HomeMy WebLinkAboutPDS-038-23Clarftwn
Staff Report
If this information is required in an alternate accessible format, please contact the Accessibility
Coordinator at 905-623-3379 ext. 2131.
Report To: Planning and Development Committee
Date of Meeting: June 5, 2023 Report Number: PDS-038-23
Submitted By: Carlos Salazar, Director of Planning and Development Services
Reviewed By: Mary -Anne Dempster, CAO By-law Number:
File Number: PLN 41.3 Resolution#: PD-057-23
Report Subject: Project Update — Bowmanville East Urban Centre Secondary Plan
Update, Bowmanville
Recommendation:
1. That Report PDS-038-23, and any related delegations or communication items, be
received for information.
Municipality of Clarington
Report PDS-038-23
Report Overview
Page 2
The purpose of this report is to provide a project update to Council on the Bowmanville East
Urban Centre Secondary Plan (BEUC) Update, which includes the former Goodyear Lands.
Phase 1 of the project is complete, and Phase 2 is nearing completion. The Draft Phase 2
Technical Summary Report is attached to this report and provides an overview of work
completed in Phase 2, including the vision for BEUC, public engagement that has occurred,
summary of technical reports completed, policy direction for the Secondary Plan, and next
steps in the project. The former Goodyear lands provide a unique redevelopment
opportunity within the downtown area. Key components of the site's redevelopment include
heritage and the former industrial use. The final phase of the project will include the
preparation of a draft Secondary Plan and Urban Design Guidelines for the area and
presentation it for public feedback at a future Statutory Public Meeting.
1. Background
1.1 The Bowmanville East Urban Centre (BEUC) Secondary Plan was first approved in 1996
and last updated in 2003. It's centred on the intersection of King and Liberty Streets in
Bowmanville and encompasses a 160-hectare area with a mix of land uses and diverse
building forms. The area includes the traditional Downtown, the East Business District,
the former Goodyear manufacturing lands, the Bowmanville Mall, and the Lakeridge
Health Bowmanville Hospital. The western and eastern boundaries of the project area
are Bowmanville and Soper Creek respectively.
M IQ U
Concess nog S rt eet
Bowmanville East Urban Centre a
$�•, f Secondary Plan Boundary a
m E
m
m
L
fp A
hll EAST', NESS DISTRICT
GOODYEAR . King 5tr etet East
REDEVELOPMENT
AREA O HOSPITAL —�
O SPECIAL STUDY O l�
AREA 3 O o
Figure 1: Map of Bowmanville East Urban Centre Secondary Plan Area
Municipality of Clarington
Report PDS-038-23
Page 3
1.2 In 2017, Council authorized an update of the BEUC Secondary Plan to bring it into
conformity with the Clarington Official Plan, Regional and Provincial policies, to address
market trends, and to reflect the unique redevelopment potential of the former Goodyear
lands.
1.3 As part of the Secondary Plan, a Steering Committee was formed to provide technical
expertise and input at key stages of the Secondary Plan project. The Committee consists
of representatives from the Municipality, the Region of Durham, Central Lake Ontario
Conservation Authority (CLOCA), landowner of 45 Raynes Avenue (former Goodyear
lands), Bowmanville Business Improvement Association (BIA), Lakeridge Health
Bowmanville and local landowner.
1.4 The current update to the BEUC Secondary Plan will reshape and revitalize the area in a
way that balances new development opportunities and preserves the historic character of
downtown Bowmanville. There is also an opportunity to create a medical campus to
support the Bowmanville hospital and the potential to create a mixed -use community on
the former Goodyear Lands.
2. Project Update
2.1 The Secondary Plan project follows three phases: Phase 1; Background Analysis, Phase
2; Development Opportunities/Emerging Plan, and Phase 3; Draft Secondary Plan/Final
Recommendations. Phase 1 is complete, and Phase 2 is nearing completion.
Phase 1
2.2 Phase 1 took place over the fall and winter of 2018 and involved a comprehensive review
of existing conditions. This included an analysis of the existing land use and built form
pattern, public realm and active transportation network, and municipal servicing, utilities,
and parking.
2.3 Through this review, opportunities and constraints within the project area were identified
including sites with redevelopment potential. Three key Precinct areas were also
identified: Goodyear Lands, Lakeridge Health Bowmanville Hospital, and Downtown Civic
Precinct area surrounding the Municipal Administrative Centre.
2.4 Engagement in this phase included a Public Information Centre (PIC), a series of
stakeholder interviews, meetings with the project Steering Committee composed of
Municipal Staff and key stakeholders and a project webpage that provides project
updates and opportunities for engagement (Clarington.net/Bowmanville East).
2.5 PIC #1 was held on November 22, 2018, to introduce the project purpose, scope and
process and gather public input. Approximately 70 people attended. Key themes were
active transportation, park improvements, greater mix of activities, and more housing
options. An Engagement Feedback Report was created that summarized this meeting.
Municipality of Clarington
Report PDS-038-23
Page 4
2.6 Between November 16, 2018, and March 28, 2019, interviews with key stakeholders
were held including the owner of the Goodyear lands, the Bowmanville Health Centre,
the Bowmanville BIA, and Lakeridge Health.
2.7 These engagement activities and background analysis provided direction for Phase 2 of
the project, including for the creation of a new vision and guiding principles. The Phase
One Technical report provided a summary of existing conditions, stakeholder and public
engagement, project -wide issues and opportunities, and next steps.
Figure 2: Photos from PIC #2 of the presentation and engagement activities
Phase 2
2.8 PIC #2 was held on May 2, 2019, to present and seek feedback on the draft results of the
Phase 1 Background Analysis. Approximately 40 people attended. Key themes included
walkability, small-scale retail, aging -in -place, vibrant commercial spaces, and effective
traffic flow. A summary of public feedback was outlined in an Engagement Feedback
Report.
2.9 Phase 2 was restarted in spring/summer of 2022 following a pause in the project during
the COVID-19 pandemic. Phase 2 involved the development of emerging character
areas, a demonstration plan for various time horizons, and preparation of a
redevelopment concept for key area of the BEUC.
2.10 The guiding principles for the project included housing choice and affordability,
connectivity, diverse open space, maintaining historical character, active streets, and a
sense of place. These principles were used to develop the demonstration plan and
redevelopment concepts for the area.
2.11 Stakeholder committee meetings took place on January 21, 2020, and April 13, 2022.
Staff presented project updates and facilitated discussion with committee members to
gather feedback and comments on the vision, guiding principles, demonstration plan and
concepts for key areas within the BEUC Secondary Plan.
Municipality of Clarington
Report PDS-038-23
Page 5
2.12 PIC #3 was held on June 1, 2022, to present the work completed as part of Phase 2 to
the public. Key themes from this session include enhancing links to natural features,
minimizing traffic implications, pedestrian scaled development, redevelopment of East
Business District and Goodyear Lands, and maintaining historic character. A
demonstration plan, which describes how the land within the BEUC Secondary Plan area
could be developed over time, was presented to the public for feedback. The
demonstration plan is a representation of one potential development scenario and is
modelled based a number of assumptions. The PIC #3 presentation made June 1, 2022
can be found in Attachment 1.
2.13 An online survey was open between June 1, 2022, and June 30, 2022, to solicit public
feedback on the demonstration plan and redevelopment concepts for key areas within
BEUC. The input received is summarized in the Draft Phase 2 Technical Report
(Attachment 2) and will be incorporated into the draft Secondary Plan and Design
Guidelines as part of Phase 3.
Vision for the Bowmanville East Urban Centre
Bowmanviile East will treasure the old and reshape it in ways
for new generations to enjoy. It will:
• Revive new civic, medical and mixed -use precincts;
• Facilitate new built form and densities to provide a variety of housing,
businesses, and essential services;
• provide a vibrant, cohesively walkable public realm; and
• bean entertainment, institutional, service, tourism and family destination -
welcoming people of all generations, incomes and abilities to live, work and play.
rlxingfiNo SYN 0 A=-LQM r—tv'ic Bowmanville East Urban Centre Secondary Plan Update 1 14
Figure 3: Slide from PIC#3 presentation sharing vision for BEUC.
Municipality of Clarington
Report PDS-038-23
Page 6
2.14 As part of Phase 2, technical reports were produced including a BEUC Parking Study,
and in-depth reports on the Goodyear Lands including existing conditions, a Traffic
Impact Study, and a Functional Servicing Report to examine redevelopment on this site.
A summary of these technical reports are also found in the Draft Phase 2 Technical
Report Summary (Attachment 2).
2.15 The technical reports and the Draft Phase 2 Technical Summary Report have been
circulated to the Steering Committee for review. Any necessary updates will be made to
the reports as a result of comments received. The finalized reports will be posted to the
project webpage.
Goodyear Lands
2.16 The Goodyear lands represent approximately 23 hectares of land south of downtown
Bowmanville. The property is the site of the former Goodyear Tire and Rubber Company
plant that has operated since 1906 under different ownership. The plant closure in 2016
provides the opportunity for redevelopment of the site.
2.17 Currently the Goodyear lands are designated as `Special Study Area 3' in Clarington's
Official Plan. This designation recognizes the former industrial use as well as the
redevelopment opportunities. Policies provide that the lands will require clean-up or
mitigation of any contamination prior to redevelopment.
2.18 The BEUC Secondary Plan update, in accordance with Special Study Area #3 policy, will
add the Goodyear lands to the Bowmanville East Urban Centre Secondary Plan.
2.19 In 2018, Council placed the Goodyear lands (45 Raynes Avenue) on the Municipal
Heritage Register (PSD-30-18). The property is not designated under the Ontario
Heritage Act.
2.20 Since the start of the Secondary Plan update in 2018, staff have engaged with the owner
of the Goodyear lands as a key stakeholder recognizing that the property presents a
unique opportunity for redevelopment.
2.21 The Goodyear lands are identified as a key character area within the BEUC Secondary
Plan. The objectives for this area include repurposing the former industrial land, providing
a complementary new neighbourhood at higher density, and an open space spine that
connects to the Bowmanville Creek.
2.22 Through the Secondary Plan process, a Heritage Impact Assessment (HIA) was
prepared for the Goodyear lands and peer reviewed by the Municipality. The HIA
identifies a number of buildings as having cultural heritage value or interest sufficient for
designation under the Ontario Heritage Act.
2.23 The property owner conducted additional studies that look at risk
management/contamination of buildings and structural assessment for re -use. Staff are
in receipt of these studies, but they have not been peer reviewed by the Municipality.
Municipality of Clarington
Report PDS-038-23
Page 7
2.24 Due to past industrial use of the property, a Record of Site Condition (RSC), obtained
through the Ministry of Environment, Conservation and Forestry (MECP) is required for
the property to be developed to a more sensitive use, such as residential. The RSC
process is applicant driven and typically requires multiple reviews and revisions.
2.25 Staff have met with the MECP and the Region of Durham to better understand the RSC
process. The Region of Durham typically assists the Municipality with review of
Environmental Site Assessments (ESA) for sites with contamination.
2.26 Staff understanding is that a Risk Assessment for the eastern portion of the property was
submitted to the MECP in January 2023, and that a Risk Assessment for the balance of
the lands (portion of property with the former Goodyear buildings) has not yet been
submitted.
2.27 Staff have been working with the landowner throughout the Secondary Plan process,
however, the property owner has recently submitted demolition permits for the `main
building' and separate former reclaim building located on the south side of the property.
The permit excludes the former powerhouse building with adjacent chimney stack, the
pumphouse, and the standalone cement house building located on the north side of the
property.
2.28 Owners of properties listed on the Municipal Heritage Register under s. 27 of the Ontario
Heritage Act may initiate a property's demolition by providing 60 days written notice of
their intention to demolish the property to the Municipal Clerk. The above noted
demolition permit applications for the buildings were premature, pending the submission
of the required notice from the property owner.
2.29 On May 19, 2023, the Municipal Clerk received a "notice of intention to demolish" letter
on behalf of the property owner. The 60-day notice period gives a municipality time to
determine whether to begin the designation process. A separate staff report to Council
regarding the heritage component of the property will follow, in accordance with the
Ontario Heritage Act.
Phase 3
2.30 The final phase of the BEUC Secondary Plan update project includes preparation of a
draft Secondary Plan and Urban Design Guidelines. Once the draft documents are
prepared and reviewed by the Steering Committee, a Statutory Public Meeting to present
the Secondary Plan and Urban Design Guidelines to the public and Council for feedback
will take place in late 2023.
2.31 Following the Statutory Public Meeting, revisions to the Secondary Plan and Urban
Design Guidelines will be made as necessary and staff will bring forward the
recommended documents to Council for adoption. Once adopted, the Secondary Plan
will be reviewed by the Region of Durham for approval.
Municipality of Clarington
Report PDS-038-23
I Financial Considerations
Page 8
3.1 The Bowmanvillle East Urban Centre Secondary Plan update is funded by the
Municipality, with a cost recovery agreement in place between the Goodyear landowner,
Continental ContiTech for some studies related to the Goodyear portion of the Secondary
Plan.
4. Concurrence
Not Applicable.
5. Conclusion
It is respectfully recommended that Council receive this report for information.
Staff Contact: Lisa Backus, Manager of Community Planning, 905-623-3379 ext. 2413 or
Ibackus clarington.net, Amy Burke, Principal Planner, 905-623-3379 ext. 2423 or
aburke(a clarington.net, Emily Corsi, Senior Planner, 905-623-3379 ext. 2428 or
ecorsi clarington.net.
Attachments:
Attachment 1 — PIC #3 Presentation, June 1, 2022
Attachment 2 — Draft Phase 2 Technical Report
Interested Parties:
List of Interested Parties available from Department.
fj
max.
ea
LAO
0OF
IV
-f
a ,^
Attachment 1 to
PDS-038-23
Land Acknowledgement
The Municipality of Clarington is situated within the
traditional and treaty territory of the Mississaugas
and Chippewas of the Anishinabeg known today as the
Williams Treaties First Nations.
Our work on these lands acknowledges their resilience
and their longstanding contributions to the area now
known as the Municipality of Clarington.
f MAgim 5VN 0-• A=COM Feet piint Bowmanville East Urban Centre Secondary Plan Update 12
Our Team
Municipal Staff
clubooll
Lead Consultant
svN
Sub -Consultant Team
Karen Richardson
Manager,
Development Engineering
Emily Schaefer
Planner II, Community
Planning & Economic
Development
40
Lisa Backus
Manager, Community
Planning & Economic
Development
Shonda Wang Lina AI-Dajani Blair Scorgie Mike Hudson Lucy Cui
Partner Senior Associate Associate Senior Designer Planner
CQMMON 0URBIe N
B 0 N D rootprin
MUMrnsrrrure4�=COM
CDLLECTIVE
Cldi rm,lrrrr SVN @-- AZECOM Footprint Bowmanville East Urban Centre Secondary Plan Update 13
Purpose of Today's Meeting
• Re -introduce the Bowmanville East Secondary Plan Study
• Present work undertaken to date
• Seek feedback from members of the public as the project
moves forward
(Idi rrORI 5VN 0-- AZCOM Footprint Bowmanville East Urban Centre Secondary Plan Update 14
Presentation Outline
1. Introduction
2. Vision for the Bowmanville East Urban Centre
3. Emerging Character Areas
4. Draft Demonstration Plan
5. Vision for the Precincts
6. Public Realm, Open Space and Active Transportation Network
7. Next Steps
rJ;nhiz,repu 5vN 4 AFCDNI Bowmanville East Urban Centre Secondary Plan Update 15
Welcome to Zoom!
How -to -use the interface
Cb1ington 5VN 0-.. AECOM Footprint Bowmanville East Urban Centre Secondary Plan Update 16
What Is a Secondary Plan?
Planning Hierarchy
Provincial Level
CGrowth Plan for the Greater
Golden Horseshoe
1*
Upper Tier Municipality
Durham Region Official Plan
Lower Tier Municipality
Clarington Official Plan
Neighbourhood Level
Bowmanville East Secondary
Plan
I*
Site Level
Zoning by -Law
__J
Development Process
Development Applications
Building Permits
What is a Secondary Plan?
A Secondary Plan is an in-depth policy document for managing new
growth within a defined area. It implements the broader goals and
objectives of the Municipality's Official Plan to fit with local contexts and
is regulated through the provincial Planning Act. Any new development
must conform to the applicable policies and guidelines within this
Secondary Plan, as well as any applicable planning documents higher-up
in the planning hierarchy.
This Project
The framework for a Secondary Plan may consist of the
following elements:
• Permitted land use
• Road infrastructure
• Development density
• Parks & open space
• Community facilities
• Transportation networks
• Servicing
Wdnglmi SvN 0=- Ae—iObM footprint
Bowmanville East Urban Centre Secondary Plan Update 17
hary Plan Cnntpxt in Clarind
*W,Haydon
' Leskard
r S Kendal
Enninslcillen�r
L a . ► r-' ;
Kirby S �L' - ,�`�
r Tyrone '
A4,
Harrmptonl f
r Mitchell ;
e- Corners
I�ewton�ille.
..+ -
man�' I I
�` ' Brownsville
La ke Ontario
a
SQpER
.-, QRFF
• RE�� w,a ` ;_`: c14URCH STIES r c . ;dl�?j�
ST REET"�
- x 2 .' • QUEEN ST .
L`�� , ���• /Y Jam' - � r� � yrrp �•' � y �•: ^�.. i.'
lr
PARY PLAN AREA
Poll Questions
SvN A=COM ffl-itprinr Bowmanville East Urban Centre Secondary Plan Update 110
Project Process and Timeline
1
Background
Analysis
Background Review: Existing
Conditions and Policies
Analysis: Public Realm and Active
Transportation, Infrastructure,
Parking, Redevelopment
Opportunities
Consultation: Stakeholder
Interviews, Public Information
Centres, Online Engagement
2
Development
Opportunities
T
We are here
Best Practices Review: Downtown
Revitalization
Redevelopment Concept: Vision and
Goals, Conceptual Streets, Blocks,
Public Realm, Active Transportation
Network, Land Use, Built Form,
Density
Consultation: Public Information
Centres, Online Engagement
Secondary Plan: Policies and
mapping to implement redevelopment
concept
Supporting Documents: Zoning
By -Law Amendment and Urban
Design Guidelines to implement
redevelopment concept
Consultation: Public Meeting
Wrin006 SvN ■�►4_KOM footprint Bowmanville East Urban Centre Secondary Plan Update 111
Picking Up Where We Left Off
Emerging
Issues and
Priorities
WWan SvN ■-M—C M Footprint Bowmanville East Urban Centre Secondary Plan Update 112
What We Heard & Emerging Directions
1. Design a network of mixed -use, walkable nodes accessible by bike and foot
2. Consider and identify existing and future transit connections
3. Protect, enhance, and connect to the natural heritage system
4. Consider access to parks and open spaces, including opportunities to create
new green space
5. Consider heritage properties and adjacencies to designated properties
6. Create policies relating to phasing and the interim use of lands
7. Consider sustainability policies to promote environmental and climate
resiliency
Chnhwlou 5vN 0 AECOM Footprint Bowmanville East Urban Centre Secondary Plan Update 113
Vision for the Bowmanville East Urban Centre
Bowmanville East will treasure the old and reshape it in ways
for new generations to enjoy. It will:
• Revive new civic, medical and mixed -use precincts;
• Facilitate new built form and densities to provide a variety of housing,
businesses, and essential services;
• provide a vibrant, cohesively walkable public realm; and
• be an entertainment, institutional, service, tourism and family destination -
welcoming people of all generations, incomes and abilities to live, work and play.
Wril90) 5VN 0-- AZCOM Footprint Bowmanville East Urban Centre Secondary Plan Update 114
Vision for the Bowmanville East Urban Centre
Guiding Principles
nnn
nn nn
1. Provide Housing Choice
and Affordability
4. Maintain the Historical
Character
2. Improve Connections
5. Establish an Active Street
Wall
3. Diversify Open Spaces
6. Promote a Sense of Place
fInhw(m SVN ! A COM Footprint Bowmanville East Urban Centre Secondary Plan Update 115
Emerging Character Areas
EN
. ....... .... ....... ........ 11111q�q WN I I
aag; -7 C9`��9 S IRE
KIN
0 fa got? sawG�.e
o�CQ go�� �
F
NATURAL HERITAGE SYSTEM
EXISTING OPEN SPACE
WATER BODIES
EXISTING BUILDINGS
GOODYEAR LANDS
EAST BUSINESS DISTRICT
DOWNTOWN CORRIDOR
RESIDENTIAL COMMUNITIES
HISTORIC DOWNTOWN
BvrWOR SVW •-MECOM ,s footprint Bowmanville East Urban Centre Secondary Plan Update 116
Emerging Character Areas
Historic Downtown
Approach: Strategic redevelopment along King Street while
maintaining main street character
Objectives:
• Preserve heritage character
• Maintain and/or replace affordable residential units
• Maintain small-scale, local businesses
• Public realm improvements, and connections to Goodyear
and Bowmanville Creek and Soper Creeks
0
Design Parameters
6st max
4--- --- -- ---- ---
3=______ --
__3st min
3 - to 6- storey height
1 m min: --I ---------- _ --------------------
Amk
King St E/W
1 m minimum front yard set back
3.0E m
MULTI ROW
USE
PATH
Stepback above
Established Streetwall
Cldi m,llow SVN @-- AZECOM Footprint Bowmanville East Urban Centre Secondary Plan Update 117
Emerging Character Areas
East Business District
Approach: Redevelopment potential with medium- to high -
density mixed -use buildings and public realm improvements
Objectives:
• Opportunity to meet density targets
• Introduce pocket parks to balance development
• Public realm improvements on King Street East and
connection to Soper Creek and Hospital
0
Design Parameters
12 12st max
--- --------------------------------
8 --- --
4 --- _iiiirr.m=podiums=-- 3st min
3----------------------------
3- to 12- storey height for
King St. E
---------------
King St E
1-3m front yard set back
3.0E m
MULTI ROW
USE
PATH
Stepback above
Established Streetwall
Cldi m,llow SVN @-- AZCOM Footprint Bowmanville East Urban Centre Secondary Plan Update 118
Emerging Character Areas
Downtown Corridor
Approach: Maintain key buildings and provide a transition
between East Business District and Historic Downtown
Objectives:
• Mid -rise built form as transition
• Public realm improvements on King Street East, and
connections to Bowmanville and Soper Creeks
• Strengthen street wall
0
Design Parameters
12
-------------------------------------------
10 10st max
-----------------------------
3st min
i
3-10 storey height
Based on context
1.5m
EI
1-3m---------------=--------
King St E
1-3m front yard set back
63.0:m
MULTI ROW
USE
PATH
Stepback above
Established Streetwall
(Imim,110 r 5VN @-- AZCOM Footprint Bowmanville East Urban Centre Secondary Plan Update 119
Emerging Character Areas
Residential Communities
Approach: Sensitive infill development, plus additions and
renovations, to accommodate greater density while maintaining
residential character
Objectives:
• Preserve residential character
• Protect mature trees, where possible
• Improve housing choice and supply
0
Design Parameters
12
8----------
4----------------- 4st max
4-storey max height
1.5m
3 m min T
3 m min front yard set back
Cldi m,llow 5VN @-- AZECOM Footprint Bowmanville East Urban Centre Secondary Plan Update 120
Emerging Character Areas
Goodyear Lands
Approach: Complete community with low- to high- density
mixed-use/residential developments, and public realm benefits
Objectives:
• Repurpose former industrial land
• Complementary new neighborhood at higher density
• Open space spine connects to Bowmanville Creek
Design Parameters
12 ---- 12st max
8 ---- ---- -----------------
--- ---- ---
3 =_ == == 3st min
3-12 storey height
Transiton to existing dwellings
Landmark building height peak
11 m (typical)
1-3 m-1----------------- I ---------------------
Hunt St Extension
1-3m front yard set back
2.0-3.0 m
BIKE ROW BIKE
LANE LANE
Stepback above
Established Streetwall
Clai glow 5vN 0-- AZEXOM Footprint Bowmanville East Urban Centre Secondary Plan Update 121
Poll Questions
SvN A=COM ffl-itprinr Bowmanville East Urban Centre Secondary Plan Update 122
Draft Demonstration Plan
Soft Sites
�H
KING ST. WW
NATURAL HERITAGE SYSTEM
EXISTING OPEN SPACE
WATER BODIES
EXISTING BUILDINGS
PROPOSED BUILDINGS (DEVELOPMENT PROPOSALS)
SHORT TERM (TO 2031)
♦ MEDIUM TERM (TO 2041)
LONG TERM (TO 2051)
— KEY PROJECT AREAS
VZu ,
SOPER CREEK
Z�
U
BvrIWM SvN 41-ASCIM :s footprint Bowmanville East Urban Centre Secondary Plan Update 123
Draft Demonstration Plan
Existing Condition
NEW 'ROW
Existing & Proposed Short Term Medium Term Long Term
Condition (to 2031) (to 2041) (to 2051)
c
o�4p 06Jd� 9l�P SOPER CREEK
KING ST. W� 'G �'� ❑F1 R W A p 9
KING S .
gjjj $ -led -rr,W �vv��11 t pup a VP� p
_ _ fl � p'G Cy papup
c, �a6d
�4
NATURAL HERITAGE SYSTEM
EXISTING OPEN SPACE
WATER BODIES
O EXISTING BUILDINGS
101
AREA STATISTICS - EXISTING CONDITION
Residential Units
719
People
1256
Jobs
3200
Clathwum SvN *_ M—COM Footprint Bowmanville East Urban Centre Secondary Plan Update 124
Draft Demonstration Plan
Existing +Proposed Condition
NEW NEW
Existing & Proposed Short Term Medium Term Long Term
Condition (to 2031) (to 2041) (to 2051)
101
KING ST. ;;P
y r_ I SOPER CREEK
�D� 9�Ty
Rov
AF
4 f NQ 4C Q OS
Gag00
�� W
10
u 400 ®Qo o Q°
r9 �
V p
n � 0 0
v�
'
NATURAL HERITAGE SYSTEM
EXISTING OPEN SPACE
WATER BODIES
EXISTING BUILDINGS
PROPOSED BUILDINGS (DEVELOPMENT PROPOSALS)
BaAIWOR SIN 41-A �COM ,s footprint Bowmanville East Urban Centre Secondary Plan Update 125
Draft Demonstration Plan
Short Term (to 2031)
A,1Z
W6,
KING ST. WW 44
LUQ
NATURAL HERITAGE SYSTEM
EXISTING OPEN SPACE
WATER BODIES
O EXISTING BUILDINGS
PROPOSED BUILDINGS (DEVELOPMENT PROPOSALS)
O SHORT TERM (TO 2031)
MEDIUM TERM (TO 2041)
LONG TERM (TO 2051)
,qw NEW Now
Existing & Proposed Short Term Medium Term Long Term
Condition (to 2031) (to 2041) (to 2051)
u
AREA STATISTICS - DEVELOPMENT TO 2031
Existing
New
Total to 2031
Residential Units
719
2792
3511
People
1256
4893
6149
Jobs
3200
256
3456
Clati g(mi 5vN * AL—Ca1H Footprint
Bowmanville East Urban Centre Secondary Plan Update 126
Draft Demonstration Plan -low NEW NEW
Medium Term (to 2041) Existing n Proposed Short Term Medium Term Long Term
Condition (to 2031) (to 2041) (to 2051)
KING ST. W4 L ❑ji W 11 C ' -�
Rc
v
lot
�oo� I�
q p'D at' papQQ
4 �o�
�44P
0
�4
NATURAL HERITAGE SYSTEM
EXISTING OPEN SPACE
WATER BODIES
O EXISTING BUILDINGS
PROPOSED BUILDINGS (DEVELOPMENT PROPOSALS)
0 SHORT TERM (TO 2031)
MEDIUM TERM (TO 2041)
LONG TERM (TO 2051)
u
AREA STATISTICS - DEVELOPMENT TO 2041
Projected
Existing
New
Total to
2041
Residential Units
3511
1638
5149
People
6149
2872
9021
Jobs
3456
243
3699
Clatiagm 5vN * A=COM footprint
Bowmanville East Urban Centre Secondary Plan Update 127
Draft Demonstration Plan
Long Term (to 2051) Existing n Proposed Short Term Medium Term Long Term
Condition (to 2031) (to 2041) (to 2051)
L
KING ST. W� n
o W C�
G
'o
9y
i
C
,-
FI-
NATURAL HERITAGE SYSTEM
EXISTING OPEN SPACE
WATER BODIES
O EXISTING BUILDINGS
PROPOSED BUILDINGS (DEVELOPMENT PROPOSALS)
0 SHORT TERM (TO 2031)
MEDIUM TERM (TO 2041)
LONG TERM (TO 2051)
QAW$
yBy is �y ,
RA7 � �c� ❑
a�A RCH- O WO n�
\1k S -pE CREEK
Ocil
u
AREA STATISTICS - DEVELOPMENT TO 2051
Projected
Existing
New
Total to
2051
Residential Units
5149
853
6002
People
9021
1494
10515
Jobs
3699
426
4125
Clating(m 5vN * A_COM footprint
Bowmanville East Urban Centre Secondary Plan Update 128
Poll Questions
SvN A=COM ffl-itprinr Bowmanville East Urban Centre Secondary Plan Update 129
Vision for the Precincts
Bowmanville Hospital Precinct
-- -- r- • a •�` �1� v ' Ya �G
•� •r p fi
W r ❑ -1
--4�� _ yY a� g'tRREK ❑ � �
Lam" � � � ❑ �
o x-
0o"
Design Vision
To connect the hospital and nearby
medical and supportive uses to create a
new medical campus.
Objectives
• Public realm improvements and
connections to King St
• Opportunities for mixed -use
development fronting King St
• Strong street wall on King St
• Views to Soper Creek
• Expanded job opportunities and
potential medical campus
NATURAL HERITAGE SYSTEM
EXISTING OPEN SPACE
WATER BODIES
- - - EXISTING TRAILS
- - - PLANNED TRAILS
EXISTING BUILDINGS
EXISTING PLACES OF WORSHIP
- = PROPOSED REDEVELOPMENT SITES
PROPOSED BUILDINGS
REDEVELOPMENT CONCEPT
0 PROPOSED BUILDINGS (SP)
® PROPOSED SHARED AMENITY/SURFACE
PARKING/OPEN SPACE
J PEDESTRIAN CONNECTION
H MULTI USE PATH CONNECTION
F 4 VEHICULAR CONNECTION
O PRECINCT BOUNDARY
(bdagion sVN ■_• A--i0VY1 footprint Bowmanville East Urban Centre Secondary Plan Update 130
Vision for the Precincts
Goodyear Lands Precinct
0
Design Vision
To create a new mixed -use district with
residential, commercial, and community
uses and open spaces.
Objectives
• Diverse commercial to complement
King St
• Increased residential base to support
local businesses
• Diversify housing
• Placemaking / heritage integration
• Connections to surrounding natural
heritage network
NATURAL HERITAGE SYSTEM
EXISTING OPEN SPACE
WATER BODIES
- - - EXISTING TRAILS
- - - PLANNED TRAILS
EXISTING BUILDINGS
EXISTING PLACES OF WORSHIP
- = PROPOSED REDEVELOPMENT SITES
PROPOSED BUILDINGS
REDEVELOPMENT CONCEPT
0 PROPOSED BUILDINGS (SP)
® PROPOSED SHARED AMENITY/SURFACE
PARKING/OPEN SPACE
J PEDESTRIAN CONNECTION
H MULTI USE PATH CONNECTION
F -> VEHICULAR CONNECTION
O PRECINCT BOUNDARY
W ingim sVN ■�►eleKOM footprint Bowmanville East Urban Centre Secondary Plan Update 131
Vision for the Precincts
Downtown Civic Precinct
�Al .�
t
•
i
Temperance Street
as a flex street
1
--
_ �9C7q,-
LJ
0
Design Vision
To expand, entrench and improve the
presence of important civic institutions,
creating a symbolic, and functional Downtown
Civic Precinct.
Objectives
• Vibrant public realm
• Honour heritage buildings
• Balanced with sensitive infill
• Placemaking in traditional downtown
• Expanded public realm and open space
connectivity between key civic features
NATURAL HERITAGE SYSTEM
EXISTING OPEN SPACE
WATER BODIES
- - - EXISTING TRAILS
- - - PLANNED TRAILS
EXISTING BUILDINGS
EXISTING PLACES OF WORSHIP
- = PROPOSED REDEVELOPMENT SITES
PROPOSED BUILDINGS
REDEVELOPMENT CONCEPT
0 PROPOSED BUILDINGS (SP)
® PROPOSED SHARED AMENITY/SURFACE
PARKING/OPEN SPACE
J PEDESTRIAN CONNECTION
H MULTI USE PATH CONNECTION
F 4 VEHICULAR CONNECTION
O PRECINCT BOUNDARY
Wirg[oo SvN *=- A--1t M Faatprint Bowmanville East Urban Centre Secondary Plan Update 132
Poll Questions
SvN A=COM ffl-itprinr Bowmanville East Urban Centre Secondary Plan Update 133
Topics for Discussion
Future Public Realm and Open Space Network
U
NATURA
EXISTINC
WATER E
0 EXISTINC
POTENTIAL PUBLIC SPACE FOCAL POINT
— KEY PROJECT AREAS
<—> SECONDARY STREETSCAPE CONNECTIONS
H PRIMARY ACTIVE TRANSPORTATION & STREETSCAPE CORRIDOR
(bringtn+i svM ■=A--- XOM footpriet Bowmanville East Urban Centre Secondary Plan Update 134
Topics for Discussion
Future Active Transportation Network
U
EXISTING TRAIL
...".. PLANNED TRAIL
E*m EXCLUSIVE BIKE LANES (SIGNED)
• URBAN SMOULDER
r EXISTING SIGNALIZED INTERSECTION
•-� ACTIVE TRANSPORTATION NETWORK EXTENSION
p CONNECTION TO EXIS-FING CYCLING INFRASTRUCTURE
— CONNECTION TO EXISTING TRAIL NETWORK
— NEW SIDEWALK
CWIA (mi SVN ■—AeTOIW footprint Bowmanville East Urban Centre Secondary Plan Update 135
Next Steps
Feedback from this meeting will inform revisions to the
Demonstration Plans and Precinct Plans
Opportunity for members of the public to review materials and
provide further input on the project website
Online survey to provide more detailed feedback
Chninz,amr 5vN 4 AFCOM Fnotpr;nf Bowmanville East Urban Centre Secondary Plan Update 136
Thank you
For More Information Visit
the Project Website:
https://www.clarington.net/
en/do-business/bowmanville-
east-urban-centre-
secondary-plan.asp
Contact us
Lisa Backus
Ibackus@clarington.net
Emily Schaefer
eschaefer@clarington.net
Clvhwon SVN 0=- A COM footprint
u
owmanville East Urban Centre
Secondary Plan Update
Phase Two Technical Report
April 21, 2023
Clarington SvN A=COM
This page is intentionally left blank
Bowmanville East Urban Centre Secondary Plan Update
Contents
1. Introduction
1.1 Project Purpose
1.2 Project Area
1.3 Project Timeline
1.4 Intent of the Document
2. Redevelopment Concept for the BEUC
2.1 Vision and Guiding Principles
2.2 Emerging Character Areas
2.3 Demonstration Plan
2.4 Vision for the Precincts
2.5 Public Realm, Open Space and Active Transportation Network
3. Results of Engagement Activities
3.1 Purpose and Format
3.2 Summary of Key Messages from PIC #3 and Online Survey
4. Summary of Technical Reports
4.1 Bowmanville East URban Centre Parking Study
4.2 BEUC Existing Conditions Report
4.3 Goodyear Lands Phase 2 Technical Studies (TIS and Functional Servicing)
5. Preliminary Policy Directions
6. Next Steps
2
10
12
13
15
Phase 2 Technical Report
Bowmanville East Urban Centre Secondary Plan Update
1.0 Introduction
1.1 Project Purpose
This Project aims to update the Bowmanville East
Urban Centre ("BEUC") Secondary Plan, which was first
approved in 1996 and last updated in 2003. Since its last
update, the have been changes to provincial land use and
planning policies as articulated through the Provincial
Policy Statement, 2020, and Growth Plan for the Greater
Golden Horseshoe, 2020. Additionally, updates to the
Municipality of Clarington's Official Plan were approved
in 2017 which provided an increased emphasis on urban
design, affordable housing, sustainability, climate change,
and community engagement.
In recognition of the renewed municipal vision for
the BEUC, this update to the Secondary Plan aims to
preserve the role of the historic downtown, improve
connections to the surrounding natural heritage
system, support existing employment and civic hubs,
and facilitate the establishment of a new mixed -use
community on the former Goodyear Lands.
This Project will result in an updated Secondary Plan
and set of Urban Design Guidelines that will establish
a planning framework for the re -imagining of the
Bowmanville East as an integral part of Bowmanville and
Clarington as a whole.
1.2 Project Area
Centered on the intersection of King Street and Liberty
Street, the 160-hectare Bowmanville East Urban Centre
(BEUC) Project Area ("Project Area") encompasses a mix
of land uses and a diverse built form. The Project Area
includes a number of notable districts and destinations,
such as the traditional Downtown, the East Business
District, the former Goodyear manufacturing lands, the
Bowmanville Mall, and the Lakeridge Health Bowmanville
Hospital. The broader Project Area also includes portions
of the two significant natural heritage assets — the
Bowmanville Creek and Soper Creek and their associated
valley lands — that define its western and eastern
boundaries.
Figure 1 illustrates the extent of the Project Area lands.
Phase 2 Technical Report 3
Figure 1: Project Area
Bowmanville East Urban Centre Secondary Plan Update
1.3 Project Process and Timeline
The Project is structured to take place in three phases,
with technical analysis and community engagement
being undertaken in an iterative fashion.
Figure 2 depicts the project process and the primary
components of each phase of work.
W4"" 1 2
Background JK Development
Analysis Opportunities
Background Review: Existing
Conditions and Policies
Analysis: Public Realm and Active
Transportation, Infrastructure,
Parking, Redevelopment
Opportunities
Consultation: Stakeholder
Interviews, Public Information
Centres, Online Engagement
Figure 2: Project Process
T
We are here
Best Practices Review: Downtown
Revitalization
Redevelopment Concept: Vision and
Goals, Conceptual Streets, Blocks,
Public Realm, Active Transportation
Network, Land Use, Built Form,
Density
Consultation: Public Information
Centres, Online Engagement
3
Final
Recommendations
Secondary Plan: Policies and
mapping to implement redevelopment
concept
Supporting Documents: Urban
Design Guidelines to implement
redevelopment concept
Consultation: Statutory Public
Meeting
Phase 2 Technical Report 5
The three phases are as follows:
Phase 1 - Background Analysis
Phase 1 involved a comprehensive existing conditions
review. An analysis of the existing land use and built form
pattern, public realm and active transportation network,
and municipal servicing, utilities and parking conditions
was undertaken. The review and analysis informed the
identification of sites with redevelopment potential,
three key Precinct areas (Civic Precinct, Goodyear
Lands, Lakeridge Health Bowmanville Hospital), and
opportunities and constraints throughout the Project
Area.
Community engagement in this phase included two
Public Information Centres, a series of stakeholder
interviews, and meetings with the Project Steering
Committee composed of Municipal Staff and key
stakeholders. Phase 1 of the Project took place over the
fall and winter of 2018 and has been completed.
Phase 2 - Development Opportunities
Phase 2 involved the preparation of a redevelopment
concept for the Project Area. This redevelopment
concept was informed by the findings of Phase 1,
the identification of best practices for downtown
revitalization, and the preparation of a new vision and
guiding principles for Bowmanville East. The Phase 2 work
involved the development of emerging Character Areas,
a Demonstration Plan to the 2031, 2041 and 2051 time
horizons, and Precinct Demonstration Plans articulating
the redevelopment visions for three key sub -areas.
Work for the Goodyear Lands was conducted in
parallel to investigate these lands, including a Precinct
Demonstration Plan showing how the area could
develop, and traffic and servicing analysis to investigate
the infrastructure capacity required to adequately
accommodate that development.
Community engagement in this phase included two
Public Information Centres and two additional meetings
with the Project Steering Committee. Phase 2 was
initiated in early 2019 and was re -started in spring/
summer 2022 following a pause in the project, which was
triggered in part by to the COVID-19 pandemic. Phase 2
is anticipated to be completed by 01/02 of 2023.
Phase 3 - Final Recommendations
Phase 3 will be dedicated to preparing new Secondary
Plan policies to support the redevelopment vision
developed in Phase 2. These new policies (and
accompanying schedules) will be further supplemented
by the creation of area -specific urban design guidelines.
Community engagement will include continued
consultation with the Project Steering Committee and a
Statutory Public Meeting to present the draft Secondary
Plan and Urban Design Guidelines.
Subsequently, they will also be presented to the City of
Markham's Planning and Development Committee. Phase
3 is expected to be carried out throughout the summer
and fall of 2023, with project close anticipated by the end
of the year.
1.4 Intent of the Document
This intent of this report is to summarize the work
undertaken in Phase 2 of the Project, specifically from
spring/summer 2022 onwards following the post -
pandemic project pause.
It will outline the planning and design work undertaken
towards the redevelopment concept for the BEUC,
synthesize the public engagement findings from the
most recent Public Information Centre and online survey,
summarize the findings of supporting technical studies,
and introduce preliminary policy directions that will provide
the basis of the forthcoming Secondary Plan document.
6 Bowmanville East Urban Centre Secondary Plan Update
2.0 Redevelopment
Concept for the BEUC
Phase 2 of this Project involved the creation of
a redevelopment concept for the BEUC, which
encompassed the Vision and Guiding Principles,
Emerging Character Areas, Demonstration Plan, Vision
for the Precincts and preliminary Public Realm, Open
Space and Active Transportation Network. This work was
presented at the most recent Public Information Centre
(PIC) on June 1, 2022. For additional information, please
refer to the detailed presentation package from the PIC,
which is included as Appendix 1 to this report.
The below section provides a summary of the key
findings and outputs from Phase 2 as presented at the
most recent PIC.
2.1 Vision and Guiding Principles
As part of Phase 2 activities for the Secondary Plan
Update, a vision was developed for the Bowmanville East
Project Area.
The vision for the Project Area is as follows:
Bowmanville East will treasure the old and reshape it in
ways for new generations to enjoy. It will:
• Revive new civic, medical and mixed -use precincts;
• Facilitate new built form and densities to provide a
variety of housing, businesses, and essential services;
• Provide a vibrant, cohesively walkable public realm
with varied types of ecologically rich open spaces,
public art, active transportation, and multimodal
streetscapes; and
• Be an entertainment, institutional, service, tourism
and family destination —welcoming people of all
generations, incomes and abilities to live, work and play.
This vision will be realized through the implementation of
policy directions which are based upon the following six
key guiding principles:
Providing Housing Choice and Affordability
2. Improving Connections
3. Diversifying Open Space
4. Maintaining Historical Character
S. Establishing an Active Street
6. Promoting a Sense of Place
2.2 Emerging Character Areas
Five Emerging Character Areas were identified across the
Project Area. These include:
• The Historic Downtown, which is situated on either
side of King Street in the historic core of Bowmanville
and incorporates the traditional main street;
The East Business District, which includes the lands
fronting onto both sides of King Street East as well
as the north side of Prince Street, generally bounded
by Liberty Street to the west and silver Creek to
the east, encompassing the Lakeridge Health
Bowmanville Hospital and Bowmanville Mall;
• The Downtown Corridor, which covers lands between
the East Business District and Historic Downtown,
as well as directly north and south of the Historic
Downtown;
• Residential Communities, which are generally located
in the northernmost portions of the Project Area and
contain existing low-rise housing stock; and
• The Goodyear Lands, which is a large piece of
industrial land located in the southwest portion of
the Project Area.
For each Character Area, a high-level approach, design
objectives and built form parameters were devised.
Phase 2 Technical Report 7
2.3 Demonstration Plan
The Demonstration Plan is a representation of one
possible scenario of building massing that could arise
over the lifetime of the Project Area. It is based on a
number of assumptions such as:
Which sites may redevelop —these are focused on
soft sites, e.g. low -density residential or commercial
sites or former industrial sites that are currently
underutilized and more likely to attract development
interest; and
The scale and form of development - typical
low- and mid -rise building footprints are modelled,
consistent with industry norms, with overall building
height distributions as per preliminary planning
directions identified through Phase 2.
A 3D model of the Demonstration Plan was prepared.
Data from each building was tabulated, noting its use,
floorplate size, height in storeys, and gross constructible
area (GCA). To generate an estimate of population and
jobs, the following assumptions were made:
• For mixed use buildings, half of the ground floor is
allocated to commercial uses. The other half of the
ground floor is assumed to function as residential
uses, back -of -house areas and common spaces. All
upper floor area is allocated to residential uses;
Residential uses are separated into categories based
on unit type. Total residential GCA is divided by an
average gross unit size to generate the number of
units. The gross unit size includes both the unit
area as well as an assumption (approximately an
additional 15%) of the unit's share of common spaces
such as corridors, lobbies and loading spaces.
- Apartments are assumed to be 100 square
metres gross;
- Back to back stacked townhouses are assumed
to be 108 square metres gross; and
- Townhouses are assumed to be 216 square
metres gross.
Commercial uses are assumed to generate 1 job per
45 square metres of space; and
All residential units are assumed to generate 1.75
persons per unit.
Using these assumptions, several iterations of
the Demonstration Plan were created to illustrate
development scenarios to the short-term horizon (to
2031), medium -term horizon (2041) and long-term
horizon (2051).
This mathematical exercise, at full build out in 2051, could
result in over 6,000 residential units accommodating over
10,500 people, and, over 4,100 jobs in the Bowmanville
East Urban Centre. Of the 6,000 units, 5,300 would
be new, a result of intensification. These figures were
compared against the Regional intensification goals
set out in the Housing Intensification Study Technical
Report 2021(Region of Durham Growth Management
Study. Land Needs Analysis), which identifies an overall
intensification target for the Region of Durham as a
whole, as well as the potential contributions of individual
municipalities towards the overall target. The report
identifies a total of 3,200 units for the Bowmanville East
Urban Centre to the 2051 time horizon, of which 2,500
would be new.
By this comparison, it is evident that the draft planning
framework under consideration has the potential to
achieve and exceed the Region's density requirements.
8 Bowmanville East Urban Centre Secondary Plan Update
2.4 Vision for the Precincts
Three Precincts were identified within the Project Area as
areas of significance for the BEUC. These Precincts have
the potential to contribute significantly to the Project
Area through the diversification of land uses, introduction
of public realm improvements, and connections to
surrounding neighbourhoods. As an extension of the
overall Demonstration Plan, Precinct Demonstration
Plans were created to explore how each could develop
over time.
These are:
• The Downtown Civic Precinct, which is envisioned
to expand, entrench and improve the presence of
important civic institutions in the historic core;
The Bowmanville Hospital Precinct, which is
envisioned to connect the hospital and nearby
medical and supportive uses to create a new medical
campus; and
The Goodyear Lands Precinct, which is envisioned
to create a new mixed -use district with residential,
commercial, and community uses and open spaces.
2.5 Public Realm, Open Space and Active
Transportation Network
Utilizing the analysis and findings of Phase 1 background
review, conceptual diagrams were developed to
illustrate preliminary directions for the Public Realm and
Open Space Network and the Active Transportation
Network. These included the high-level identification of
Potential Public Space Focal Points within each of the
four Character Areas, as well as a series of preliminary
additions and connections to the active transportation
network, including extensions to existing trails,
connections to existing cycling routes, and new sidewalks
across the Project Area.
Phase 2 Technical Report
3.0 Results of Engagement Activities
3.1 Purpose and Format
The purpose of the Public Engagement process in
Phase 2 of the Project was to report back on the
proposed vision and guiding principles and share the
draft Redevelopment Concepts Plans and Precinct
Plans, as well as share early directions on the proposed
public realm and active transportation network. Some
engagement events also served to re -introduce the
project to participants, on account of the lengthy pause
in the project due to the COVID-19 pandemic.
Multiple engagement activities were held, including:
Two Stakeholder Committee meetings, which
featured presentations by the project team and O&A
discussions, took place on January 21, 2020 and April
13, 2022.
Two Public Information Centres, with the first held in -
person on May 2, 2019 (PIC #2 of the Project) with an
open house format, and the second held virtually on
June 1, 2022 (PIC #3 of the Project) which featured a
presentation by the consultant team and interactive
web -based polling questions.
• An online survey (see Appendix 2) through the
Town of Clarington's web engagement portal Engage
Clarington which was released following PIC #3 and
remained available between June 1, 2022 and June
30, 2022.
3.2 Summary of Key Messages from PIC #3 and Online
Survey
The key messages in this section provide a summary
of the comments received through the latter half of the
Phase 2 work, including PIC #3 and the online survey.
They are not meant to be a verbatim or exhaustive
version of feedback received, but rather a synthesis of
key messages. Where possible, these will be considered
and implemented through the drafting of the Secondary
Plan policies in the forthcoming Phase 3 work.
Maintaining the existing character of the Historic
Downtown and Residential Communities
Participants wish to retain the strong heritage character
of the King Street corridor, in recognition of its value as
a local main street and destination. Suggestions include
a greater unity of look and feel across the entirety of
King Street, with lower -scaled ground -related retail
fronting King Street. There was mixed feedback about
the proposed height maximum (6 storeys) within this
area, with some arguing for higher permitted heights and
others wishing for future development to not exceed the
height of current buildings. A strong desire to implement
policies that would support the maintenance of small-
scale, local and independent businesses was also heard.
Similarly, participants wish to preserve the character of
the Residential Communities within the Project Area,
which is supported by a consistent built form and a
mature tree canopy. There was general support for the
proposed maximum height and proposed front yard
setback; however, some commenters expressed concern
around privacy and overlook impacts. Participants had
questions about the idea of `expanding housing choice',
seeking greater detail into what those options might be
and how they would support greater affordability.
Enabling redevelopment within the East Business
District and Goodyear Lands with context -
appropriate policies
Participants support accommodating for healthcare and
lifestyle services in lands surrounding the Lakeridge
Health / Bowmanville Hospital. Previously suggested
uses include walk-in clinics, pharmacies, long-term
care facilities, gyms and spas, among others. There was
general agreement on need to improve public areas along
King Street East, including through the addition of new
pedestrian pathways, as well as to compliment existing
institutional facilities with residential and commercial uses.
Regarding the Goodyear Lands, participants broadly
support repurposing the former industrial lands to
create a complete community with higher densities and
10 Bowmanville East Urban Centre Secondary Plan Update
greater mix of uses. Previously suggested uses for more
diversified employment uses on the site include live -work
uses, educational institutions, incubator spaces, micro -
scale manufacturing, among others. There was a mixed
response between participants in regards to maximum
height permissions, with suggestions as low as 4 storeys
and as tall as 18 storeys. There was consensus among
participants in regards to the opportunity to leverage the
Goodyear Lands' proximity to the nearby natural heritage
network, with a desire for on -site green spaces and
recreational facilities.
Enhancing links to the natural heritage network and
green space
Participants would like to see stronger connections
between the Project Area and the existing natural
heritage network, including to Bowmanville Creek and
Soper Creek. Participants felt that it was important to
strengthen access to the municipal trail network to
ensure opportunities for active and passive recreation.
There was strong approval from participants for the
establishment of multiple connections to the Bowmanville
Creek should be provided from the Goodyear Lands.
There was also broad support for public realm
improvements which would facilitate direct ad efficient
connections from the Historic Downtown, East Business
District and Downtown Corridor to both Bowmanville
Creek and Soper Creek.
There was strong support for the establishment of new
parks and/or green spaces within the Project Area as
it grows and develops. Some participants suggested
alternative locations for the preliminary `public space
focal points' identified through the PIC materials; one
suggestion included re -locating the focal point to the
vicinity of King Street and Ontario Street, rather than
Brown Street.
Creating walkable and pedestrian -scaled places
Participants rated public realm improvements as high
on their list of priorities for the Project Area. Participants
are in favour of design moves which enable easy and
comfortable travel within and between the Project Area
by foot. There was support for making Temperance
Street a pedestrian -priority or pedestrian -only street,
introducing the capability for the street to host
community events on an as -needed basis. Participants
also voiced a desire to see more street trees across the
Project Area, particularly along Scugog Street, Church
Street, Silver Street, Temperance Street and Division
Street. Public realm improvements along the length of
King Street was identified as another priority.
There was also support for more pedestrian and
cycling infrastructure to facilitate safe connections and
accommodate growth in and around the Project Area.
Participants had a number of suggestions regarding
a need for new bike lanes, pedestrian crossings,
streetlights and sidewalks. It was noted that existing
active transportation facilities are often disconnected and
inaccessible. Specific comments included the need for a
sidewalk along the west side of Temperance Street and
Queen Street and a crosswalk connecting to Rotary Park.
Participants also commented in support of more street
furniture, including bike racks and bench seating.
Minimizing negative traffic impacts that may be
caused by future growth and redevelopment
Participants are concerned with the potential for negative
traffic impacts, with many feeling that the supply of
parking is already limited within the Project Area.
Participants indicated a preference to explore solutions
around improved public and on -street parking, as well
as potential opportunities to consolidate access across
adjoining properties. Adequate access to parking is
seen by participants as vital to continued commercial
development of the Downtown.
Phase 2 Technical Report 11
4.0 Summary of Technical Reports
4.1 Bowmanville East Urban Center Parking Study
AECOM Canada Ltd. was retained by SvN Architects
+ Planners on behalf of the Municipality of Clarington
to summarize the parking inventory in the downtown
Bowmanville study area and conduct a study on the
payment -in -lieu (also known as cash -in -lieu) of parking
programs in place various municipalities throughout the
GTA. The report is dated April 27, 2020.
The recommendations developed on the basis of the
study are as follows:
Ensure the Municipality has a strong and clear
Transportation Demand Management policy to
reduce overall dependency on parking and private
vehicles for transportation;
• A payment -in -lieu of parking policy should only apply
to non -accessible commercial spaces;
The payment -in -lieu fee is usually tied to the cost
of land, construction, and/or maintenance of an
equivalent replacement parking spot, usually 50%
thereof. The Municipality should consider the type
of parking it expects to supply, surface or structured,
and ensure the fee is reflective of that need;
Flat rates are common throughout the GTA, but
provide little flexibility for the various kinds of
developments which may apply;
Consider a sliding fee structure depending on size
of development and percentage of parking supply
provided /not provided;
Formula based fees may cause issues due to
complexity in determining factors (i.e. land
value appraisal, construction cost, etc.). If this is
considered, ensure variables and factors can be
easily determined and establish a clear verification
methodology. A formula may be used for determining
an initial fixed fee and adjusted over time as required;
Give strong consideration to the variables and
factors which are used to calculate the fee, how they
may differ for each application, and how they may
change over time;
While a payment -in -lieu of parking policy gives
business owners and developers an alternative
solution for addressing parking requirements,
consider potentially exempting parking requirements
for specific land use types or areas in which the
Clarington wants to further encourage growth;
Consider a reduction or removal of parking
requirements for rezoning / change in use of existing
structures, particularly historically designated
structures; and,
Include clauses for annual or regular adjustment of
fees, tied to inflation, parking demand, or another
factor.
4.2 Bowmanville East Urban Centre Existing
Conditions Reports
AECOM Canada Ltd. was retained by SvN Architects +
Planners on behalf of the Municipality of Clarington to
summarize the existing conditions in regards to servicing
infrastructure. Separate studies were produced for the
Bowmanville East Urban Center and the Goodyear Lands,
with the reports dated February 25, 2019 and September
16, 2020, respectively. The findings are summarized
below.
Bowmanville East Urban Centre
Sanitary: The study area is currently serviced
by a mature sanitary sewage collection system
consisting of local sewers being less than 375mm in
diameter and trunk sanitary sewers being equal to
or greater than 375mm in diameter. Investigations
of the capacity of the existing sanitary sewer within
identified Drainage Areas found that sanitary pipes at
the downstream end of the service area have existing
excess capacity.
12 Bowmanville East Urban Centre Secondary Plan Update
Watermain: The study area is currently serviced by
a network of local watermains, generally 300mm in
diameter and less, and 400mm diameter feedermains
located along King Street, Scugog St north of King
St, Division Street from the water tower south to
Queen St and extending further south through the
Goodyear Lands.
Goodyear Lands
Sanitary: The project team has no formal records
of how the Goodyear Lands are currently serviced.
Based on a review of the Regional Sanitary Sewage
Collection System plans, it is assumed that site is
currently serviced by the existing 300mm sanitary
sewer located on Queen Street. The Queen Street
sanitary outlets to the Region's trunk sanitary sewer
system located on Ontario Street. The Goodyear
Lands are located in close proximity to the Region's
trunk sanitary sewage collection system located
on Ontario Street and along the west side of the
Bowmanville Creek. The servicing options for the
development of the Goodyear Lands are either to
provide a sanitary sewage pumping station and
connect to the existing sanitary sewer on Ontario
Street, or to connect to the existing trunk sanitary
sewer along the west side of the Bowmanville Creek
by means of a trenchless water crossing of the creek.
Watermain: The former Goodyear lands has an
existing 400mm feedermain located along the north
and east boundary of the site. Linear infrastructure
upgrade needs to facilitate the delivery of an
adequate water supply to future development on the
site will be minimal. Consultation with the Region will
be completed to understand any constraints related
to storage and treatment needs and the timing of
any such improvements to the Region's water supply
system.
• Storm Drainage: The project team has no formal
records of the existing private storm sewers that
may service the existing lands. Regardless, the
existing system, if one exists, would likely be deemed
insufficient to service the re -development of the
lands. The re -development of the former Goodyear
lands will provide an opportunity to provide a new
storm sewer system and any necessary quantity /
quality control measures as prescribed by the Central
Lake Ontario Conservation Authority (CLOCA).
4.3 Goodyear Lands Transportation Impact Study
A Transportation Impact Study (TIS) was undertaken by
AECOM Canada Ltd. for the Goodyear Lands in order to
assess the existing traffic conditions in the vicinity of the
subject lands, forecast future traffic volumes associated
with the new land use, assess the future operations at
intersections in the vicinity of the subject lands, and
identify operational concerns, safety concerns and any
required mitigation measures where appropriate. The
report is dated April 4, 2023.
The TIS conducted traffic operations analysis for both
existing and future conditions. Due to the existing built
form and its limited space for significant intersection
improvements, no network modifications beyond those
already planned and discussed were implemented into
the modeling. The analysis showed generally worsened
operations throughout the network as a result of the
significant increase in population and employment in the
Secondary Plan Area.
Due to the significant growth anticipated, several of the
key signalized intersections along the King Street and
Liberty Street corridors will begin to see at -capacity
conditions, characteristic and consistent with a dense
and mature urban environment. This is generally
anticipated to lead to increased use of the area local
road network, as vehicles are encouraged to shift to
more direct minor streets to avoid the capacity issues.
The TIS concludes that despite some of the operational
and capacity concerns identified in the assessment, the
development of the Bowmanville East Secondary Plan
area reflects a more sustainable development program
and provides an opportunity to encourage a new lifestyle
for residents and workers with the implementation of
Phase 2 Technical Report 13
major transit improvements (i.e., DRT PULSE service,
Bowmanville GO Station, etc.) and an expansion of the
active transportation network.
In general, the build -out of the Goodyear Lands does not
significantly affect the road network operations compared
to those in the Future Background Conditions resulting
from the anticipated build out of the Secondary Plan
study area.
The TIS recommends additional transportation review
and study as development comes to fruition, including
additional transportation and traffic impact studies
as part of the development approvals for process for
submitted Draft Plans for Subdivision and Site Plans. In
addition, future coordination with Durham Region Transit
is encouraged in order to monitor future service demand
needs, plan for transit routes along arterial and collector
roads, and ensure that sufficient space is protected for
transit stops as part of the road right-of-way.
4.4 Goodyear Lands Functional Servicing Report
A Functional Servicing Report (FSR) was undertaken by
AECOM Canada Ltd. for the Goodyear Lands in order to
provide guidance on the provision of water, wastewater
and stormwater infrastructure required to service the
Goodyear Lands. The functional servicing analysis was
undertaken on the basis of the Demonstration Concept
Plan developed by SvN. The report is dated April 18, 2023.
Regarding water servicing, the analysis found that there
were no general concerns with providing a sufficient
supply of water to the Goodyear Lands, given the site has
a 400mm feedermain located on it. Pending the ultimate
location of the proposed building footprints, there may be
a need to assess during the development approvals stage
whether relocation and/or other protective measures
would be required.
Regarding wastewater servicing, the analysis found that
the Region do not have any sanitary capacity design
sheets that they have confidence in for assessing
capacity of the existing collection system. The Region's
expectation is that a new sanitary sewer along Hunt
Street, south of the Goodyear Lands, is required to
service the Goodyear Lands and other development
that may contribute to the sanitary sewer along Hunt
Street. The report recommends that there be a detailed
assessment of capacity of the Hunt Street sanitary sewer
undertaken during the development approvals process
to determine if external improvements are required to
service the Goodyear Lands. The Region pf Durham has
advised they are preparing a sanitary model for this area
and as such the tools will be available in the future to
complete an assessment with confidence.
Regarding stormwater servicing, the analysis identifies
the need for a new stormwater management facility to
manage the runoff from the Goodyear Lands. This is
recommended to be located at the south west portion of
the site and the area is anticipated to be between 0.6 to
1.2 hectares. Modifications to the existing Municipal storm
sewer would be required to implement this concept plan,
including a potential new facility to treat existing runoff.
It is recommended that the Municipality of Clarington
and the landowner prepare a Master Drainage Report to
determine the preferred solution for the management of
runoff from the Goodyear Lands and the broader area
currently serviced by the existing stormwater sewer
system.
14 Bowmanville East Urban Centre Secondary Plan Update
5.0 Preliminary Policy Directions
Drawing on analysis and outputs from the Phase 1 and
2 work, a number of policy directions have emerged
which will guide the development of the Secondary Plan
document and Urban Design Guidelines for the Project
Area. These policy directions will be updated and refined
in the final phase of the project, and include:
• The establishment of five Character Areas, which
will provide the opportunity to create several
distinctive areas within the Secondary Plan
boundaries.
Policies will support and implement the below visions
for each of the Character Areas.
- The Historic Downtown will build upon its status
as the civic heart of Bowmanville and continue to
support the historic main street as a destination
for residents and visitors;
- The East Business District will continue to
develop as a commercial and mixed -use area
while leveraging opportunities from existing
anchor retail and institutional uses.
- The Downtown Corridor will act as a mixed -use
transition zone which cohesively links the East
Business District and Historic Downtown.
- The Residential Communities will maintain their
existing low-rise character while introducing
context -sensitive opportunities for infill housing.
- The Goodyear lands will be developed into a new
mixed -use community which accommodates
new housing and jobs, while creating accessible
connections to the surrounding natural heritage
system.
An emerging land use strategy which streamlines
and updates the land use schedule of the existing
Bowmanville East Town Centre Secondary Plan.
The emerging land use strategy concentrates Mixed
Use Areas along the length of King Street from
Scugog Street to Simpson Avenue, which will permit
a wide range of uses including retail, commercial,
office and institutional. Both the Goodyear Lands and
Bowmanville Mall are proposed to be designated as
Mixed Use Areas. The emerging land use strategy
proposes three residential designations: Residential
High Density, Residential Medium Density, and
Residential Low Density. Preferred locations for the
Residential High Density designation include lands
to the north and west of the Scugog Street and
Church Street intersection, and lands on the north
side of King Street east of Galbraith Court. Preferred
locations for the Residential Medium Density
designation include parcels along Queen Street
between Scugog Street and Queen Street in addition
to lands on the south side of Church Street between
Ontario Street and St George Street. Lands within
the Residential Communities Character area will be
designated Residential Low Density.
• An emerging height and built form strategy which
will permit the tallest heights within the East
Business District, centered along King Street
East, and the Goodyear Lands, as part of a new
master -planned community.
The emerging height and built form strategy
features a maximum height of 12 storeys for the
East Business District and Goodyear Lands. The
Downtown Corridor is proposed to be limited to
a 10-storey maximum to implement a mid -rise
character, while a 6-storey maximum is proposed for
the Historic Downtown to complement the traditional
main street. Within the Residential Communities, a
4-storey maximum is proposed in order to preserve
the low-rise pattern of the area while also offering
opportunities for'missing middle' development.
Phase 2 Technical Report 15
With the exception of the Residential Communities,
a minimum building height of 3 storeys is proposed
throughout the Secondary Plan area.
An emerging public realm and active
transportation strategy which identifies
opportunities to establish new publicly -accessible
spaces, create a sense of place and improve the
pedestrian experience.
Through the Phase 2 work, four Public Space Focal
Points were identified, one for each Character Area,
with each generally situated at major intersections
or along major corridors. These are intended to be
further explored in Phase 3 as locations for potential
future public parks, open spaces, plazas or POPS.
Policies in the Secondary Plan will reinforce King
Street as a primary pedestrian -oriented thoroughfare,
with direction to create a consistent streetwall,
locate active uses at -grade, and improve streetscape
conditions. Emerging policy directions also include
improvements to the active transportation network,
including suggested connections to cycling and trail
networks.
16 Bowmanville East Urban Centre Secondary Plan Update
6.0 Next Steps
From spring through fall of 2022, the focus of this Project
will shift to the preparation of the Draft Secondary Plan,
which will implement the vision for the Bowmanville East
Urban Center and support growth and development in
line with the Vision and Demonstration Plans developed
in Phase 2. The Secondary Plan will also consider and
integrate findings from the studies completed as part of
the Goodyear Lands scope of work. Furthermore, Phase
3 of this Project will also involve preparing the draft
Urban Design Guidelines, which will outline the built form,
public realm and sustainability elements which should be
considered and applied in future developments.
Following review and comment by the Municipality, the
Draft Secondary Plan and Urban Design Guidelines will
be circulated to the Steering Committee for their input.
They will be presented at a Statutory Public Meeting;
input from these activities be used to inform the final
version of the Secondary Plan and Urban Design
Guidelines.
Phase 2 Technical Report 17