HomeMy WebLinkAboutPD-60-93 THE CORPORATION OF THE TOWN OF NEWCASTLE
DN: BOWMCA.GPA REPORT
Meeting: General Purpose and Administration Committee Rile
Date: Monday, April 5, 1993 Res. i
By-Law
Report : ^-.64-..g- File #: 'DT
N 12 . 3
Subject: BOWMANVILLE MAIN CENTRAL AREA STUDY
PHASE II: DEVELOPMENT OPTIONS
File: PLN 12 .3
Recommendations:
1. THAT Report PD-60-93 be received;
2 . THAT the 'Phase 2: Development Options' Report for the Main
Central Area Study be received;
3 . THAT the following principles for the future development of
the Bowmanville Main Central Area, as recommended by the Phase
2 Report, be endorsed:
i) Recognition of Bowmanville and its Main Central Area as
a Regional Centre;
ii) Phasing of new retail development in the West Main
Central Area based on population growth; and
iii) Development of a grid and block system for structuring
the West Main Central Area.
4 . THAT Scenario 2 - Main Street be endorsed as the preferred
development option for the West Main Central Area;
5. THAT the Durham Region Planning Department, all interested
parties .listed in this report, and any delegation be advised
of Council's decision.
1. BACKGROUND
1. 1 The Bowmanville Main Central Area Study is intended to
develop a long term development strategy for both the
existing Main Central Area and the West Main Central
Area, as approved through Amendment No. 40 to the Town of
Newcastle Official Plan. The Study is an important
component of the Town's Official Plan Review.
200)
T116 IS PRIMED DD RECYCLED PAPER
REPORT NO. : PD-60-93 PAGE 2
1.2 The Phase 1 Report, as presented by the consultant in May
1992 , presented generalized urban structure options for
the Main Central Area and identified a number of basic
principles for future development as follows:
• growth in the two sectors of the Main Central Area
should be balanced so that the sectors complement
rather than compete with each other;
• the role of the existing Main Central Area as the
community, cultural and retail focus of the Town
should be strengthened and retained;
• the urban structure of the West Main Central Area
should be based on a public realm of streets and
open spaces which would facilitate transit,
pedestrian and bicycle access, and which would
accommodate more intensive redevelopment in the
longer term;
• the addition of new uses in the West Main Central
Area should be incremental, in keeping with
population growth and employment opportunities.
1. 3 Subsequent to the Phase 1 Report, a Public Information
Session was held on June 24, 1992 . Two preliminary
development options for the West Main Central Area were
presented at that time.
1. 4 The Phase 2 Report builds upon the work undertaken in the
first phase by elaborating and evaluating alternative
development options for the existing and new sectors of
the Main Central Area. The Phase 2 Report recommends a
preferred development option based on the consultants'
evaluation of urban structure, urban design,
transportation and engineering factors. The Report also
examines in detail the distribution and phasing of new
commercial floor space between the existing and new
sectors of the Main Central Area.
REPORT NO. ; PD-60-93 PAGE 3
1. 5 In Phase 3 , the development concept selected by Council
will be refined, and policies for the West Main Central
Area will be developed into a seconday plan and be
incorporated into the Town's Official Plan. Urban design
guidelines will also be prepared to guide the review of
specific zoning and site plan applications.
2 . PLANNING CONTEXT FOR MAIN CENTRAL AREA STUDY
2 . 1 The Phase 2 Report, in particular the selection of a
development scenario for the West Main Central Area, must
be reviewed in the larger context established by
provincial government initiatives, the 1991 Durham
Regional Official Plan, and the Town's Official Plan.
2 .2 Provincial/GTA Initiatives
Recent provincial initiatives, such as the GTA Strategic
Action Plan and the Commission on Planning and
Development Reform (Sewell Commission) have focused on
the management of urban growth in order to minimize the
impact on urban fringe areas. In particular, the GTA
process has established a consensus that future growth
must shift from sprawl to more compact urban forms.
Communities should be planned to minimize the consumption
of land, to promote the efficient use of infrastructure
and public services through increased densities, to
reduce the use of the automobile and to provide greater
protection of environmental and agricultural resources.
2 . 3 Durham Regional Official Plan (1991)
The 1991 Regional Official Plan states that the
development of urban areas is to be based on a number of
principles, including adaptability over time and
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REPORT NO. ; PD-60-93 PAGE 4
sustainable development. Other principles include
compact form, mixed uses, intensification, urban design,
public transit, linkages for pedestrians and cyclists,
and a grid system of roads.
The Plan further states that the historic role of Central
Areas as people-oriented places with a variety of uses
integrated ' with the shopping function, should be
restored. Central Areas are to be developed as focal
points through the provision of public facilities such as
public squares, parks and cultural facilities. Wherever
possible, there is to be direct street pedestrian access
to buildings, the provision of potential transit, and
parking areas sited at the rear or within buildings.
Prime consideration is to be given to urban design,
including the spatial distribution of structures `and
architectural treatment.
2 .4 Town of Newcastle official Plan
Amendment No. 40 to the Town's Official Plan, as approved
by Regional Council on February 6, 1991, establishes the
local planning framework for the West Main Central Area.
The Amendment states that development of the Main Central
Area shall be based on the principle of appropriately
sized blocks separated wherever possible by a grid system
of public rights-of-way for vehicular, pedestrian and/or
transit movements. All blocks are generally to be
developed for a range of central area uses in buildings
greater than one storey.
In addition, an Urban Design Plan is to be prepared for
the West Main Central Area. This Plan is to establish
guidelines for the integration of structures and uses
within the Main Central Area, transit routes and
- ZU6)
REPORT NO. : PD-60-93 PAGE 5
stations, direct street access to buildings, and parking
in the rear of buildings wherever possible.
I
3 . PHASE 2 REPORT: DEVELOPMENT OPTIONS
3 . 1 The Executive Summary of the Phase 2 Report is attached
to this report for ease of reference (Attachment #1) . It
reviews the assumptions regarding the distribution of
land uses, specifically retail, office and residential.
A companion report prepared by Arthur Anderson & Co.
provides a Commercial Market Study for the Bowmanville
Main Central Area. A copy of this report is available
from the Planning and Development Department. The
conclusions of the Commercial Market Study were
incorporated into the Phase 2 Report.
3 . 2 The Existing Main Central Area
The Development Concept for the Existing Main Central
Area (Attachment #2) seeks to:
• delineate clearly the primary retail area along
King Street which will provide the focus for
pedestrian activity;
• reduce the boundaries of the Main Central Area in
order to preserve existing residential
neighbourhoods and preclude the possibility of
encroachment of commercial uses;
• identify a civic precinct which will act as the
focus of community activities. It is suggested
that new community facilities, such as the library
or seniors' centre, be encouraged' to locate in this
area within walking distance of other civic,
recreational and retail facilities;
• extend the opportunity for small professional
offices to locate within the Main Central Area by
encouraging such uses along Queen Street;
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REPORT NO. : PD-60-93 PAGE 6
• incorporate the Memorial Hospital into the Main
Central Area and provide for its future expansion.
It is intended that the existing Main Central Area
would be allowed to infill and intensify with
redevelopment over the period of the Plan.
3 . 3 Development Concepts for the West Main Central Area
3 . 3 . 1 Three development concepts have been established for the
expansion to the Main Central Area. These reflect the
existing applications, a Main Street scenario utilizing
a north-south street, and a hybrid of the two being an
extension of commercial uses along Highway #2 .
Although specific land uses have been identified, these
will be refined in the final phase of the Study. The
general concept needs to be determined at this stage to
enable the consultant to finalize the Plan.
Potential land use estimates show a range based on
differing assumptions (eg. location of GO Rail station)
which are yet to be finalized. It should be noted that
Scenarios 2 and 3 allow for intensification of uses over
time by providing sites that would initially be used for
parking but could be easily redeveloped for residential
uses in the long term.
3 . 3 . 2 scenario 1 - Application scenario
This scenario (Attachment #3) reflects and builds upon
the various development applications submitted for this
area, that being large land blocks occupied by strip
retail plazas. The plan reflects the individual
aspirations of the respective landowners.
ill
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REPORT NO. : PD-60-93 PAGE 7
3 . 3 . 3 Scenario 2 - Main Street or Uptown Bowmanville Scenario
The Main Street Scenario (Attachment #4) proposes to
create a grid of streets and blocks, with a new but
secondary 'Main Street' running north and south of
Highway 2 along which new commercial development would be
focused. This "Uptown Bowmanville" scenario would
exhibit many of the characteristics of historic downtown
Bowmanville, such as street-oriented development,
integrated land uses, and a significant public realm
comprised of streets, parks and open spaces. A range of
uses would be permitted on each block which would
facilitate the integration of residential and commercial
areas. It reflects a more pedestrian orientation and
amenities and integration with the adjacent residential
neighbourhood.
3 . 3 .4 Scenario 3 - Highway 2 Scenario
The third scenario (Attachment #5) is a hybrid of the
other two scenarios. A grid of streets and blocks would
be created and development would be street-oriented as
with Scenario 2 . In this regard, this Scenario would
exhibit many of the characteristics of the 'Main Street'
Scenario. However, commercial development would be
focused on Highway 2 , rather than on a new north-south
main street. The challenge, with this alternative, is to
transform Highway 2 to give it characteristics desired
for a Main Central Area.
3 . 4 Consultant's Conclusions and Recommendations
The Phase 2 Report outlines five recommendation to guide
the future development of the existing and new sectors of
the Main Central Area, as follows:
REPORT NO. ; PD-60-93 PAGE 8
• Endorsement of Bowmanville as a Regional Centre
with appropriate land use designations in the West
Main Central Area to accommodate new retail
development;
• Phasing of retail allocation for the West Main
Central Area based on population growth, with
sufficient development permitted initially to
create a commercially viable 'critical mass' ;
• Municipal initiatives to protect the existing Main
Central Area, such as retaining and locating new
community facilities in the existing downtown;
• Establishing an urban structure of grids and blocks
and a public realm for the development of the West
Main Central Area , in order to
provide connections and integration of land uses.
• Adopting Scenario 2 - Main Street or Uptown
Scenario in order to establish a desired urban
structure for the area and to create a vital active
sub-centre within the the larger Main Central Area.
4 . STAFF COMMENTS
4 . 1 The Phase 2 Report represents a comprehensive effort by
the consultants to develop a planning and urban structure
framework for the existing and new sectors of the
Bowmanville Main Central Area over the short term (within
the next five years) , the medium term (twenty years) , and
the long term (beyond twenty years) . The basic
principles outlined by the Report to guide the future
development of the whole of the Main Central Area are
summarized as follows:
yL
REPORT NO. ; PD-60-93 PAGE 9
4 . 2 Bowmanville as a Regional Centre
The 1991 Durham Regional Official Plan identifies
Bowmanville as a significant urban centre and
specifically, that the Bowmanville Main Central Area will
serve a regional function in the hierarchy of Central
Areas. Town Council has previously concurred with the
Regional framework for Bowmanville, although it endorsed
a somewhat lower target population in comments to the
Ministry of Municipal Affairs. As the Durham Regional
Official Plan is finalized, it is anticipated that there
will be reductions in the target populations throughout
the lakeshore municipalities in order to establish a 30
year time frame for the Regional Plan.
Nevertheless, - the role of Bowmanville and its Main
Central Area as a regional centre will be retained. In
this regard, staff have supported westerly expansion of
the Main Central Area in order for Bowmanville to realize
its potential role as a regional centre.
4 . 3 Phasing of Retail Allocation for the West Main Central
Area
Staff also concur with the consultants' conclusion that
too many retail permissions in the West Main Central Area
in the short term would have a catastrophic impact on the
existing Main Central Area. For the existing Main
Central Area to remain vibrant and healthy, there needs
to be opportunity to retain existing levels of commercial
occupancy, fill some of the recent vacancies and allow
for infill of vacant sites and redevelopment, including
approved projects. It is inevitable that there will be
some market adjustment that will occur. Staff concur
with the recommendation of the consultant to phase new
retail development in the West Main Central Area on the
REPORT NO. : PD-60-93 PAGE 10
basis of population growth in order to minimize the
impact on the Town's existing commercial structure.
4 . 4 . Municipal Initiatives to Protect the Existing Main
Central Area
Staff agree with the consultant that the Town should
undertake some initiatives for the existing Main Central
Area to offset the draw of new retail establishments in
the West Main Central Area. This direction can be
reinforced and refined in the new Official Plan currently
under preparation.
4 . 5 Choosing a Development Concept for the West Main Central
Area
4.5. 1 The Bowmanville Main Central Area represents the most
critical planning area in the Town of Newcastle. It will
not only provide regional level services but is the
cultural, administrative and symbolic centre of the
community. It should integrate a mixture of uses and
reflect the values which make the Town unique.
4 . 5. 2 The three development options for the West Main Central
Area should also be considered in the context of the
provincial, regional and local policy framework discussed
in Section 2 of this Report. It is widely recognized
that urban growth needs to move away from a pattern of
land extensive, automobile-dependent development towards
a more compact form which optimizes capital investment in
municipal infrastructure, provides alternatives to the
use of the private automobile, and provides adaptability
over the long term.
a 14
REPORT NO. : PD-60-93 PAGE 11
4. 5. 3 Staff concur with the consultant's recommendation to
establish a grid pattern of streets and blocks. A well-
defined urban structure would facilitate the phasing of
new retail construction, and would provide for the
integration, of other uses into the Main Central Area. A
public realm of streets and parks would enable a
pedestrian friendly environment to be established. The
grid pattern of streets would provide for easier traffic
circulation travel in to and within the West Main Central
Area. This well-defined urban structure would also
provide significant opportunities for intensification in
the long term, thus minimizing the consumption of
additional land and maximizing the utilization of public
investment in infrastructure.
4 . 5. 4 Scenario 1 would not appear to fulfil most of the
planning objectives set out by provincial, regional and
local policy documents. These are better achieved in
Scnearios 2 and 3 . However, there is a significant
difference between the latter two Scenarios which
fundamentally affects the ease of implementation.
Significant difficulties and expense would be experienced
in transforming Highway 2 from a high speed provincial
highway into a 'Main Street' with a high quality
pedestrian environment, as would be required under
Scenario 3 . These difficulties result from the width of
the road and the super-elevation of the roadbed in this
area. This super-elevation would make it difficult for
buildings to achieve a desirable relationship with the
street. Moreover, the urban design objectives for a Main
Central Area would conflict with the regional/provincial
requirements for traffic movement. This would be less
difficult with a new north-south street under local
control.
REPORT NO. : PD-60-93 PAGE 12
4 . 5. 5 Staff believe that Scenario 2 - Main Street or Uptown
Scenario provides the Town with an opportunity to
establish a progressive vision for its Main Central Area
which will meet current needs and accommodate future
growth. It best fulfils both public and private
objectives.
Scenario 2 integrates a variety of land uses, creates a
pedestrian-friendly environment and integrates with
adjacent residential neighbourhoods. It enables a
critical mass of retail establishments to be established
and to grow in a phased manner over time. It provides
for larger floorplates (ie. Department Stores) and
comparison shopping. It is planned from the outset to
accommodate intensification while reducing the pressure
for the eventual extension of the Main Central Area.
Scenario 2 provides for an "Uptown Bowmanville" to be
established which is complementary to the existing Main
Central Area. It reflects the traditions of the Town and
provides for its future growth as a regional centre.
5. CONCLUSIONS
5. 1 The land uses still remain conceptual and will be refined
in the last phase with a more detailed analysis of the
area. Such matters as the GO Rail Station study and any
decision on the application by Mcdonalds Restaurants of
Canada can be incorporated at that time. The decision
required at this stage is to provide the
consultant with the necessary direction on the planning
concept in order to complete the assignment and prepare
a Secondary Plan for the West Main Central Area.
Specific land uses will be the subject of the Phase 3
report.
REPORT NO. : PD-60-93 PAGE 13
5. 2 The following principles developed by the consultant are
recommended to be endorsed in principle to guide further
planning efforts for the Main Central Area:
• Bowmanville and its Main Central Area be reinforced
as a regional centre;
• Retail development in the West Main Central Area
should be phased on the basis of population growth;
• The West Main Central Area be planned on the basis
of the grid and block system;
• The concept presented in Scenario 2 - Main Street
(Uptown) be utilized for the preparation of a
Secondary Plan for the West Main Central Area.
5. 3 Finally the proposed development scenario for the
Existing Main Central Area is supported by staff and is
recommended to form the basis of revised Official Plan
policies for the Main Central Area. This can be
incorporated by separate amendment or through the new
Official Plan.
Respectfully submitted, Recommended for presentation
to the Committee
� w /
Franklin Wu, M.C. I .P. Lawrence E. Kot'seff
Director of Planning Chief Administrative
and Development Officer ` ,
JAS*DC*FW*df
29 March 1993
REPORT NO. : PD-60-93 PAGE 14.
Interested parties to be notified of Council and Committee's
decision:
Mr. Bryce Jordan, M.C. I.P.
Mr. Glenn Willson G.M. Sernas and Associates Ltd.
Willsonia Industries Ltd. 110 Scotia Court, Unit 41
P.O. Box 488 Whitby, Ontario
140 Bond Street West L1N 8Y7
Oshawa, Ontario
L1H 7L8 Mr. John E. Davies
Shopping Centres Group
Mr. Jose Ibanez Markborough Properties Inc.
Baseline Holdings 1 Dundas Street West
1409 Salem Road Suite 2800
R.R. # 1 Toronto, Ontario
Ajax, Ontario M5G 2J2
L1S 4S7
Mr. Harold St. Croix
Mr. William J. Daniell The Church of Jesus Christ of
The Kaitlan Group Latter-Day Saints
1029 McNicholl Avenue Bowmanville Branch
Scarborough, Ontario c/o 11 Richardson Drive
M1W 3W6 Pontypool; Ontario
LOA 1K0
Ms. Irene Catsibris
Ghods Builders Inc. ELM Management Ltd.
3292 Bayview Avenue Thornton Road North
Suite 300 R.R. # 1
Willowdale, Ontario Oshawa, Ontario
M2M 4J5 L1H 7K4
Ms. M. Laurie Wheeler Rev. Richard Hilsden
Fasken Calvin Godfrey Liberty Pentecostal Church
Barristers and Solicitors R.R. # 3
Toronto-Dominion Bank Tower (corner of Martin Rd and
P.O. Box 20 Highway 2)
Toronto-Dominion Centre Bowmanville, Ontario
Toronto, Ontario L1C 3K4
M5K 1N6
Mr. Gerard Gervais
Ms. Gail Waisglass Dekkema Gervais Development
Cosmart Marketing Corporation Corporation
P.O. Box 401 100 Allstate Parkway
209 Dundas Street East Suite 501
Suite 308 Markham, Ontario
Whitby, Ontario L3R 3L1
L1N 5S4
Mr. Garth Gilpin
Mr. Bob Martindale Secretary-Treasurer and General
The Greer Galloway Group Inc. Manager
1415 King Street (Highway Bowmanville Business Centre
Courtice, Ontario P.O. Box 365
L1E 2J6 Bowmanville, Ontario
L1C 3L1
REPORT NO. : PD-60-93 PAGE 15
Mr. Christopher Dodds
Canadian Tire Corporation Lily Law
Limited Michale Gagnon Consulting
P.O. Box 770, Station 'K' Planners
2180 Yonge Street 10 Kingsbridge
Toronto, Ontario Garden Circle
M4P 2V8 Suite 888
Mississauga, Ontario.
Ms. Maureen Kitchen L5R 3K6
The Great Atlantic and Pacific
Co. of Canada Ltd. Mr. Neil Palmer
Real Estate Division Ontario Municipal Board
P.O. Box 68, Station 'A' 180 Dundas Street West
Toronto, Ontario Toronto, Ontario.
M5W 1A6 M5G 1E5
Mr. Steve Wilson
72 Temperance Street
Bowmanville, Ontario
L1C 3A9
Mr. Herb Green
Barmond Builders Ltd.
LDCM Investments Ltd.
c/o Beau Valley Estates
P.O. Box 936
Thornhill, Ontario
L3T 4A5
Rev. Frank Lockhart
7 Barley Mill Crescent
Bowmanville, Ontario
L1C 4E5
Mr. John Kazmierowski
McDonalds Restaurants Of Canada
Ltd.
McDonalds Place
Toronto, Ontario.
M3C 3L4
Mr. Eric A. Hanna
Executive Vice-President
Operations
Bowmanville Memorial Hospital
47 Liberty Street South
Bowmanville, Ontario.
L1C 2N4
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Attachment No. 1
B O W M A N V I L L E
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MAIN CENTRAL AREA STUDY
PHASE II: DEVELOPMENT OPTIONS
EXECUTIVE SUMMARY
March 1993
EXECUTIVE SUMMARY
This report marks the culmination of the second phase of the Bowmanville Main
Central Area Study. During this phase, the objective was to develop a strategy to
guide future development of the existing Main Central Area, to elaborate a number
of options for the development of the new West Main Central Area, and to
recommend a preferred option based upon the application of evaluation criteria
relating to urban structure, urban design, transportation and engineering factors.
1 . Development Strategy
The basic objective of the suggested development strategy is to create a true
centre for the Town of Newcastle - one which can be multidimensional, retaining
its existing role as the community and administrative heart of the Town, while
accommodating newer more intensive housing forms and strengthening its role as
a retail centre. The Main Central Area should be able to accommodate not only
initial stages of development, but subsequent intensification, as the population
continues to grow in the long term. Since significant amounts of new land are
being brought into the urban area, establishing a structure for long term
development is critical to restraining the need to continuously extend urban area
and Main Central Area boundaries.
1 .1 Distribution of Land Uses
In determining an appropriate development strategy, certain assumptions have
been made regarding residential, office and retail development. Considerable
attention has been focused on the retail sector, which is basic to the inception of
the West Main Central Area and critical to the continued vitality of the existing
Main Central Area.
Retail Development
Inherent in the recommended strategy is endorsement of role of the Bowmanville
Urban Area as a Regional Centre within the Town of Newcastle's urban structure.
The Commercial Market Study concluded that at a population level of 110,500
(envisaged over the next twenty years in the Town of Newcastle) potential retail
development of up to 1 .4 million square feet can be supported within the
Bowmanville Urban Area. This represents an increase of 675,000 to 1 million
square feet over existing and approved retail floor space, over a 20-25 year period.
r221
Conversely, the study also recognized, in the short term, that unrestricted
commercial development in Bowmanville as represented by the various applications
in the West Main Central Area, would have a serious impact on the existing
Downtown Area. It is therefore recommended that retail development be phased
in with population growth and that restrictions be placed on the amount of retail
development in the West Main Central Area, to ensure that the existing downtown
receives its "fair share" of the incremental retail potential associated with the
varying population thresholds.
The suggested distribution of retail potential over the next 20-25 year timeframe
is indicated on Table III. This allocation would distribute approximately 340,000
square feet of retail space to the existing Main Central Area, while the West Main
Central Area would accommodate approximately 600,000 square feet to create in
the long term, two sectors of the Main Central Area which are roughly equivalent
in size.
Bowmanville Main Central Area Study
Proposed Distribution of Retail Thresholds
Population Retail Distribution Total
Newcastle Population Bowmanville West MCA Existing Other Total
Threshold Population MCA Bowmanville
49,500 15,800
o existing 33,900 287,200 16,000 337,120
o approved 0 67,100' 32,4002 99,500
33,900 354,300 48,400 436,600
63,500 23,500 140,900 46,900 19,100 206,900
78,500 31 ,600 122,800 81 ,800 20,500 225,100
94,000 40,300 145,500 97,100 21 ,600 264,300
110,500 49,300 171,600 114,400 22,600 308,600
TOTAL RETAIL 614,800 694,600 132,200 1 ,441,600
Notes: i) "Approved Spaces"in existing MCA derived from Scenario 1 of the Commercial Market Study
applications (less Canadian Tire which is counted in "Existing Space" in the West MCA)
ii) "Approved Space" in Other Bowmanville derived from Scenario 2 of the Commercial Market
Study applications, not including Markborough Development's proposal
iii) Retail space is distributed to "Other Bowmanville" locations using 2.5 sq.ft. per capita
increase in population
iv) 75%of"net"increment(increment less allocation to"Other Bowmanville")allocated to"West
MCA" initially(Newcastle population threshold 63,500 persons); 60%of"net" increment at
subsequent population thresholds.
V) 25%of"net"increment allocated to "existing MCA"initially(Newcastle population threshold
63,500 persons); 40% of "net" increment at subsequent population thresholds
vi) All figures are rounded to the nearest 100. Figures may not add due to rounding.
Includes Bowmanville Mall±32,000 sq.ft. of proposed new retail uses
2 As these commercial facilities are not expected to come on stream prior to construction of associated residential
subdivisions, this development has been assumed to phase in gradually with overall population growth.
Sufficient potential has been allocated to the West Main Central Area in the first
timeframe to create a critical mass, containing a department store and
complementary retail uses in proximity to one another, which will be commercially
viable and serve as a shopping destination within the Town of Newcastle. In this
regard, it is recognized that currently, the Markborough Development proposal is
the only one comprising the department store and it is therefore suggested that
this site receive the initial allocation for the West Main Central Area. Its location
adjacent to the existing Canadian Tire will further enhance its ability to act as a
shopping destination.
Residential Development
The Town of Newcastle Municipal Housing Statement indicated a requirement for
more than 24,000 units to accommodate the population's needs over the next 20
year period. Of that total an increasing proportion (ie.7300 units) of medium and
high density dwellings will be required, reflecting the Town's changing
demographic profile. In developing alternative concepts, the structure options, it
was assumed that a significant portion of this higher density development will be
encouraged to locate in Newcastle's "downtown", the Main Central Area.
Commercial Office Development
The Bowmanville Main Central Area Commercial Market Analysis concluded that
an increase in commercial office development of approximately 250,000 square
feet would be warranted by the growth in population over the next twenty years.
However, additional office commercial potential may well arise from more
aggressive economic development strategies on the part of the Municipality. In
order to further these ends, it would be advantageous to have a supply of land
appropriately designated and zoned, in order to readily accommodate any office
commercial development opportunities within the Main Central Area.
2. Development Concepts
2.1 Development Concept: Existing Main Central Area
A major thrust of the development strategy for this original area must be to create
a structure and accompanying policies which will mitigate the effects of expansion
of the downtown in the West Main Central Area and determine more clearly the
role and character for this sector within the complete Main Central Area.
� � 3
The following measures have been suggested for this area, including:
• retention of existing administrative facilities and addition of any new
municipal services within the core area;
• encouragement of new commercial, ie.off ice and retail enterprises in
the area designated for primary retail and commercial activity,
through planning regulations (such as relaxation of parking standards)
or municipal initiatives (the creation of additional parking areas);
• reducing the size of the Main Central Area by including residential
lands into abutting residential neighbourhoods, thereby precluding
gradual encroachment of commercial uses into stable residential areas
and the dilution of the retail core;
• encouragement of higher density residential development within the
area in order to create a greater market within walking distance of
commercial and retail enterprises;
• promotion of investment and cooperation from local developers for a
marketing and renewal program, including physical improvements to
support the process of infill and redevelopment.
2.2 Development Options: West Main Central Area
In order to fully explore the potential opportunities in the West Main Central Area,
three development concepts have been elaborated:
• the "Application scenario" reflects and builds upon the various
applications which have been submitted to the Municipality, primarily
for single purpose land uses (primarily retail with some limited office
development);
• the "Main Street" scenario envisages a new street perpendicular to
Highway 2 with characteristics similar to King Street in the existing
downtown, namely integrated land uses on a network of streets and
blocks with identified public open spaces;
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I � 24
• the "Highway 2 Commercial Scenario" is a hybrid of the former two
concepts in placing the development emphasis back along Highway
2. The lands fronting the highway are envisaged as being primarily
dedicated to retail uses. Future redevelopment and intensification
potential is provided by the designation of anterior lands (probably
used for parking in a first phase) for residential uses.
Each of these scenarios was subjected to a comparative evaluation comprising
many factors including the desired nature and character of the area, its relationship
to adjacent uses, and the ability of the transportation and servicing systems to
accommodate it.
From this analysis the Main Street scenario emerged as the preferred alternative,
fulfilling many of the planning objectives of the Region and the Municipality as
elucidated in draft Official Plan and other policy documents. The Highway 2
Commercial scenario ranked second and is preferable to the Development
Application scenario in that it allows for the integration of a range of uses and
would establish a grid system of streets and blocks which would facilitate
connections between existing and future land uses, and would accommodate
intensification over the longer term.
2.3 Transportation and Municipal Services
The transportation report concludes that the three development scenarios for the
West Main Central Area and the redevelopment option for the Historic Downtown
could be accommodated by their respective road networks with feasible
improvement measures. In view of the ambitious long term densities inherent in
the West Main Central Area development options, one can conclude that levels of
development realistically anticipated within the next 20 years can be readily
accommodated.
Similarly, the report on municipal services concludes that none of the scenarios will
create demands which will exceed the capacities of the existing or intended water
and sewage infrastructure. The report indicates some potential difficulties in the
handling of stormwater on the lands north of Highway 2, and outlines potential
remedial measures.
V
225.
3. Conclusions and Recommendations
This Phase 2 report concludes that the establishment of a considerable expansion
to Bowmanville's Main Central Area must be recognized as a major initiative for
the Town of Newcastle, an initiative which is extremely complex in implementation
in view of the competing (and sometimes conflicting) nature of the objectives to
be achieved.
The study recommends the adoption of the follow principles as basic to the
creation of one cohesive Main Central Area which will serve as a true "centre" for
the Town of Newcastle:
1 . The Bowmanville Urban Area should be reinforced as a
Regional Centre within the urban structure of the Town of
Newcastle.
2. The potential implications of new retail development in the
West Main Central Area should be recognized and steps taken
to mitigate the impact on the existing Central Area, through
phasing of retail allocation to coincide with population growth.
3. The Municipality should undertake other measures to enhance
the viability of the existing downtown in the context of an
expanded Main Central Area, including:
• retention and addition of new of municipal, social or
community facilities within the Main Central Area;
• encouragement of new commercial activities through
the relaxation of parking standards and/or the expansion
of municipal parking facilities;
• encouragement and facilitation of higher density
residential development within the area;
• promotion of investment and cooperation from local
developers for a marketing and renewal program
including physical improvements to support the process
of infill and redevelopment.
Vi
U6
4. The urban structure option selected for the West Main Central
Area should establish a street and block system and public
realm component in order to provide connections among
various development parcels and the adjacent communities;
allow for integration of land uses; and provide for future
intensification. In this respect, the Main Street scenario was
deemed to be the most successful in achieving these
objectives and fulfilling the expectations of the Region and the
Municipality for the Bowmanville Main Central Area.
5. Of the two options comprising a street and block network, the Main
Street scenario was deemed preferable in that it facilitates
incremental development of the area relative to the growth in
population; it allows for the creation of a more pedestrian-oriented
environment along a local road, rather than a provincial highway; and
in reorienting the Main Street in a north-south direction, it reduces the
pressure for eventual extension of the Main Central Area boundary
and encourages intensification within the existing and newly created
sectors of Bowmanville's Main Central Area.
Vii-
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