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Staff Report
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Report To: Planning and Development Committee
Date of Meeting: October 4, 2021 Report Number: PDS-051-21
Submitted By: Ryan Windle, Director of Planning and Development Services Andrew
Reviewed By: C. Allison, CAO Resolution#: PD-224-21, C-340-21, PD-267-21
File Number: COPA2018-0003, PLN34.5.2.64 By-law Number:
Report Subject: Jury Lands (Camp 30) Recommended Amendment No 121 to the
Clarington Official Plan — Information Report
Recommendations:
1. That Report PDS-051-21 and any related communication items, be received;
2. That based on Council direction staff finalize the recommended Official Plan
Amendment for Special Policy Area F, Jury Lands (Camp 30);
3. That all interested parties listed in Report PDS-051-21 and any
delegations be advised of Council's decision.
Municipality of Clarington
Report PDS-051-21
Report Overview
The Jury Lands, Bowmanville / Special Policy Area F: Block Master Plan, Urban
Design Guidelines and Official Plan Amendment No. 121 (Report PDS-044-21
Attachment 1) was deferred to the October 4, 2021 Planning and Development
Committee.
Page 2
The lands are bounded by Lambs Road, the CPR tracks, Soper Creek and Concession
Street East. The central portion of the property has significant cultural and historic
value to the residents of Clarington, Ontario and Canada. Early in 2017, the
Municipality retained DTAH to prepare a community vision as outlined in Section 16.7
Special Policy Area F of the Official Plan. A public open house was held in June 2018
to review the Community Vision and a draft Official Plan Amendment. A Municipally
initiated Official Plan Amendment statutory public meeting was held in September of
2018. The consultant (DTAH) presented the Urban Design Master Plan + Design
Guidelines for the Community Vision at the June 3, 2019, Planning and Development
Committee meeting. Council accepted the Community Vision and solidified their
position that no new private residential development would be allowed within the
Municipal Wide Park in November of 2020.
The Municipality has met with the owners, Lambs Road School Property Ltd. (LRSP) a
joint venture of the Kaitlin Group and Fandor Homes and FarSight Investments Ltd.
(Schickedanz) to outline the development principles and review the most recent
recommended Official Plan policies and Block Master Plan. We understand the
landowners agree with the recommended Official Plan Amendment, save and except
for the requirement for low density housing (e.g. Singles and Semi's) in Area 4 and are
requesting Medium Density as the designation.
The Jury Lands Foundation and Architectural Conservancy Ontario — Clarington
Branch are poised to assist with the re -use of the buildings and interpretation of the
site respectively, once the OPA is approved and the Municipal Wide Park lands are
transferred to the Municipality.
1. Purpose
1.1 The purpose of this Report is to articulate the difference between what the owners are
requesting, and Staff recommended Official Plan Amendment 121 (OPA 121). In
addition, the agreed upon minor wording revisions to the recommended OPA 121 are
shown in the red -line mark-up Attachment 1 to this report.
1.2 The OPA 121 is recommending amending Special Policy Area F to establish land use
policies and a Block Master Plan for this new neighbourhood centred around the
Municipal Wide Park. Special Policy Area F policies implement the vision prepared by
DTAH using the overarching neighbourhood structure principles as set out in the Official
Municipality of Clarington Page 3
Report PDS-051-21
Plan. The recommended OPA is the result of a thorough public planning and
consultation process.
2. Background
2.1 Report PDS-044-21 includes a summary of the process, comments, community vision
and Urban Design Guidelines, and the updates from the draft to the recommended
Official Plan Amendment (OPA 121). Report PDS-044-21 also includes the site and
planning history in the Background (Section 2). Sections 3 — 7 outline alignment with
Provincial, Regional Planning Policy, and Clarington's Official Plan, plus Agency,
Departmental and Public Comments.
2.2 Section 8 of PDS-044-21 outlined the updates from the draft Official Plan amendment
released in September 2019 and Block Master Plan to the recommended OPA 121 and
Block Master Plan (September 2021). Attachment 2 to this report is the updated
sequence of events.
2.3 Attachment 1 to this report is a red -lined version of the recommended OPA 121 since it
was presented to Planning and Development Committee as part of PDS-044-21 and
includes revisions resulting from the most recent consultation with the landowners.
3. Landowner Submissions
3.1 Since PDS-044-21 was published for the September 13, 2021, Planning and
Development Committee, comments have been received from the landowners regarding
the limitations of the low density designation in Area 4 of the Block Master Plan.
3.2 Committee deferred PDS-044-21 to the October 4, 2021 Planning and Development
Committee meeting based upon the letter received from FarSight Investments (owner of
the north portion of Area 4) at the September 13, 2021 meeting. The objection was
regarding Policy 16.7.6.3. For Staff to appropriately consider this policy issue, we asked
the landowners to reiterate the issue with this policy. More importantly, given Staff's
stated reasons for keeping Policy 16.7.6.3 intact, Staff requested the owners provide
any suggested modifications to the policy for Staff to consider. In addition, any
additional comments on the balance of OPA 121 would be reviewed for fine-tuning.
3.3 The landowner's submissions since release of the recommended OPA 121 are outlined
below and detailed in Attachment 3 (comments received since Sept. 13). Comments
received over the course of the Special Area F Study on the Jury Lands have been
considered in the preparation of the recommended OPA 121. The comments of
delegations and written submissions can be viewed on the website at Jury Lands.
3.4 The specific unresolved issue identified by the landowners is Policy 16.7.6.3 of the
recommended OPA 121. It requires that areas designated Low Density Residential
provide a mix of dwelling types and tenure, which will include freehold units having
frontage along a public right of way. This policy affects Area 1 and Area 4 (see Figure
AA).
Municipality of Clarington
Report PDS-051-21
%lam �
Lands Owned By:
FAR SIGHT
INVESTMENTS LTD
CID j
"Madden-Plac
/I
Area 2A
0.70ha
Lands Owned By.
LAMBS ROAD
SCHOOL PROPERTY LTD Area 2B
�� � 0.95ha
Page 4
Figure AA, outlines the Development Areas within Special Policy Area F
Municipality of Clarington Page 5
Report PDS-051-21
3.5 For Area 1 (see Figure BB)„ the landowners have consistently indicated that singles
and semis would be part of the units built to take advantage of the public road and
natural heritage features. Approximately 20 dwelling units have been conceptually
shown on the owners most recent concept plans.
3.6 Policy 16.7.6.3 requires a mix of freehold units (singles and semi's) along a public right
of way. The interior of Area 1 is anticipated to be townhome blocks of 3 to 4 storey
height beside the valley edge and Park Drive. Townhouse units are a suitable transition
from the medium density designations along the Local Corridor (Lambs Road) and
Concession Street East and reinforces the higher density and height of the prominent
intersection.
LEGEND
MBlock Master Plan Boundary
Low Density Residential
(Height 1-4 Storeys)
®Medium
Density Residential - Local Corridor
(Height 3-6 Storeys)
High Density Residential/Mixed Use Local Corridor
(Height 5-6 Storeys)
Environmental Protection Area
Stormwater Facility
• • • ■
Pedestrian And Bicycle Routes
Public Roads
I--N
`
Prominent Intersection
Area 1
Figure BB — Detail of Area 1
3.7 Regarding Area 4, the landowners have indicated that "the physical geometry of the area
(see Figure CC) is extremely difficult as it is bounded by greenspace on the east, south
and west as well as an active railway line to the north. As a result of the mandated
setbacks and buffers as well as the expense of providing a creek crossing for access,
plus looping water services and the need to provide deep sanitary sewers to service the
site requires a certain threshold of units and density to make development economically
feasible. While access to Area 4 will be provided by a pubic ROW, any inclusion of
freehold units will have a cascading and restricting effect on the remainder of the
development footprint that is greatly problematic"
Municipality of Clarington
Report PDS-051-21
Page 6
LEGEND
Block Master Plan Boundary
Low Density Residential
(Height 1-4 Storeys)
Environmental Protection Area
Stormwater Facility
a****
Pedestrian And Bicycle Routes
Public Roads
Local Trail Access
Figure CC — Detail of Area 4
Area 4
3.8 It is the landowner's opinion that to require a mix of dwelling types, tenures including
freehold units having frontage along a public ROW does not work in Area 4. They
indicate that the development costs on these lands are "significantly higher as
compared to standard a "greenfield" location and as previously noted, this situation is
compounded by the awkward size and setback constraints associated with the
development of Area 4". Further, "even if these constraints could be mitigated only a
handful of very expensive freehold units could potentially be provided which would in no
way be any meaningful contribution towards a mix of housing types and tenures within
the neighbourhood". For these reasons, the landowners request that either policy
16.7.6.3 be removed from OPA 121 as it is applies to Area 4 or designate Area 4 as
Medium Density Residential (shown on Figure DD).
3.9 According to the land owners designating Area 4, Medium Density "would provide the
opportunity for a greater number of future residents within this neighbourhood to live in
close proximity to a natural heritage environment at a reasonable cost which would be a
unique situation in the Bowmanville marketplace and be complementary to the to the
development vision of the Camp 30 lands".
Municipality of Clarington
Report PDS-051-21
Page 7
LEGEND
C3Block Master Plan Boundary
Medium Density Residential -Heritage
(Height2-4 Storeys)
Environmental Protection Area
Stormwater Facility
ID • • • Pedestrian And Bicycle Routes
-Public Roads
Local Trail Access
iner's request for Area 4
Figure DD — Area 4 as medium density, Owner's request
3.10 While the developers make a compelling case from an economic viewpoint they and
their consultants have not, to date provided a planning rationale for the change to the
overarching policies in Clarington's Official Plan.
3.11 Other comments that have been provided by the owners and their consultants have
been considered and minor wording changes to help clarify the intent of the policies
have been included as part of Attachment 1 (noted in red line).
4. Staff Comments
4.1 Staff's recommended OPA 121 is in -keeping with the overarching policies of the urban
structure of the Clarington Official Plan. Staff have been working diligently to develop a
complete community with a mix of housing types and tenures while recognizing that the
permitted heights and densities are higher than the existing neighbourhood to the west. It
should be understood that commercial services and public transit will not be available for
many years, thus requiring residents to travel to access services.
4.2 For the Low Density Residential designation the permitted dwelling types include single
detached dwellings and semi-detached dwellings, townhouses and accessory
apartments. Buildings would be ground related and not exceed 4 storeys. Private lanes
or streets would be permitted.
Municipality of Clarington
Report PDS-051-21
Page 8
4.3 For the low -density residential areas (Areas 1 and 4) staff initially suggested a
percentage target of detached and semi-detached dwellings. Staff have removed the
percentage target, to allow for greater flexibility.
4.4 Staff's opinion is that the development of freehold units (i.e. single -detached, semi-
detached) and even street townhouse dwellings remain a built form option as they will
assist with the overall vision for the development of a complete community. Staff maintain
that the best type of housing development for Area 4 is one that includes a mix of units,
some freehold with a component of townhouse development (up to 4 storeys) on private
condominium lanes. Complete communities should provide variety and avoid being
homogenous in both built form and tenure being offered.
4.5 Until detailed development applications are submitted, staff cannot speculate as to how
many freehold units can be accommodated in Area 4 however we are confident the policy
provides sufficient direction and flexibility to allow the development plans to be refined
through those latter development applications (subdivision, zoning and site plan)
4.6 The owners are very familiar with development in Clarington and understand the
requirements for Environmental Impact Studies and other background studies which in
turn affect the economics of their developments. It should be no surprise to the
landowners that the physical constraints will dictate the developable limits based on
thorough study and subsequent development applications, each of which will include the
typical agency circulation and public process. The servicing constraints have not
changed since they purchased the property.
5. Next Steps
5.1 The owners and their consultants have not, to date provided a fulsome planning
justification for their request that singles and semi's be deleted as a built form and tenure
type in Area 4 and more importantly that it is appropriate to designate Area 4 as Medium
Density. This Report as an informational report. The Owners and their consultants are
welcome to outline their opinions to Council.
5.2 As with other Block Master Plans and given the pending comments and approval from
Council, some technical changes to wording or schedules may take place prior to the
Municipality finalizing the recommended Official Plan Amendment.
Municipality of Clarington
Report PDS-051-21
Transfer of Jury Lands
5.3 This file is unique in that the basis of proceeding with
OPA 121 is linked to the transfer of the Jury Lands for
the purposes of heritage preservation and the creation
of a Municipal Wide Park.
5.4 The transfer would bring the lands into the ownership
of the Municipality providing a measure of control over
the future of the heritage buildings. Equally important,
public ownership of the lands would allow the Jury
Lands Foundation to become eligible for charitable
status. Obtaining charitable status is critical in that it
would allow the Foundation to pursue funding
immediately to assist with the short term "mothballing"
of the existing heritage buildings and more importantly
raise money for the adaptive re -use of the lands and
the buildings as set out in the community vision.
6. Concurrence
6.1 The Director of Legislative Services has reviewed this Report.
7. Conclusion
Page 9
7.1 The purpose of this report is to articulate the difference between the recommended
Official Plan Amendment 121 and the landowner's the requested change for the land use
designation from low density to medium density in Area 4.
Staff Contact: Faye Langmaid, Manager of Special Projects, 905-623-3379 x2407,
fangmaid@clarington.net
Attachments:
Attachment 1 — Recommended OPA 121 (red -line mark-up)
Attachment 2 — Sequence of Events (update)
Attachment 3 — Public Comments Summary Table (since September 13, 2021)
Interested Parties:
List of Interested Parties available from Department.
Attachment 1 to
Report PDS-051-21
Recommended Official Plan Amendment No. 121
to the Municipality of Clarington Official Plan
Purpose: The purpose of this amendment is to update Section 16.7
Special Policy Area F - Camp 30 with the completion of the
Urban Design Master Plan.
Location: Special Policy Area F - Camp 30 includes the land area
bounded on the west by Soper Creek, north by the CPR rail
line, east by Lambs Road and south by Concession Street
East.
Basis: The Amendment is based upon the development of the Jury
Lands, Bowmanville, Special Policy Area F: Urban Design
Master Plan + Design Guidelines dated 2019-04-12 by DTAH.
This amendment conforms to the Durham Regional Official
Plan and the Growth Plan for the Greater Golder Horseshoe
and is consistent with the Provincial Policy Statement.
Purpose.
The Actual Amendment
This Amendment sets out a series of changes to the Schedules and Text of the
Municipality of Clarington Official Plan. New text is shown with an underline and
deleted text is shown with a strikethrough.
1. Existing Section 16.7 Special Policy Area F - Camp 30 is amended as
follows:
"16.7.1 Introduction. Vision. Obiectives
16.7.1.1 16.7.1 Special Policy Area F is the site of the former Bowmanville Boys
Training School and a World War II internment prisoner of war camp known as
Camp 30. Approximately 10 hectares of this land and buildings have cultural
heritage significance, including heron which includes being designated by the
National Historic Sites and Monument Board.
16.7.1.2 46.7.2 The Municipality will has consulted and will continue to work with
the ower��f. cite- nd-ad;-acen Ind- the landowners of Special Policy Area F,
the Jury Lands Foundation, other levels of government and interested parties to:
a) Implement "The Jury Lands, Bowmanville, Special Policy Area F: Urban
Design Master Plan + Design Guidelines", dated April 12, 2019, by DTAH,
the Urban Desian Guidelines which sets out the DrinciDles of the communitv
vision, for the long term use of the subject lands while respecting the
nationally designated cultural heritage landscape: Develop a nommi ini+„
vision and Urban Design Plane use for the Iona term of the lands that
b) Implement the this community vision of the Urban Design Guidelines and
build upon the designation of the National Historic site, in accordance with
the National Historic Sites and Monument Act and under Part IV (individual)
of the Ontario Heritaae Act, by establishina additional mechanisms to Drotect
Camp 30 reflected in Section•Implement
long term use of the lands by establishing different rneGhanisrns inGluding
designation as a GOMPlunity improvement area and her tage designations
Ont-ane- Heritage AGt; and
c) Implement the architectural guidelines contained within the Urban Design
Guidelines; Prepare arGhiteGt iral nontrol guidelines to ensi ire that
development annlinations within this Cnenial DoliGy Are ill 1 rlesioned to
0 rnplerneRt this community vision and LJFbaR Design Plan for the t
of these lan s
d) Develop the residential and mixed -use portions of Special Policy Area F to
be complementary with, subordinate to and visually distinct from the
Municipal Wide Park in accordance with the community vision; and
e) Implement the Local Corridor policies of the Official Plan, with the greatest
density and building height being located at the intersection of Lambs Road
and Concession Street East. This intersection has been identified as a
prominent intersection.
16.7.1.3 Collectively the Municipal Wide Park, including the Designated
Heritage buildings and landscape features, the trail network, the stormwater
management system, and lands designated Environmental Protection Areas will
form the backbone upon which this Special Policy Area F Neighbourhood will be
built. All comaonents shall seamlesslv intearate with and transition from/to the
adjacent residential developments.
16.7
16.7.2 Land Use
16.7.2.1 The Block Master Plan as depicted in Figure 1, establishes the land use
pattern to guide development within Special Policy Area F.
16.7.2.2 The following land use designations apply within Special Policy Area F
and are shown on Figure 1:
a) High Density Residential/Mixed Use Local Corridor
b) Medium Density Residential - Local Corridor
c) Medium Density Residential - Heritage
d) Low Density Residential
e) Environmental Protection Area
f) Municipal Wide Park
16.7.2.3 Additional dwelling units are permitted in accordance with the Official
Plan.
16.7.2.4 Drive-throuah facilities and service stations are not permitted in anv
land use designation.
16.7.2.5 Block layout shall be provided in accordance with Section 9.3.5 of the
Official Plan. In the event condominium blocks cannot provide
independent access to a public street(s) the appropriate agreements
and cost sharing arrangement shall be established through the
development approval process.
16.7.3 High Density Residential/Mixed use Local Corridor
16.7.3.1 Lands designated High Density Residential/Mixed Use Local Corridor
are located along the Lambs Road Local Corridor.
16.7.3.2 The High Density Residential/Mixed Use Local Corridor designation
allows for the areatest concentration of densitv and mix of uses within
Special Study Area F.
16.7.3.3 The intersection of Lambs Road and Concession Street East is
designated as a Prominent Intersection.
Permitted Uses, Built Form and Density
16.7.3.4 The Hiah Densitv Residential/Mixed Use Local Corridor is a
Predominantly residential land use designation that permits residential,
retail, office, and service commercial uses.
16.7.3.5 The permitted dwelling types shall be an apartment building or a mixed
use building.
16.7.3.6 Retail, office and/or service commercial uses are required on the first
floor of any mixed use building located at the Prominent Intersection in
accordance with section 10.6.7 of the Official Plan.
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16.7.3.7 Building heights shall be a minimum of 5 storeys and have a maximum
of 6 storeys.
16.7.3.8 Development on lands designated High Density Residential/Mixed Use
Local Corridor shall have a minimum net density of 40 units per net
hectare.
16.7.3.9 The highest and most dense form of development shall be located
fronting Lambs Road and Concession Street East intersection.
Development shall provide a transition to less dense and lower scale
buildings in adjacent designations.
16.7.4 Medium Density Residential — Local Corridor
16.7.4.1 The lands designated as Medium Density Residential — Local Corridor
are located alona the Lambs Road Local Corridor and in aroximity to
the Prominent Intersection along Concession Street East.
Permitted Uses, Built Form and Density
16.7.4.2 The Medium Densitv Residential — Local Corridor is a residential land
use desianation that permits residential units in a mix of housina types
and tenures in low rise building forms.
16.7.4.3 Retail, office, and service commercial uses are only permitted within a
mixed use building.
16.7.4.4 Permitted dwelling types include:
a) Townhouses
b) Back to back townhouses
c) Stacked townhouses,
d) Apartment buildings, and
e) Other dwelling types that provide housing at the same densities as those
listed above.
16.7.4.5 Building heights shall be a minimum of 3 storey 4-storeys and a
maximum of 6 storeys.
16.7.4.6 Development on lands designated Medium Density Local Corridor shall
have a minimum net density of 40 units per net hectare.
16.7.5 Medium Density Residential — Heritage
16.7.5.1 The lands designated Medium Density Residential - Heritage are
located within the Lambs Road Local Corridor and adiacent to the
Municipal Wide Park.
16.7.5.2 Development within the Medium Densitv Residential — Heritaae land
use designation shall be complimentary yet s bordiRate to the adjacent
designated Heritage site.
16.7.5.3 A Heritage Impact Assessment including a view assessment shall be
conducted Drior to anv develoament within the Medium Densitv
Residential — Heritage designation to identify where new buildings can
be located, along with their relative heights and massing required to
conserve the elements identified in the National and local cultural
heritage designations.
16.7.5.4 The Assessment identified in Section 16.7.5.3 shall also address the
policies in Section 16.7.8, the recommendations in the Urban Design
Guidelines prepared by DTAH dated April 12, 2019, and the adjacent
designated Heritage site.
Permitted Uses, built form and density
16.7.5.5 Medium Densitv Residential — Heritaae is a residential land use
designation that permits residential units in a mix of housing types and
tenures in low-rise building forms.
16.7.5.6 Permitted dwelling types include:
a) Townhouses,
b) Stacked Townhouses,
c) Back to back townhouses,
d) Apartments and
e) Other dwelling types that provide housing at the same densities as those
listed above.
16.7.5.7 Building heights shall be a minimum of 2 storeys and a maximum of 4
storeys.
16.7.5.8 Development on lands designated Medium Density -Heritage shall
have a minimum net density of 40 units per net hectare.
16.7.6 Low Density Residential
16.7.6.1 Low Density Residential is a residential land use designation that
permits residential units in a mix of housina tvaes and tenure forms in
low rise building form.
16.7.6.2 Permitted dwelling types include:
a) Single detached dwellings,
5
b) Semi-detached dwellings,
c) Townhouses,
d) Stacked townhouses,
e) Back to back townhouses, and
f) Other dwelling types that provide housing at the same densities as those
listed above.
16.7.6.3 In areas designated Low Density Residential, a mix of dwelling types
and tenure shall be provided includina a mix of freehold units havina
frontage along a public right of way.
16.7.6.4 Building heights shall generally be a maximum of 3 storeys in height.
16.7.6.5 Notwithstandina 16.7.6.4 above, dwellina units may be developed with
a maximum height of 4 storeys. The location of the 4 storey units shall
determined through the development approvals process and will be
specified in the implementing zoning by-law(s).
16.7.6.6 Four storey residential development within the Low Density Residential
land use desianation shall onlv be Dermitted if aDDroariate transition to
lower rise development can be achieved.
16.7.6.7 Development on lands designated Low Density Residential shall be a
minimum net density of 13 units per net hectare.
16.7.6.8 Parks/open spaces/ outdoor amenity spaces, in addition to the
Municipal Wide Park, may be required in the Low Density Residential
land use desianation. Final determination of Darkland reauirements and
locations will be made through the development approvals process.
16.7.7 Environmental Protection Area
16.7.7.1 Lands desianated Environmental Protection Area include natural
heritage features, hydrologically sensitive features and the associated
vegetation protection zones, and hazard lands in accordance with the
Official Plan.
16.7.7.2 The boundary delineation of the lands desianated as Environmental
Protection Area are approximate and shall be detailed through
appropriate studies prepared as part of the review of development
aaDlications in accordance with the Dolicies of Special Policv Area F
and the Official Plan.
16.7.7.3 Stormwater Management Facilities are not permitted to be developed in
lands designated Environmental Protection Area. Once constructed,
X
Stormwater management facilities shall be designated Environmental
Protection Area and shall be zoned accordingly.
16.7.7.4 The Municipality may require Environmental Protection Areas to be
conveyed to a public authority, where appropriate, as part of the
development aDDroval Drocess at minimal or no cost to the receivin
public authority. Conveyance of lands designated Environmental
Protection Area shall not be considered as contributions towards
parkland dedication requirements under the Planning Act.
16.7.7.5 Trails should be directed outside of natural areas where possible. or to
the outer edge of vegetation protection zones and water crossings
should be minimized. An Environmental Impact Study when prepared
for the adiacent residential lands shall evaluate trail and water crossir
locations.
16.7.8 Municipal Wide Park
16.7.8.1 Views and vistas to and from the Municipal Wide Park shall be
encouraged by the preservation, and enhancement of the view planes
as noted in the National Heritage Designation from the site centre,
radiating out to the east (Lamb's Road) between the existing buildings
and into the Soper Creek valley. These view and vistas provide
opportunities for views of the heritage buildings, central green and
natural heritage features.
16.7.8.2 The existina buildinas are to be adaptively re -used to accommodate a
range of uses that would contribute positively to the surrounding
residential communitv and Clarinaton.
16.7.8.3 The replanting and restoration of the landscape, especially the
replacement of the trees alona Park Drive should be Dursued.
16.7.9 Urban Design
General
16.7.9.1 Special Policy Area F should be designed to achieve a walkable
complete community that is diverse in use and population, and has a
well-defined and hiah - auality Dublic realm. as follows:
a) Achieve a high quality public realm which is safe, accessible, comfortable
visually -pleasing, and animated, supports active transportation and
community life, and contributes to the distinct character of Special Policy
Area F.
b) Implement a development pattern that connects streets, trails and
pedestrian routes through the area and to adjacent neighbourhoods in
support of active transportation; and
7
c) Implementa a consistent built form
16.7.9.2 The Urban Design Guidelines prepared by DTAH dated April 12, 2019,
provide specific guidelines for both the public and private sectors. They
indicate the Municipality of Clarington's expectations with respect to the
character, quality, and form of development in Special Policy Area F.
The Urban Design Guidelines are approved by Council, do not require
an amendment to implement an alternative design solution, or solutions
at anv time in the future. Drovided the DrinciDles are maintained.
16.7.9.3 Develoament in Policv Area F shall achieve the followina obiectives
which are specifically related to the Municipal Wide Park.
a) To acknowledge the historical value of the existing buildings and
landscape elements in the Municipal Wide Park as defined by the National
Heritage Designation;
b) To design new development surrounding the Municipal Wide Park to
reflect public value and amenity opportunity represented by the
valleylands;
c) To design new development surrounding the Municipal Wide Park utilizing
landscaping as a transition between the built environment and its natural
and heritage surroundings, including integrated stormwater management
strategies; and
d) To allow for the adaptive re -use of the heritage buildings, contained within
the Municipal Wide Park over time as partnerships and funding sources
become available.
Prominent Intersection
16.7.9.4 The Intersection of Concession Street East and Lambs Road is
considered a Prominent Intersection.
16.7.9.5 Prominent Intersections shall serve as community focal points, both
visuallv in terms of buildina heiaht. massina and orientation.
architectural treatment and materials, and landscaping, and functionally
in terms of destination uses and public spaces and amenities such as
street furniture and Dublic art.
rn
16.7.9.6 The areatest heiahts and densities shall occur at Prominent
Intersections. These areas are also encouraged to have a concentration
of retail, office and service commercial uses.
16.7.9.7 Privately owned publicly accessible plazas shall be located at
Prominent Intersections to contribute to their visual prominence
reinforce their role as community focal points, improve the relationship
of built form to the public right- of -way, and contribute to the area's
identity.
Public Realm
16.7.9.8 The public realm is comprised of roads, sidewalks, the Municipal Wide
Park, the Soper Creek valleylands and their associated vegetated
buffers, stormwater management facilities, and private lands that are
Dubliclv accessible.
Roads and Lanes
16.7.9.9 All roads and lanes shall be designed in accordance with the Official
Plan unless otherwise provided herein.
16.7.9.10 All roads and lanes shall provide safe and convenient access for
vehicles, pedestrians, and bicycles.
16.7.9.11 Public Roads identified in Block Master Plan Figure 1 are conceptual
and the location and number of local roads reauired may be amended
through the development approvals process.
16.7.9.12 All roads and lanes shall be subject to comprehensive streetscape
requirements including landscaping, that will provide a comfortable
shaded environment for pedestrians.
16.7.9.13 Lanes shall provide access for service and maintenance vehicles for
required uses as deemed necessary by the Municipality and may
include enhanced laneway widths and turning radii to accommodate
municipal vehicles including access for snowplows, garbage trucks and
emergency vehicles where required.
Park Drive
16.7.9.14 Park Drive shall be desianed to also include several specific desian
elements including:
a) All metre wide right of way that includes a 7 metre wide paved portion to
permit occasional two way vehicle movement
b) A Multiuse path that connects to the Municipal Wide Park and
c) A rural cross section.
9
16.7.9.15 The paved portion of Park Drive located south of the Municipal Wide
Park is intended to be only used for occasional public traffic or for
maintenance purposes.
Urban Tree Canopy
16.7.9.16 Together, new development and public realm improvements shall
establish an urban tree canoav to minimize the heat island effect.
provide for shade and wind cover and contribute to a green and
attractive environment.
16.7.9.17 New development and public realm improvements are required to use
native plant species wherever possible, particularly along rights -of -way
and pedestrian trails.
16.7.9.18 New development and public realm improvements shall only use native
plantings within 30 metres of Environmental Protection Areas.
16.7.9.19 All private development shall be supported by landscape plans which
demonstrate how the development will contribute to the urban tree
canoov. imarove the health and diversitv of the natural environment.
support other local plant and animal species, and further enhance the
connectivity of the built environment to natural heritage features and
hydrologically sensitive features.
Parking
16.7.9.20 To reduce the visual imaact of surface aarkina and to increase
opportunities for at grade amenity areas the provision of underground or
structured parking shall be encouraged for higher density forms. For
apartment buildings over 4 storeys underground parking is required to
accommodate for 70% of the required parking.
16.7.9.1 Surface parking for developments in the High Density designation w4h-in
shall be located to the side or
rear of the principal buildings. Surface parking and access for individual
units within townhouse developments that front onto Concession Street
East and/or Lambs Road shall be provided from the rear. aad4n
Gonsoderatmon of admaGent uses and publOG right of ways. In all instances
appropriate Appropriate landscaping and screening measures shall be
provided.
16.7.9.2 Public parking associated with the Municipal Wide Park may utilize the
existing parking lots on the west side of Park Drive. Additional public
parking to support the adaptive re -use of the heritage structures will be
discretely located within the Municipal Wide Park.
10
Residential Development
16.7.9.3 Residential Development adjacent to Environmental Protection Areas
should seek to optimize public exposure and visual access into the
natural areas. Ravine lots are discouraged to allow for visual and
Dhvsical access to Soper Creek throuahout the neiahbourhood.
16.7.9.4 The interface of Environmental Protection Areas with residential lots
shall consist of decorative fencing. Gates to the adjacent Environmental
Protection Areas are not permitted.
16.7.9.5 Reverse lot frontaaes onto Arterial roads are not Dermitted.
16.7.9.6 Development within a hiaher densitv and taller built form land use
designation than the adjacent land use designation shall provide for an
appropriate transition to the lower density area including the use of
roads, setbacks, landscaping and building step -backs.
16.7.9.7 Buildings located adjacent to, or at the edge of the Municipal Wide Park
and green spaces, will provide opportunities for overlook.
16.7.9.8 New development should be physically and visually compatible with but
subordinate to the Designated heritage buildings.
16.7.9.9 The architectural stvle of new development should be contemDorar
based on the Prairie-stvle architecture of the existina buildinas in the
Jury Lands buildings in the Municipal Wide Park. Prairie -style
architecture is defined by the prevalence of horizontal lines, flat or
hipped roofs, broad overhanging eaves, and windows grouped in
horizontal bands. Ornamentation is to be minimal; materials and
craftsmanship are to be high quality.
Multi -unit Residential Development
16.7.9.10 The size and confiauration of each development block will:
a) Be appropriate for its intended use; and
b) Facilitate and promote pedestrian movement and include a variety of route
options.
16.7.9.11 Each development block will:
a) Have direct access to a public road;
b) Shall provide shared space for both indoor and outdoor amenities, and
c) Be of sufficient size and appropriate configuration to accommodate
development that reflects the planning and urban design guidelines set in
the Official Plan, Special Policy Area F and the DTAH Urban Design
Guidelines.
11
16.7.9.12 Emergency Access to and within development blocks shall be provided
in keeping with the Clarington Emergency and Fire Services
Development Desian Guidelines and to the satisfaction of the Directors
of Planning and Development Services and Fire and Emergency
Services.
16.7.10 Infrastructure, Storm Water Management and Low Impact
Development
16.7.10.1 Infrastructure, stormwater management and utilities shall be integrated
in a manner that is sensitive to the aualitv of the Dublic realm.
16.7.10.2 The precise location, size and number of stormwater management
facilities will be determined throuah the development aaarovals
process.
16.7.10.3 Stormwater management facilities are encouraged to be developed as
naturalized ponds, incorporating native planting, creating natural habitat
for pollinator species, and enhancing biodiversity
16.7.10.4 An optimal street network should seek to provide a maximum level of
public exposure and access to stormwater management facilities.
16.7.10.5 Stormwater Manaaement facilities should intearate safe Dublic access
into their design through trails and seating. Fencing should be avoided
and railinas or denselv Dlanted areas should be used to discouraae
direct access.
16.7.10.6 Stormwater Manaaement Dlans shall demonstrate how the site will
achieve a post to pre -development water balance.
16.7.10.7 Techniaues to achieve the water balance includina soak-a-wav Dits
infiltration trenches and chambers shall not be located on Low Density
Residential dwellina lots.
16.7.10.8 Low impact development techniques may be located within the
municipal right of ways.
16.7.10.9 All buildings and sites should be designed to use water efficiently,
through such measures as ultra -low flow fixtures, and grey -water
recycling. Buildings are encouraged to collect rainwater for re -use in
the building and/or for irrigation.
16.7.10.10 Landscaping should feature native and adaptive, non-invasive, non-
native species that are drought -tolerant and require little or no irrigation.
16.7.10.11 The use of permeable paving and other pervious surface materials for
hard landscaping and on -site parking is encouraged to maximize water
infiltration.
16.7.11 Implementation and Interpretation
16.7.11.1 Development applications must address the sustainability objectives
and policies of the Official Plan
16.7.11.2 In order to suaaort the imDlementation for the Municipal Wide Park the
Municipality of Clarington will consider the development of a Community
Improvement Plan and/or Heritage Conservation District, under Part V
of the Ontario Heritage Act.
16.7.11.3 The followina additional mechanisms are intended to acknowledae that
lands adjacent to the Municipal Wide Park are related to the historical
campus and the manner in which they are developed has the potential
to impact the cultural heritage value of the overall site. Additional
mechanisms may include, but are not limited to:
a) Completing a Heritage Impact Assessment when changes are
contemplated to the subject lands that could affect its cultural
heritaae value: and/or
b) Completing a cultural heritage landscape evaluation to identify the
cultural heritage landscape attributes and the boundary of the
cultural heritage landscape in accordance with its cultural heritage
landscape status to further understand the site's cultural heritage
value and define specific conservation objectives or strategies.
16.7.11.4 Minor alterations which maintain the aeneral intent of the Dolicies of
Special Policy Area F may occur without amendment through the
development approvals process in accordance with the polices of the
Official Plan.
16.7.11.5 All studies required in support of a development application shall be
prepared in conformity with the policies of the Official Plan unless
otherwise specified in Special StudV Area F policies_
16.7.11.6 The provisions of the Official Plan with respect to the implementation
and interpretation of the polices in Special Policy Area F shall apply.
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2. By including Block Master Plan Special Policy Area F Figure 1 to Chapter 16
Special Policy Areas immediately following Section 16.7.11.6 as shown on
Exhibit "A" to this Amendment.
3 By amending Map A3 — Land Use Bowmanville Urban Area is as shown on
Exhibit "B" to this Amendment.
0
Exhibit 'A' to the Municipality Of Clarington Official Plan Amendment No. ,
Block Master Plan Special Study Area F Figure 1.
CqH
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SPECIAL POLICY
AREA F
SEPTEMBER 2021
FIGURE 1
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LEGEND
Block Master Plan Boundary
Low Density Residential
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(Height 3-6 Storeys)
High Density Residential/Mixed Use Local Corridor
(Height 5-6 Storeys)
® Municipal Wide Park
Environmental Protection Area
QStormwater Facility
WHeritage Building
Vi • • • • •oPedestrian And Bicycle Routes
Public Roads
JLocal Trail Access
Prominent Intersection
NCESS
Exhibit 'B' to the Municipality Of Clarington Official Plan Amendment No. ,
Map A3, Landuse, Bowmanville Urban Area
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6
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CON OFFICE CONSOLIDATION
Attachment 2
to Report PDS-051-21
Special Policy Area F, OPA 121
Sequence of Events — Since September 13, 2021
2021
Event
September 13, 2021
Joint Committee Meeting, Report was referred based on letter
from Farsight Investments to October 4 PDC mtg.
September 2021
Refinements to wording in OPA 121 based on comments
submitted by land owners and their planning consultant.
October 4,2021
Report PDS-051-21 outlining request by owners to designate
Area 4 as medium density rather than low density.
TBD
Council Adoption of OPA 121
TBD
Updating Legal Agreement
TBD
Processing of Subdivision and Zoning By-law Amendments
Attachment 3
to Report PDS-051-21
Public and Landowners Comments Summary Table
Received after September 13, 2021
Submission
Date, Number
Name, group (if
applicable)
Summary of Comments
Response
September 13,
Submitted on
Development in AREA #4. Clause 16.7.6.3 of proposed OPA
Municipal Staff
2021
behalf of
121 and the requirement that areas designated Low Density
will outline
SPAF-46
Farsight
Residential provide a mix of dwelling types and tenure, which
request in
will include freehold units having frontage along a public right
information
of way. The physical geometry of Area #4 is extremely
report, Council
difficult as it is bounded by greenspace on the east, south
can provide
and west as well as an active railway line to the north. As a
direction.
result of the mandated setbacks and buffers as well as the
expense of providing a creek crossing for access, looping
water services and the need to provide deep sanitary sewers
to service the site a certain threshold of units and density is
required to make development economically feasible. While
access to the Area will be provided by a public ROW, any
inclusion of freehold units will have a cascading and
restricting effect on the remainder of the development
footprint that is greatly problematic.
September 21,
Submitted on
After further review and careful consideration, I come to the
Municipal Staff
2021
behalf of
same conclusion that the requirement in Clause 16.7.6.3 of
will outline
SPAF-47
Farsight
proposed OPA 121, to require a mix of dwelling types,
request in
tenures including freehold units having frontage along a
information
public ROW does not work for our lands in Area #4. The
report, Council
development costs on these lands are significantly higher as
can provide
compared to standard a "greenfield" location and as
direction.
previously noted, this situation is compounded by the
1 1 P a g e
Submission
Date, Number
Name, group (if
applicable)
Summary of Comments
Response
awkward size and setback constraints associated with the
development of Area #4. Even if these constraints could be
mitigated only a handful of very expensive freehold units
could potentially be provided which would in no way be any
meaningful contribution towards a mix of housing types and
tenures within the Camp 30 neighbourhood. For these
reasons, it is appropriate to remove clause 16.7.6.3 from
OPA 121. In fact, considering the development proposals for
Area #4 provided by the Kaitlin Group and ourselves, OPA
121 would be aligned with these concepts if Area #4 was
designated Medium Density Residential as essentially that is
what is being proposed. This designation would provide the
opportunity for a greater number of future residents within
this neighbourhood to live in close proximity to a natural
heritage environment at a reasonable cost which would be a
unique situation in the Bowmanville marketplace and be
complementary to the to the development vision of the
Camp 30 lands.
September 22,
Submitted by
• Policy 16.7.1.2a) directs that the DTAH Design and Master
Policy 16.7.1
2021
Bousfield on
Plan + Design Guidelines be implemented however, since
2a) and 2c) are
SPAF-48
behalf of LRSP
that report was completed in 2019 there have been changed
part of the
to the vision and direction of the plan, including changes
Introduction,
capture din this most recent draft OPA. As such, this policy
Vision and
should be revised to state that the DTAH report generally be
Objectives of
implemented.
the Official Plan
• Similarly, Policy 16.7.1.2c) speaks to implementing the
Amendment.
architectural control guidelines and should be revised to state
"Generally"
that they guidelines will generally be implemented.
does not add
any specificity
Submission
Date, Number
Name, group (if
applicable)
Summary of Comments
Response
• The density ranges for High Density Residential/Mixed Use
to the policy.
Local Corridor and Medium Density Residential Local
Implement
Corridor are the same (a minimum net density of 40 units per
means that the
hectare) however the minimum building heights differ
guideline will
between these two designations (4 storeys for medium and 5
be used.
storeys for high). The Medium Density Residential — Heritage
Densities are
designation also has a minimum density of 40 units per net
set a minimum
ha but has a minimum height of 2 storeys. Given the
of 40 units/ha,
differences in the permitted uses in these forms should the
this provides
minimum densities all be the same?
flexibility to the
• Policy 16.7.4.5 states that the minimum height is 4 storeys
land owner.
for Medium Density Residential Local Corridor whereas the
In discussion
legend on a previous version of the schedule stated that the
with owner on
permitted heights are 3 to 6 storeys.
preference,
• Policy 16.7.5.2 requires that development in the Medium
Policy 16.7.4.5
Density Residential — Heritage designation shall be
will be updated
complimentary yet subordinate to the adjacent Heritage site.
to match the
It is unclear how this policy would be implemented with
schedule (3-6
respect to the requirement for development to be
storeys).
subordinate.
Policy 16.7.5.2
• Policy 16.7.6.3 requires a mix of dwelling types and tenure
the words "yet
be provided including a mix of freehold units having frontage
subordinate"
along a public right of way. This policy should be revised to
will be deleted.
delete the requirement for freehold units on a public right of
The HIAs will
way. Low density areas can be designed to address the
be used to
Municipality's vision and requirements without this restriction.
ensure
• Policy 16.7.9.7 requires a publicly accessible open space at
complimentary
the corner of Lambs and Concession as a Promient
development.
Intersection. To provide flexibility in the design of this
Municipal Staff
intersection, the policy should be revised to say that the
will outline
3 1 P a g e
Submission
Date, Number
Name, group (if
applicable)
Summary of Comments
Response
publicly accessible open space should be located in proximity
request in
to the intersection. The design of the site will be addressed
information
through the site plan approval and may warrant consideration
report, Council
of a building at the corner to signal the prominence of the
can provide
intersection, with an open space area more appropriately
direction.
located adjacent to the intersection.
Policy
• Policy 16.7.9.21 requires that surface parking be at the side
16.7.9.21
or rear of principal buildings in high and medium density
requires a
residential areas, however, townhouses are permitted in
wording
medium density residential areas and would not be able to
clarification.
locate all parking at the side or rear of a building.
The request to
Given these outstanding matters and the owner's intent to
defer the OPA
resubmit applications for a zoning by-law amendment and
and deal with it
plan of subdivision, we request that the finalization and
in conjunction
approval of this Official Plan Amendment be deferred and
with the
dealt with in conjunction with the owner's applications.
owner's
applications
means
continual
evolution and
no resolution
as to what the
future plans
are.
41Pa^