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Report To: Planning and Development Committee
Date of Meeting: February 1, 2021 Report Number: PDS-010-21
Submitted By:
Reviewed By:
File Number:
Report Subject:
Faye Langmaid, Acting Director of Planning and Development Services
Andrew C. Allison, CAO By-law Number:
PLN 7.17 Resolution#: PD-042-21
Development Applications – 2020 Annual Report
Recommendation:
1.That Report PDS-010-21 be received for information.
Municipality of Clarington Page 2
Report PDS-010-21
Report Overview
In 2020, the Planning and Development Services Department received 145 development
applications, not including applications for apartment-in-house and sign permits.
Together, the 145 applications are proposing a total of:
1253
new housing units
(a decrease of 432 units
compared to 2019)
21,772
square metres of
industrial and commercial
space (a decrease of
51,911 square metres
compared to 2019)
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Report PDS-010-21
In addition to receiving new applications, open applications from previous years continued to be
processed by Planning and Development Services staff, with assistance of other Departments.
The following highlights approvals this year:
2 plans of subdivision were issued Draft Approval comprising 107 housing units.
1 extension to Draft Approved Subdivision proposing a block for 548 housing and
commercial floor space in mixed-use buildings.
4 condominium applications draft approved for 365 housing units.
1 draft approved Plan of Condominium was registered for 97 housing units.
6 part lot control approvals creating 319 housing units.
3 Official Plan amendments approved
6 Zoning By-law amendments approved
22 Site Plan applications approved for 541 housing units and 44,696 square metres of
industrial and commercial space.
51 Minor Variance applications approved, 1 tabled (deferred), 2 withdrawn
27 Land Division Committee decisions for approval to create 13 new urban residential
lots, 2 new rural residential lots, 2 new industrial lots, 1 new institutional lot.
In 2020, approvals resulted in the following: re m
d commercial space al and commercial space and 44,696 square metres of industrial and
commercial space
Staff also coordinates the registration of any apartment -in-house and issue Sign Permits for
businesses within the Municipality.
64 new applications for Apartment-in-House 34 temporary signs issued
& 26 additional units registered & 25 permanent signs issued
1253 new housing units 44,696 sq. m of
industrial/commercial space
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Report PDS-010-21
1. Purpose
1.1. This report summarizes planning activity within the Municipality of Clarington for 2020.
1.2. This report also compares 2020 activity with previous years’ activity to assist with
identifying emerging issues and possible trends.
Figure 1: Percentage of applications by urban and rural areas
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2. Policy Planning and Implementation
2.1. The Planning and Development Services Department initiates, amends, and completes
a wide variety of policy documents that include official plan amendments, secondary
plans, design guidelines, and other studies.
Official Plan Amendments
2.2. The Clarington long range land use policy document
outlines goals, objectives and policies for the entire
Municipality. An Official Plan Amendment may have
the effect of changing a land use designation
contained in the mapping, modifying the text or policy
of the Official Plan, or both. Official Plan amendments
can be privately initiated or Municipally-initiated.
2.3. In 2020, five Official Plan Amendment applications
were received. Two applications were privately
initiated. One application was to develop a community
vision for the Jury Lands, but deemed incomplete,
while the other was to allow for residential
development in Courtice. The remaining three
applications were to initiate work on secondary plans.
2.4. Three Official Plan amendments were approved this year. The amendment to the
Southeast Courtice Secondary Plan was adopted by Council and is under review by the
Region of Durham, who is the approval authority. The other amendment implemented
the recommendations of the Neighbourhood Character Study in Bowmanville. Lastly,
approval was granted to amend the Southwest Courtice Secondary Plan into conformity
with the Clarington Official Plan to allow for residential development to proceed.
Secondary Plans and Studies
2.5. Secondary Plans detail policies, in conformity with the Official Plan, to guide growth and
development in defined areas of the municipality where major changes are expected.
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Figure 2: Secondary Plans
2.6. In 2020, there were eleven secondary plans underway. Eight of the eleven are for new
secondary plan areas while the remaining are updates to existing secondary plans:
1. Soper Hills Secondary Plan
2. Soper Springs Secondary Plan
3. Bowmanville East Secondary Plan
4. Bowmanville West Urban Centre Secondary Plan Update and Major Transit
Station Area Secondary Plan
5. Brookhill Secondary Plan Update
6. Courtice Employment Lands
7. Courtice Energy Park Update including Courtice Waterfront.
8. Southwest Courtice Secondary Plan
9. Southeast Courtice Secondary Plan (approved)
10. North Village Secondary Plan
11. Wilmot Creek Secondary Plan
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2.7. Council approved the Southeast Courtice Secondary Plan in December 2020, it has
been forwarded to the Region, as the approval authority. Once approved, the Southeast
Courtice area is expected to undergo significant growth and development, with a
planned population of approximately 12,694 residents and 5,036 residential units.
2.8. Further, two subwatershed studies are underway. Subwatershed studies provide
detailed technical information regarding watercourses and inform appropriate land use
development within those areas.
Neighbourhood Character Study
2.9. The Neighbourhood Character Study was
initiated due to concerns from residents
regarding new and replacement housing
developments that were viewed as being
incompatible with the character of the Elgin,
Central and Memorial neighbourhoods in
Bowmanville. In July of 2020, Council approved
Official Plan Amendment No.123 and By-law
2020-050, thus implementing the study. The
Neighbourhood Character Overlay Zone
provides direction for future development to
reflect the characteristics of these established
neighbourhoods.
ZONE Clarington
2.10. ZONE Clarington will bring the Municipality’s Zoning By-laws into conformity with the
Official Plan while consolidating Zoning By-laws 84-63 and 2005-109 into one
comprehensive document. In October of 2019, work on the Rural Areas was deferred to
allow staff time to address concerns from residents regarding environmental mapping in
the draft regulations. By the end of 2020, staff were directed to resume working on Zone
Clarington (rural and urban). Within the year, 141 people were added to the Interested
Parties List, 63 written submissions were received, and staff responded to 143 inquires.
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Jury Lands
2.11. In 2017, the Municipality retained DTAH, an urban
design firm, to assist with an overall vision for the
former Boys Training School (Camp 30). In
collaboration with the Jury Lands Foundation,
property owners and staff, a Community Vision was
developed and accepted by Council in November of
2020. Staff along with the consulting team will
continue working on refining draft Official Plan
Amendment No.121 to implement the vision,
comments received from residents and the land
owners.
Minister’s Zoning Order for Bowmanville Home
Hardware
2.12. Other significant projects in 2020 include Council’s support of Bowmanville Home
Hardware’s request for a Minister’s Zoning Order (MZO) to construct a building supply
outlet store at 2423 Rundle Road. An MZO is a rarely used planning tool that allows the
Minister of Municipal Affairs and Housing to zone land without going through the
planning approvals process including public consultation. In this instance, the developer
has committed to following the site plan approval process, once the Minister grants the
MZO.
3. Plans of Subdivision
3.1. Staff prepare reports to Committee and Council on applications to meet the
requirements of the Planning Act for a Public Meeting when approval is recommended.
Most subdivision applications take a number of months if not years to reach draft
approval. Typically, there are revisions to drawings and supporting documents before a
proposed plan is recommended for draft approval. The Director of Planning and
Development Services is the delegated authority to approve plans of subdivision based
on Council’s approval of the conditions.
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New Applications
3.2. In 2020, two new subdivision applications were received proposing 1071 residential
units, both applications are within Bowmanville.
3.3. Bowmanville continues to be one of the primary residential growth areas within the
municipality. It is expected that as the Secondary Plans currently underway are
completed, the Urban Areas of the municipality will continue to see new applications for
plans of subdivision in future years.
3.4. Compared to previous years, apartment units (excluding apartment-in-house units) are
the dominant form of housing being applied for in subdivision applications in 2020. It is
expected that apartment units will continue to represent a larger percentage of units
applied for in the coming years due to direction from Provincial Policy for a broader
range of housing options to create complete communities within Settlement Areas.
Draft Approval and Extensions to Draft Approved Subdivisions
3.5. Two plans of subdivision were granted draft approval, in 2020. The number of Draft
Approved plans remained consistent with 2019. Draft approval was issued for single -
detached and townhouse units in Courtice. Once registered, it will contribute 107
residential units to the Municipality’s housing stock.
3.6. In accordance with the Planning Act, Clarington typically provides for a three year
period to meet all conditions with Draft Approval. When Final Approval is not achieved
within the time frame provided, the owner can make an application for extension to the
Draft Approval. One extension to Draft Approved Subdivision was approved in
Bowmanville for a mixed-use development with 548 residential units and commercial
floor space in mixed use buildings.
0
200
400
600
800
1000
1200
2017 2018 2019 2020Residential UnitsNew Subdivision Applications Received by
Geographic Area
Courtice Bowmanville Newcastle
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Final Approval
3.7. In 2020, there were three new plans of subdivisions registered in the Municipality,
totalling 93 new residential units. The registered subdivisions were for single-detached
and townhouse units in Courtice, Bowmanville and Newcastle.
4. Part Lot Control
4.1. Exemption from Part Lot Control applications allow lots and/or blocks within a registered
Plan of Subdivision to be further divided. Typically, exemption from Part Lot Control is
used where semi-detached or townhouses are to be split-up and individually sold. It is
also used to create lots, known as parcels of tied land (POTL’s) in common element
condominiums. Applications are processed by Staff. An implementing by-law must be
adopted by Council. The by-law is registered on title by the Legislative Services
Department which creates the POTL’s or lots as the case may be.
4.2. In 2020, a total of twelve Part Lot Control applications were received, six of which were
approved. These six approvals created 319 townhouse units in Bowmanville.
Courtice
17 units
18%
Bowmanville
25 units
27%
Newcastle
51 units
55%
Final Approved Residential Units by Geographic Area
Courtice Bowmanville Newcastle
Municipality of Clarington Page 11
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5. Plans of Condominium
5.1. A condominium is the form of housing
tenure which are most commonly used for
townhouses and apartment buildings. Four
applications for plans of condominium were
received in 2020. Three received draft
approval within the same year, contributing
a total of 260 townhouse units to
Bowmanville’s housing stock. One
application remains open in Newcastle
proposing 65 apartment units.
5.2. In 2020, three condominium applications
received Draft Approval and once
registered, this will provide for 268
townhouse units in Bowmanville. In addition,
one Plan of Condominium received final
approval, creating 97 townhouse units in
Bowmanville.
5.3. While condominium applications slightly increased in 2020, draft approvals remained
the same as the year prior. It is expected that the municipality will continue to receive
applications as condominium tenures contribute to density targets identified in the
Official Plan and Secondary Plans.
6. Zoning By-law Amendments
6.1. A rezoning application is a request to change permitted uses or development
regulations on a property. Often, applications are accompanied by another Planning Act
application such as a Site Plan.
6.2. Zoning by-law amendment applications also include By-laws for the removal of a
Holding provision, which is used to ensure that municipal requirements are implemented
through development agreements.
6.3. Similar to 2019, the municipality received and approved a similar number of
applications. In 2020, 11 zoning by-law amendment applications were received, and 9
applications approved. A key difference this year is a n increase of mixed-use
applications, particularly in Courtice.
7. Site Plans
7.1. The Clarington Site Plan Control By-law requires site plan approval for the majority of
commercial, industrial, institutional, and multi-residential developments, as well as most
development applications on the Oak Ridges Moraine. Previously, Site plan approval
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authority was delegated jointly to the Director of Planning Services and the Director of
Engineering. In 2020 with the organizational changes, Council supported the
modification of the process to ensure that both departments agree; approval is now
solely delegated to the Director of Planning and Development Services .
Residential Activity
7.2. There were 9 residential site plan applications received in 2020, which proposed 290
new residential units. The largest application was for a high density apartment block
proposing a four-storey and six storey apartment building, totalling 270 housing units in
Port Darlington. A majority of the applications were for de velopment in the Oak Ridges
Moraine for single detached dwellings or
additions thereto, accessory structures or
farm buildings.
7.3. In terms of applications approved, 541
residential units were added Clarington’s
housing stock. A significant portion of the
residential units are in the form of apartment
and townhouse developments in
Bowmanville, Courtice, and Newcastle, with
the remaining being single-detached
dwellings. A notable project is in Newcastle,
where an application for a three-storey
addition to the Parkview Seniors Lodge will
increase resident capacity by adding 37
units, with 30 units being affordable.
Non-residential Activity
7.4. As for non-residential applications, 18 applications were received this year, proposing
21,772 square metres of commercial and industrial floor space, and 23,770 square
metres of institutional space for the expansion of the Durham Regional Police Services
Complex.
7.5. Applications for industrial development largely took the form of expansions to existing
facilities to accommodate increased production. Due to COVID-19, applications were
made by Ontario Power Generation to ensure physical distancing amongst workers,
thus requiring covered walkways and additional lunchroom space. In addition, four
applications for new facilities were received in Bowmanville, including new headquarters
for Clearwater Structures Inc.
7.6. One commercial application was received this year for three buildings with office, retail
and restaurant uses in Bowmanville, totalling 4147 square metres of commercial space.
7.7. Spicer Square in Bowmanville continues to develop with approval received this year for
a 6-storey Marriott Hotel and a 2-storey commercial building. While in Courtice, Site
0
100
200
300
400
500
600
700
800
2019 2020Residential UnitsResidential Site Plan Activity
Over the Years
Received Approved
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Plan Approval was issued for 32,215 square
metres of industrial and office space to
accommodate the new East Penn Battery
facility. The Durham Region Hospice in
Newcastle has also been issued approval for
1,490 square metres, equating to 10 rooms.
7.8. In total, 44,696 square metres of commercial
and industrial floor space was approved in
2020. Although non-residential activity has
declined compared to 2019, it is worthwhile to
note that activity in 2019 was largely credited
to interest from cannabis production facilities
representing 36% of site plan activity.
8. Pre-Consultation Meetings
8.1. The Municipality adopted By-law 2007-192, which requires a pre-application
consultation meeting prior to the submission of most development applications.
Ultimately, the “pre-consultation” meeting will speed up the application process by
ensuring the applicant is fully aware of the planning process and its requirements.
Although the details of pre-consultation meetings are confidential, the number of pre-
consultation applications provides a general indication of future proposals. Trends for
2020 included:
Increasing interest for mixed-use and major residential development (more than
three units) in Bowmanville, Courtice and Newcastle.
Decline in interest in minor residential development (three or less units)
8.2. Pre-consultations for mixed use development continue to be popular. The municipality
foresees that with the progress on the Secondary Plans, the urban area s will see more
targeted growth in the form of mixed-use and major residential development.
0
10,000
20,000
30,000
40,000
50,000
60,000
70,000
80,000
2019 2020Total Floor Area (Square Metres)Non-residential Activity over
the Years
Received Approved
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9. Minor Variances
9.1. The Committee of Adjustment is appointed by Council to make decisions on minor
variances to the Municipality’s two
Zoning By-laws. Staff assist the
Committee in its decision by
accepting applications, preparing
recommendation reports and
responding to questions from
members and residents during
meetings.
9.2. Typically, a vast majority of minor
variance applications are from
residents looking for relief from a
zoning regulations to construct
structures like decks, sheds, or
garages. This year, there were
sixteen variance applications that
were related to a development
applications. Variance requests pertained to height, lot coverage, garage width and
setbacks for townhouse developments, apartment buildings, and single-detached
dwellings.
9.3. In addition, there were two applications within the Neighbourhood Character Study area.
One was received during the Interim Control By-law, which limited development in the
neighbourhoods of Bowmanville while the Neighbourhood Character Study was in
process. The other was after the adoption of Official Plan Amendment No.123 and By-
law 2020-050 which implementing the Neighbourhood Character Zoning Overlay. In
both cases, staff maintained ongoing conversations with applicants to ensure that the
variances requested maintained the character of the neighbourho od.
9.4. Compared to 2019, this year saw an increase in minor variance applications received
largely credited to an increase interest in home improvement projects within existing
dwellings. With the COVID-19 pandemic, it is expected that the influx of variance
applications related to home improvement projects will continue to dominate the
application type into 2021.
0 10 20 30 40 50 60
Minor Variance Applications
Received by Type
Accessory Structuresand Uses
Related to Land Division application
Related to Development application
Other (Neighbourhood Character Study area, Expansion of Legal
non-comforming use, Non-compliance due to change of use)
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10. Land Division Applications
10.1. The Planning and Development Services Staff provide coordinated comments for all
Clarington departments to the Durham Region Land Division Committee on consent
applications.
10.2. In 2020, there was an increase in number of applications for severance, boundary
adjustments and easements compared to the prior year. Of the twenty-nine
applications, twenty-seven were approved and two were tabled (deferred) and will be
heard in 2021. Of these applications, the following lots were approved:
13 new urban residential lots
2 new rural residential lots
2 new industrial lots
1 new institutional lot as part of the MZO for a long-term care home on Boswell Drive
in Bowmanville
0
5
10
15
20
25
30
35
40
45
50
2017 2018 2019 2020ApplicationsComments to Land Division Committee
by Type
New Lots Boundary Adjustments Easements
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11. Apartment-in-House
11.1. The Planning and Development Services Department coordinates apartment-in-house
applications to help ensure they are designed in accordance with the Ontario Building
Code, located in the appropriate urban residential zones and there is sufficient parking.
11.2. Apartment-in-house applications allow for an additional unit within an already-
constructed dwelling. The registration of an apartment-in-house contributes to the
affordable housing stock within the municipality. In 2020, there were 64 units applied
for, while 26 units were registered this year.
11.3. Compared to 2019, there was a significant increase in the number of apartment-in-
house applications received, while the number registered slightly decreased. With
provincial and local policy advocating for more affordable housing, it is expected that
apartment-in-house applications will continue to be more popular across the
municipality to address the needs of changing demographics, such as the ability to age
in place.
0
5
10
15
20
25
30
35
40
45
50
Courtice Bowmanville NewcastleResidential UnitsNew Apartment-in-House Applications Received by
Geographic Area
2017 2018 2019 2020
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12. Sign Permits
12.1 Sign permits, which are required for most
signs within the municipality, are divided into
two categories: permanent and temporary.
12.2 Compared to previous years, sign permit
application activity decreased. There
continues to be great interest in temporary
signs due to existing businesses requiring
signage to notify customers of operational
changes during the COVID-19 pandemic; 34
temporary signs were issued this year.
Permanent signs are often applied for when
new businesses request updated artwork or
are opening. In 2020, only 25 permanent
signs were issued a significant decrease
from the year prior where 133 sign
applications were received.
13. Conclusion
13.1. Despite the effect of the COVID-19 pandemic, planning application activity has
remained strong in 2020 and continued growth is anticipated for the coming years. The
processing of the eleven Secondary Plans and planned GO Stations continue to lead
development interest. Once completed, a surge of applications in these Secondary Plan
areas are anticipated.
13.2. Compared to previous years, it is evident that apartment units are increasingly
becoming the preferred housing type when it comes to planning applications. Data from
recent years demonstrates developers are shifting from traditional residential
subdivisions and providing variety in unit types to create complete neighbourhoods. This
will better service the changing demographics of the Municipality with a wider range of
housing options and better access to services in the three urban areas.
13.3. The industrial areas in Bowmanville and Courtice continues to attract new businesses
due to its proximality to major transportation networks and planned local improvements.
In this year, site plan activity for the industrial sector mainly saw expansions to existing
buildings to accommodate increased production. Significant achievements include
continued progress on the new 3459 square metre Clearwater Structures headquarters
application. Once approved, the facility will house skilled labourers and manufacture
equipment for bridge construction and rehabilitation across the province. To add,
approval for over 32,000 square metres was issued to accommodate the new East
Penn Battery Facility. The facility also includes office space to serve as the national
headquarters for East Penn, a company which specializes in battery post-production,
distribution and recycling across Canada.
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13.4. With strong policies directing development in Courtice, Bowmanville and Newcastle, the
integrity of the natural and agricultural network in the Municipality is able to remain
strong and well-connected.
13.5. Detailed charts for each application type, identifying applications received and approved
can be obtained by contacting the Planning and Development Services Department.
Staff Contact: Catherine Huynh, Planner I, 905-623-3379 extension 2428 or
chuynh@clarington.net.
The following interested parties will be notified of Council's decision:
Region of Durham Planning and Economic Development
Durham Region Home Builders Association
Clarington Board of Trade