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Staff Report
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Report To: Planning and Development Committee
Date of Meeting: February 22, 2021 Report Number: PDS-017-21
Submitted By: Ryan Windle, Director of Planning and Development Services
Reviewed By: Andrew C. Allison, CAO Resolution#: PD-073-21, C-088-21
File Number: PLN11.26 By-law Number:
Report Subject: Seniors Housing
Recommendations:
1. That Report PDS-017-21 be received; and
2. That all interested parties listed in Report PDS-017-21 and any delegations be
advised of Council's decision.
Municipality of Clarington
Report PDS-017-21
Report Overview
Page 2
Council has requested a report on a proposed privately -owned, large-scale, high -density
retirement facility at 46 Stevens Road in Bowmanville. This report seeks to provide
background and context to this proposal and seniors housing more broadly.
1. Background
Request from Council
1.1 At the December 7, 2020 Planning and Development Committee meeting, a
representative on behalf of Kingsway Arms (a seniors housing developer) and a
delegate on behalf of Kaitlin Corporation outlined a concept for a privately -owned, large-
scale, high -density retirement and assisted care campus at 46 Stevens Road in
Bowmanville. The representative from Kaitlin also discussed another Kaitlin-owned site
on the west side of Lambs Road, north of Port Darlington Road as a possible location
for seniors housing. The delegate outlined the challenges Kaitlin Corporation has faced
in developing seniors facilities and requested that Committee direct Staff to evaluate the
planning process to identify a faster way to move forward with the approval process for
this form of housing.
1.2 In response, the Committee passed Resolution PD-199-20, "That Staff report back at
the January or February 2021 Planning and Development Committee Meeting on what
the most expeditious planning process or processes are to move forward in approving a
seniors living/assisted living complex/facility at the Stevens Road location in
Bowmanville." Following the Council meeting, further discussions between the
Councillor, who brought forward the motion and Staff resulted in the request being
broadened to address the development of seniors housing in Clarington.
2. Types of Seniors Housing
2.1 Many older adults in our community lead active and healthy lives that allow them to
enjoy living in their own homes many years into their retirement. However, as we age
there is an increasing need for a variety of housing options to serve the diverse needs of
an aging population for different income groups. There is a range of seniors housing
options, from independent living with homecare to long-term care.
2.2 Below, the range of seniors housing options is grouped into three main categories:
independent living, assisted living, and long-term care.
Municipality of Clarington
Report PDS-017-21
Page 3
Independent Living — for those who do not require assistance with daily activities
• Types of living arrangements: Those living on their own in their own homes, life
lease, co -housing, co-operative housing, and retirement homes and communities
without living assistance.
• Built form: All forms of residential housing. Some, such as Wilmot Creek, include a
community centre that offers activities and some personal services.
• Location: All lands which permit residential uses where density is appropriate.
• Tenure/Affordability: Owned or rented by resident. Durham Region oversees
affordable seniors housing programs.
Assisted Living — for those who require some assistance with daily activities
• Types of living arrangements: Building containing personal rooms with limited
cooking facilities, some or all meals provided by the operator. Range of assistance
including housekeeping, laundry, medical management, transportation and personal
care.
• Built form: Usually high -density, multi -unit buildings ranging from two to six storeys.
• Location: Lands within Urban Boundary where density is appropriate. For high -
density, see locational criteria below.
• Tenure/Affordability: Monthly fees to a private, for -profit operator.
Long -Term Care Homes — for those who require extensive, ongoing care
• Types of living arrangements: Building containing private or shared rooms with
little to no cooking facilities and meals provided by the operator. On -site nursing staff
providing health care and supervising medications. On -site personal care workers
providing a range of personal services.
• Built form: High -density, multi -unit buildings ranging from two to six storeys.
• Location: Lands within Urban Boundary where density is appropriate. For high -
density, see locational criteria below.
• Tenure/Affordability: Province sets monthly fees. Subsidies available. Some are
publicly owned/operated, others are private non-profit, or private for profit.
Municipality of Clarington Page 4
Report PDS-017-21
3. Affordable Housing
3.1 Clarington's Official Plan defines affordable housing in the following ways:
3.1.1. Affordable home ownership is the least expensive of:
• housing that does not exceed 30% of gross annual household income for low
and moderate households, or
housing for which the purchase price is at least 10% below the average
purchase price in the regional market.
3.1.2. Affordable rental housing, affordable means the least expensive of:
• housing that does not exceed 30% of gross annual household income for low
and moderate households, or
• monthly rent which is at or below the average rent in the regional market.
3.2 Clarington Council committed to creating an Affordable Housing Policy as outlined the
Municipality's Strategic Plan. In December 2019, Council adopted an Affordable
Housing Toolkit (see CAO-013-19) that includes supportive regulations, expedited
approvals and financial incentives.
3.3 As part of this Toolkit, the Municipality adopted the same definition of "affordable
housing" as the Region of Durham and provided by the Canadian Mortgage and
Housing Corporation (CMHC). By this definition, affordable rental housing is 80% of the
average market rent in the Region.
4. Land Use Policies and Implementation
Official Plan Policies
4.1 Municipal Official Plan policies and zoning can permit or prohibit specific uses but
cannot permit or prohibit specific users. This means that a particular site cannot be
designated to permit a `seniors -only' use. Neither can planning regulations control the
ownership or rental requirements of a given housing development
4.2 Clarington's Official Plan defines "special needs housing" as including nursing homes
and other forms of assisted -living where medical and personal services are provided.
The Official Plan states that the Municipality supports the construction of this type of
housing by co-operative and non-profit housing organizations and encourages special
needs housing to locate within designated Centres or Corridors where higher densities
are appropriate.
Municipality of Clarington Page 5
Report PDS-017-21
4.3 Section 6.3.11 of the Official Plan outlines the criteria of assisted housing projects as
follows:
Special needs housing may be permitted within all designations where residential
uses are permitted provided that:
a. The type of special needs housing conforms to the form and density
provisions of the applicable designation;
b. Larger special needs housing projects are generally located in close
proximity to services such as community facilities, medical services,
shopping areas, parks and recreational areas, and public transit; and
c. All special needs housing shall be appropriately integrated with the
surrounding area and complies with the urban design policies of this Plan.
Location Criteria for High -density Housing
4.4 Within the Official Plan, independent living housing for seniors is viewed the same way
as all similar forms of housing — whether single -detached or multi -unit. The locational
criteria for high -density housing is outlined in the Official Plan, particularly in Table 4-3
and section 9.4.5.
4.5 High -density housing is directed to priority intensification areas which are comprised of
Centres, Corridors, Major Transportation Station Areas (MTSAs), and Waterfront Places
as identified in the Provincial Growth Plan, the Region's Official Plan, and Clarington's
Official Plan. This is because these areas provide an array of retail and personal
services, office, residential, cultural, community, recreational and institutional uses.
Further, high -density housing near this diversity of uses promotes active transportation
and optimizes access to and utilization of public facilities.
4.6 High -density housing needs to be compatible with the surrounding neighbourhood in
terms of scale, massing, height, siting, setbacks, shadowing, and the location of parking
and amenity areas. Generally, high -density housing should be clustered in areas where
it complements the character of the adjacent neighbourhood and maximizes available
services and infrastructure.
4.7 The specific sites of high -density housing should be suitable in terms of size and shape
to accommodate the proposed density and building form. Multiple vehicular access from
a public street should be provided for each townhouse or apartment block and traffic
impacts should be minimized. To support transit -oriented development, high -density
housing should be located along regular transit routes to provide ease of access to
amenities for those who do not drive.
Municipality of Clarington Page 6
Report PDS-017-21
4.8 As noted above, the Official Plan policies for "special needs housing" provide direction
for the appropriate location for the variety of forms of assisted -living seniors housing.
Multi -unit seniors housing should be integrated into residential areas where higher
densities are appropriate and permitted such as Local and Regional Corridors, and
Urban and Village Centres. These larger facilities should be in close proximity to
community facilities, medical services, shopping, parks, recreation and public transit.
4.9 Along with the locational criteria outlined above, multi -unit seniors housing should also
have special consideration for shuttle buses, safety of residents and access for
ambulances and other emergency vehicles. Depending on the level of care provided,
additional considerations may need to be contemplated for on -site healthcare workers
and other employees as well as deliveries of food, linens, and other essential items.
5. Specific Sites
Current Projects
5.1 Bowmanville Creek Retirement Community at 105 Queen Street is within an Urban
Centre where higher densities are appropriate. The site also meets other locational
criteria outlined above as it is in proximity to green spaces, shopping and services,
transit, and community facilities. The initial phase, consisting of a 143-unit retirement
home, was approved in 2014 and is complete. The second phase is currently
proceeding through the site plan approval process. It will be an addition to the south
side of the existing building for an additional 114 units.
5.2 The Newcastle Lodge for Seniors Family Dwellings (aka "Parkview Seniors Lodge") at
153 & 165 King Ave East, received site plan approval for an expansion in 2020. A three -
storey, 37-unit addition to the existing two -storey, 43-unit seniors residential building is
currently under construction. The new units will provide for independent living housing
for seniors. This site meets locational criteria as it is within a Village Centre, and is close
to shopping, services, green space, community facilities, transit and other amenities.
5.3 A Secondary Plan update is underway for Wilmot Creek. Preliminary concepts call for a
mix of units including independent and assisted living for seniors. The greenfield area to
be developed is 17.64 hectares and includes an 8-10 storey assisted -living facility along
with a variety of other residential and mixed -use built forms. The project is expected to
meet locational criteria outlined above by providing a diversity of uses and recreational
spaces alongside the high -density assisted -living facility.
Municipality of Clarington Page 7
Report PDS-017-21
5.4 Council supported the request for a Ministerial Zoning Order in October of 2019 for a
property at 285 Boswell Drive at Brookhill Boulevard that the Rekker family are donating
to Glen Hill Terrace Durham Christian Homes Inc. (DCH). DCH is a non-profit long-term
care provider with two facilities in Bowmanville, Glenhill Marnwood at 26 Elgin Street
and Glenhill Strathaven at 264 King Street East. This new DCH location will allow them
to build a new facility to replace the beds they have at the two existing facilities plus add
another 124 beds, which they have approval from the Province for.
5.5 There are other retirement homes, seniors social housing and long-term care facilities in
Orono, Newcastle, Courtice, and Bowmanville including Season's Retirement Facility at
65 Clarington Boulevard.
46 Stevens Road, Bowmanville
5.5 46 Stevens Road in Bowmanville is the site that both delegates suggested for a
privately -owned, large-scale, high -density retirement facility (see Figure 1). The property
is within the Brookhill Secondary Plan area. An update to the Secondary Plan is near
completion. An essential component of achieving final approval of this Secondary Plan
update is the recommendation to prepare a Block Master Plan in the area bounded by
Bowmanville Avenue, Bowmanville Creek, Stevens Road and Linden Lane. Creating a
Master Block Plan will permit the rest of the Secondary Plan area to be developed while
the Block Master Plan is separately drafted and finalized. The proposed large-scale,
high -density retirement facility at 46 Stevens Road would be considered as part of the
development of the Block Master Plan.
5.6 In correspondence received on October 19, 2020, Kaitlin Corporation agreed to the
creation of a Block Master Plan and acknowledged that development of these lands
would proceed independently from the rest of the Secondary Plan area (Attachment 1).
5.7 Kaitlin's correspondence stated their belief that 46 Stevens Road can support higher
density land use permissions, though their letter does not specifically state this would be
in support of a high -density retirement facility.
5.8 The 46 Stevens Road proposal by Kaitlin has already been presented at different
meetings during the preparation of the Secondary Plan. It was also the subject of
delegations and written comments when the Municipality held the statutory public
meeting on September 28, 2020 (see PSD-032-20). Many of the comments call for
maintaining the character of the area within the Block Master Plan area, while Kaitlin
and a few other landowners wished to see lands redeveloped with high densities.
Municipality of Clarington
Report PDS-017-21
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Figure 1: 46 Stevens Road, Bowmanville
Municipality of Clarington Page 9
Report PDS-017-21
5.9 Aside from neighbourhood acceptance, there are a number of issues that would need to
be addressed to allow a large-scale, high -density retirement facility at 46 Stevens Road:
• The site does not meet the location criteria outlined above as it is not within a
priority intensification area and does not have direct access to transit service.
• The property is adjacent to residential estate properties on Munday Court.
Development would need to be evaluated with regard to neighbourhood
compatibility in terms of scale, massing, height, siting, setbacks, shadowing, and
the location of parking and amenity areas.
• On the east and north sides of this property are Bowmanville Creek, valleylands,
and other elements of the natural heritage system that should be protected.
• Preliminary environmental studies for the Brookhill Neighbourhood Secondary
Plan Update show the existing Stevens Road is not beyond the limit of stable
slope of the valley.
• An environmental impact study is required to determine the developable limits of
the site. The developable area may be less than what can support the scale of
the proposed development.
• The site is at the end of a dead-end local road, not an arterial, and does not
provide more than one access. Section 19.6.3 c) of the Official Plan states that
cul-de-sacs are generally not permitted.
• There are serious concerns about access for the multiple residents, employees,
deliveries, and, especially, emergency vehicles. Were there to be an accident or
other incident at the intersection of Stevens Road and Bowmanville Avenue, the
property may not be accessed at all.
5.10 Staff has had a number of meetings with Kaitlin representatives on these issues.
Approving the Secondary Plan recommendation for a Block Master Plan would allow the
neighbourhood residents to be engaged in designing the future development of the
area. The Block Master Plan could be initiated once Council approves the Brookhill
Neighbourhood Secondary Plan update.
Municipality of Clarington Page 10
Report PDS-017-21
5.11 Resolution #PD-199-20 asks Staff to provide the most expeditious planning process to
approve a large-scale, high -density retirement facility at 46 Stevens Road. What may be
expeditious for 46 Stevens may delay the approval of the rest of the Secondary Plan.
Further, approving high -density on this site does not guarantee that it will result in
seniors housing, or affordable housing. The updated Brookhill Secondary Plan will be
presented to Council for approval before summer recess in 2021. Part of this Secondary
Plan is the Future Block Master Plan for the area that includes this site. The
development of that Block Master Plan will include further public consultation,
environmental impact studies, traffic studies, and other important information to help
determine the appropriate forms of development on this site.
Lambs and Port Darlington Road — the "Lakebreeze" site
5.12 During the delegation to the Planning and Development Committee, the representative
from Kaitlin outlined his view of the challenges faced in proposing seniors housing on
lands on the west side of Lambs Road, north of Port Darlington Road. Kaitlin has owned
this site for many years. It is currently zoned to permit an assembly hall and private club.
Environmental and other studies are required to determine the developable area of the
site.
Figure 2: Location of "Lakebreeze" site
Municipality of Clarington Page 11
Report PDS-017-21
5.13 The Lakebreeze property and surrounding lands are within the Port Darlington
Neighbourhood Secondary Plan. This Secondary Plan precedes OPA 107 and is not in
conformity with the updated Official Plan. There are other proposals in the area, such as
the redevelopment of lands at the Port Darlington marina. The Port Darlington
Secondary Plan needs to be updated to determine what densities are appropriate,
where higher densities are appropriate, and how other policy objectives can be
achieved.
5.14 Staff met with Kaitlin representatives who agreed to proceed with the update to the
Secondary Plan. Kaitlin provided a terms of reference for the Secondary Plan update.
Staff circulated the terms of reference to all relevant agencies for comments and revised
the terms of reference based on those comments. These revised terms of reference
were returned to Kaitlin in May of 2020. As of February 2021, Staff have yet to receive a
reply.
6. Concurrence
Not Applicable.
7. Conclusion
7.1 Planning Staff are supportive of providing a variety of forms of seniors housing in the
Municipality. Generally, multi -unit seniors housing should be located in areas where
high -density is appropriate and considered in the broader context of the area and
neighbourhood character. One of the sites identified in the delegations is in an area
undergoing a Secondary Plan update, while for the other we are waiting from Kaitlin to
initiate the update of the Port Darlington Secondary Plan. These updates should be
completed to ensure these specific proposed developments meet the Municipality's
broader policy objectives, are appropriate, and fit within the broader neighbourhoods.
Staff Contacts: Mark Jull, Planner II, 905-623-3379 ext. 2426, mjull(0)_clarington.net ; Carlos
Salazar, Manager of Community Planning and Design, 905-623-3379 ext. 2409,
csalazar(c)_clarington.net
Attachments:
Attachment 1 - Correspondence from Kaitlin dated October 19, 2020
Interested Parties:
List of Interested Parties available from Department.
WESTON
fol CONSULTING
planning + urban design
Community Planning and Design
Municipality of Clarington
40 Temperance Street
Bowmanville, Ontario L1C-3A6
Attn: Carlos Salazar, Manager of Community Planning and Design
Dear Sir,
RE: 46 Stevens Road: Comments on Draft Secondary Plan
Attachment 1 to Report
PDS-017-21
October 19, 2020
File 9726
Weston Consulting is the authorized planning consultant for VAD Retail Limited, the registered
owner of 46 Stevens Road. which is herein referred to as the "subject lands". The registered
owner is a company under the control of Kaitlyn Corporation.
The subject lands are located east of Bowmanville Avenue and north of King Street West, in
Bowmanville. The subject lands comprise an approximate gross area of 8.7 hectares (21.5 acres),
have an approximate lot frontage of 71.14 metres (233.40 feet) along Stevens Road and have an
approximate depth of 188.20 metres (617.45 feet). The subject lands currently contain a single
detached dwelling, accessory structure and tennis court.
On May 7, 2020, correspondence was submitted to Municipal Staff to highlight a framework of the
objectives to foresee how we envision the lands evolving through a planning application process,
which included a "Block Precinct Plan" approach in support of the correspondence. On June 5,
2020, further correspondence was provided to Municipal Staff in response to the Public Information
Consultation #3. This correspondence highlighted that the emerging plan presented, did not
articulate a specific density framework for the subject lands and suggested an approach to the
development of this block. Prior to the September 28, 2020 Special Planning and Development
Committee Meeting, we provided the correspondence mentioned above to the Clerks' Department
and the correspondence was received and added to the agenda as formal input to the Brookhill
Secondary Plan process.
In addition, on September 16, 2020, we submitted materials for a pre -consultation application,
inclusive of a terms of reference for a Block Precinct Process. The terms of reference outlined the
necessary studies and plans, in order to allow for the precinct process to proceed concurrent with
the Secondary Plan process.
We have yet to receive formal feedback or a formal response to our correspondence noted above,
yet have had constructive discussions with yourself about the process.
Vaughan Office 201 Millway Avenue, Suite 19, Vaughan, Ontario L4K 5K8 T. 905.738.8080 westonconsulting.com
Toronto Office 268 Berkeley Street, Toronto, Ontario M5A 2X5 T. 416.640.9917 1-800-363-3558 r. 905.738.6637
2
We have reviewed Draft 1 — Brookhill Neighbourhood Secondary Plan, ("the plan") dated
September 2020 and provide the following comments in response, which we request be provided
as further input to the draft secondary plan.
We understand that the subject lands' proposed designation in the plan is Low Density Residential,
which allows for predominantly single detached and semi-detached dwellings as well as limited
street townhouses. The prescribed height is three storeys and 10.0 metres and the net densities
are to be in accordance with Table 4-3 of the Clarington Official Plan. Furthermore, upon reviewing
Table 4-3, we understand that the net densities for each locational criterion does not have a
specified maximum unit per hectare (UPH). It is our opinion that the underlying designation
mentioned above, coupled with the lack of prescriptive maximum UPH, should not preclude the
subject lands achieving increased height and density, as set out though a process outlined in
proposed Section 10.9 of the draft secondary plan.
It is our opinion that the proposed designation should be Medium Density Residential and/or High
Density Residential given that they present a unique development opportunity, are physically
separated from other lands within Brookhill and have different characteristics than other areas.
Section 6.0 of the proposed plan speaks to encouraging housing diversity and aging in place.
Higher forms of density, including townhouses, apartment forms and seniors' residence present
attractive housing types unique to the area and the addition of seniors' dwellings allows residents
to age in place in Bowmanville.
The subject lands are essentially surrounded by environmental lands which provide a buffering to
the current existing built form to the west. Given the subject lands' proximity to Bowmanville
Avenue, its adjacency to future higher order transit and other community facilities, it is logical and
appropriate that the subject lands' support higher density land use permissions. The subject lands'
locational attributes play a valuable role as they are in proximity to a key intersection (Durham
Regional Road 57 and Highway 2), which is the future location of the proposed Metrolinx
Bowmanville GO Station. In our opinion, identifying these lands for future medium and/or high -
density residential uses through a Block Master Plan process would be appropriate from a land
use planning perspective.
We reiterate our prior position that the Block Master Plan can and should proceed concurrent with
the site -specific applications, through a planning process utilizing the terms of reference provided
on May 7, 2020 and the policy foundation in proposed secondary plan Section 10.9. Furthermore,
it is our planning opinion that any land use designation should not preclude potential residential
designations including alternative height and density for the subject lands and pursuant to the
master plan planning approach. Should the Block Master Plan approach not be found appropriate,
we would wish to proceed with the site -specific applications for the subject lands, and would
request the pre -application checklist be provided in accordance therewith.
We have also reviewed the Draft Sustainable Urban Design Guidelines, dated September 2020.
As input to the process, we request that these guidelines not be set out to be prescriptive and
applied as policy, but rather that they provide guidance and direction towards the evaluation of
applications.
Vaughan Office 201 Millway Avenue, Suite 19, Vaughan, Ontario L4K 5K8 T. 905.738.8080 westonconsulting.com
Toronto Office 268 Berkeley Street, Toronto, Ontario M5A 2X5 T. 416.640.9917 1-800-363-3558 F. 905.738.6637
3
With respect to proposed policy 10.9 b), we request that subsection (i) include the specific building
typology, height, and density, in addition to other items noted in order to better guide the future
development of the area that would be subject to the Block Master Plan.
As mentioned above, we are committed to the advancement of the development of the subject
lands, concurrent with the ongoing Secondary Plan process and are looking forward to receiving
Municipal feedback on the comprehensive submission from September 16, 2020 and the
comments herein. We look forward to receiving your feedback on the terms of reference and we
are keen to facilitating the collaborative initiation of the Block Master Plan process to further the
development of the subject lands.
If you have any questions or comments, please do not hesitate to contact the undersigned (ext. 241) or
PauPT�io ta4,ext. 290).
rs truly,
;ton Con
MCIP, RPP
C. KaIVI GUrpuration
Greg 1314er, Municipality of Clarington
Vaughan Office 201 Millway Avenue, Suite 19, Vaughan, Ontario L4K 5K8 T. 905.738.8080 westonconsulting.com
Toronto Office 268 Berkeley Street, Toronto, Ontario M5A 2X5 T. 416.640.9917 1-800-363-3558 F. 905.738.6637