Investments W157
Aggregate Producers Association of Ontario W164
Peggy Dalidowicz W177
George Leaver V36
Elena Racansky V40
Summary of Issues Identified by Submissions
• The appropriate designation for woodlots in the Official Plan.
• The woodlots shown are excessive.
• Gratuitous dedication of woodlots.
Agency Comments
Ministry of Agriculture and Food
The draft Official Plan should permit woodlot clearing for agricultural use on Class 1-3 lands
when the woodlot is part of a farming operation and productivity or yield will be increased.
The Plan should also indicate that commercial logging may occur in the rural areas when
undertaken as part of a Forest Management Plan prepared by a qualified forester.
The presence of "Green Space" areas to reflect rural woodlots intermixed with agriculturally
designated lands is of concern. The Plan should provide large areas of predominantly high
priority agricultural lands which are not interrupted by non-agricultural designations.
30
Ministry of Natural .Resources
The use of criteria to determine significant woodlots is a very progressive approach to
identifying woodlots for protection. The criteria used are very comprehensive and cover
most of the components that the Ministry would normally recommend. Specific
modifications to the woodlot criteria are suggested. The Plan should indicate that a more
complete and up-to-date inventory of woodlands and natural areas is required. The Plan
should also indicate a desired level of future forest cover for municipality (preferably 25%
to 30%).
The policy restricting development within woodlots is supported. However, commercial
logging should be permitted under an approved forest management plan provided by the
Ministry of Natural Resources, the Conservation Authorities or a Registered Professional
Forester.
Central Lake Ontario Conservation Authority
Woodlots should be designated "Green Space" rather than just being indicated on Map C.
Ecological function should be considered when assessing the quality of a woodlot. Woodlots
larger than 30 ha and 300 m deep should be protected, and development setbacks should be
provided for smaller woodlots to promote the regeneration of the forest core.
In the Authority's experience, the incorporation of wooded areas into residential lots has not
proven to be an effective method of woodlot protection and is no longer recommended.
To ensure that expanded agricultural uses do not impact upon the sensitivity of a woodlot,
there must be a mechanism to trigger the need for an environmental impact analysis.
Ganaraska Region Conservation Authority
Commercial logging should be permitted on private woodlots provided it is undertaken in
accordance with a management plan prepared by a Registered Professional Forester.
Staff Comments
The annronriate desiEnation for woodlots
In the Draft Official Plan, tableland woodlots were identified on the Natural Features Map
C. In addition, the more significant woodlots were designated "Green Space" on the Land
Use Map A. Such woodlots were designated for preservation and development was
prohibited.
Upon review of the submissions and having regard for provincial and regional policy, it is
proposed that some revisions be made to this framework. Firstly, tableland woodlots would
31
continue to be shown on the Natural Features Map C and will be accurately defined through
the use of digitized Ontario Base Mapping. The indication of the tableland woodlots on
Map C would trigger the requirement for an environmental impact analysis and/or a woodlot
.preservation plan in the event of a development application.
It is recognized that the preservation of woodlots in urban areas is difficult to achieve
particularly where isolated wooded areas are involved. However, larger significant woodlots
which are associated with valleys or wetland system are worthy of protection in order to
maintain ecological systems. Therefore, it is proposed that the Official Plan would designate
the most significant woodlots as Environmental Protection Areas, similar to wetlands and
valleylands. The exact boundaries would be the subject of detailed studies submitted with
development applications on adjacent lands.
The less significant woodlots in Urban Area would be designated for Residential but subject
to the constraints imposed by the policies for natural features outlined above. In this case,
the environmental impact analysis could result in smaller pockets of trees being retained in
certain areas or possibly groups of trees retained on residential lots.
In rural areas, woodlots would only be shown on the Natural Features Map C but retain the
predominant land use designation of adjacent lands. This would mean that smaller, isolated
woodlots could have an Agricultural or Green Space designation.
Recommendations
~9 That the O,,~cial Plan designate the most significant woodlots as "Environmental
Protection Areas".
3 IO T7wt the less significant woodlots in Urban Areas be derigrwted for Residential or
Employment Area user but be subject to an environmental impact analysis.
The woodlots shown are excessive
The Draft Official Plan designates urban woodlots as "Green Space". A total of nine
objections were received to the designation of four woodlots in Courtice and two woodlots
in Bowmanville, as indicated on Maps 7 and 8 to this Report.
Courtice Woodlots
An environmental study of Courtice north of Nash Road was recently undertaken for the
Region by the consulting firm Ecological Services for Planning Ltd. .This study, entitled
'Environmental Impact Study of the Courtice Major Urban Area', was released in 1994.
32
L1
33
34
~~uuuuu~uvuv~ vw ~w~~u~u~ WVVUI~ U U ~
DOO ~i]G°~nl~/f1d~,C~ NJG,~ o G1a QG°~(~Q
a) Schleiss and Holland Woodlot (Submission W151)
The 1994 Courtice Environmental Study indicates that this woodlot is a largely undisturbed
mature mixed woodlot with potential for high wildlife species diversity. The woodlot serves
as a source area for a tributary to the Harmony Creek. The Study identifies this woodlot as
having high sensitivity to impacts from development. It is currently designated- Minor Open
Space in the Neighbourhood Plan and it is recommended that this woodlot be protected.
b) Curtis-Nekkers-Dalidowicz Woodlot (Submission W121, W122, W177)
This woodlot is the eastward continuation of the Schleiss and Holland woodlot. The 1994
Environmental Study indicates that this is a disturbed mature mixed woodlot with moderate
sensitivity to impacts from development. The northerly portions contiguous to the highly
sensitive Schleiss and Holland woodlot to the west and the wooded area in the Farewell
Creek valley to the east, which is rated as having very high sensitivity. However, the portion
south of the future extension of Springfield Drive would be isolated from the main woodlot.
It is appropriate to release these lands because of commitments through previous
development approvals for the extension of roads and services to this area. However, tree
preservation plans should be utilized in the design of the plan of subdivision to retain as
many trees as practical.
c) Mehring Woodlot (Submission W73)
This woodlot is located on a property which is part of a larger land assembly for a proposed
plan of subdivision. The woodlot lies immediately adjacent to the Harmony Creek Valley.
The 1994 Environmental Study indicates this is an immature to undisturbed mature woodlot
which provides mature wildlife habitat and a corridor for wildlife movement. The Study
identifies the woodlot as having moderate sensitivity to impacts from development. However,
staff note that this woodlot is significant in the Courtice context, containing mature.
hardwoods and being located adjacent to the Harmony Creek valley system and therefore,
should be protected. The precise boundaries of the woodlots could be determined in the
context of a development application of the adjacent lands.
~ d) Kiddicorp Woodlot (Submission W157)
According to the 1994 Environmental Study, this woodlot is part of a much larger
undisturbed mature woodlot which possesses a high water table and acts as a potential
groundwater recharge area. It provides mature habitat for wildlife, in particular for interior
species. The entire woodlot is rated as having very high sensitivity to impacts from
development.
Kiddicorp Investments has submitted a draft plan of subdivision which covers that portion
of the woodlot subject to the submission. Instead of high rise apartments, which could
conserve large open space areas, the proponent seeks to construct a traditional plan of
35
c
subdivision. Amore detailed environmental study of the entire woodlot is required to
provide amore in-depth evaluation of the woodlot and enable the boundaries of the woodlot
to be more precisely defined.
Bowmanville Woodlots
a) Cornish Woodlot (Submission W137, V36)
This "Green Space" designation reflects a large woodlot which was cleared in late 1994 and
early 1995. The owners are currently subject to prosecution under the Region of Durham
Tree Preservation 13y-law. Staff note that the Tree Preservation B3'-law provides for the
restoration of all or part of a cleared woodlot. The "Green Space" designation should
therefore be maintained.
b) Kemp Woodlot (Submission V18)
A review of aerial photography and source maps and a site visit by Staff in February 1995
confirmed that the "Green Space" designation inadvertently incorporated additional lands
that were clearly not part of the woodlot. An appropriate adjustment to the boundary has
been reviewed with Mr. Kemp.
Recommendation
~-II That the d~rignat~ion for woodlots be natained save and e~acept for the following:
a) That the designation of the Curtis Nekkers-Dialidowicz wo~ndlott be
adjusted to r~nove the landr south of the future Spring~reld Drive
exterrs~ion.
b) That the designation of the Kemp woodlot be adjusted to re}lect the actual
limits of the woodlot.
Gratuitous dedication of woodlots.
The public acquisition of woodlots would provide a number of benefits, including the
perpetual protection of the woodlot and the provision of natural areas for public use.
However, the Municipality does not have the financial resources to pursue a blanket policy
of purchasing woodlots, nor does it have the legal authority to require the gratuitous
dedication of a woodlot except as parkland dedication.
While developers have traditionally been willing to dedicate valleylands gratuitously due to
flood and erosion hazards, the submissions indicate that this is not acceptable for woodlots
unless considered as parkland dedication.
36
Under the planning reforms established through Bill 163, the Municipality now has new
powers to enact a tree preservation ~by-law to regulate the destruction of trees on private
property. If the Municipality were to enact such a by-law, the question of ownership of the
lands would be less important to achieving the same objective.
Another option for tree preservation is to allow for density transfers or bonusing. Thus
while the Draft Official Plan has focussed .primarily on one mechanism to achieve the
preservation of woodlots, it would be more appropriate to recognize the variety of
mechanisms which could be utilized, including:
• municipal acquisition;
• gratuitous dedication;
• parkland dedication;
• regulation of private lands (tree preservation by-law); and
• density transfers or bonusing.
Recommendahion
312 T/rat the O,,~icial Plan recognize a variely of mechanisms to achieve the preservation of
woodlots with municipal ownership pursued for only the most significant woodlots;
3-13 That the Municipality enact a bye preservation b}*-law under the Mwricipial Act.
3.5 Lake Iroquois Beach
Overview
The beach (also referred to as the shoreline) of glacial Lake Iroquois is characterized by a
shallow water table, wetlands and extensive forested areas. It functions as a band of local
ground water recharge and discharge. The Beach and its features and functions are sensitive
to disturbances associated with changes in land use, such as the clearing of forests for
urbanization or agriculture. The northern portions of the Courtice and Bowmanville Urban
Area, as well as south Orono and the hamlet of Newtonville, are located on the Lake
Iroquois Beach.
Submissions Received
Valiant Property Management W96, V45, V46
Racansky Family W97, W138, W171, W184
Allan Vaillancourt W149
Durham Wetlands and Watersheds W155
Ann Cowman V41
37
t
Summary of Issues Identified By Submissions
• Maintaining the ecological functions of the Lake Iroquois Beach.
Agency Comments
Region of Durham
The interpretation of the whole of the Lake Iroquois Shoreline as an environmentally
sensitive area- may be unduly restrictive. Why is the expansion of Newtonville specifically
prohibited, and not that of other hamlets and urban areas also adjacent to or within the Lake
Iroquois Shoreline?
Central Lake Ontario Conservation Authority
The preservation of recharge/discharge functions in Courti.ce and north Bowmanville is
critical to cold water fish species/habitat in adjacent streams. Radically different methods
of storm water management are required in Courtice and north Bowmanville to protect
ground water functions. The policies in the draft Official Plan relating to the Lake Iroquois
Shoreline are supported. The requirement for. the preparation of environmental impact
studies for urban development on the Shoreline provides the opportunity to ensure that its
complex environmental functions, such as ground water recharge and discharge, will be
addressed.
Neighbourhoods 8 and 9 in north Bowmanville should be placed in a Special Study Area so
that the level of development can be influenced by environmental studies.
Staff Comments
Maintaining the ecological functions of the Lake Iroquois Beach
One of the objectives of the draft Official Plan is the preservation and protection of the
functions Lake Iroquois Beach (Shoreline) with~its forests, wildlife habitat and its significant
functions of ground water recharge. It is the source of many smaller streams and a major
contributor to baseflow for larger~streams which originate in the Oak Ridges Moraine. Thus
the protection of this natural feature is a key environmental objective of the Official Plan.
The Beach is identified on Map C (Natural Features) of the draft Plan, but is not specifically
designated on Map A (Land Use). Uses permitted on the Beach are in accordance with land
use designations. It is recognized that the provisions of the Draft Official Plan are not clear
on this issue. This matter will be addressed in the recommended version. of the Official Plan.
Many of the issues- related to the protection of the Lake Iroquois Beach are closely
associated with other specific issues being addressed through the Official Plan Review -the
38
protection of ground and surface water resources through watershed planning, and the
protection of woodlots and wetlands.
Those portions of the Lake Iroquois. Beach designated for urban development in northerly
portions of Courtice and Bowmanville are under the greatest pressure. Therefore, the
preparation of watershed or subwatershed .plans for the Black/Farewell Creeks system and
the Bowmanville/Soper Creeks system should be considered as municipal priorities. As well,
approaches to protect the Beach's ground water recharge functions, including alternative
storm water management techniques, should be utilized.
Protection of the Lake Iroquois Beach in the rural area requires a limitation on
development. Development applications, including aggregate extraction activities, will be
required to submit an environmental analysis to address the impact on the Beach's ecological
functions and possible mitigative measures.
Recommendations
3-I4 That the use of alternative storm water management meosra~es to facilitate the
maintenance of ground water functions be required for any development within the Lake
Iroquois Beach area.
3-15 That the r~elaliwnship between the natural feature policies for the Lake Iroquois Beach and
the land use designation be clarified.
39
L
t
t 4. URBAN ISSUES
4.1 Provincial and Regional Policies
Comprehensive Set of Provincial Policy Statements
Policies in Section B (Economic, Community Development, and Infrastructure Policies),
Section C (Housing Policies) and E of the Policy Statements have implications for the
planning of urban areas.
The linkages between social and human service needs and land use planning should be
recognized in land use planning decisions. Public streets and places and facilities used by
the public should be planned to meet the needs of ~ pedestrians and be safe, lively and
accessible to all. The well-being of main streets and downtowns should be fostered.
Communities should be planned to use land efficiently, and promote the efficient use of
infrastructure and public service facilities.
Municipalities are to provide opportunities for at least 30 percent of new dwelling units,
including redevelopment and intensification, to be affordable. Intensification is to be
permitted in all areas of residential use, except where infrastructure is inadequate or there
are physical constraints. Municipalities are to maintain a sufficient supply of land for
development and redevelopment, specifically:
• 10 year supply of designated land; and
• 3 year supply of draft approved and registered plans of subdivision.
Municipalities should be planned to provide opportunities for energy and water conservation
through such means as siting and building design.
Durham Regional Official Plan
The development of urban areas shall be based on compact form, mixed uses, intensification
and urban design. Each community shall be developed to incorporate the widest possible
variety of housing.
A goal of the Plan is to restore the historic integration of the shopping function with other
traditional Central Area functions, such as housing, employment, recreation, social activities
and cultural facilities. Applications to increase the floor space allocation for designated
Main Central Areas and Sub-Central Areas shall be accompanied by a retail impact study,
prepared by the Region at the expense of the proponent, to ensure the application does not
unduly affect the viability of any. other Central Area designated in the Regional or local
official plan.
40
4.2 Residential Neighbourhoods
Overview
Section 9 of the Draft Official Plan contains policies related to the future development of
residential neighbourhoods.. Residential neighbourhoods comprise the basic building blocks
for community land use planning. They comprise not just housing but the entire variety of
land uses such as schools, parks and convenience commercial facilities which support a
residential area. In reviewing the submissions, the Housing policies contained in Section 6
of the Draft Official Plan were also reviewed.
Submissions Received
D. Davidson W16, W77
R. Cameron W27
John Huber W32
June Clark W35
William Stewart W72
Bramalea Ltd. Wgg
Valiant Property Management W110
Courtice Heights Developments Ltd. W131
I{aitlin Group W132
Durham Non-Profit Housing W133
Haas Shoychet Waisglass W140
Oshawa-Durham Home Builders Association W154
Kiddicorp Investments W157
Hugh Neill V43
Ross Miller V52
Summaries of Issues Identified Through Submissions
• Providing a variety and mix of housing stock.
• Integrating assisted (rent-geared-to-income) housing be into neighbourhoods.
• Appropriateness of density ranges and prescribed building forms.
• Flexibility in housing targets, locational criteria and urban design criteria.
Agency Comments
Ministry of Housing
The promotion of affordable housing by the Municipality is very encouraging. However, the
Draft Official Plan contains criteria for group homes which is restrictive and criteria for
accessory apartments which does not comply with Bi11120, The Resident's Rights Act. There
are concerns that the restriction ofnon-profit housing to "small scale housing projects" would
41
be viewed as exclusionary and restrictive. Furthermore, phrases such as "the concentration
ofnon-profit housing" could be rewritten in a more positive manner. 'The Municipality needs
to clarify how the urban design criteria would be applied.
The Region of Durham
The difference between the Municipal Housing Statement intensification targets and those
contained in the Draft Official Plan needs explanation. Additional background information
should be provided on the criteria for group homes. Accessory apartments policy does not
comply with Bill 120. More detailed policies are required on affordable housing.
Staff Comments
Providing a variety and mix of housing stock.
Section 9.4.8 of the draft Official Plan states that all plans of subdivision should have a
variety of housing forms. Concerns have been raised that this maybe difficult to implement
in smaller plans of subdivision. In certain instances, only one housing form maybe suitable
due to adjacent estate housing or environmental constraints. Staff concur with this
suggestion that the Official Plan should provide greater flexibility for subdivision and not
routinely require the full array housing forms in every subdivision.
Recommendation
¢I That the O,~cial Plan should provide for a varidy of housing forms but allow greater
,/lexibility to account for specific circumstances which may limit one subdivision proposal
from providing a full array of housing forms.
Integrating assisted (rent-geared-to-income) housing and special needs housing into
neighbourhoods
The draft Official Plan encourages the integration of assisted housing in residential
neighbourhoods but provides policies to discourage "the concentration of non-profit housing
in any one area of the Municipality". Some- residents expressed concern about allowing any
assisted housing. .Government agencies and non-profit housing providers raised concerns
that this type of policy can be interpreted very broadly and should be rewritten in a more
positive manner. Similar concerns were expressed about the possible interpretation of "small
scale non-profit housing". Staff concur that these policies should be rewritten in a more
positive tone which requires that a variety of housing be provided in neighbourhoods.
42
Recommendation
4-2 That the O,,~Fcial Plan provide for the integration of assisted (rent~med-to-income)
housing and social housing into r~erideMial neighbourhoods without s~eJ~rce to
"concentration" of such housing types.
Approprurteness of net density rang and prescribed buildinP forms
The Draft Official Plan provides a density range, predominant housing form and a height
limit for four density. categories. While the density range (units per hectare) is a convenient
calculation for planners and developers, residents are largely concerned with the question
of housing form and height. The purpose of incorporating both measures is to provide a
common understanding of the anticipated form of development.
A number of residents expressed concern with the amount of higher density development but
not necessarily with the definitions provided in the Draft Official Plan. With one exception,
there were no concerns with the height limitation. This is encouraging since staff have taken
an approach to increasing density through a more ground-oriented building mass and a
prohibition of high-rise towers.
Some development proponents suggested that the upper limit of the low density housing
should be increased from 25 to 30 units per net hectare to allow for limited street
townhouses in these areas. After reviewing the broader objectives of the Plan which
encourage a variety of housing types, and noting some of the problems with larger blocks of
medium density housing, staff concur with this suggestion.
Recommendation
¢3 That the Low Density II range be inc-w,ased from IS 25 to IS-30 units per net he~cta~ and
that limited street townhouse forms be permitted in the Low Diensity flrea.
Flexibility in housine targets. locational criteria and urban design criteria
A number of submissions raised concerns that the various standards contained in the Draft
Official -Plan were too prescriptive for an official plan and did not allow for enough
flexibility. Specific concerns were:
• allocation of dwelling units by density type on Map E
• maximum number of units for block townhouses (50) and street townhouses
(6)
• requirement for on-site amenity areas for medium and high density
developments
• urban design criteria
43
A number of submissions suggested that these policies should be less rigid by substituting the
word "shall" with phrases such as "shall have regard for", "shall generally" or "shall
encourage". This type of language would allow for a more flexible interpretation and
exceptions. While staff recognize the need for some flexibility, there is also a need to give
the Official Plan sufficient strength so that it establishes a definitive direction. Each of the
policies will be reviewed further in light of these two needs and revised if necessary in the
Recommended Official Plan.
Recom~n
None
4.3 Main Central Areas
Overview
Section 10 of the draft Official Plan deals with Central Areas and commercial uses. Main
Central Areas are the central focal points of community activity containing an integrated
array of housing, shopping facilities and services, offices, institutions. recreational and
cultural facilities. The draft Official Plan promotes Bowmanville as a regional centre, the
creation of people-oriented environments, the integration of various activities and the
preservation of the vitality of historic downtowns.
Submissions
Fleurette W18
Bowmanville Memorial Hospital W57, W61, W69
Bill Stewart W72
Carol Noble W74
Otto Provenzano W91
Valiant Property Management W96, W110
Richard Gay Holdings Ltd. W109
Kaitlin Group W132
Bowmanville Mall W156
Edmond VanHaverbeke/Murray Patterson Verbal
Summaries of Issues Identified Through Submissions
• The mix and integration of uses.
• The use of retail impact studies.
• The boundary of the Courtice Main Central Area.
n
44
~ The nature and scale of the study to be undertaken for the Courtice Main Central
Area.
• The boundary of the Newcastle Village Main Central Area.
Agency Comments
Region of Durham
Regional planning staff noted that the Bowmanville Main Central Area will have to be
refined in light of the OMB decision to establish two Main Central Areas in Bowmanville.
It was also noted that Orono did not have a Main Central Area in the Regional Plan and
therefore an amendment would be required or it could be designated as a Local or
Community Central Area, which does not require a Regional Plan designation.
Stag Comments
The mix And integration of uses in MAIn Central Arens
The Durham Regional Official Plan establishes the mixture of uses as perhaps the key
element of Central Areas. The positive benefits of mixing and integrating land uses include
compact urban form, efficient transportation, improved live/work relationship and an active
pedestrian environment. There have been, however, long standing concerns about the
effective implementation of mixed-uses in Central Areas. Bowmanville Mall suggested that
mixed-use could occur in a horizontal relationship (ie, an on-site apartment building}.
Valiant Property Management suggested that shopping centres have difficulty incorporating
garbage pick-up, loading, site safety, functionality of retail space and site layout in amixed-
use format.
While the draft Official Plan did not specifically require mixed-use buildings, it strongly
encourages this form of development. Mixed-use development were defined either
commercial, community or institutional uses incorporating residential dwellings in the same
building or in separate buildings. All central areas must provide residential or mixed-use
developments. For this reason, it is critical to have an urban design plan which ensures the
mix and integration of all land uses.
It should be noted most Main and Sub-Central Areas in Clarington are located on Highway
2 which is also recognized as a transit spine in the Regional Official Plan. The mix of uses
is important to develop the environment that is supportive of transit and pedestrian activity.
Thus, while the Official Plan should not strictly enforce vertical mixed-use buildings, the mix
and integration of a variety of land uses needs to remain a cornerstone of the Official Plan.
45
Recommendation
None
The use of retail impact studies
The submissions did not object to the use of retail impact studies or that the municipality
would retain the consultant. However, several different views were expressed on the
application of retail impact studies. Bowmanville Mall felt that the requirement for retail
impact studies should be increased for proposal greater than 3,500 sq.m. rather than 2,500
sq.m. as proposed in the Draft Official Plan. They also noted that there appeared to be an
oversight in not requiring studies for areas outside of Main Central Areas. Valiant Property
Management felt that their site had an approved zoning and there was no need for a retail
impact study.
There is a need to clarify the policies of the Draft Official Plan on the use of retail impact
studies. The intent was that such studies would be required at the time of an official plan
amendment or rezoning. As such, staff concur with Valiant's submission that such a study
would not be required for a site plan application. As to the threshold above which retail
impact studies would be required, staff are satisfied with that 2,500 sq. m is appropriate.
This would include proposals for new format retail warehouse stores including those that
maybe located in Highway Commercial Areas as required under Section 10.8.2 of the Draft
Official Plan.
Recommendation
4-4 That Section 103.6 be clarified to require the rezoning of lands for all comme~ial
praposals greater than 2,500 square metres or for the designation of new Central Areas.
The boundary of the Courtice Main Central Area
Two submissions by Provenzano (W 91) and Gay Construction (W 109) request the extension
of the Courtice Main Central Area to incorporate additional lands to the north and east.
The draft Plan designates approximately 18 ha (45 acres) for the Courtice Main Central
Area. Within the timeframe of this Plan, these lands are more than sufficient to
accommodate the anticipated mix of uses to develop in the Main Central Area. In addition,
the sites of the proposed additions would contribute to strip commercial development along
Highway 2 rather than being focused so as to contribute to establishing a downtown for
Courtice. There will be no recommended changes to the boundary of the Courtice Main
Central Area.
t
46
The nature and scale of the study to be undertaken for the Courtice Main Central Area
Valiant Property Management owns a 6.4 ha (15.8 acre) site within the Courtice Main
Central Area with an existing Cl zoning which permits 13,935 sq.m (150,000 sq.ft.) of
commercial floorspace. The draft Official Plan designates the Courtice Main Central Area
as a Special Study Area and requires a comprehensive land use study for the Main Central
Area including an urban design plan. The concern of Valiant Property Management is that
a secondary plan process would require public consultation and could jeopardize their
existing zoning.
The Courtice Main Central Area will be a critical area for the success of Courtice in
becoming a distinct community. It must be planned with care and consideration for good
urban design. It is not staff's intention, however, to affect the existing commercial floorspace
permitted on the Valiant site. In this regard, it would be appropriate to specify the details
of the Study and to clarify that the existing amount of commercial floorspace on the Valiant
lands would not be diminished by the secondary plan study.
Recommendation
4-S That Section 17.3 be clamed as to the scope of the secondary plan and urban design
study for the Courtice Main Central Area including specifically that the ai7ocation of
commercial, floorspace to the valiant site would not be nesduced through such study.
The boundary of the Newcastle Village Main Central Area
Edmond VanHaverbeke and Murray Patterson requested clarification of the Newcastle
Village Main Central Area boundary. The Official Plan of the former Town of Newcastle
contains a secondary plan for the Main Central Area. However, the Draft Official Plan does
not contain a secondary plan for the Mara Central Area and there is some confusion as to
the location of the Main Central Area boundaries. .~
In addition, the above parties requested that the boundary of the Newcastle Village Main
Central Area be extended southerly to Emily Street and easterly along the south side of King
Street (Highway 2) to Arthur Street. Staff support the southerly extension to Emily Street
to enable parking areas to be developed to support King Street commercial buildings.
Recommendations
4-6 That the boundary of the Newcastle TrQage Main Central Area be extended southerly to
Emily Sd~et and a secondary plan be prcpand to be incorporated in the Recommended
O,,~Fcial Plan.
47
~, 4.4 Parks
~; Overview
In 1991 Hough Stansbury Woodland completed aRecreation/Leisure Services Master Plan
which provided a parks hierarchy and standards for parkland dedication. Based on these
recommendations and the proposed expansions to the urban areas neighbourhood,
community and district park sites were selected within the urban areas. A number of
submissions object to these designations for apparent economic reasons.
Submissions Received
Edmond VanHaverbeke W105
Courtice Heights Developments W131
Kaitlin Group Limited W132
Anglo York Industries Limited W142
Oshawa-Durham Home Builders Association W154
289143 Ontario Limited W165, V42
Schickedanz Brothers Ltd. W166
Summaries of Issues Identified Through Submissions
• The designation of community parks at the following locations:
- Courtice South-West at Prestonvale Road and Bloor Street);
- Bowmanville North (Liberty Street and Concession Road #3);
- Bowmanville East (Lambs Road and the C.P. railway tracks); and,
- Newcastle Village (Highway #2 and Rudell Road).
• Minimum street frontage requirement for parks.
• The park service standard versus the parkland dedication standard.
Agency Comments
Community Services Department
Community Services Department has indicated that it supports the locations of the future
parks, save and except for the Bowmanville East Community Park.
48
t
Staff Comments
The designation of the Community Parks at the locations shown
The. Recreation/Leisure Services Master Plan recommended that community parks be
provided at the rate of 0.8 hectares/1,000 population. It also recommended a distinction
between Major and Minor Community Parks. Major community parks would be the site of
major facilities like arenas, swimming pools and illuminated sports fields. Minor community
parks would be used for non-illuminated sports fields.
The Draft Official Plan has provided for community park locations to serve the requirements
for only a portion of the ultimate need required by the Regional population targets for three
Lakeshore urban areas. On the basis of the 20 year targets to be utilized in the
Recommended Oftcial Plan, the community parkland requirements are as follows:
COMMUNITY PARKLAND REQUIREMENTS, 2016
Urban Area 2016 Total Community Existing Additional
Population Target Parkland Community Community
Required Parkland Parkland
(ha) (ha) Required
(ha)
Bowmanville 63,000 50 11 * 39
Courtice 35,000 28 11 * 17
Newcastle Village 15,000 12 0 12
Total 113,000 90 22 68
* Note: Darlington Soccer Fields are divided equally between the Bowmanville and Courtice Urban Area.
In consideration of the additional amount of community parkland required to serve the
population at year 2016, staff revisited the Draft Official Plan in terms of the adequacy and
location of future community parks having regard to the following criteria:
• community parks are to provide a mixture of active and passive recreational
opportunities;
• facilities should be located to serve approximately 20,000 - 25,000 people within a 1.5
- 2.5 km radius;
• park sizes should range between 8 -12 ha in size or larger depending on the intended
facility mix;
• sites should be located along arterial or collector roads with approximately 25% of
the park perimeter having direct road frontage;
49
• the site should provide suitable tableland for the location of active facilities enclosed
in buildings, baseball and soccer fields, parking areas and park access;
• the site should be adjacent to valleylands which link the park to future trail systems
and natural areas. This permits an alternate means of facility access through walking
or cycling; and
• the locations should have regard for the future availability of (future) servicing.
As a result of our review, additional community parks are required. As to the location of
all proposed Community Parks in the Draft Official Plan, we are satisfied that they also meet
the above-noted criteria. However, in response to the concerns raised, the adjustments to
some park locations are recommended as indicated below as well as indicated on Maps 9 to
11.
(a) Bowmanville East
A 12-16 ha (30 - 40 acre) park serving the eastern portion of Bowmanville has been
designated adjacent to the C.P.R. tracks between Lambs Road and Soper Creek.
Development of the site would be contingent on services being extended to this area.
+a The park is adjacent to the Soper Creek valleyland and generally consists of tableland with
some relatively deep gullies are apparent. A planned population of 16,900 is within a 1.8 km
radius of the park site.
A portion of the property is owned by Schickedanz Brothers Limited who object to the
Community Park designation. The applicant had submitted a concept plan for the area in
1990 which proposed low density residential development on the site. They wish to have the
property designated for residential uses.
The Community Services Department has indicated that development costs for this location
would be high because of the slopes and the need for a bridge for access purposes. An
alternative site offering additional tableland would be preferable. In response to the
submission and the concerns of the Community Services Department, it is recommended that
this site be moved to the northwest corner of Concession Street and Lambs Road. This
location would provide suitable tableland as required.
(b) Newcastle Village
A 12 -16 ha (30 - 40 ac) park at the southwest corner of Highway #2 and Rudell Road has
been designated to serve all of Newcastle Village. The site is comprised primarily of
tableland which gently slopes towards Wilmot Creek. The property can be easily serviced
from development to the east. The planned population for Newcastle Village, being 18,500,
is within a 3.2 km radius of the park site.
50
L
PEBB~ESTONE ROAO
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51
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52
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53
An objection has been received from Edmond VanHaverbeke who requests that his lands
be excluded from the designation. The property had been designated to obtain accessibility
and visibility along Highway #2. It is proposed that only the western half of the property
be designated as Community Park, allowing Mr. VanHaverbeke to retain his residence.
Sufficient frontage for park visibility and entrance purposes will still be available.
Recommendations
¢7 That the Bowmanville East Community Park be relocated southerly to the northwest corner
of Lambs Road and Concession Str+ee~
4-8 That the con, figuration of the Newcastle Pillage Community Park be revised to reduce the
frontage on Highway #2.
Minimum street frontage requirement for narks
The minimum of 25% street frontage requirement for parks was recommended by the
Recreation/Leisure Services Master Plan. The purpose of this policy is to provide parks with
more prominence and visibility instead of concealing them behind residential development.
They become more accessible and provide a greater community focus. Greater frontage also
contributes to community safety by allowing easy visual access from the surrounding areas.
Development proponents expressed concerns that such a policy may impact their return by
reducing the saleable frontage in a plan of subdivision. It should be noted, however, that this
general guideline has been used for several years in reviewing plans of subdivision. No
change is recommended to this policy.
The nark service standard versus the parkland dedication standard
The Official Plan provides a service standard for each type of park. This service standard
is expressed in the terms of hectares per thousand persons. For example, the neighbourhood
park service standard is 0.8 ha/1000 persons. The service standard for all types of parkland
totals 2.0 ha/1000 persons as indicated in Section 18.3.4 of the Draft Official Plan.
On the other hand, there is a park dedication requirement permitted under the Planning Act
where a municipality can require the dedication of 2 % of industrial/commercial lands and
5 % of residential and other lands or alternatively 1 hectare per 300 dwelling units.
Concerns were expressed by the development industry that the service standard contained
in Section 18.3.4 could not be fulfilled on the basis of parkland dedications under the
Planning Act. Specifically, municipal purchases over and above the parkland dedication
would be required. The Draft Official Plan acknowledges the need for municipal purchases
and the possibility of donations or bequests from individuals or corporations. These policies
are contained in Section 23.9 of the Plan.
54
Recommendation
4.5
¢9 That section 18.3.4 be clarified to indicate that it is a service standard objective of the
Municipality.
Schools
Overview
Through the Official Plan review process, the planning of future and existing neighbourhoods
must take in account evolving service needs of residents including educational facilities. In
this regard, schools have been designated within the urban areas to accommodate the
educational requirements of future residents.
Submissions Received
Hugh & Carol Ann Neill W 90
N. Mitchell W 103
Cliff Curtis W 121
John Nekkers W 122
Schleiss and Holland W 151
Marchetti & De Minico W 175
Kiddicorp Investments Verbal
Kirk Kemp V18
Summary of Issues Identified Through Submissions
•
•
Objections to suc proposed school sites at the following locations:
- Courtice public secondary school in Penfound Neighbourhood on Prestonvale
Road (Neill W90);
- public elementary school designation in northern limits of Worden
Neighbourhood, (Schleiss & Holland W151);
- .separate elementary school designation in the Worden Neighbourhood
Courtice; (Curtis W121; Nekkers. W122);
- separate .elementary school in Avondale Neighbourhood (Kiddicorp
Investments);
- Bowmanville separate elementary school designation in Apple Blossom
Neighbourhood (Marchetti & DeMinico W175); and
- public secondary school in Liberty Rills Neighbourhood (Kemp V18).
Flexibility in the actual siting of school sites
55
Agency Comments
Region of Durham
The Region is concerned that siting schools adjacent to or along Type "A" arterial roads
causes a conflict between the function of the road as a high volume arterial and the desire
for reduced speed limits in school zones. The criteria for locating schools should include
that they not be fronting or adjacent to Type "A" arterial roads.
School Boards
Both school boards requested flexibility to extend services and develop sites outside the
Interim Urban. Boundary. They also requested flexibility in siting secondary school sites in
conjunction with the review of plans of subdivision.
The Separate School Board requested that minimum site requirements be increased. Both
School Boards requested that several school sites be relocated. Many of the requested
changes in location are to provide more sites within or immediately adjacent to the Interim
urban Boundary to allow them access to sanitary sewer and water supply services to provide
flexibility in accommodating future growth needs. The changes requested by the School
Boards are as follows:
Courtice
• Relocate the separate elementary school site in the Worden Neighbourhood to
Highland Gardens Neighbourhood.
• There are concerns that the designated public secondary school site in Courtice can
be serviced and constructed when required.
Bowmanville
• Relocate the proposed north Bowmanville public secondary school to a site
immediately north of Concession Road #3 adjacent to the Interim Urban Boundary.
• Relocate the proposed public secondary school site away from the railway tracks.
Newcastle Village
• Relocation the proposed separate elementary school site in Foster Neighbourhood
Newcastle Village to a location inside the Interim Urban Boundary on the east side
of Rudell Road.
• Relocate the proposed public elementary school site away from the railway tracks.
56
Stag Comments
Objections to specific .school sites
A number of landowners have objected to specific school sites designated in the draft Official
Plan. Each of these are dealt with in the Appendix to this report but there are some
common issues addressed in this section.
Secondary schools consume larger parcels of land, generally 6 to 8 ha (15 to 20 acres) while
elementary schools consume between 2.2 to 2.8 ha (SS to 7.O acres). As such, these facilities
can have a significant impact on the design of a plan of subdivision and the expectations of
the development proponent. However, school boards are supposed to provide fair market
value for the acquisition of such lands.
Most of the objections to elementary school sites are situations where a school site has been
designated on lands previously designated for' residential purposes. In essence, the site is
being "retrofitted" into a partially developed neighbourhood. This includes some smaller
parcels or involve a combination of several landowners. There are concerns about equity
when some of the larger parcels have developed without necessarily providing school sites.
One of the reasons for the official plan review is to adjust to new circumstances which may
affect previously designated lands. There have been demographic and school program
changes which have affected student generation rates. Some of the new circumstances
include the addition of day care and junior kindergarten classes to elementary schools and
a greater proportion of separate school students. Elementary school sites have been selected
on the basis of the following criteria:
- on a collector road
- for public schools a location generally central to a neighbourhood (400 metre
optimal radius)
- for separate schools, a location generally central to several neighbourhoods
(800 metre optimal radius)
- adjacent to park wherever possible.
In instances where schools have been "retrofitted" into partially developed neighbourhoods,
school sites are not necessarily optimally located but attempt to meet the need of the existing
and future student population. The location of all school sites have been reviewed and staff
are generally satisfied that they are appropriately, located and necessary to meet the future
need, save and except for the school sites adjacent to railways and the separate elementary
school site in Worden Neighbourhood. These will be reviewed further with the relevant
school board. In addition, the following changes are recommended:
Recommendahions
¢IO That the public secondary school site in Liberty Rills Neighbourhood in BowmanviAe be
relocated southerly to front on Concession Road 3.
57
4-ll That the separate elementary school site within Avondale Neighbourhood in Courtice be
relocated from the west side to the eas? side of Avondale Drive.
Flexibility in the actual siting of school sites
Both the school boards and landowners wanted to ensure that there was some flexibility in
the siting of the schools at the time of approval of a plan of subdivision. As with all land
use designations in the Official Plan, there is some flexibility and the actual boundaries are
determined in the development application review process. The text specifically states that
the locations shown are approximate. However, while the school symbols can "float" to a
limited extent, the objectives of the Plan, the general location within a neighbourhood and
the siting criteria of the school boards must be adhered to.
Recommendation
None.
58
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60
5. WATERFRONT ISSUES
5.1 Provincial and Regional Policy
Comprehensive Set of Policy Statements
Section A of the Policy Statements addresses the issues of fish habitat and the shoreline
hazard zone along the Great Lakes. Section B addresses the issue of access to the
waterfront.
The regulatory shoreline for lands adjacent to the Great Lakes is defined by the furthest
landward limit of the area subject to lake flooding, within the 100 year erosion limit or a
dynamic beach. Development is to be generally directed to areas outside of the regulatory
shoreline. For the purposes of 'the regulatory shoreline, provincial policy defines
development to include new construction of a building or structure, an addition or alteration
~; to a building or structure that has the effect of increasing the size or usability thereof; site
grading and the placing or dumping of fill.
Provincial policy does not permits development within a dynamic beach area. However,
development may be permitted in certain circumstances within the areas subject to lake
flooding or erosion subject to a number of conditions. These conditions include:
floodproofing and protection works to address the flooding and erosion hazards; no new or
existing hazards are created or aggravated; safe entry and exit for people and vehicles during
emergencies.
Municipal planning should ensure that reasonable public access to water bodies is maintained
or provided.
Durham Regional Official Plan
The Regional Official Plan seeks to sustain and enhance the waterfront as a vital component
of the Region's natural, built and cultural environment. The waterfront will generally be
developed as "people places", with the exception of significant natural areas, connecting and
linking urban and rural areas. The Regional Plan requires development to make provision
for public access to the waterfront. Municipal official plans shall contain policies and
designations for flood-susceptible areas and hazard lands.
5.2 Shoreline Hazard Zone and Public Acquisition of Waterfront Lands
Overview
The Lake Ontario shoreline in Clarington, which stretches for 31 kilometres, is subject to
continuous change due to the actions of wind and water. This dynamic environment is
61
appealing as a place to live, as evidenced by the number of both long-standing and new
residences along the shoreline. The Official Plan must protect both persons and property
from the hazards associated with the shoreline, while recognizing the concerns of existing
Lakeshore residents.
Submissions Received
David Ashcroft W92, V22
Norman LeBlanc W93
Mavis Carlton W94
Gordon White W95, V20
Wilmot Creek Homeowners Association W144
Mars Barrick W146
William Lake W161
Paul Riley W162
Summary of Issues Identified by Submissions
• Expansion of existing homes. within the Lake Ontario shoreline hazard zone
• Public acquisition of the lands designated Waterfront Greenway
Agency Comments
Region of Durham
The Regional Official Plan requires local official plans to designate hazard lands.
Central Lake Ontario Conservation Authoritv
The flood and erosion limits on the waterfront are regulated by CLOCA generally only in
the vicinity of stream mouths on the basis of Fill and Construction regulations.
The Official Plan should indicate that the extent and exact location of the shoreline setback
shall be identified in the Zoning By-law in accordance with the detailed Lake Ontario Flood
and Erosion mapping of the relevant Conservation Authority.
The policy regarding shoreline development (Section 14.6.4) is appropriate for shoreline
flood/uprush hazard areas. Under certain circumstances, buildings within flood hazard areas
can be constructed/renovated to be flood-protected.
However, buildings within the erosion hazard areas can only be protected by erosion control
works, carried out on the eroding shoreline itself. Therefore, the policy should specifically
prohibit the expansion or enlargement of any structure within the erosion setback area,
62
including second storey additions, unless an acceptable shoreline erosion control project to
be undertaken prior to any expansion/ enlargement of the existing structures has been
approved by the Municipality, the Ministry of Natural Resources and the Conservation
Authority.
Ganaraska Region Conservation Authori
The Municipality might wish to restrict erosion control and lake filling only where necessary
to protect existing development. However, there are areas along the shoreline, such as the
Bond Head Bluffs, where erosion control works are not appropriate due to their significance
in providing sediment for beach areas and rubble for fish habitat.
The policy regarding the Shoreline Erosion Limit should refer to the Lake Ontario Shoreline
Management Plan of the appropriate Conservation Authority with regard to the
identification of the hazardous condition. This policy should restrict all development within
the Shoreline Hazard Zone, not just residential development.
Conservation Authority policy permits additions to existing residential uses within the
shoreline erosion setback up to 20% of the first floor or 30 square metres, whichever is less.
This addition is allowed only once during the life of the structure and should occur as a first
or second floor expansion.
Waterfront Regeneration Trust
The boundaries of the Shoreline Erasion Limit shown on Map C should be re-examined and
possibly moved inland based on the continual erosion of the Lake Ontario Shoreline.
Statli Comments
Expansion of existiue homes within the Lake Ont<~rio shoreline hazard zone
New development, including the creation of a new building lot through land severance, is not
permitted within the Shoreline Erosion Limited as identified on Map C of the Draft Official
Plan. Existing residential uses are permitted to continue provided there is no expansion or
enlargement of the existing foundation footprint, including accessory structures, or no
conversions of any existing seasonal dwelling into ayear-round dwelling. As well, once a
dwelling is destroyed or demolished and reconstruction is not commenced within twelve
months, the residential use is deemed to cease. These restrictions are intended to apply to
only those lands within the Shoreline Erosion Limit, and not the Waterfront Greenway as
indicated by Section 14.6.4 of the Draft Plan.
Provincial policy refers to "regulatory shoreline" as the further landward limit of the lands
affected by erosion, flooding or the dynamic beach constraints. In recognitions that there
are multiple potential hazards in this area, it is recommended that the Official Plan refer to
the "Shoreline Hazard Zone" rather than the "Shoreline Erosion Limit".
63
L
Provincial policy and the comments of the Conservation Authorities indicate an oversight in
the Draft Official Plan which addresses only restrictions on residential development.
Accordingly, they recommended that all types of development be subject to the restrictions
within the Shoreline Hazard Zone, save and except for minor recreation-related structures
(ie. gazebos).
A number of. residents expressed concern about the restrictions on renovations and
expansions of existing residences within the shoreline hazard zone. It must be recognized
that restrictions placed on development in the shoreline hazard zone are to address concerns
about public safety potential property damage and potential liability of various levels of
government if development is permitted. While no new dwellings or structures are
permitted, the resident's concerns are that the restrictions on existing residents are too harsh
preventing renovations and upgrading of existing residences.
In this regard, it should be noted that type of upgrading which includes the renovation and
cosmetic improvement to dwellings and which do not require a building permit are not
prohibited by the Official Plan. The intent is to restrict the type of upgrading which would
increase the size or usability of a dwelling.
Staff agree with the suggestion of the Conservation Authorities that the upgrading or
expansion of residences within the Shoreline Hazard Zone should be discouraged, but limited
expansion may be possible subject to undertaking floodproofing and erosion control works.
In order to limit potential- damage and liability, the expansion should be limited to one time
and limited in size.
Staff also agree with the suggestion of residents that in the event of building being destroyed
or demolished, it may take some time to settle the insurance claims. Accordingly, the time
permitted for reconstruction should be extended from 12 months to 24 months.
Recommendations
S-I Tyrat a Shoreline Haurnd Zone be defined to encompass the tarots subject to flooding and
erosion and the dynamic beaches of the Lake Ontario Shorolirre.
S-2 That new building or structures of any type within the Shorieline Hazpnd Zone not be i
Permitted.
S-3 That existing residences within the Shoreline Haun~d Zone bepermitted aone-time
expansion, up to a maximum of 20 % of the ground ,floor area or 30 square metres,
whichever u lens, provided that:
a) the structure is not located in the, floodplain of a stream;
b) the structure is not located on a dynamic beach or within an identified damage
centre;
64
c) new or existing hauirds or adverse environmental impacts are not created or
aggravated; and
d) the relevant conservation authority and the Municipality have approved a
floodproofing and/or erosion control plan.
e) vehicles and people have a way of safe entering and exiting the area during times
of flooding and erosion emergencies.
S-4 That the O,,~cial Plan increase the period allowed for the reconstruction of a destroyed or
demolished building in .the Shoreline HazArd Zone from l2 months to 24 months.
Public acauisition of the lands designated Waterfront Greenway
Some residents were concerned that the Waterfront Greenway designation indicated lands
. which were intended for public acquisition. Concerns were expressed that the restriction of
permitted land uses was to enable government acquisition at reduced values.
The Waterfront Greenway designation in the Draft Official Plan parallels the Waterfront
Major Open Space designation in the Durham Regional Official Plan. While the
Municipality has intentions to .acquire specific lands, predominantly in urban waterfront
areas, rural waterfront lands would remain largely, in private ownership. It is noted that
Section 14.6.3 requires new development to facilitate "physical and visual access" to the
waterfront. This policy is targeted primarily at new development in Port Darlington and Port
of Newcastle where development proponents would be required to dedicate parkland and
Shoreline Hazard Zone areas.
Recommendation
S S That the draft policy be clarified that it is not the intent of the Municipality to necessarily
acquire lands designated Waterfront Gi eenway.
5.3 Existing Residential Communities
Overview
There are a number of residential communities along the Lake Ontario shoreline which have
developed through various periods of the Municipality's history. As the Municipality begins
to recognize a new strategic direction which restores the waterfront as a "people place", there
are concerns about how these existing communities will exist, improve and potentially
expand.
65
t
Submissions Received
Ridge Pine Park Inc. W65, W127, W169, W178
Wilmot Creek Homeowners Association W4, W144, V4,
Mavis Carlton W94
Gordon White W95, V20
Summary of Issues Identified by Submissions
• Expansion of Wilmot Creek Retirement Community to expand to 1100 housing units
• Identification of Cove Road Area as a special community
Agency Comments
None
Staff Comments
Expansion of Wilmot Creek Retirement Community
Ridge Pine Park has made four (4) submissions between May 8, 1994 to April 7, 1995.
There are discrepancies within these submissions. As a result, staff have met with the
Company representative and the staff comments are therefore primarily based on the latest
submission.
Under previous approvals, Ridge Pine Park Inc, is permitted to develop a mobile home park
for 867 units. The project approvals equate to a gross density of 10.2 units per hectare (4.1
units per acre). To date, 619 units have been constructed within Phase 1 and S lands. The
remaining units will be built on the vacant lands in Phase 5 and in Phase 6.
The Draft Official Plan recognized the Wilmot Creek Retirement Community as an existing,
distinct community in the Municipality due to its land lease arrangements, private roads and
services and its traditional marketing emphasis towards retirees. The Draft Official Plan
further recognized the desire of the operator, Ridge Pine Park Inc., to develop accessory uses
including a nursing home provided they were located within the designated lands south of
the CNR railway line. At the time of the release of the Draft Official Plan, Ridge Pine Park
submitted an application for an additional 85 modular homes in Phase 6 which would bring
the total housing units of the Retirement Community to 952 units. In January 1995, Phase
6 application was revised to increase the number of units to 164 for the Phase 6 land. If
approved, this would bring the total unit count for the Retirement Community to 1011. The
application was also revised to request semi-detached, townhouse and quadruplex housing
units to be built on the Phase 61and. If approved, Phase 6 would be built at a gross density
of 18.2 units per hectare (7.4 units per acre) which is substantially higher then the 10.2 units
density within the existing development.
66
0
On the issue of persons per unit, the Draft Oft7cial Plan uses a factor of 2 ppu for the
purpose of calculating population and housing units. Ridge Pine Park, in its earlier
submission, agreed that 2 ppu is appropriate. However, in its latest submission, it requested
a factor of 1.68 ppu be used to reflect the survey result conducted by the Company.
Subsequent to our review, we are prepared to use 1.7 ppu.
Map E Table of the Draft Official Plan assigned Wilmot Creek Retirement Community 850
units or a population of 1,700 at 2 persons per unit. In using 1.7 ppu, the population should
be adjusted to 1,476 persons. It should be noted that the 850 was a rounding figure. Staff
will adjust this to 867 to reflect what was previously approved.
Staff are opposed to the expansion of the Wilmot Creek Retirement Community beyond 867
units on the following basis:
• Any expansion should implement waterfront planning principles established through
the Waterfront Regeneration Trust and the Municipality's Official Plan. The further
development of private residential enclave is contrary to the principles of an "open",
"accessible" and "connected" waterfront.
• The inclusion of permanent low and medium density housing forms (semi-detached,
townhouses and quadruplexes) at higher gross densities in its Phase 6 proposal
should be done in an environment where there is a public street system and all
services and utilities are built to municipal standards.
• As a distinct retirement community, the density proposed in Phase 6 is substantially
higher than the existing built area.
• The proposed development is contrary to the Comprehensive Set of Provincial
Policies specifically B.12which states that: "Reasonable public access to...waterbodies
should be maintained or provided;"
Recommendation
None
Recognition of Cove Road Community as a Residential Area
There were requests to recognize the residential area commonly known as the "Cove" as a
residential area within Bowmanville. This was a cottage area dated back prior to World War
1 and over the years the homes have become permanent. There are approximately 35
homes and 14 vacant parcels in this area. The lands were designated as Waterfront
Greenway in the Draft Official Plan. Residents requested this area be recognized as a valid
residential community and the Official Plan should provide for logical and efficient
development and redevelopment of these lands.
67
The homes on the south side of Cove Road are affected by Shoreline Hazard Zone, however,
al! of the lands to the north are outside of this constraint. Some of these lands were affected
by the By-law 77-47 which deemed certain registered plans not to be registered, thereby
requiring new lots to be created under current planning regulations.
5.4
The new Regional Official Plan incorporated these lands into the Bowrnanville Urban Area
but designated these lands Major Open Space. While this area is adjacent to the lands
licensed for extraction by St. Marys Cement, these are existing residences or vacant lots
which could be developed today. The recognition of this area as a residential area would
allow for only limited infilling (approximately 5 additional lots).
However, the area is adjacent to the licensed aggregate extraction area owned by St. Marys
Cement. In view of the ongoing work by the Regeneration Trust to resolve the many issues
in the area, it is prudent that this area be identified as a Special Study Area.
Recommendation
S-6 That the Cove Road area be identified as a Special Study Area inclusive of the St. Marys
Cement land.
St. Marys Cement and Westside Creek Marsh
Overview
St. Marys Cement Company has operated a quarry and cement plant on the Bowmanville
waterfront since the mid 1970's. St. Marys holds a licence to quarry 182 hectares of its 252
hectare site in Bowmanville. Over the years, St. Marys has made many improvements to its
operation. It is currently seeking approval from various government agencies to expand the
docking facility. The first of four phases of extraction is near completion.
The Westside Creek Marsh is designated as a provincially significant wetland and is also
licensed for extraction by St. Marys Cement. However, in order to proceed with its licence,
St. Marys Cement must obtain approvals to relocate Westside Creek in the Lakes and Rivers
Improvement Act. It must also meet the requirements of the Department of Fisheries and
Oceans due to the proposed destruction of fish habitat.
Submission
R. Cameron W27
Robert Morrison W2g
Petition -Local Schools W76
St. Stephen's Secondary School -Students W87
David Ashcroft W92, V22
Norman LeBlanc W93
68
Mavis Carlton
Gordon White
Wilmot Creek Homeowners Association
Mars Barrick
St. Marys Cement Company
Durham Wetlands and Watersheds
Leah Houston - "Youth In Action"
Denis Kavanaugh
Ronni Zolumoff
Summary of Issues Identified
W94
W95, V20
W144
W146
W153
W 155
V23
V24
V33
• The extent of Aggregate Extraction Area designation.
• - The preservation of the Westside Creek Marsh.
Agency Comments
Ministry of Northern Development and Mines
The Ministry requested that the Whitby formation which lies within 50 feet of the surface
be identified as a potential Aggregate Resource Area. This includes the lands within the St.
Marys lands and much of the Bowmanville and Newcastle Village urban areas. (check
DROP)
Region of Durham
St. Marys Cement is designated as Special Policy Area B in the Regional Official Plan. The
Plan recognizes the existing licensed area in accordance with the Comprehensive Provincial
Policy Statements. The Plan also recognizes those lands not under licence within Special
Policy Area B. The aggregate extraction operation and uses ancillary thereto including an
asphalt batching plant are permitted. Expansions to the docking facility requires approval
from Federal and Provincial agencies in consultation with the municipality and the Region.
However, it is noted that Special Policy Area B in the Regional Official Plan has been
deferred for future consideration by the Minister.
Statl< Comments
~' The extent of the Aeereaate Extraction Area designation
The Draft Official Plan designates all of the licensed lands owned by St. Marys Cement Co.
as an Aggregate Extraction Area, save and except for the buffer areas required by their
licence along Waverly Road and north of the Cedarcrest beach residences. The Official Plan
69
proposes that these buffer areas, in association with road allowances would be part of the
Waterfront Greenway providing a vital link in a connected greenway. The ultimate
waterfront trail alignment approved by Council is intended to follow Waverly and Cedarcrest
road allowances. The intent of the Greenway designation of adjacent lands was to recognize
that the St. Marys Cement Company buffer lands could contribute to the greenway.
Under provincial policy, the Municipality is required to identify licensed pits and quarries
and protect them from incompatible land uses. While the intent of this policy was contained
in the Draft Official Plan, the Plan did not "identify" the full extent of the licensed lands.
However, this does not necessarily mean that the lands have to be designated as an
Aggregate Extraction Area. For example, the Regional Official Plan designates the St.
Marys Cement Co. lands as a Special Policy Area.
In light of process underway through the Waterfront Regeneration Trust with regard to the
Westside Creek Marsh, the specific resolution of the land use designations will have to
account for the two alternatives as follows:
a) if the process is successful, the greenway link will be north through the Ontario
Hydro corridor and the realigned Westside Creek; or
b) if the process is not successful, the greenway link will follow the southerly route along
Waverly Road, Cedarcrest Beach Road and Cove Road.
Any recommendation on this issue would, therefore, have to be closely tied to the resolution
of the issue discussed below.
The nreservAtion of the Westside Creek MArsli
This was the most controversial issue identified through the Official Plan review. As noted
above, the Municipality of Clarington and St. Marys Cement Co. have requested the
assistance of the Waterfront Regeneration Trust to undertake a community mediation
process that can achieve the objectives of preserving he Westside Creek Marsh without
affecting the long term viability of the St. Marys Cement Co. operation. The Waterfront
Regeneration Trust issued an interim report on the Westside Creek Marsh in June 1995
which outlined a tentative solution which has been agreed to in principle by the Municipality,
St. Marys Cement Co. and the Port Darlington Community Association. Technical
committee's are now, investigating the feasibility and costs of such a solution.
In light of this process currently underway, it is recommended that the Official Plan provide
for this undertaking by identifying the affected lands as a Special Study Area.
Recommendation
S-7 That the lwrds owned by St. Marys Cement Company between the west side of Waverly
Road and West Beach Road be identified as a Special Study'Area inclusive of the Cove
Road area (see previous reco~rimendation).
70
6. RURAL ISSUES
6.1 Provincial and Regional Policy
ApplicaUle Comprehensive Provincial Policy Statements
Section A (Natural Environment, Environmental Protection and Hazard Policies), Section
B (Economic, CommunityDevelopment, and Infrastructure Policies), Section D (Agricultural
Land Policies) and Section F (Mineral Aggregate, Mineral and Petroleum Resources
Policies) are all relevant to the discussion on the rural issues.
Development that will negatively impact on ground water recharge areas, headwaters and
aquifers which have been identified as sensitive areas is not permitted. Significant woodlands
and significant wildlife habitat will be classified into areas where either no development is
permitted or development is permitted provided it does not negatively impact the natural
features or the ecological functions for which the area is identified.
In rural areas, residential development and recreational and tourism development that is not
an extension of a settlement area will only be permitted subject to a number of conditions,
including a demonstrated need for the type and scale of development and the anticipated
effects on the rural area.
Prime agricultural areas are to be protected for agricultural use. Non-agricultural uses are
not permitted within prime agricultural areas. Lot creation within prime agricultural areas
is generally discouraged.
Municipalities are to identify and protect as much of its mineral aggregate as is practical, in
the context of other land use planning objectives. Non-aggregate land uses may be permitted
if it serves the greater .long term interest of the general public or would not preclude or
hinder future extraction.
Oak Ridges Moraine Strategy
This Strategy, which is currently in draft form, was prepared under the direction of the
provincial government. It sets out a long term strategy for the protection, maintenance, and
where possible the enhancement of the ecological integrity of the Oak Ridges Moraine. The
Strategy defines three interconnected and interdependent natural systems on the Moraine
to be protected and managed: the Natural Heritage System, the Water Resources System,
and the Landform Conservation system. The Ganaraska Forest was identified as a Natural
Core Area within the Natural Heritage System, which indicates that it is critical to ecological
processes, attributes and functions needed to maintain native plant and animal species.
71
t
Durham Regional Official Plan
6.2
The Oak Ridges Moraine is designated as part of the Major Open Space System, and is to
be protected for its special natural and scenic features. The predominant use of land shall
be conservation, recreation, reforestation and agriculture. The establishment of recreational
uses within the Moraine requires an amendment. The Plan specifically recognizes the Kirby
Ski Area and the existing. uses at Mosport Park as Regional Nodes, which are intended to
function as centres of tourist activity and specialized recreation. A substantial portion of the
Moraine is also identified as a high potential aggregate resource areas.
Golf courses and country residential subdivisions are permitted by amendment to the
Regional Plan in the General Agricultural Area and the Major Open Space System, subject
to a number of conditions. Golf courses are also permitted by amendment in the Permanent
Agricultural Reserve, however, country residential subdivisions are specifically prohibited in
this designation.
Oak Ridges Moraine
Overview
The Oak Ridges Moraine is valued for its extensive forests and natural areas, scenic vistas
and extensive deposits of sand and gravel. These deposits act as headwater source areas for
a number of streams and are also attractive to the aggregate extraction industry.
Existing land uses on the Moraine include agriculture, aggregate extraction, hamlets,
scattered residential development, hiking trails and active recreational uses, such as the
Oshawa Ski Club and Mosport Park.
Submissions Received
SAGA Wl, W64, Vl, V30
Susan Finlay W24
Pat Irwin Lycett W26
Esther Arlin W51
Mosport Park W66, W147
Durham Wetlands and Watersheds W155
Wimpey Minerals Canada W158
Aggregate Producers Association of Ontario W164
Oshawa Ski Club V37
Issues Identified
• Permitted uses in the Oak Ridges Moraine
• Special policies for the upper Ganaraska River watershed
72
Agency Comments
Region of Durham
It is not clear if the Oak Ridges Moraine is to be considered an Environmentally Sensitive
Feature in its entirety. Such an interpretation may be unduly restrictive.
Ministry of Natural Resources
The Official Plan is required by the Mineral Aggregate Resource Policy Statement to identify
and protect as much of the mineral aggregate deposits as is realistically possible. The
Ganaraska headwaters area has been identified as an area of primary and secondary
significance for aggregate extraction. Sections 14.5.3 and 15.3.4 of the draft Official Plan,
which prohibit aggregate extraction within the headwaters of the Ganaraska River, should
either be removed or modified to permit aggregate extraction by amendment to the Official
Plan.
Central Lake Ontario Conservation Authority
The Authority questioned whether the limits of the Oak Ridges Moraine should be shown
on Map C.
Ganaraska Region Conservation Authority
Forest management should be identified as a permitted use within the Oak Ridges Moraine.
Staff Comments
Permitted uses on the Os,k Ridges Moraine
The draft Official Plan recognizes the Oak Ridges Moraine as a significant groundwater
discharge and recharge area, and as a unique and sensitive.landform comprising a major
component of the Green Space System. A significant portion of the Moraine is also
identified on Map D as an Aggregate Resource Area. Uses permitted uses on the Moraine
are conservation, reforestation, agriculture and passive recreational uses. New aggregate
extraction operations are permitted by amendment. The establishment of new country
residential subdivisions, rural residential clusters and golf courses on the Moraine is
specifically prohibited.
Staff continue to support the permitted uses for the Moraine outlined in the Draft Official
Plan, in particular, the prohibition on golf courses and country residential subdivisions. Staff
feel that this is important to maintaining the ecological integrity of the Moraine, given that
73
e
no effective mechanism exists to effectively monitor the cumulative effects of development
of the Moraine on its significant habitat and groundwater functions.
The Draft Official Plan identifies the Kirby Ski Area and Mosport Park as Major Tourist and
Recreation Nodes in the text and by symbol on Map A. The Plan indicates that the Node
symbol includes adjacent lands and that the expansion of existing uses at these Nodes, as well
as the introduction of related uses, is permitted, provided such do not adversely impact the
environment. However, it is noted that the Regional Official Plan restricts Mosport to
existing uses only.
The policies on Tourism Nodes should be clarified to more specifically define the uses
permitted at the Nodes. For example, residential uses should be specifically excluded. The
Official Plan should also identify if certain studies are required to permit the expansion of
uses or the establishment of new uses. As well, there is merit in specifically defining the
limits ofthe two Nodes located on the Moraine.
Recommendations
~I That the O,,~ciarl Plan define limits for the Mayor Tourist and Recreation Nodes in the
Oark Riafges Moraine art the Ruby Ski urea and Mosport. Park on the basis of their e~aisting
Property boundaries
~2 That the Draft Plan be clarified tv specifically exclude residential uses in Mayor Tourist
and Recreational Noate.
~3 That the draft policies be amended tv permit exis~iing uses only on the Mosport Park land.
Special »olicies for the upper Ganaraska River watershed
Aggregate Resource Areas are identified on Map D of the Draft Official Plan. The policies
of the Draft Official Plan states that these areas shall be protected for extraction purposes.
However, the text further indicates that, notwithstanding this policy, aggregate extraction will
not be permitted within the headwaters of the Ganaraska River.
It is noted that provincial policy allows for the balancing of planning objectives, including
natural heritage and environmental protection goals. Mineral aggregate resources are to be
protected from incompatible land uses but in the context of other planning objectives.
Moreover, non-aggregate uses are permitted if it serves the greater long term public interest
or does not significantly preclude or hinder future extraction.
Much of the upper portion of the Ganaraska River watershed in Clarington is covered by
the Ganaraska Forest, which was originally planted to address water management concerns
on the Ganaraska River. Much of the Clarington portion of the Forest is owned by the
Ganaraska Region Conservation authority or other public agencies. The draft Oak Ridges
.Moraine Strategy has identified most of the Ganaraska Forest as a Natural Core Area.
74
Protection of the Forest is important, not only for the maintenance of the groundwater
regime for the Ganaraska River, but also to provide large tracts of relatively undisturbed
wildlife habitat. It is Staff's opinion that the Ganaraska Forest in Clarington is a unique and
valuable resource deserving of the protection from development .provided for by the
Provincial Policy Statements.
The upper Ganaraska River watershed is also recognized as a unique landscape with
significant vistas. Some work on this was undertaken through the Oak Ridges Moraine
Studies. Given the large public land holdings, the limited areas.of existing extraction activity
and limited rural settlement, the landscape offers a unique natural setting that is appreciated
by many residents.
In light of all provincial policies, the large public ownership, the natural heritage and
hydrogeological features of the area, and the unique landscape of the upper Ganaraska River
watershed, staff believe it should be protected from aggregate activity. There is a need,
however, to clarify some matters, particulary that this policy only applies to new aggregate
extraction operations or expansion to aggregate extraction operation and the area to which
this policy applies.
Recommendations
6-4 That the O,,~cial Plan clarijy that the pmhibihon of aggregate activity applies to the
establishment of new aggregate extraction operations or the expa~csion of existing aggregate
expansion operations and identifies the specifu area to which the policy will apply, being
the upper Ganaraska River watershed.
6.3 Golf Courses
Overview
The rural areas of Clarington have a variable and unique landscape including the Oak Ridges
Moraine and the Lake Ontario Waterfront. Rural areas have been under increasing pressure
for the provision of recreational activities including golf courses.
Submissions Received
Oceanfront Developments W130
Ron Strike W145
Doug Summers W167
75
C
Issues Identified
• Golf courses on Prime Agricultural lands. or within the Oak Ridges Moraine
designation.
Agency Comments
Ministry of Agricultural. Food and Rural Affairs
The Ministry notes that the Draft Official Plan provides criteria for the evaluation of
Country Residential subdivisions and Rural Residential Clusters but not for golf courses.
Staff Comments
Three submissions reference golf course proposals as follows:
Doug Summers An application for an 18 hole golf course on lands in Part Lot
3, Concession 4, Darlington, south of Taunton Road.
Draft Official Plan designation: Green Space
Ronald Strike in Trust A proposal for golf course and residential uses in Part Lot 25,
Broken Front Concession, Clarke, just east of Newcastle
Village. No application or technical studies has been
submitted.
Draft Official designation: Waterfront Greenway
Oceanfront Developments A proposal for a golf course in part Lots 32 and 33,
Concession 7, Clarke, just west of the hamlet of Leskard. No
application or technical studies has been submitted.
Draft Official Plan designation: Oak Ridges Moraine and
Prime Agricultural Land
Golf courses are permitted in the General Agriculture and Green Space designations subject
to site specific amendments to the Official Plan. Both the Summers and the Strike proposals
for golf courses would be permitted subject to completion of detailed technical studies and
amendments to both the Regional and Clarington Official Plans.
The Oceanfront proposal would not be permitted under. the Draft Official Plan since it is
designated partially Prime Agricultural Area and partially Oak Ridges Moraine. Although
the submission notes that golf courses are permitted within the comparable designation in
the Durham Regional Official Plan, the area municipal official plan can be more restrictive
by narrowing the range of land uses which otherwise are permissable in the Regional Official
Plan be amendment. Two of the key elements of the Clar-ington Official Plan are protecting
agricultural resources and protecting the natural environment. In this regard, the
Municipality has endeavoured to restrict the range of uses permitted in the Oak Ridges
Moraine and Prime Agricultural Areas.
76
However, Prime Agriculture Areas are large areas which primarily have high capability soils
for agriculture. It is noted that there are smaller areas with lower capability soils contained
within Prime Agriculture Areas. In such case, it would not be contrary to the policy
direction to permit golf course within such lands subject to amendment.
Recommendal~ion
~S Thy the O,,~Fcial Plan permit golf courses by site specific amendment within Prime
A,gTicuJYural Areas pmvided such /orals do not have an agricultural soil capability rating
of I to 4.
77
7. TRANSPORTATION
7.1 Provincial and Regional Policy
Comprehensive Set of Provincial Policy Statements
Policy B, Economic Community Development and Infrastructure Policies, states that
continuous linear characteristics ofsignificant transportation and infrastructure corridors and
right-of--way should be protected.
Durham Regional Official Plan
The Regional Official Plan recognizes the importance of the Provincial freeway system,
including Highways 401 and 407. Map B designates the future 407, including provision fora
public transit facility. In addition, Regional Council supports the acxelerated construction
on Highway 407 within the Region.
7.2 Highway 407 and Connecting Freeway Link
Overview
The Ministry of Transportation is undertaking the planning of the future Highway 407 and
the future Highway 401- 407 Connecting Freeway Link. In Clarington, the western segment
of the technically preferred route is proposed to have a ten lane right-of--way, which would
reduce to an eight lane right-of--way between the Solina Road interchange to Highway
115/35. The Highway 401- 407 Cpnnecting Freeway Link is proposed as an eight lane right-
of-way following an alignment just to the east of the Courtice urban area.
Submissions Received
John Brudek W17
Roy Dalzell, Lynn Helpard, Jim Slyfield W67
D. Davidson W77
John Waters W81
Durham Wetlands and Watersheds W155
Libby Racansky W171, W184
Henry Eikens V34
Ann Cowman V41
Summary of Issues Identified Through Submissions
• Identifying the entire length of the future Highway 407 to connect with Highway
35/115
78
~ The environmental impacts of the future Highway 401 - 407 Connecting Freeway
Link
Agency Comments
Ministry of Transportation
The Ministry of Transportation acknowledged the Municipality's support for the future
Highway 407 from the west limits of Clarington to the north -south connecting link.
However, the Ministry requires that full length of the proposed Highway 407 to be shown.
In addition, it was requested that section 19.8 be modified to include a statement regarding
the exclusive transit right-of--way within the Highway 407 corridor as far east as the
connecting link.
Region of Durham
The future Highway 407 should be shown on the technically recommended alignment from
the interconnecting freeway to Highway 35/115 including the appropriate changes.
Citv of Oshawa
That the Clarington Official Plan should indicate the complete Highway 407 as contained in
the Durham Regional Official Plan
Counri of Victoria
The full extension of the proposed Highway 407 to the 35/115 is not recognized in the
Clarington Official Plan as a vital inter-regional transportation link. The County requests
that the corridor be shown in the Official in conformity with the Durham Regional Official
Plan.
Staff Comments
Identifyine the entire length of the future HiQhwav 407 to connect with Hiahway 35/115
The Ministry of Transportation is undertaking an Environmental Assessment for the future
Highway 407 through Durham Region connecting to Highway 35/115 in Clarington. A
technically-preferred alignment has been selected but the Environmental Assessment will not
be completed until the preliminary engineering phase is done.
Opponents to the Highway 407 argue that it will not be of economic benefit to the
Municipality, allowing industry to easily by-pass Clarington and cottagers easier access to
their destination. The impacts of the highway on agriculture, natural environment and-the
social fabric of the community has also been raised. On the other hand, it is felt that a new
transportation link would bolster economic growth currently constrained by a congested
transportation network.
79
The alignment of the future Highway 407 up to and including the 407-401 Freeway
Connecting Link has been supported by Clarington Council and is shown as such in the Draft
Official Plan. The portion easterly from the Connecting Link to Highway 35/115 is not
shown and is contrary to the Regional Official Plan.
The Clarington Official Plan has to be prepared in conformity with the Regional Official
Plan. Moreover, as a provincial undertaking, Highway 407 can be built regardless of the
Official Plan designation. However, staff also recognize the desire of Council to oppose the
Highway 407 alignment easterly from the Connecting Link. Therefore, staff will not be
making any recommendation on this issue. However, Council should be aware that when the
Plan is forwarded to the Region for approval, it is likely that the Region will request Council
to reconsider its position or the Region could impose such requirement.
Recommendation
None
Environmental impacts of »ronosed Hiahway 401-407 Connecting Freeway Link
Opposition to the Highway 401-407 Connecting Freeway link is based on the negative
environmental impacts associated with the development of the proposed infrastructure. The
identification of the technically preferred route and eventual development of the route
requires compliance with the Environmental Assessment Act. In selecting the technically
preferred route for the connecting link the Ministry consultants went beyond the original
study limits in order to minimize the impacts, including environmental considerations, ofthis
transportation corridor. Staff believe the Environmental Assessment process is best able to
deal with the specific environmental and non-environmental issues of the route.
Recommendation
None
7.3 Transportation Network for Courtice
Overview
The road network for Courtice was designed and planned in the seventies on the basis of a
curvilinear collector road system for a population of 20,000. It did not take into account of
the possibility of future urban expansion beyond the then urban boundaries which makes
planning for the future road network extremely difficult for Courtice. In addition, the
natural barriers created by stream valleys present another constraint to establish a fully
connected grid of arterial road system for Courtice. As a result of large tract of lands being
added as urban areas in the Durham Plan, the local municipality is now faced with the
challenge of planning a road network that is required to meet the future need and beyond.
l
80
Development pressures in Courtice have led to concerns about traffic volumes and speed on
collector and arterial roads. Most recent concerns about Glenabbey Drive, Prestonvale Road
and Robert Adams Drive are reflected in the submissions on the Draft Official Plan. Agency
concerns reflect the impact of Courtice development on adjacent Oshawa.
Submissions Received
Helen Castellan W19
Hugh Neill W44, W90, V43
R. Farr W83
Courtice Heights Developments W131
Penwest Developments W152
Kiddicorp Investments Ltd. W157
Dick Vooys V51
Ross Miller V52
Summary of Issues Raised in Submissions
• Prestonvale Road as a Type C arterial road
• Traffic volumes on Glenabbey Drive
• Alignment of new east-west Type C arterial road south of Glenabbey Drive
• Alignment of Robert Adams Drive south of Glenabbey Drive
Agency Comments
Region of Durham
The Region of Durham Planning Department identified various proposed road designations
in the Draft Official Plan which are not consistent with-the Durham Plan. In addition to
these more general road classification comments, Regional Planning Staff identified the
following issues in the proposed road network:
• The mid-block east-west Type C arterial between Highway 2 and Bloor Street
(Glenabbey Drive) is not designated in conformity with the Regional Plan between
Prestonvale Road and Townline Road;
• A second east-west Type C arterial should be designated in the Courtice employment
area south of Bloor Street;
• The proposed Prestonvale Roaci~I'ownline Road - 401 interchange and the GO
Transit station are not designated in the Durham Plan;
• Prestonvale Road should be added to both the Regional and Clarington Official
Plans as Type C arterial.
81
City of Oshawa
The City is concerned that a Townline Road/Prestonvale Road interchange at Highway 401
may adversely affect the timing of the proposed new Col. Sam Drive interchange in Oshawa.
Concerns were also raised about a direct collector road connection to Grandview Drive.
Stag Comments
The Municipality has engaged Totten Sims Hubicki to review the Courtice transportation
network for both residential and employment area traffic. Staff will be reporting separately
on this issue. It is recommended that the Courtice transportation network issues be dealt
with separately at a later date.
Recommendation
None
82
8. IMPLEMENTATION AND INTERPRETATION ISSUES
8.1 Transitional Policies
Overview
With the approval of any new Official Plan, there is the need to address transitional issues;
the change from the existing policy environment to the new policy environment.
Unless other specified, the new policies take effect upon approval of the Official Plan by the
Regional Municipality of Durham. The Draft Official Plan contains policies dealing with
previously-existing non-conforming uses. It also contains policies which address projects
which have received certain planning approvals but have not yet been constructed. It is the
latter policies which have been the concern of some submissions.
Submissions Received
Valiant Property Management W110, V45
Newcastle Co-Tenancy W128
Courtice Heights Developments W129, W131
The Kaitlin Group W132
Wayne Bolahood W163
Summary of Issues Raised in Submissions
• Draft approved plans of subdivisions.
• Approved privately-initiated official plan amendments.
Agency Comments
None
Staff Comments
Draft Annroved Plans of Subdivision
Section 23.6.2 states that where a plan of subdivision has been granted draft approval prior
to the approval of the Official Plan, it is not the intention of Council to apply the policies
retroactively. However, when the proponent proposes revisions, the entire plan of
subdivision will be subject to review and the provisions of the new Official Plan shall apply.
83
Submissions indicated concerns that this policy would permit a review of the entire draft
approved plan of subdivision even if the slightest revision is proposed by the proponent. It
was not staff s intention to trigger major revisions to a draft approved plan of subdivision in
the event of a minor change requested by the proponent. However, by the same token, if
the proponent is requesting significant changes to its draft approval, the Municipality should
have the opportunity to enforce the new policy regime.
It is, therefore, proposed that the .text be clarified to indicate that such a review and
application of the new policies .would only occur in the event of significant revisions to the
draft-approved plan of subdivision.
Recommendation
&I That the text of the Plan be clarifired to indicate that the policies of the new Official Plan
ti
would only be applied to a previously draJlapproved plan of subdivision in the event of
signi, ~rcant revisions proposed by the applicant.
Approved PrivAte OfficiAl PIAn Amendments
Section 24.13 addresses private Official Plan Amendments approved in the current Official
Plan. All municipally-initiated official plan amendments will be superseded by the new
Official Plan. Unless otherwise specified, all privately-initiated official plan amendments
would be likewise superseded. However, policy 24.13 states that the policies of the new
Official Plan would not be applied retroactively to lands subject to aprivately-initiated
amendment duly approved by the Minister or the Region. However, if the new Official Plan
has not specifically recognized such amendments and if the proponent has not proceeded to
develop the lands within 5 years from the date of the Region's approval of the Clarington
Official Plan, Council would void the validity of such amendments at the time of the 5 year
review.
Some submissions raised concerns about this policy, particularly the potential loss of
development approvals after the effort and cost of obtaining the original official plan
amendment. On the other hand, the Municipality must be able to review and update its
official plan particularly in light of the inability of a landowner to implement its project.
In light of the concerns with respect to this policy and further consideration by Staff, it is
recommended that the draft policies be amended to allow Council the authority to review
each of the approved, privately-initiated amendments with a view not necessarily to void such
amendments if the project is not built prior to the next five (5) year review of the Official
Plan.
Recommendation
8 2 That policy 24.13 be revised to indicate only that Council will "review" and not necessarily
"void" privately-initiated amendments which have not been built prior to the time of the
next 0,,~~icial Plan Review.
84
APPENDIX A
WRITTEN SUBMISSIONS
PHASE 3
DRAFT OFFICIAL PLAN
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;WRITTEN SUBMISSIONS.
PIIASE 2
PIANNING ISSUES AND OPTIONS
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VERBAL SUBMISSIONS .
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