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Staff Report
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Report To: Planning and Development Committee
Date of Meeting: September 16, 2024 Report Number: PDS-033-24
Authored by: Lisa Backus, Manager Community Planning
Submitted By: Carlos Salazar, Deputy CAO, Planning and Infrastructure
Reviewed By: Mary-Anne Dempster, CAO
By-law Number: Resolution Number:
File Number: COPA2023-0002 (PLN 41.3)
Report Subject: Bowmanville East Urban Centre Secondary Plan Recommendation Report
Recommendations:
1. That Report PDS-033-24, and any related delegations or communication items, be
received;
2. That Official Plan Amendment 136 (OPA 136) to update the Bowmanville East
Urban Centre Secondary Plan in the Clarington Official Plan be adopted;
3. That upon adoption by Council, the recommended Secondary Plan be implemented
by staff as Council’s policy on land use and planning matters and through the capital
budget program;
4. That the recommended Urban Design Guidelines appended to the Secondary Plan
be approved and be used by staff to guide development applications and public
projects;
5. That the Deputy CAO, Planning and Infrastructure Services be authorized to finalize
the form and content of OPA 136, the Secondary Plan, and the Urban Design
Guidelines resulting from Council’s consideration, public participation, agency
comments, and technical considerations;
6. That the Deputy CAO, Planning and Infrastructure Services be authorized to execute
any agreements to implement the Secondary Plan once adopted by Council;
7. That OPA 136 be forwarded to the Region of Durham for approval; and
8. That all interested parties listed in Report PDS-033-24, and any delegations be
advised of Council’s decision.
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Report Overview
Staff are pleased to recommend the updated Bowmanville East Urban Centre Secondary
Plan for Council adoption based upon the extensive consultation that has occurred.
The Bowmanville East Secondary Plan is planned to create a unique community that
celebrates its heritage while accommodating opportunities for growth and change. The
Secondary Plan area includes the historic downtown, Bowmanville Hospital, and former
Goodyear lands. A potential medical campus to support the Bowmanville Hospital and
mixed-use development opportunities along King Street East, in the East Business District,
will transform this area. The former Goodyear lands are planned to be the focus of mixed -
use development and are envisioned to include a park space and connection to the
Bowmanville Creek.
The purpose of the Official Plan Amendment 136 is to adopt the updated Bowmanville East
Urban Centre Secondary Plan and Urban Design Guidelines into the Clarington Official Plan.
This Amendment applies to only the lands located within the Bowmanville East Urban Centre
Secondary Plan Area. Following adoption by Council, the Bowmanville East Urban Centre
Secondary Plan will be forwarded to the Region of Durham for review and approval.
1. Purpose of the Report
1.1 The purpose of this staff report is to recommend to Council the adoption of Official Plan
Amendment 136 (OPA 136) to include the Bowmanville East Urban Centre (BEUC)
Secondary Plan in the Clarington Official Plan. This will replace the existing
Bowmanville East Town Centre Secondary Plan and Urban Design Guidelin es. The
recommendation comes following a thorough public engagement process. The staff
recommended OPA 136 includes the Secondary Plan and the associated Urban Design
Guidelines (UDG) and is provided as Attachment 1 to this staff report.
1.2 This report includes an overview of the Secondary Plan, and a summary of the process
and comments received since the release of the draft Official Plan Amendment, draft
Secondary Plan, and draft UDG on December 21, 2023, prior to the Statutory Public
Meeting.
2. Background
2.1 The Bowmanville East Town Centre Secondary Plan was originally approved in 1996
and updated in 2003. Its purpose was to guide growth and redevelopment to strengthen
the role of the East Town Centre with an emphasis on increased density, heritage
preservation and quality urban design.
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2.2 The Update to the Bowmanville East Town Centre Secondary Plan, now called the
Bowmanville East Urban Centre Secondary Plan, was initiated in 2017 to bring the
Secondary Plan into conformity with the new Clarington Official Plan a nd Regional and
Provincial policies. It also provided an opportunity to create a more detailed plan for the
former Goodyear Lands.
2.3 The BEUC Secondary Plan (the Secondary Plan) is centered on the intersection of King
Street and Liberty Street and is approximately 127 hectares in size. The western and
eastern boundaries are the Bowmanville and Soper Creeks respectively. The
Secondary Plan area includes the historic Downtown, the East Business District, the
Bowmanville Mall, the Bowmanville Hospital, and a nu mber of businesses, services, and
government offices.
Figure 1: Bowmanville East Urban Centre Secondary Plan Area
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2.4 The Secondary Plan area also contains the lands of the former Goodyear manufacturing
plant (known as the “Goodyear Lands”). Located south of the Downtown and directly
adjacent to the Bowmanville Creek, this approximately 15-hectare brownfield site
represents the largest redevelopment site within the Secondary Plan area.
2.5 Studies specific to the Goodyear Lands have been undertaken to provide more detailed
planning to ensure that this area redevelops in an environmentally sensitive manner that
minimizes impacts to the larger community.
3. Priorities in the Secondary Plan and Urban Design
Guidelines
3.1 The Secondary Plan, UDG and the Secondary Plan process have addressed four
Council priorities:
Sustainability and Climate Change
3.2 The Secondary Plan will support the Council adopted Priority Green Development
Framework, with the intent of protecting and enhancing the natural environment,
ensuring land use patterns promote sustainable living, and striving towards a net zero
community.
3.3 Land use patterns will promote sustainable living through a variety of means, including
walkable and bikeable neighbourhoods, efficient building designs, and transit-supportive
densities that align with the Region of Durham’s density targets and support the future
GO Station in Bowmanville West. Spaces like Bowmanville and Soper Creek valleys will
be protected and enhanced. Additional trail connections will provide greater access and
appreciation for the natural environment.
Urban Design
3.4 The Secondary Plan will celebrate and enhance the history and character of the area
and create a sense of place through appropriate built form, high-quality urban design,
and inviting streetscapes. New buildings will respect and complement the existing built
form. A variety of housing, businesses and services will be located within the Secondary
Plan area, shaping it into a retail, tourism, and civic destination that welcomes people of
all ages, incomes, and abilities.
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Affordable Housing
3.5 The Secondary Plan allows for ample housing options that will spur development with a
variety of tenures, sizes, and configurations. This will support a diverse range of
households and include supportive housing and purpose-built rental. The Secondary
Plan includes a policy to support a minimum of 30% residential units to be provided
towards affordable housing, which will assist the Municipality in achieving its 30% target
in the Official Plan. The Secondary Plan also includes a policy to allow for Staff to
negotiate additional affordable housing contributions from developers.
Community Engagement
3.6 Community consultation and engagement has gone beyond the statutory requirements
to ensure that the public is informed and has collaborated to create a plan that honours
the community’s vision. This included diverse public engagement initiatives which are
detailed in Section 4.
4. Key Elements of the Secondary Plan
4.1 The Secondary Plan establishes five Character Areas to define and organize future
development within the Secondary Plan area, including direction with regard to built
form, building heights and public realm features. This Secondary Plan is unique in that it
includes several areas each with distinct existing conditions and visions. The Character
Areas allow for planning that meets the specific objectives for each area. The five
Character Areas include:
Historic Downtown: The Historic Downtown will continue to function as the social
and commercial heart of the community, preserving the distinctive main street
character and fine-grain streetscape which defines its status as a local destination
for shopping, dining and public life. This includes the Civic Precinct. Permitted
building heights range from 3 to 6-storeys.
Downtown Corridor: The Downtown Corridor will act as a mixed-use transition
zone which cohesively links the East Business District and Historic Downtown.
Permitted buildings heights range from 4 to 10 -storeys.
East Business District: The East Business District will continue to develop as a
commercial and mixed-use centre while leveraging opportunities from existing
anchor retail and institutional uses. Permitted buildings heights range from 4 to 12 -
storeys.
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Residential Neighbourhoods: The Residential Neighbourhoods will function as an
extension of the existing low-density residential areas to the north and south, while
introducing context-sensitive opportunities for new infill housing. Permitted buildings
heights within the Regional Centre are generally maximum 4-storeys and maximum
3-storeys outside of the Regional Centre.
Goodyear Lands: The Goodyear Lands will be planned and developed as a
complete community which repurposes former industrial lands to create new housing
units and jobs while creating connections to the surrounding natural heritage system
and traditional Downtown. Permitted building heights range from 4-storeys to 12-
storeys with criteria to allow greater than 12-storeys within the central core. Heights
are limited to 4-storeys within 30 m of residential neighbourhoods to the north and
east. (Figure 2 Demonstration Plan)
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Figure 2: Demonstration Plan for the Goodyear Lands Character Area
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4.2 Within the five Character Areas, there are various land use designations which provide
direction on land use and minimum densities throughout the Secondary Plan area.
These designations include Mixed Use Area, High Density Residential, Medium Density
Residential, Low Density Residential, Institutional, Neighbourhood Park and Parkettes,
and Environmental Protection Area.
Mixed Use Area: The Mixed-Use Area designation allows for the greatest mix of
uses including, residential, office, retail, personal service, cultural, community, and
institutional uses. Permitted residential dwelling types include dwelling units above
the ground floor within a mixed-use building and apartment buildings. Townhouses
are permitted within the Goodyear Lands Character Areas as part of a larger mixed -
use development. Townhouses are also permitted in the rest of the Mixed-Use Area
as part of a mixed-use development, which includes one or more of the other
permitted residential dwelling types, to act as a transitional form to low density
residential areas.
High Density Residential: The High-Density Residential designation allows for
predominantly residential uses within mid-rise and high-rise building forms to deliver
a mix of housing types and tenures. The permitted residential dwelling type is
apartment buildings.
Medium Density Residential: The Medium Density Residential designation allows
for predominantly residential uses within mid-rise building forms to deliver a mix of
housing types and tenures. Permitted residential dwelling types include apartment
buildings and all forms of townhouses.
Low Density Residential: The Low-Density Residential designation allows for
predominantly residential uses within grade-related dwellings to deliver a mix of
housing types and tenures. Permitted residential dwelling types include street
townhouses, semi-detached dwellings and detached dwellings.
Institutional: The Institutional designation includes uses such as government
offices, museums/archives, libraries and hospitals
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Figure 3: Land Use and Built Form
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5. Public Participation
5.1 The preparation of this Secondary Plan has been supported by a thorough public
engagement strategy, including Public Information Centres (PICs), a survey, and
illustrative demonstration plans and redevelopment concepts. These efforts have been
in addition to all statutory meeting requirements. A full Sequence of Events is provided
in Attachment 2. The Statutory Public Meeting Report PDS-003-24 includes further
details on public engagement activities that have taken place.
5.2 All landowners in the Secondary Plan area received notice of all the PICs held and the
statutory public meeting. Also, Secondary Plan area landowners and all others who
have expressed an interest in the Secondary Plan have been informed that this
recommendation report is being presented to Council. All public notices,
communications and review periods have been designed to ensure conformity with the
requirements of the Planning Act.
5.3 In summary the following were the opportunities provided for public consultation:
Project Webpage
5.4 A project webpage (http://www.clarington.net/BowmanvilleEast) facilities public
participation and provides information associated with the project, including meeting
notices, presentation materials, and staff and consultant reports.
5.5 Since the project webpage was published on March 22, 2021, it has had 2,830 views.
Of that number, 1,590 views occurred after the draft OPA, draft Secondary Plan, and
draft Design Guidelines were posted to the webpage on December 21, 2023.
Public Information Centre #1
5.6 The first Public Information Centre (PIC) was held on November 22, 2018. The purpose
of the meeting was to introduce the project purpose, scope, and process to the public.
Approximately 70 members of the public attended the PIC. Public feedback was
received through informal one-to-one discussions with Municipal staff and project team
members, a public engagement activity, and feedback forms which were handed out to
the meeting attendees. A PIC summary report was prepared and is available on the
project website.
5.7 Key feedback themes from the PIC included need for improvements to active
transportation and existing parks/open spaces, greater mix of uses in area, more
downtown parking, traffic concerns, and support for taller buildings as long as impacts
were mitigated, and respect for heritage buildings.
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Public Information Centre #2
5.8 Public Information Centre (PIC) #2 was held on May 2, 2019, and approximately 40
people attended the meeting. The purpose of the meeting was to present and seek
feedback on the draft results of the Phase 1 Technical Report - Background Analysis.
Similar to PIC #1, participants were asked to provide feedback through a series of table
exercises and comment forms.
5.9 Key feedback themes from the PIC included interest in promoting aging in place,
encouraging a mix of restaurants, shops and cultural uses to complement the historic
downtown, walkable places with small retail to continue along King Street and concerns
with current traffic conditions and impact of growth on traffic.
Public Information Centre #3
5.10 The third Public Information Centre (PIC) was held virtually on June 1, 2022. The
purpose of this meeting was to re-introduce the public to Bowmanville East Urban
Centre Secondary Plan. The meeting provided individuals with a project update as well
as presented the work completed as part of the Phase 2 , including the Phase 2
Technical Report. Most significantly, this meeting included a presentation on the
Emerging Character Areas and the Draft Demonstration Plan to the public. An online
survey was created to solicit public feedback on the demonstration plan and
redevelopment concepts for key areas within BEUC.
5.11 Key feedback themes from the PIC included maintaining the existing character of the
historic downtown and residential communities, enabling redevelopment within the East
Business District and Goodyear Lands with context-appropriate polices, enhancing links
to the natural heritage network, creating walkable and pedestrian -scaled places, and
minimizing negative traffic impacts that may be caused by future growth.
6. Official Plan Amendment and Secondary Plan Process
6.1 The process to adopt or pass an Official Plan Amendment or Secondary Plan is dictated
by the Planning Act and described in the Clarington Official Plan. These processes
ensure that adequate information is made available to the public prior to a Council
decision being made.
Statutory Public Meeting – January 22, 2024
6.2 Statutory Public Meeting notice was mailed to the landowners, apartment dwellers, and
businesses located in and within 300 metres of the Secondary Plan area. This resulted
in a total 2,281 of notices mailed. Notice of the Public Meeting was also sent by mail to
the Region of Durham, the Ministry of Municipal Affairs and Housing, and other
commenting agencies as prescribed by the Planning Act. All registered interested
parties were mailed the Notice of Public Meeting by December 21, 2023. All draft and
supporting documents were posted to the webpage for early review on December 13,
2023. The Statutory Public Meeting was promoted on the Municipal website, social
media, and on tv screens at the Municipal Administrative Centre and Municipal
recreation facilities. It was also advertised in the Orono Times twice.
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7. Provincial and Regional Policy Conformity
7.1 The recommended Secondary Plan is consistent with the Provincial Policy Statement,
2020, and in conformity with A Place to Grow: The Growth Plan for the Greater Golden
Horseshoe, 2020, and the existing and new Durham Region Official Plans. Collectively
the directions regarding complete communities with a variety of housing options, a
thriving economy, and a clean and healthy environment have shaped the Clarington
Official Plan and this Secondary Plan. The Statutory Public Meeting Report PDS-003-24
outlined in more detail how the Secondary Plan is in keeping with these planning
documents.
8. Public Submissions and Summaries
8.1 This section describes public comments and inquiries received since the release of the
draft OPA, draft Secondary Plan, and draft UDG in December 2023. This includes
comments from local residents and developers in the area.
8.2 All public comments are included in the Public Comments Summary Table in
Attachment 3 to this report. The table provides an outline of the comments received
and a response as to how the comment has been addressed.
General Public Comments
8.3 General comments were brought forward regarding concerns from the additional
population planned for the area including traffic, and noise, and increased heights of
new buildings. Inquiries were brought forward regarding possible expropriation, sidewalk
infrastructure, and impacts of the Secondary Plan on specific parcels. Inquiries were
raised regarding the consultation with seniors, local businesses, and suburbs closer to
the highway interchanges.
8.4 Concerns were raised surrounding the redevelopment of the former Goodyear lands
and requested that there is sufficient oversight by the Municipality during the
rehabilitation and construction phases to prevent undue impacts from issues like
pollution, noise, and dust. Ongoing communication between the Municipality and local
residents during the redevelopment was requested.
8.5 A comment was received regarding the intersection of King Street and Scugog Street,
noting that it was mislabelled on a report document, and that its current configuration is
dangerous.
Landowner Comments
8.6 Comments were received from various landowners within the Secondary Plan area who
intend to develop their land. Generally, these comments requested increased flexibility
on policies related to townhouse permissions, setbacks, number of storeys (both higher
maximums or lower minimums were requested in different areas), and the character
areas.
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8.7 Additional requests included drive-through permissions, a laneway housing framework,
credits for affordable housing, site-specific density policies, a public parking facility, and
interim land use permissions. A parcel on the western edge of the Secondary Plan area
was requested to be excluded from the Secondary Plan area.
8.8 Comments requested clarity on policies related to particular parcels, minimum densities,
and the new heliport that will be included at Bowmanville Hospital.
8.9 Two landowners requested that their site-specific permissions from previous OMB
decisions be carried over. This included the Vanstone Mill property and a collec tion of
parcels at Wellington Street, Scugog Street, and Church Street. Policies were added to
ensure these permissions would remain. The site-specific policies are in keeping with
the intent of current Provincial, Regional and Clarington policy intent.
9. Agency Comments
9.1 This section describes the agency comments received since the release of the draft
documents in December 2023. All agency comments are included in the Agency
Comment Summary Table in Attachment 4 to this report. The attachment provides an
outline of the comment received as well as a response as to how the comment has
been addressed.
Durham Region
9.2 The Durham Region Planning and Economic Development was generally supportive of
the proposed Secondary Plan and UDG. Their comments were primarily concerned with
whether minimum densities for the Regional Centre would be achieved. To evaluate
whether the area would foster transit-supportive densities and walkability, a land budget
was requested. Comments also suggested increased permissions for height and less
restrictive transition policies. Comments suggested creating minimum density targets for
each land use designation and reduced permissions for townhouses in the land use
designations within the Regional Centre.
9.3 Comments were also received from the Durham Region Works Department. They
suggested stronger policies that would reduce dependence on cars, as the area
currently has traffic issues. Specific corrections to some technical reports were
suggested related to bus routes, future GO transit plans, jurisdiction for certain road
infrastructure, and names of roads. Comments also suggested including the
assumptions used for the future conditions modelling in the traffic impact study.
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Central Lake Ontario Conservation Authority
9.4 The Central Lake Ontario Conservation Authority was generally supportive of the
proposed Secondary Plan. They highlighted the unique natural features in the area,
including the Bowmanville Creek and its trail system. Comments suggested a long-term
plan be created for the dam structure as part of the Goodyear redevelopment. Additional
policies were suggested to prevent development in natural hazard areas and to outline
the requirements related to an Environmental Impact Study, Vegetation Protection
Zones, and hazard delineation. Further studies were recommended to assess for
impacts of development on Bowmanville Creek and existing sites of erosion.
Lakeridge Health
9.5 Lakeridge Health is the owner of the Bowmanville Hospital and was generally supportive
of the proposed Plan. They provided additional details about a future heliport that will be
located on the roof of the Hospital and the implications for surrounding building heights.
A change on some parcels from the “residential” to “institutional” designation was
requested to accommodate future development plans.
Other Commenting Agencies
9.6 Hydro One, Bell Canada, and Durham Region Transit did not provide specific
comments, but requested to be kept informed of future progress on the Secondary Plan.
Indigenous Consultation
9.7 The following First Nations were invited to provide comments or consult directly with
Municipal Staff:
Alderville First Nation
Beausoleil First Nation
Mississaugas of Scugog Island First Nation
Curve Lake First Nation
Georgina Island First Nation
Hiawatha First Nation
Kawartha Nishawbe First Nation
Métis Nation of Ontario
Rama First Nation
Huron-Wendat First Nation
9.8 Comments were only received from the Alderville First Nation. They highlighted the
treaty rights of First Nations included in the Williams Treaties and requested to be
notified expediently if archaeological artifacts are found during any development.
9.9 In summary, agencies were generally supportive of the proposed Secondary Plan, with
comments requesting clarification, providing updated information, or requesting specific
minimum densities. Generally, all comments received have been addressed to agency
satisfaction. Key revisions to the Secondary Plan are detailed in Section 10.
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10. Key Revisions to the Secondary Plan since the Statutory
Public Meeting
10.1 Revisions were made to the Secondary Plan since the Statutory Public Meeting based
on comments from agencies and the public, and emerging information. Specific
revisions are detailed below.
Revisions to draft Secondary Plan
10.2 Revisions to the Secondary Plan policies include:
Minimum Densities
Added minimum density requirements to land use designations to ensure Secondary
Plan can achieve minimum density requirements for the delineated Regional Centre.
Added general policy supporting maximizing heights and massing in Regional
Centre, where appropriate, to plan for transit-supportive densities in this area.
Revised Heights
Revised the policies for height in several areas:
o East Business District and Downtown Corridor from minimum 3 -storeys to 4-
storeys;
o Residential Neighbourhoods from maximum 4 -storeys to 3-storeys outside of the
Regional Centre;
o Goodyear Lands from minimum 3-storeys to 4-storeys;
o Goodyear Lands, specifically in the 30 m transition adjacent to Residential
Neighbourhoods from 3-storeys to 4-storeys;
o Residential Neighbourhoods in the block along Wellington Street between
Scugog Street and Silver Street up to 5-storeys between the adjacent downtown
corridor area and a 15-metre setback from the street.
Townhouse Permissions in Low Density Residential
In Low Density Residential designation, ‘street townhouses’ are the only form of
townhouses permitted.
Mixed Use Area
Revised Mixed Use Area designation to specify that stand alone residential buildings
are only permitted as part of a larger mixed-use development site.
In Mixed Use Area designation, ‘townhouses’ are only permitted as part of a larger
mixed-use development, which includes one or more of the residential dwelling
types identified, to serve as a transitional built form to low density residential areas.
In Mixed Use Areas designation within the Goodyear Lands Character Area,
townhouses are only permitted as part of a larger mixed -use development;
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Other
Added policy to reflect First Nations interests regarding future archeological studies.
Added policy for Goodyear Lands to encourage development to incorporate at -grade
uses, and specifically to encourage retail uses at the core of the Character Area to
support street animation and activity.
Added policy regarding requirements for Environmental Impact Study, in accordance
with Clarington Official Plan.
Added policy to clarify that Accessory Dwelling Units (ADUs) are not permitted in
hazard lands or areas that have no safe access.
Revised policy to add that the Municipality may consider a reduction in contribution
to affordable housing where affordable housing is provided as part of a
development.
Revised policy that explicitly states amount of affordable housing contribution that
will be provided by developers as the specific amount will be negotiated during the
development application process.
Added policy that the Municipality will investigate feasibility of a heritage
conservation district designation for the historic downtown of Bowmanville; and
Other minor changes were made related to live-work units, post-secondary uses,
built form terminology, parking, bike lane alignments, payment-in-lieu of parking,
reducing access points on major roads, heights adjacent to the Bowmanville
Hospital, and references to Official Plan policies.
10.3 Changes made to ‘Schedule A – Community Structure and Character Areas’ following
the Statutory Public Meeting in January 2024 are summarized below and detailed in
Figure 4:
Removed the portion of 116 King Street West property (Vanstone Mill) located on
west side of Bowmanville Creek along King Street West from the Secondary Plan
boundary.
Revised ‘Downtown Corridor’ Character Area along Church Street and Liberty Street
to align with property lines.
Revised Character Area of three properties along Prince Street from ‘Downtown
Corridor’ to ‘East Business District’ to align with lands owned by Lakeridge Health.
Revised Character Area of properties along portion of Queen Street from Residential
Neighbourhoods to Downtown Corridor.
Aligned ‘East Business District’ Character Area on north side of 222 King Street East
with property lines.
Revised Character Area of properties along Frank Steet and Simpson Avenue from
‘Residential Neighbourhoods’ to ‘Downtown Corridor’
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Figure 4: Changes to Schedule A – Community Structure and Character Areas
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10.4 Changes made to ‘Schedule B – Land Use' following the Statutory Public Meeting in
January 2024 are summarized below and detailed in Figure 5:
Removed the portion of 116 King Street West property (Vanstone Mill) located on
west side of Bowmanville Creek from the Secondary Plan boundary.
Revised the land use designation on south side of Climie Court from High Density
Residential to Low Density Residential.
Revised the land use designation on north side of Church Street West and the
corner of Scugog Street from Medium Density Residential to Mixed Use Area.
Revised the land use designation for three properties along Prince Street from
Medium Density Residential to Institutional to algin with lands owned by Lakeridge
Health.
Aligned the Medium Density Residential designation along Church Street and
Liberty Street with property lines.
Aligned the Mixed-Use Area designation along King Street East and Lambert
Street with property lines.
Revised the land use designation on north side of King Street East (adjacent to
Climie Court) from High Density Residential to Medium Density Residential;
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Figure 5: Changes to Schedule B – Land Use
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10.5 The following are changes made to ‘Schedule C – Transportation and Open Space
Network’ following the Statutory Public meeting in January 2024 are summarized below
and detailed in Figure 6.
Removed the portion of 116 King Street West property (Vanstone Mill) located on
west side of Bowmanville Creek from the Secondary Plan boundary.
Removed planned sidewalk along east side of Brown Street.
Removed Potential Future Local Road extension of Simpson Avenue north of King
Street East as it was determined by Staff to no longer be viable.
Removed Potential Future Local Road extension of Hunt Street to Albert Street.
Extended existing trail to align with current trail network
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Figure 6: Changes to Schedule C – Transportation and Open Space Network
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Revisions to Urban Design Guidelines
10.6 The Urban Design Guidelines were revised to conform with changes to the Secondary
Plan and corresponding schedules including:
Revised Figure 2 to align with Schedule A of the Secondary Plan.
Design guidelines revised to reflect the general maximum of 4 -storeys in Residential
Neighbourhoods within Regional Centre and 3-storeys outside the Regional Centre.
Diagrams on Page 45 and 47 removed Hunt Street extension to Alber t Street.
Updated Figure 51 regarding heights and transition within Goodyear Lands
Character Area from 3-storeys to 4-storeys within the 30 m transition adjacent to
Residential Neighbourhoods to the north and east.
10.7 In summary, minor changes were made to the Secondary Plan and UDG due to new
information provided through technical reports and agency comments. Changes were
also made to provide flexibility and ensure that adequate density would be developed to
support transit and create a thriving Regional Centre.
11. Background Reports
11.1 Background and technical reports were prepared to assist in the development of a
Secondary Plan that is best suited to the needs and vision for the area. These reports
outline the challenges and opportunities for the area and informed policy direction.
11.2 A summary of each of the technical reports is provided in Attachment 5 to this report.
The reports prepared in support of the Secondary Plan include:
Phase 1 Technical Report
Existing Servicing Conditions Reports - BEUC and Goodyear
Goodyear Lands Transportation Impact Study
Goodyear Lands Functional Servicing Report
Phase 2 Technical Report
11.3 The Goodyear Lands Transportation Impact Study has been revised in accordance with
comments received. Other reports completed to evaluate Goodyear lands include:
Bowmanville Creek and Goodyear Dam Implications Analysis, Bowmanville Creek
Floodplain and Stable Bank Assessment and a Heritage Impact Assessment.
12. Next Steps
12.1 As with other Secondary Plans and given the number of documents and comments from
Council and the public, some technical changes to wording or schedules may take place
prior to the Municipality forwarding the documents to the Region of Durham for
approval. As such, Recommendation #5 requests Council authorize the Deputy CAO,
Planning and Infrastructure Services to finalize the form and content of OPA 136.
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12.2 At this time, the Region of Durham is the planning approval authority. However, upper -
tier planning responsibilities of the Region of Durham are proposed t o be removed
through Bill 185 (Cutting Red Tape to Build More Homes Act 2024) at a future date.
More information about Bill 185 can be found in staff report FSD-024-24.
12.3 Once Clarington Council adopts the Secondary Plan through OPA 136, it will be
forwarded to the Region of Durham for review and approval. The Region has various
options. It may approve, approve with modifications, deny, or make no decisions (in
other words defer making a decision) regarding OPA 136 and the Secondary Plan.
12.4 Prior to issuing a decision on OPA 136, it is anticipated that the Region of Durham staff
will provide a list of proposed modifications to the Secondary Plan to the Deputy CAO,
Planning and Infrastructure Services. If modifications are ‘friendly’ in nature and do not
change the intent of the policy contrary to Council’s decision, the Deputy CAO, Planning
and Infrastructure Services will accept the modifications to OPA 136. Should staff
disagree with the proposed modifications, staff will bring a report to Council seeking
direction.
12.5 Once the Region of Durham issues its decision, the landowners and interested parties
will be notified by the Region and a 20-day appeal period is provided. Public bodies and
specified persons, such as landowners, who have provided comments to Clarington
Council prior to the adoption of OPA 136, and/or to the Region of Durham prior to
issuing its decision have the right to appeal all or part of the OPA. Once the OPA is
approved and the appeal period lapses, the Secondary Plan becomes part of the Official
Plan, and it would be in full force and effect.
13. Financial Considerations
13.1 The Bowmanville East Urban Centre Secondary Plan is funded by the Municipality, wit h
a cost recovery agreement in place between the Goodyear landowners, Continental
ContiTech, for some studies related to the Goodyear portion of the Secondary Plan.
13.2 The Official Plan requires that a Fiscal Impact Analysis (FIA) be undertaken for
Secondary Plans to understand the long-term financial impacts of proposed
development. Accordingly, Hemson Consulting Ltd. have undertaken an FIA for the
Secondary Plan. A memorandum regarding this FIA is provided as Attachment 6 to this
report.
13.3 Hemson Consulting Ltd. analyzed the capital and operating costs that may be incurred
and the anticipated revenue sources for the Municipality once the proposed Secondary
Plan is built out. The analysis includes estimates and assumptions which were based on
the best information available at the time of writing. Actual costs and revenues will
depend on the timing and type of development, capital projects required, and service
impacts.
Municipality of Clarington Page 24
Report PDS-033-24
13.4 The FIA found that there would be a net positive financial impact to the Municipality
once fully developed. The analysis estimated that there would be a surplus of $41 per
person and employee annually, or a total of $694,347 annually. This positive result is
because the majority of the infrastructure neede d to support this population is already
built. Intensification in this area will likely lead to more efficient use of infrastructure and
cost savings to the Municipality.
14. Strategic Plan
14.1 The preparation of the Bowmanville East Secondary Plan directly contributes to several
priorities and actions within the 2024-2027 Clarington Strategic Plan.
14.2 In support of Priority C.4.1 in the Strategic Plan, Promote and support local arts, culture
and heritage sector, secondary plan policies support the conservation of the Lambert
House formerly known as the Nurses’ Residence. The Lambert House, located on the
Bowmanville Hospital lands (11 Mabel Bruce Way), has been listed on the Municipal
Register since 2018. Lakeridge Health has commissioned a Heritage Impact
Assessment in support of conservation efforts as they plan for the redevelopment of the
Bowmanville Hospital.
14.3 Under Priority G.1.2 in the Strategic Plan, “Develop a long-term vision for historic
downtowns” is listed as an action. This Secondary Plan supports historic Downtown
Bowmanville. It envisions Downtown Bowmanville to continue its role as the social and
commercial heart of the community. The Downtown will maintain its historic character,
and surrounding development will complement it.
14.4 As noted in the public meeting report PDS-003-24, staff have initiated the preliminary
design and cost estimate for public realm improvements in the Civic Precinct. SvN
Consulting, the team that prepared the Secondary Plan, has been retained. Staff will
report back as the project advances.
Municipality of Clarington Page 25
Report PDS-033-24
Figure 7: Civic Precinct Public Realm Concepts
14.5 Under Priority G.2.1 in the Strategic Plan, “Update and complete identified Secondary
Plans” is a listed action. By bringing forward this recommendation to adopt the
Bowmanville East Urban Centre Secondary Plan, staff are completing this Secondary
Plan update.
15. Climate Change
15.1 As described in Sections 3.2 and 3.3, the Secondary Plan has been designed to reduce
the per-capita greenhouse gas emissions for those living in the area. This includes high-
density, energy-efficient building types and adding transit-supportive densities to
encourage lower emission transportation options. The Secondary Plan has also
incorporated the latest flood plain and natural heritage information available to ensure
sensitive features are protected and infrastructure is resilient to climate impacts.
16. Concurrence
16.1 Not Applicable.
Municipality of Clarington Page 26
Report PDS-033-24
17. Conclusion
17.1 The Bowmanville East Secondary Plan aims to create a unique community that
celebrates its heritage while evolving and adapting to meet the needs of future
generations. The Secondary Plan area features a mix of uses in order to meet the
everyday needs of both existing and future residents. New infill development will be
developed at appropriate and complementary heights to implement transition to low
density neighbourhoods. The former Goodyear lands will be the focus of mixed-use
development and are envisioned to include a park space and connection to the
Bowmanville Creek. A potential medical campus to support the Bowmanville Hospital
and mixed-use development opportunities along King Street East, in the East Business
District, will transform this area.
17.2 It is respectfully recommended that Council adopt Official Plan Amendment 136 to
include the updated Bowmanville East Urban Centre Secondary Plan and U rban Design
Guidelines into the Clarington Official Plan.
Staff Contact: Sylvia Jennings, Planner II, 905-623-3379 ex. 2335 or sjennings@clarington.net
or Lisa Backus, Manager of Community Planning, 905-623-3379 ex.2409 or
lbackus@clarington.net
Attachments:
Attachment 1a – Recommended OPA 136
Attachment 1b – Bowmanville East Urban Centre Secondary Plan
Attachment 1c – Urban Design Guidelines
Attachment 2 – Sequence of Events
Attachment 3 – Public Comments Summary Table
Attachment 4 – Agency Comments Summary Table
Attachment 5 – Summary of Technical Reports
Attachment 6 – Bowmanville East Secondary Plan Fiscal Impact Analysis
Interested Parties:
List of Interested Parties available from Department.
From:no-reply@clarington.net
To:ClerksExternalEmail
Subject:New Delegation Request from Guetter
Date:Friday, September 13, 2024 10:45:49 AM
EXTERNAL
A new delegation request has been submitted online. Below are the
responses provided:
Subject
Planning and Development Committee
Action requested of Council
Consideration
Date of meeting
9/16/2024
Summarize your delegation
Comments on Item 6.1
Have you been in contact with staff or a member of Council
regarding your matter of interest?
Yes
Name of the staff member or Councillor.
Lisa Backus and Sylvia Jennings
Report number (if known)
PDS-033-24
Will you be attending this meeting in person or online?
Online
First name:
Ryan
Single/Last name
Guetter
Firm/Organization (if applicable)
Weston Consulting
Job title (if applicable)
Planner/Executive Vice President
Address
Town/Hamlet
Vaughan
Postal code
Email address:
Phone number
Do you plan to submit correspondence related to this matter?
No
Do you plan to submit an electronic presentation (i.e.
PowerPoint)? If yes, the file must be submitted to the
Municipal Clerk’s Department by 2 p.m. on the Friday prior to
the meeting date.
No
I acknowledge that the Procedural By-law Permits seven
minutes for delegations.
Yes
[This is an automated email notification -- please do not respond]
1
Attachment 1a to
Report PDS-033-24
Recommended Amendment No. 136
To the Clarington Official Plan
Purpose: The purpose of this Amendment is to include the updated Bowmanville
East Urban Centre Secondary Plan in the Clarington Official Plan. This
Secondary Plan will facilitate the development of a sustainable, livable,
and inclusive community in the Secondary Plan area.
Although predominantly residential, the Secondary Plan area will
feature a mix and intensity of uses that allow many needs to be met
locally, while also having access to broader amenities. The Secondary
Plan promotes higher densities, a mix of uses, a diversity of housing
types and tenures, as well as sustainable design.
Location: This Amendment applies to an approximately 160-hectare area
centered on the intersection of King Street East and Liberty Street.
The western and eastern boundaries of the plan area is defined by
Bowmanville Creek and Soper Creek respectively. Goodyear Lands
designated as Special Study Area #3 under the Clarington Official
Plan form part of this Secondary Plan.
Basis: In 2017, Council authorized an update of the Bowmanville East
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. The Secondary Plan has been prepared based on the priorities
of Council which include Affordable Housing, Excellence in Urban
Design, and Sustainability and Climate Change and are key policy
directions guiding the Secondary Plan. Fundamental to the above has
been Community Engagement.
This Amendment is based upon the study team’s analysis and an
extensive public consultation process which included Public
Information Centres in November 2018, May 2019 and June 2022.
Public and landowner input was received through a facilitated
discussion, email, and online comment forms. The Steering
Committee’s input has also provided direction for the secondary plan.
Background reports were prepared as part of the Secondary Plan
2
process. The background reports below highlighted key challenges
and opportunities for the Bowmanville East Urban Centre and provided
direction to the Secondary Plan. The list of reports is as follows:
• Phase 1 Technical Report
• Existing Servicing Conditions Report
• Phase 2 Technical Report
• Transportation Impact Study - Goodyear
• Functional Servicing Report - Goodyear
3
Actual Amendment:
Unless otherwise indicated, in the Amendment, newly added text is shown with underlining,
and deleted text is shown as a strikethrough.
1. Existing Section 17.4 Special Study Area 3 – Goodyear Redevelopment Area is
hereby amended as follows:
“17.4.2 The Goodyear Redevelopment Area shall be planned as a mixed
use residential area taking full advantage of its proximity to downtown
Bowmanville and the Bowmanville Creek. Prior to any redevelopment,
a comprehensive redevelopment plan shall be prepared and adopted
as an amendment to the Bowmanville East Town Centre Secondary
Plan.
17.4.4 In preparing the comprehensive redevelopment plan, the following
principles shall be applied:
a. The existing street grid network will be extended to form the
street and future development blocks;
b. Consideration will be given to the adaptive reuse of portions of
the existing plant buildings;
c. Generous physical and visual access to the Bowmanville Creek
valley will be created;
d. A mix of residential, commercial, and park uses will be
considered;
e. High and mid-rise residential areas will transition to lower
density residential areas to the south and east;
f. The area will be planned to the highest standards of
sustainability, potentially including district energy; and
g. The lands within the natural heritage system and the flood plain
will be dedicated to the Municipality of Clarington. New
development within the Goodyear Redevelopment area shall
comply with the Bowmanville East Urban Centre Secondary
Plan.”
2. A new Policy is added after Policy 23.3.4 as follows and the remainder of the policies
in subsection 23.3 are renumbered accordingly:
“23.3.5 Notwithstanding Policy 23.3.4, for the areas subject to the following
secondary plans, where there is a conflict or inconsistency with the parent Plan, the
Secondary Plan shall prevail, inclusive of density and intensification policies of the
parent Plan:
i) Bowmanville East Urban Centre Secondary Plan.”
3. Existing Part Six, Section 3 “General Policies for Secondary Plans” is hereby
amended as follows:
4
“3. Secondary Plans have been prepared for the following areas:
a) Bowmanville East Town Centre Bowmanville East Urban
Centre;
b) Bowmanville West Town Centre;
c) Courtice Main Street;
d) Newcastle Village Main Central Area;
e) Port Darlington Neighbourhood;
f) Bayview (Southwest);
g) Clarington Energy Business Park;
h) Brookhill Neighbourhood;
i) Clarington Technology Business Park;
j) Foster Northwest;
k) Southeast Courtice; and
l) Wilmot Creek Neighbourhood;
4. Existing Part Six, SECONDARY PLANS, is hereby amended by deleting the
Bowmanville East Town Centre Secondary Plan in its entirety and replacing it with
the Bowmanville East Urban Centre Secondary Plan as shown in Attachment 1.
Attachment 1b
to PDS-033-24
Bowmanville East Urban Centre Secondary Plan
Municipality of Clarington
August 2024
2
Bowmanville East Urban Centre Secondary Plan ........................................................................... 1
1.0 Introduction...................................................................................................................... 5
2.0 Vision, Principles & Objectives ......................................................................................... 6
2.1 Vision ............................................................................................................................ 6
2.2 Guiding Principles & Objectives.................................................................................... 7
3.0 Community Structure & Character Areas ........................................................................ 7
3.1 Community Structure ................................................................................................... 7
3.2 Historic Downtown Character Area .............................................................................. 8
3.3 East Business District Character Area ........................................................................... 9
3.4 Downtown Corridor Character Area........................................................................... 10
3.5 Residential Neighbourhoods Character Area ............................................................. 10
3.6 Goodyear Lands Character Area ................................................................................. 11
4.0 Natural Heritage, Sustainable Development and Urban Resilience .............................. 11
4.1 Objectives ................................................................................................................... 11
4.2 Environmental Protection Area .................................................................................. 12
4.3 Climate Change and Urban Resilience ........................................................................ 13
4.4 Sustainable Design ...................................................................................................... 14
5.0 Land Use ......................................................................................................................... 16
5.1 Objectives ................................................................................................................... 16
5.2 General Policies .......................................................................................................... 16
5.3 Mixed Use Area .......................................................................................................... 17
5.4 High Density Residential ............................................................................................. 19
5.5 Medium Density Residential ....................................................................................... 20
5.6 Low Density Residential .............................................................................................. 20
5.7 Institutional................................................................................................................. 21
6.0 Urban Design and Built Form ......................................................................................... 21
6.1 Objectives ................................................................................................................... 21
6.2 General Policies .......................................................................................................... 22
6.3 Placemaking and Streetscapes ................................................................................... 22
6.4 Gateways and Prominent Intersections ..................................................................... 24
6.5 Building Siting and Design .......................................................................................... 25
3
6.6 Active At-Grade Uses .................................................................................................. 25
6.7 Parking, Loading and Mechanical Structures ............................................................. 26
6.8 Built Form by Character Area ..................................................................................... 27
7.0 Parks and Community Facilities ..................................................................................... 29
7.1 Objectives ................................................................................................................... 29
7.2 Parks ........................................................................................................................... 29
7.3 Privately Owned Publicly-Accessible Spaces .............................................................. 31
7.4 Schools ........................................................................................................................ 32
7.5 Community and Recreation Facilities ......................................................................... 32
8.0 Housing ........................................................................................................................... 32
8.1 Objectives ................................................................................................................... 32
8.2 General Policies .......................................................................................................... 33
8.3 Affordable Housing ..................................................................................................... 33
9.0 Mobility and Street Network ......................................................................................... 34
9.1 Objectives ................................................................................................................... 34
9.2 Transportation Network ............................................................................................. 35
9.3 Arterial Roads ............................................................................................................. 36
9.4 Collector Roads ........................................................................................................... 37
9.5 Local Roads ................................................................................................................. 38
9.6 Rear Lanes ................................................................................................................... 38
9.7 Public Transit .............................................................................................................. 39
9.8 Active Transportation Network .................................................................................. 40
10.0 Servicing ...................................................................................................................... 41
10.1 Objectives................................................................................................................ 41
10.2 Municipal Services .................................................................................................. 41
10.3 Stormwater Management and Low Impact Development ..................................... 42
10.4 Utilities .................................................................................................................... 43
11.0 Cultural and Built Heritage ......................................................................................... 44
11.1 Objectives................................................................................................................ 44
11.2 General Policies ....................................................................................................... 44
12.0 Implementation and Interpretation ........................................................................... 45
4
12.1 Implementation ...................................................................................................... 45
12.2 Interpretation ......................................................................................................... 47
SCHEDULE A – COMMUNITY STRUCTURE AND CHARACTER AREAS
SCHEDULE B – LAND USE
SCHEDULE C – TRANSPORTATION AND OPEN SPACE NETWORK
APPENDIX A – URBAN DESIGN GUIDELINES
5
1.0 Introduction
Centered on the intersection of King Street East and Liberty Street, the 127-hectare
Bowmanville East Urban Centre Secondary Plan area (“the Plan area”) encompasses a mix of
land uses and a diverse built form. The Plan area includes a number of notable districts and
destinations, including the traditional Downtown, the East Business District, the former
Goodyear manufacturing lands, the Bowmanville Mall and the Lakeridge Health Bowmanville
Hospital, and is home to a number of businesses, services and government offices. The Plan
area 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.
Furthermore, the Plan area contains the lands of the former Goodyear manufacturing plant
(known as the “Goodyear Lands”). Located south of the Downtown and directly adjacent to the
Bowmanville Creek, this approximately 15.5-hectare brownfield site represents the largest
redevelopment site within east Bowmanville.
In the Clarington Official Plan, the majority of the lands are designated as Urban Centre, with
the Goodyear Lands designated as Special Study Area #3. The Plan area functions as a focal
point of activity, interest and identity for residents of the Municipality of Clarington. This
Secondary Plan will build upon the existing condition of Bowmanville East by encouraging
forward-thinking development which contributes to the future long-term prosperity and well-
being of this complete community.
In conformity with the updated Clarington Official Plan, the Secondary Plan is rooted in four
priorities as identified by Clarington’s Council:
1) Sustainability and Climate Change – the Secondary Plan will support the adoption of a
“green lens” approach to development, with the intent of protecting and enhancing the
natural environment, ensuring land use patterns promote sustainable living, and striving
towards a net zero community.
2) Urban Design – the Secondary Plan will celebrate and enhance the history and character
of the Bowmanville East Urban Centre, creating a sense of place through appropriate
built form and high quality urban design.
3) Affordable Housing – the Secondary Plan will permit a variety of housing types and
tenures to ensure there are ample and appropriate housing options for people of all
ages, incomes and abilities.
4) Community Engagement – the Secondary Plan will be underpinned by a robust public
consultation and engagement process to ensure an inclusive and welcoming planning
process.
6
The policies of the Secondary Plan are in conformity with the Durham Region Official Plan. The
purpose of the Secondary Plan is to provide planning and design policies to guide future
development within the Bowmanville East Urban Centre. The directions of the Secondary Plan
will be implemented through Plan of Subdivision, Zoning and Site Plan Control.
Development proposals within the Plan area will adhere to this Plan, ensuring that the
Bowmanville East Urban Centre achieves the vision and guiding principles which were
formulated during the planning process with input from key stakeholders and the broader
community. This Plan is complemented by a set of Urban Design Guidelines (attached as
Appendix A), which provide direction for its implementation.
2.0 Vision, Principles & Objectives
2.1 Vision
Bowmanville East will be a vibrant, livable and sustainable community. Bowmanville East will
embody a unique identity, one which celebrates and values its historic character while evolving
and adapting to meet the needs of future generations. It will maintain and build on the existing
urban fabric, while accommodating opportunities for gradual growth and change.
The Plan area will feature a mix of uses of varying intensity, including residential, commercial,
employment, open space and institutional uses, in order to meet the everyday needs of both
existing and future residents. A variety of housing, businesses, and essential services will be
located within the Plan area, helping shape Bowmanville East into a retail, tourism and civic
destination—welcoming people of all ages, incomes and abilities to live, work and play.
New infill buildings will be developed at appropriate and complementary heights and densities
and implement transitions to the existing built form. The redevelopment of the Goodyear Lands
will provide an exciting opportunity to repurpose former industrial lands for the establishment
of a new master-planned, higher-density mixed use community.
The Plan area will provide a cohesive and walkable public realm, comprised of a network of
ecologically-rich parks, open spaces, and multimodal streetscapes. These will introduce
additional opportunities for greenery, public art and active transportation, encouraging users to
explore and interact with the community. The existing natural heritage system, including the
valleylands adjacent to the Bowmanville and Soper Creeks, will be preserved, enhanced and
connected to the broader Plan area.
Finally, Bowmanville East is envisioned as an inclusive and forward-thinking community. This
Plan includes policies which support municipal affordable housing targets and encourage a wide
range of housing options to meet the varied needs of residents. Development within the Plan
area will be designed to minimize environmental impact, adopt sustainable building
technologies and support greater urban resilience in pursuit of a post-carbon future.
7
2.2 Guiding Principles & Objectives
This Vision will be realized through the implementation of policy directions which are based
upon the following seven key guiding principles and their associated objectives:
1. Provide Housing Choice and Affordability – to ensure that residents are able to access
and maintain adequate, affordable and suitable housing which securely contributes to
their sense of well-being and quality of life.
2. Improve Connections – to facilitate comfortable, direct and efficient connections for all
modes of transportation in order to enable access between key destinations and
promote mobility via active transportation methods.
3. Diversify Open Space – to create opportunities for parks, open spaces, and streetscapes
which support recreational activities, social interaction and diverse programming for
users of all ages and abilities.
4. Maintain Historical Character – to recognize the area’s unique pattern of historical
development and to promote development which is complementary to the existing
character and enables context-sensitive transitions in built form.
5. Establish an Active Street Wall – to support development which has appropriate and
pedestrian-oriented scale and massing, and where appropriate locates active uses at-
grade to support street-level activity.
6. Promote a Sense of Place – to strengthen and celebrate the unique characteristics of
the area and encourage a built form and public realm which reinforces its key role as a
destination within Clarington.
7. Create a Sustainable Future – to ensure a healthy environment for future generations
through development practices which protect the natural environment and respond to
climate change in the pursuit of a resilient, equitable and post-carbon future.
3.0 Community Structure & Character Areas
3.1 Community Structure
The community structure for the Bowmanville East Urban Centre organizes a distribution of
land uses and intensities of development to achieve this Plan’s vision, principles & objectives.
The Secondary Plan establishes five Character Areas across the Plan area which respond to
existing urban conditions, define the identities of different areas within the Urban Centre, and
8
provide guidance in regards to the hierarchy and character of future redevelopment. As
identified on Schedule A of this Plan, the key structuring elements of the Plan area include:
3.1.1 Character Areas: Five Character Areas are established to define and organize future
development within the Plan area, including direction in regards to land use, building
heights and public realm features. The five Character Areas include the Historic
Downtown, East Business District, Downtown Corridor, Residential Neighbourhoods and
Goodyear Lands. Sections 3.2 to 3.6 of this Plan describe the Character Areas.
3.1.2 King Street Corridor: As a Regional Corridor, King Street shall be the primary location for
higher-density, mixed use areas which support higher-order transit services, pedestrian-
oriented development, and a concentration of commercial and service uses to serve the
community, in accordance with the Regional Official Plan.
3.1.3 Liberty Street Corridor: As a Local Corridor, Liberty Street shall be developed with mixed
use areas with appropriate densities to support frequent transit service, in accordance
with the Regional Official Plan.
3.1.4 Environmental Protection Areas: Environmental Protection Areas along the Bowmanville
and Soper Creek valleys largely define the eastern and western boundary of the Plan
area.
3.1.5 Parks and Open Space: The parks and open space network includes the existing Rotary
Park, a Neighbourhood Park with an important civic and community role. Additional
public parks and open spaces are anticipated to be developed through future
development within the Plan area, including a parkette within the Goodyear Lands.
3.1.6 Gateways and Prominent Intersections: Gateways are key locations where high-quality
architectural design and treatment will be applied. Gateways are located at the western
and eastern terminus points of the King Street corridor, signifying points of entry into
the Plan area. Prominent Intersections are key intersections that function as community
focal points, where built form and special architectural and landscaping elements serve
to emphasize the significance of the intersection.
3.2 Historic Downtown Character Area
Objective
3.2.1 The Historic Downtown will continue to function as the social and commercial heart of
the Bowmanville community, preserving the distinctive main street character and fine-
grain streetscape which defines its status as a local destination for shopping, dining and
public life.
Policies
3.2.2 It is the Municipality's intent to maintain the Historic Downtown as the administrative
and symbolic centre of Clarington. New civic, administrative and institutional uses are
9
encouraged to be located along Temperance Street, helping to entrench and expand the
presence of existing municipal buildings and to establish a local hub for these functions.
3.2.3 King Street will continue to serve a primary commercial function, with retail and service
uses located on the ground floor of mixed use buildings.
3.2.4 New development will be comprised of primarily mid-rise forms and will preserve the
historic character and existing fine-grain streetscape of the King Street corridor.
Context-sensitive intensification and redevelopment will be encouraged, which supports
and enhances the historic streetscape along King Street while providing additional
massing and height without negatively impacting the streetscape.
3.2.5 New development will provide for and be supported by a generous public realm
including a western gateway, a newly established ‘flex’ shared street along Temperance
Street, active uses along King Street, Division Street and Temperance Street, new
connections to the Goodyear Lands and Bowmanville Creek, and new public parks and
open spaces.
3.3 East Business District Character Area
Objective
3.3.1 The East Business District will continue to develop as a commercial and mixed use
center while leveraging opportunities from existing anchor retail and institutional uses.
Policies
3.3.2 Medical clinics, offices, laboratories, and other supportive uses are encouraged to be
located within the East Business District in order to create an expanded medical campus
adjacent to the Lakeridge Health Bowmanville Hospital and deliver high-quality job
opportunities.
3.3.3 The Bowmanville Mall is recognized as the major commercial anchor of the East
Business District. Further development or redevelopment is encouraged to retain retail
uses while locating buildings closer to the street to create a more direct relationship to
King Street.
3.3.4 New development will be comprised of a mix of mid-rise and high-rise forms, with
opportunities for high-rise buildings fronting King Street. Where new development
abuts existing low density residential forms, a transition in built form will be required.
3.3.5 New development within the East Business District is encouraged to create a finer
grained street network around Lakeridge Health Bowmanville Hospital and provide
additional frontage for development.
3.3.6 New development will provide for and be supported by public realm opportunities
including an eastern gateway, active frontages along King Street East and Liberty Street
10
South, potential new connections and views to Soper Creek, and new public parks and
open spaces.
3.4 Downtown Corridor Character Area
Objective
3.4.1 The Downtown Corridor will act as a mixed use transition zone which cohesively links
the East Business District and Historic Downtown.
Policies
3.4.2 New development will include a mix of mid-rise and high-rise forms, with the built form
implementing a transition between the mid-rise character of the Historic Downtown
and the high-rise buildings of the East Business District.
3.4.3 Development is encouraged to contribute to a cohesive, well-scaled and consistent
street wall along King Street East between Division Street and Liberty Street.
3.4.4 New development will provide for and be supported by public realm opportunities
including active frontages along King Street, potential new connections to the Goodyear
Lands and Bowmanville Creek, and new public parks and open spaces.
3.5 Residential Neighbourhoods Character Area
Objective
3.5.1 The Residential Neighbourhoods will function as an extension of the existing low density
residential areas to the north and south, introducing context-sensitive opportunities for
new infill housing. Residential Neighbourhoods within the identified Regional Centre are
planned to accommodate higher densities to support the planned function of the other
Character Areas, while Residential Neighbourhoods within the remainder of the Plan
area are intended to form an appropriate transition of built form and uses to those
permitted in the surrounding Urban Residential areas outside of the Bowmanville East
Secondary Plan.
Policies
3.5.2 New development will include a range of housing forms, typologies and tenures, to
improve housing choice and supply.
3.5.3 Existing institutional uses in this Character Area will be encouraged to remain, with the
potential to be incorporated into future site redevelopment.
3.5.4 Development within this Character Area will provide for and be supported by a public
realm strategy that is consistent with and contributes to the predominantly residential
uses, including the protection and retention of mature trees, where possible.
11
3.6 Goodyear Lands Character Area
Objective
3.6.1 The Goodyear Lands will be planned and developed as a complete community which
repurposes former industrial lands to create new housing units and jobs while creating
accessible connections to the surrounding natural heritage system and traditional
Downtown.
Policies
3.6.2 New development will be comprised of a mix of mid-rise and high-rise forms, with high-
rise buildings located at the core of the Character Area and a downwards transition to
mid-rise towards the existing residential neighbourhoods to the east and north.
3.6.3 A network of new public streets will be established to improve the connectivity of the
Goodyear Lands to its surrounding areas.
3.6.4 A new parkette will be established at the centre of the Character Area to provide active
and passive recreational space.
3.6.5 New development will deliver new community facilities and services, including a
potential school site, required to serve the needs of the new residential community, to
be determined in consultation with the Municipality of Clarington and other
stakeholders. A new school may be within the podium of a mixed use building.
3.6.6 New development will provide for and be supported by new public realm opportunities.
including new connections to the Bowmanville Creek and the surrounding natural
heritage network, enhanced streetscape treatments, and a new public plaza.
3.6.7 New development will have regard for the heritage value of existing industrial buildings
on-site and is encouraged, where possible, to retain and adaptively re-use heritage
properties.
3.6.8 New development is encouraged to incorporate active at-grade uses to generate
pedestrian activity. Retail uses are encouraged at the core of the Character Area to
support street animation and activity.
3.6.9 The industrial history of the Goodyear Lands will be incorporated into the design of the
public realm through landscaping, lighting, signage, heritage interpretation installations,
public art, and/or other appropriate forms.
4.0 Natural Heritage, Sustainable Development and Urban
Resilience
4.1 Objectives
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4.1.1 To provide for the protection, restoration and enhancement of the natural heritage
system, including its ecological integrity and function.
4.1.2 To ensure that watercourses, sensitive species, and wildlife habitat, amongst other
features, are not harmed by the effects of human activity.
4.1.3 To protect the natural heritage system from incompatible development.
4.1.4 To facilitate active transportation connections to the natural heritage system, where
appropriate.
4.1.5 To facilitate development proposals which achieve sustainable development and
building design principles.
4.1.6 To encourage development which supports improved outcomes in regards to climate
change adaptation and mitigation, water conservation and management, energy
conservation and management, urban tree canopy, biodiversity, and local food systems.
4.2 Environmental Protection Area
4.2.1 Environmental Protection Areas are recognized as the most significant components of
the Municipality’s natural environment. These areas and their ecological functions are
to be preserved and protected from the impacts of human activity. Lands designated
Environmental Protection Area are shown on Schedule A.
4.2.2 Environmental Protection Areas include natural heritage features, hydrologically
sensitive features, lands within the regulatory flood plain of a watercourse, and hazard
lands associated with valley systems, including slope and erosion hazards. Areas
associated with Environmental Protection Areas support their ecological integrity and
include vegetation protection zones and other natural heritage areas.
4.2.3 The delineation of the boundary of lands designated as Environmental Protection Area
are approximate and shall be detailed through appropriate site-specific studies prepared
as part of the review of development applications in accordance with the policies of this
Secondary Plan and the Clarington Official Plan.
4.2.4 Any new development in proximity to the natural heritage system shall be required to
complete an Environmental Impact Study (EIS) in accordance with the Clarington Official
Plan. The purpose of EIS would be establishing the limits for development adjacent to
the natural heritage features and/or natural hazards through identifying feature
boundaries and applying appropriate Vegetation Protection Zones (VPZ) as per
Clarington OP policies.
4.2.5 Development shall be subject to the policies of the Clarington Official Plan as it pertains
to natural heritage system policies in Section 3.4, Watershed and Subwatershed Plans
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policies in Section 3.5, the Hazards policies in Section 3.7, and the Environmental
Protection Areas policies in Section 14.4.
4.2.6 The eastern portion of the Plan area includes lands within the Soper Creek
subwatershed. The Municipality is undertaking the Soper Creek Subwatershed Study to
develop the Soper Creek Subwatershed Plan, which will identify stormwater
management and natural heritage strategies to protect, rehabilitate, and enhance the
natural features within the watershed. Development within the Plan area shall be
required to adhere to the recommendations of the Subwatershed Plan.
4.2.7 Notwithstanding Section 14.4 of the Clarington Official Plan, development and
redevelopment on the Bowmanville Mall lands may be permitted to the defined top-of-
bank of the Soper Creek provided provision is made for public access and connection to
a valleyland trail system.
4.2.8 Notwithstanding the development policies in Sections 3.4, 3.7 and 14.4 of the Clarington
Official Plan, it is recognized that the Vanstone Mill has historically been located within
the valleyland of the Bowmanville Creek. Further development and redevelopment
within the valleylands is permitted provided:
a) It is located outside of the floodplain;
b) Erosion control works are undertaken;
c) Environmental protection lands are dedicated to the Municipality; and
d) Arrangements are made to restore and enhance the natural features within the
Bowmanville Creek corridor.
4.3 Climate Change and Urban Resilience
4.3.1 The Municipality’s array of planning tools, including this Plan, the associated Urban
Design Guidelines, as well as the Priority Green Development Program, will ensure
development proposals meet increasingly rigorous standards of energy and water
conservation, and reduce carbon emissions.
4.3.2 Development proposals should:
a) Demonstrate best practices in green building technologies, use of renewable
and alternative energy sources, and employ other sustainable design measures
to contribute to the achievement of the Region of Durham’s greenhouse gas
emissions target of 80% below 2007 levels by 2050;
b) Where feasible, utilize materials from sustainable sources for construction and
infrastructure projects, and account for positive and negative life-cycle impacts
of materials when assessing their contribution;
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c) Consider the climate risks and implement where feasible the primary
adaptation measures outlined in the most recent version of the Durham Region
Climate Resilience Standard for New Houses;
d) Utilize street alignments, building placement, and façade design to maximize
potential for passive and active solar energy capture; and
e) Support the use of electric vehicles through the provision of charging
infrastructure in the Mixed Use and High Density Residential areas and in on-
street parking areas near parks. Engagement with utility companies early in the
planning process is strongly encouraged.
4.3.3 In multi-unit residential, townhomes, and non-residential development with shared
common onsite parking spaces, provide at least 20% of parking spaces with electrical
vehicle charging stations. All remaining spaces will be designed to enable future
charging station installation.
4.3.4 The Municipality will work with Durham Region, GO Transit, Metrolinx, and
neighbouring municipalities to improve transit services, carpooling, and other traffic
demand management measures in order to reduce greenhouse gas emissions from
private automobile reliance.
4.3.5 Integrate climate change adaptation and mitigation strategies into development
proposals through land use and development patterns that:
a) Maximize vegetation and natural areas to support improved air quality,
stormwater management, and carbon sequestration;
b) Reduce emissions of greenhouse gases, including embodied carbon, and other
pollutants;
c) Maximize opportunities for the use of renewable energy systems; and
d) Promote active transportation.
4.4 Sustainable Design
4.4.1 Encourage development proposals that include water efficient building design and
practices in all new buildings, including measures such as ultra-low flow fixtures, dual
flush toilets, and rainwater harvesting.
4.4.2 The Municipality will support a variety of water conservation efforts through building
technology, landscaping, and stormwater management.
4.4.3 Encourage development proposals that include energy efficient building design and
practices in all new buildings.
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4.4.4 Incorporate energy-saving measures in buildings such as window shading, daylight
design, daylight sensors, heat recovery ventilation, high-efficiency mechanical
equipment, and energy efficient appliances and lighting.
4.4.5 The following can be used to mitigate heat island effects:
a) Green roof and cool roof strategies that use high albedo materials to reduce
heat gain;
b) The strategic use of deciduous trees to help with evapotranspiration and
shading of sidewalks and hard surface areas in summer;
c) Solar access in winter; and
d) Light-coloured paving materials with an initial solar reflectance of at least 0.33
at installation or a solar reflectance index of at least 29.
4.4.6 Buildings should be designed and constructed to achieve all mandatory measures of the
most current version of ENERGY STAR for New Homes or comparable rating system.
Buildings should be designed for solar readiness by accommodating connections to solar
photovoltaics (PV) or solar thermal connections.
4.4.7 Public realm light fixtures should be LED, pedestrian-scaled, and conform with the
Municipality’s lighting standards.
4.4.8 Alternative energy systems and renewable energy systems are permitted and
encouraged in accordance with Provincial and Federal requirements.
4.4.9 Encourage development and streetscape improvements which support biodiversity
objectives by incorporating a wide variety of species at-grade and on rooftops, including
native plant species, pollinator-friendly species, drought-resistant species and edible
landscapes.
4.4.10 Protect the existing urban tree canopy by retaining mature trees, where appropriate.
4.4.11 All private development shall be supported by landscape plans which demonstrate how
the development will contribute to the urban forest, improve the health and diversity 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.
4.4.12 Incorporate sufficient soil volume to ensure growth of large, healthy shade trees, and,
where appropriate, other plantings, informed by design guidelines developed by the
Municipality.
4.4.13 New development and public realm improvements are required to use native plant
species wherever possible, particularly along rights-of-way and pedestrian trails.
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4.4.14 A diversity of tree species shall be planted in parks and along rights-of-way to provide a
healthy and more robust tree inventory that is less prone to insects and diseases. The
selection of tree species within the Secondary Plan area will contribute to the
Municipality’s species diversity objectives.
4.4.15 Where trees and shrubs are destroyed or harvested pre-maturely prior to proper study
and approval, compensation will be calculated at a 3:1 ratio.
4.4.16 Local food production and distribution is encouraged and supported by this Plan.
Opportunities include:
a) Community gardens;
b) Use of food-producing plant species;
c) Food co-ops and community food centres;
d) Food-related home businesses; and
e) Farmer’s markets.
5.0 Land Use
5.1 Objectives
5.1.1 To contribute to the development of a complete community with a full range of
housing, services and amenities to meet the daily needs of people of all ages and
abilities.
5.1.2 To achieve an appropriate mix of commercial, residential, recreational, cultural, and
institutional uses at densities appropriate for an urban downtown.
5.1.3 To permit levels of retail and service uses along King Street East and West to meet local
needs and support the continued vibrancy of the Historic Downtown.
5.1.4 To achieve a transition in land use towards stable residential areas and the natural
heritage system.
5.2 General Policies
5.2.1 The development of the Bowmanville East Urban Centre will realize efficient and transit-
supportive urban densities within the delineated Regional Centre by achieving a
minimum target of 150 people and jobs per gross hectare, in accordance with the
Regional Official Plan. The delineated boundary of the Regional Centre is shown on
Schedules A and B.
5.2.2 Development will adhere to the distribution of land uses as indicated in Schedule B.
Minor alterations that maintain the intent of this Plan’s policies may occur without
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amendment through the development approval process and in accordance with policies
24.1.2 and 24.1.3 of the Clarington Official Plan.
5.2.3 The following land use designations apply within the Secondary Plan area:
a) Mixed Use Area;
b) High Density Residential;
c) Medium Density Residential;
d) Low Density Residential;
e) Institutional;
f) Neighbourhood Parks and Parkettes; and,
g) Environmental Protection Area.
5.2.4 Developments within the Regional Centre shall be planned to maximize permitted
heights and massing in order to reach their highest potential transit-supportive density
and walkability, where appropriate.
5.2.5 Home-based occupations are permitted as an accessory use to a residential dwelling for
all land use designations within this Plan, to the extent that they are compatible with
residential uses and are in accordance to Section 9.3.3 of the Clarington Official Plan.
5.2.6 Within all residential land use designations, small-scale service and neighbourhood retail
uses are permitted to the extent that their nature, scale, design and location are
compatible with residential uses. These uses are intended to serve the population
within the immediate area and improve the walkability and concentration of local
amenities, in accordance with Section 9.3.2 of the Clarington Official Plan.
5.2.7 Live-work units are defined as a single unit which can accommodate combined
residential and personal service or office uses, as appropriate.
5.2.8 Mid-rise buildings are characterized as buildings between 4 to 6 storeys and high-rise
buildings are characterized as buildings between 7 to 12 storeys, in accordance with the
Clarington Official Plan’s policy on urban structure typologies.
5.2.9 Existing uses within the Historic Downtown Character Area, which are not compatible
with the historic character of the area or the future vision for street-related commercial
redevelopment, such as auto-related sales and service, service stations, and commercial
uses with outdoor storage, shall be encouraged to relocate to areas outside the Historic
Downtown.
5.2.10 Drive-through facilities are not a permitted use in any land use designation.
5.3 Mixed Use Area
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5.3.1 The Mixed Use Area designation allows for the greatest mix of uses including residential,
office, retail, personal service, cultural, community, and institutional uses.
5.3.2 Development within the Mixed Use Area designation shall predominantly consist of
street-oriented building forms with active retail and service uses at-grade, and
residential and/or non-residential uses above.
5.3.3 Lands within the Mixed Use Area designation within the Downtown Corridor, East
Business District and Goodyear Lands Character Areas shall, in aggregate, achieve a
minimum density of 150 units per net hectare.
5.3.4 Lands within the Mixed Use designation within the Historic Downtown Character Area
shall, in aggregate, achieve a minimum density of 75 units per net hectare.
5.3.5 The following uses shall be permitted within the Mixed Use Area designation:
a) Residential, in compliance with the dwelling types outlined in Policy 5.3.6;
b) Live-work uses;
c) Assisted and special needs housing;
d) Office uses, including professional and medical offices,
e) Commercial uses including retail stores, restaurants, and personal service uses;
f) Community uses such as libraries, community centers, schools, places of
worship, daycare facilities, post offices, fire and police stations or similar uses
designed to serve the community at large;
g) Parks and open spaces, including privately-owned public spaces;
h) Hotels, convention and events facilities; and
i) Arts and cultural establishments.
5.3.6 Permitted residential dwelling types include:
a) Dwelling units above the ground floor within a mixed use building; and,
b) Apartment buildings.
5.3.7 Notwithstanding Policy 5.3.6, townhouses may be permitted in the Mixed Use Area
designation within the Goodyear Lands Character Area as part of a larger mixed-use
development.
5.3.8 Notwithstanding Policy 5.3.6, townhouses may be permitted in the Mixed Use Area
designation as part of a larger mixed use development which includes one or more of
the residential dwelling types identified in Policy 5.3.6, to act as a transitional form to
low density residential areas.
5.3.9 Standalone residential buildings are only permitted in the Mixed Use Area as part of a
larger mixed-use development.
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5.3.10 A concentration of community and institutional uses is encouraged to be located within
the lands bound by Wellington Street, King Street, Silver Street and Division Street, in
order to enhance and strengthen the existing civic and community center.
5.3.11 A concentration of medical-related uses, including medical offices, laboratories and
pharmacies, is encouraged to be located within the lands on either side of King Street
East between Liberty Street and Simpson Avenue in order to create a new medical
campus around the Lakeridge Health Bowmanville Hospital.
5.3.12 Where Mixed Use Area lands abut Low Density Residential lands, proposed
development is required to implement a gradual built form transition between high-rise
and mid-rise forms and existing low density residential areas.
5.3.13 In the redevelopment of lands, the Municipality will:
a) Encourage the consolidation of smaller land parcels;
b) Encourage development which enhances the pedestrian character of the
streetscape, including appropriate setbacks to accommodate retail spill-out
areas;
c) Encourage private laneway connections between properties to reduce the
need for multiple access points onto major roads;
d) Encourage joint parking and street access between abutting properties; and
e) Encourage the preservation, renovation and reuse of historic buildings.
5.4 High Density Residential
5.4.1 The High Density Residential designation allows for predominantly residential uses
within mid-rise and high-rise building forms to deliver a mix of housing types and
tenures.
5.4.2 Development within the High Density Residential designation shall achieve a minimum
density of 150 units per net hectare.
5.4.3 The following uses shall be permitted within the High Density Residential designation:
a) Residential, in compliance with the dwelling types outlined in Policy 5.4.4;
b) Live-work uses;
c) Assisted and special needs housing; and
d) Community uses such as libraries, community centers, schools, places of
worship, daycare facilities, post offices, art and cultural facilities, or similar uses
designed to serve the community at large.
5.4.4 Permitted residential dwelling types include:
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a) Apartment buildings.
5.4.5 In addition to the uses permitted by Policy 5.4.3 and 5.4.4 of this Section, on the lands
known for municipal purposes in 2024 as 258 King Street East, a single building may be
constructed and used with a mix of residential uses and such commercial uses that
Council considers to be appropriately limited in scale and type having regard to the
capacity, operations and safety of King Street East and Galbraith Court and to the
compatibility with adjacent residential uses provided that:
a) A minimum of 50% of the gross floor area of the building is constructed and
used for residential purposes; and
b) Commercial uses do not exceed a maximum of 400 square metres.
5.5 Medium Density Residential
5.5.1 The Medium Density Residential designation allows for predominantly residential uses
within mid-rise building forms to deliver a mix of housing types and tenures. Where
appropriate, high-rise forms may also be permitted.
5.5.2 Development within the Medium Density Residential designation shall achieve a
minimum density of 65 units per net hectare.
5.5.3 The following uses shall be permitted within the Medium Density Residential
designation:
a) Residential, in compliance with the dwelling types outlined in Policy 5.5.4;
b) Live-work uses;
c) Assisted and special needs housing; and,
d) Community uses such as libraries, community centers, schools, places of
worship, daycare facilities, post offices, or similar uses designed to serve the
community at large.
5.5.4 Permitted residential dwelling types include:
a) Apartment buildings; and,
b) All forms of townhouses.
5.6 Low Density Residential
5.6.1 The Low Density Residential designation allows for predominantly residential uses
within grade-related dwellings to deliver a mix of housing types and tenures.
5.6.2 Development within the Low Density Residential designation shall achieve a minimum
density of 25 units per net hectare.
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5.6.3 The following uses shall be permitted within the Low Density Residential designation:
a) Residential, in compliance with the dwelling types outlined in Policy 5.6.4; and,
b) Community uses such as libraries, community centers, schools, places of
worship, daycare facilities, post offices, or similar uses designed to serve the
community at large.
5.6.4 Permitted residential dwelling types include:
a) Street townhouses;
b) Semi-detached dwellings; and
c) Detached dwellings.
5.6.5 Private streets and private lanes are not permitted within the Low Density Residential
Designation.
5.7 Institutional
5.7.1 Institutional includes uses such as government offices, museums/archives, hospitals and
post-secondary education uses. The Institutional designation consists of lands used for
the Municipal Administrative Centre and the Lakeridge Health Bowmanville Hospital.
5.7.2 The Municipality supports the retention and expansion of the existing Municipal
Administrative Centre and the provision of other related institutional and civic uses
within the Historic Downtown to strengthen its role as the administrative and symbolic
centre of Clarington.
5.7.3 The Municipality supports the expansion of Lakeridge Health Bowmanville Hospital as
required to meet the health care needs of existing and future residents. The
Municipality encourages the attraction and retention of other uses supportive to the
Hospital, including medical offices and long-term care facilities.
5.7.4 The Municipality supports the co-location of social, health, retail, cultural, educational,
and recreational uses, services and resources. The opportunity to co-locate these uses
shall be considered when contemplating the expansion or redevelopment of existing
community facilities and spaces.
6.0 Urban Design and Built Form
6.1 Objectives
6.1.1 To create a high-quality public realm which is safe, comfortable, welcoming and
beautiful.
6.1.2 To support urban design principles that will result in a cohesive and inviting pedestrian
experience across both the public and private realms.
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6.1.3 To establish a scale and form of development that is human-scale, contextually-sensitive
and appropriately transitions to its surroundings, including defining a distinctive built
form identity for each Character Area.
6.1.4 To prioritize the creation of vibrant and animated streetscapes through the
establishment of enhanced streetscape design, active at-grade uses, landscaping, street
furniture and public art, which supports heightened levels of pedestrian activity.
6.2 General Policies
6.2.1 The Urban Design Guidelines that accompany this Plan are to be used as guidance in the
interpretation and implementation of this Plan’s policies.
6.2.2 Development shall provide a variety of building types, heights and site configurations
across the Plan area, and on lands that can accommodate multiple buildings.
6.2.3 Development shall distribute heights, densities and concentrations of varied uses as per
the policies of this Secondary Plan to support a well balanced built environment with
appropriate scale, form and transition.
6.2.4 Development shall contribute to a high-quality public realm which creates an integrated
network of streets and open spaces and establishes pedestrian and cyclist friendly
connections to support a growing residential and employment population.
6.2.5 Development shall provide appropriate transitions to adjacent low density residential
areas, public parks and open spaces.
6.2.6 Streets and lanes are recognized as part of the public realm, in addition to their
functional roles as access routes. They will provide linkages across Bowmanville East and
support a connected and attractive public realm network together with other public
spaces and areas.
6.2.7 Visually interesting streetscapes shall be created through variation in building typology,
architectural detailing and massing.
6.2.8 Development shall be encouraged to integrate small-scale publicly-accessible open
spaces, in the form of mid-block connections, sliver parks, forecourts, courtyards, mews
and other micro spaces, in order to expand the public right-of-way and support finer
grain pedestrian movement.
6.3 Placemaking and Streetscapes
6.3.1 Public art is encouraged to be incorporated into private development and public
infrastructure to support placemaking, and should facilitate expressions of cultural and
natural heritage, community history and local identity. The provision of public art shall
be prioritized at Gateways and Prominent Intersections.
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6.3.2 Development is encouraged to help enhance the experience of the community within its
natural setting, including locating, siting and massing development to complement
access and views to natural heritage features, and supporting extensions and
improvements to the active transportation network.
6.3.3 King Street is recognized as the traditional main street and primary thoroughfare of the
Bowmanville East Urban Centre. The environment along King Street will be designed to
define and support its role as a commercial main street and vibrant urban place. An
enhanced streetscape will be implemented through the following:
a) Sidewalks on both sides of the street;
b) Planting and furniture zones adjacent to pedestrian sidewalks on both side of
the street, which may include seating, street trees, decorative planters, and
pedestrian-scaled lighting;
c) Retail spill out space within the setback area; and
d) Distinctive paving and wayfinding elements which highlight the civic
prominence of the street.
6.3.4 Temperance Street is an important secondary corridor within the organizing structure of
the Bowmanville East Urban Centre. Home to a number of public spaces and buildings,
an enhanced streetscape along Temperance Street will be designed to define and
support its role as a civic spine through the following:
a) A shared ‘flex’ street treatment will be implemented along Temperance Street,
between Wellington Street to Queen Street, by removing the formal
distinctions between spaces dedicated to pedestrians, cyclists, and motorized
vehicles.
b) Planting and furniture zones on both sides of the street, which may include
seating, street trees, decorative planters, and pedestrian-scaled lighting; and
c) Retail spill out spaces within the setback area.
6.3.5 All streets should support a vibrant and attractive public realm, provide a safe
pedestrian environment, and consider complete streets design principles, in line with
direction provided within the Urban Design Guidelines.
6.3.6 The Municipality, in cooperation with local businesses, will promote the Historic
Downtown as a point of tourist activity.
6.3.7 The Municipality will establish special signage standards to enhance the character of the
Historic Downtown.
6.3.8 The Municipality will investigate feasibility for a heritage conservation district
designation for the historic downtown of Bowmanville through the required studies and
technical analysis.
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6.3.9 The Municipality will consider a Master Streetscape Plan for the Plan area to guide
decisions for enhancing downtown Bowmanville East’s streetscape for the next
generation, including opportunities to reimagine key public right-of-ways.
6.4 Gateways and Prominent Intersections
6.4.1 Gateways and Prominent Intersections represent special locations within the Plan area
which will support a distinct sense of place and are subject to enhanced public realm
treatments. Gateways are designed in accordance with the Clarington Official Plan’s
policies on Gateways.
6.4.2 Gateways are the primary entry points to the Bowmanville East Urban Centre,
contributing to a sense of arrival and reflecting the identity of the area as a whole.
Gateways are located at the western and eastern terminus points of the King Street
corridor, at each end of the Plan area, and are identified in Schedule A.
6.4.3 Prominent Intersections shall serve as community focal points, both visually in terms of
building height, massing and orientation, architectural treatment and materials, and
landscaping, and functionally in terms of destination uses, public spaces and amenities.
The following locations within the Plan area are identified as Prominent Intersections:
a) Scugog Street and King Street;
b) Temperance Street and King Street East/King Street West;
c) Liberty Street and King Street East;
d) Simpson Avenue and King Street East; and
e) At the centre of the Goodyear Lands (as part of a new planned street network).
6.4.4 Gateways and Prominent Intersections should include distinctive building, landscape
and streetscape treatments, including but not limited to planters, public art, special
paving, signage, and street furniture, which help frame the public realm and serve as a
marker for entry points into the Plan area. Privately-owned publicly-accessible spaces
are encouraged to be located at Prominent Intersections to contribute to their visual
prominence.
6.4.5 Where appropriate, buildings should be located and massed to create, frame, and
contribute to memorable and identifiable views and vistas towards Gateways and
Prominent Intersections, with built form strategies such as building setbacks, stepbacks
and articulation, and high quality landscape treatments, as generally described in the
Urban Design Guidelines.
6.4.6 Streetscape design elements within the public right-of-way should be coordinated with
and enhance private development sites adjacent to Gateway and Prominent
Intersection locations, to create a cohesive visual identity.
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6.5 Building Siting and Design
6.5.1 Buildings will be sited and oriented to frame adjacent streets and public spaces and fit
harmoniously within the existing context.
6.5.2 Access from sidewalks, other pedestrian facilities and public open spaces to primary
building entrances shall be clearly visible, convenient and direct, with minimum changes
in grade, and shall be accessible and barrier free.
6.5.3 Buildings on corner lots shall have articulated facades facing both streets.
6.5.4 Larger buildings shall break up the visual impact of their mass through stepbacks to
upper levels, recesses and projections, façade articulation, architectural detailing and
changes in materiality, among others.
6.5.5 Development shall provide a transition, locating less dense and lower scale buildings in
locations adjacent to lower density designations.
6.5.6 Buildings shall be sited to avoid front-to-back and/or overlook conditions. Where this
cannot be achieved, impacts should be minimized with appropriate screening through
architectural or landscape treatment.
6.5.7 Buildings shall be sited and designed to address shadow impacts on sensitive uses,
including surrounding residential neighbourhoods and parks and open spaces. Where
requested by Municipal staff, development applications may be required to submit a
supporting Sun/Shadow Study.
6.5.8 Balconies shall be recessed and/or integrated into the design of the building façade.
6.5.9 Air conditioning units, utility metres and similar features should not be visible from the
public realm (street/sidewalk) and should be well integrated into a building massing,
recessed and screened.
6.6 Active At-Grade Uses
6.6.1 Active at-grade uses help support pedestrian activity at street level, increasing visual
interest and animation which contributes to urban vibrancy. Active at-grade uses
include retail storefronts, restaurants, personal and business services, office lobbies or
entrances, institutional uses, and residential lobbies and amenity areas.
6.6.2 Active at-grade uses shall be located along both sides of King Street, between Scugog
Street and Galbraith Court. Additional active at-grade uses are encouraged at key
intersections with north-south streets that extend off King Street, including Temperance
Street, Division Street, Ontario Street, Scugog Street, and Liberty Street.
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6.6.3 Active at-grade commercial or institutional uses shall maintain a minimum ground floor
height of 4.0 metres, provide glazing along all major frontages, and introduce weather
protection features, where appropriate.
6.6.4 Active at-grade residential uses shall locate entrances to be accessible from the public
sidewalk, feature prominent entryway features to clearly indicate entrance and exit
points to the building, and incorporate landscaping features which contribute to a
vibrant public realm.
6.6.5 Active at-grade use shall be encouraged where development fronts onto parks, open
spaces and community facilities.
6.6.6 Buildings with active at-grade uses shall be built close to the street line with a
continuous façade which contributes to a cohesive streetscape. Design features such as
narrow building frontages, multiple entrances, and use of distinctive signage and
pedestrian-oriented lighting on the ground floor façades are encouraged.
6.6.7 Front setbacks for buildings with active at-grade uses will generally feature hard
landscaping to encourage access between building frontages and the sidewalk. These
setbacks are encouraged to include commercial/retail spill-out zones or privately-owned
public spaces which extend the public realm.
6.7 Parking, Loading and Mechanical Structures
6.7.1 The Municipality shall consider the implementation of a payment-in-lieu parking policy
within the Regional Centre.
6.7.2 New development will remove and not retain large surface parking areas. Where
feasible, parking is encouraged below grade or in structured solutions in limited
circumstances, only where the ground floor has been activated by the permitted land
use, as an ancillary use to maximize landscaping opportunities and optimize
development sites.
6.7.3 New off-street parking will generally be screened from view of the public realm. Parking
is to be provided within buildings where possible, in accordance with policy 6.7.2.
Where it is not feasible to locate parking within buildings or structures, surface parking
shall be located to the rear or side yard of buildings in order to preserve the frontage for
a diversity of soft and hard landscaping.
6.7.4 Vehicular entrances to above or below-ground parking structures on public streets are
encouraged to be integrated into the design of the building and located to reduce
conflict with pedestrians. Design features such as distinctive pavement markings and
appropriate lighting are encouraged to denote entrances to parking structures.
6.7.5 Shared vehicle parking facilities between adjacent properties is encouraged.
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6.7.6 New parking facilities shall be designed to accommodate bicycle parking as well as
reserved spaces for drivers of car-share / carpool vehicles and electric cars. Where on-
street parking is permitted, curbside management strategies will be encouraged to
maximize the efficiency and utility of on-street parking spaces.
6.7.7 The implementing zoning by-law shall establish minimum and maximum requirements
for parking, including requirements for accessible parking spaces. Parking requirements
shall seek to reduce minimum and maximum parking standards in order to encourage a
shift toward sustainable modes of transportation and reflect the walking distance to
transit and complementary uses.
6.7.8 Loading, servicing and other functional elements are encouraged to be integrated within
the building envelope. Where this is not feasible, these elements should be located to
the rear of the building and screened from view to avoid visual impact to the public
realm or surrounding residential areas.
6.7.9 Mechanical penthouses, roof structures and roof fixtures, including satellite dishes and
communications antenna, should be screened and, where feasible, integrated within the
design of buildings. Parapets may be utilized to accommodate such screening.
6.8 Built Form by Character Area
6.8.1 Development will provide a mix of building types, variation of building heights, and
transition in scale across the Plan area, and will support the built form vision for the
Character Areas as outlined in Policies 6.8.2 – 6.8.6.
6.8.2 Development in the Historic Downtown will:
a) Permit buildings with a minimum height of 3 storeys and a maximum height of
6 storeys;
b) Locate the greatest heights within the Historic Downtown along Church Street
and Scugog Street, with lower-scale development along King Street;
c) Maintain a minimum 1.0 metre front yard setback and/or match the front yard
setbacks of adjacent buildings, where appropriate; and
d) Establish a minimum 3.0 metre stepback above the established streetwall.
6.8.3 Development in the East Business District will:
a) Permit buildings with a minimum height of 4 storeys and a maximum height of
12 storeys;
b) Locate the greatest heights within the East Business District along the King
Street corridor;
c) For high-rise buildings, establish a minimum podium height of 7.5 metres;
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d) Maintain a front yard setback of a minimum of 1.0 metre and a maximum of
3.0 metres, where appropriate; and,
e) Establish a minimum 3.0 metre stepback above the established streetwall.
6.8.4 Development in the Downtown Corridor will:
a) Permit buildings with a minimum height of 4 storeys and a maximum height of
10 storeys;
b) Locate the greatest heights within the Downtown Corridor along the King
Street corridor, while acting as a transition zone between the Historic
Downtown and East Business District;
c) Maintain a front yard setback of a minimum of 1.0 metre and a maximum of
3.0 metres, where appropriate; and
d) Establish a minimum 3.0 metre stepback above the established streetwall.
6.8.5 Development in the Residential Neighbourhoods will:
a) Permit buildings with a maximum height of 4 storeys within the Regional
Centre and a maximum height of 3 storeys outside of the Regional Centre;
b) Maintain a minimum 3.0 metre minimum front yard setback, where
appropriate; and
c) Notwithstanding policy 6.8.5 a), for the lands bound by Silver Street,
Wellington Street, Scugog Street and Church Street that are in the Residential
Neighbourhoods Character Area, building heights shall be permitted to a
maximum of 5 storeys. The maximum height of buildings located within 15
metres of Wellington Street shall be a maximum of 4 storeys in order to
provide appropriate transition in building height to the north side of Wellington
Street.
6.8.6 Development in the Goodyear Lands will:
a) Permit buildings with a minimum height of 4 storeys and a maximum height of
12 storeys;
b) Locate the greatest heights within the central core of the Goodyear Lands, with
transitions towards existing residential low density forms;
c) Limit buildings within 30 metres of the north and east lot line adjacent to the
Residential Neighbourhoods Character Area to a maximum of 4 storeys;
d) Establish a series of landmark buildings at the height peak;
e) Where buildings demonstrate a clear landmark status and are of a high design
quality, provide enhanced public realm benefit or community amenity, ensure
comfortable thermal and wind conditions for surrounding pedestrian spaces,
include green/sustainable design features, and do not significantly shadow
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existing neighbourhoods or the public realm, building heights of over 12
storeys may be permitted;
f) Maintain a front yard setback of a minimum of 1.0 metre and a maximum of
3.0 metres, where appropriate; and
g) Establish a minimum 3.0 metre stepback above the established streetwall for
buildings greater than 4 storeys.
7.0 Parks and Community Facilities
7.1 Objectives
7.1.1 To provide adequate public park space to meet the recreational needs of future
residents and visitors.
7.1.2 To provide privately owned publicly-accessible spaces (POPS) to support a broader
network of open space areas which are designed to a high quality and integrated with
the public realm.
7.1.3 To protect for a future school site to respond to anticipated growth within the Plan area,
which may be within the podium of a mixed use building.
7.1.4 To ensure the provision of a full range of community services and facilities to serve the
needs of residents of all ages and abilities.
7.2 Parks
7.2.1 Development in the Plan area shall provide for a safe, welcoming and generous parks
system that contributes to, enhances and connects to the broader parks, open space
and natural heritage system.
7.2.2 The parks system for the Bowmanville East Urban Center consists of Neighbourhood
Parks, Parkettes and Public Squares. The precise size and location of the Parkettes and
Public Squares will be determined at the time of development review and approval,
based on the parkland provision requirements of the Clarington Official Plan.
7.2.3 The park system, as a whole, shall provide a variety of opportunities for passive and
active recreation and be comprised of well-designed spaces that contribute to the area’s
sense of identity and place.
7.2.4 Rotary Park is classified as a Neighbourhood Park in accordance with Section 18.3 of the
Official Plan. Featuring walking paths, seating, lawn areas and a covered pavilion, Rotary
Park provides a multi-functional green space for the community. It will continue to be
maintained and enhanced to support the civic and recreational needs of the community.
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7.2.5 The existing green space around the Clarington Museums and Archives currently serves
as a passive green space within the Historic Downtown. Additional enhancements and
amenities are encouraged to further improve the aesthetics and functionality of this
space.
7.2.6 A new Parkette shall be located within the Goodyear Lands Character Area, with a
conceptual location identified in Schedule C. It shall be centrally-located to maximize
accessibility for residents and visitors.
7.2.7 Parkettes are intended to augment the recreation, leisure and amenity needs of a
neighbourhood but will not contain sports fields. They are to be between 5,000 square
metres (0.5 ha) and 10,000 square metres (1 ha) in size. Parkettes support passive
recreation activities, additional green space and habitat for plants and wildlife.
7.2.8 Public Squares shall be delivered through development activity as new additions to the
parks system within the Bowmanville East Urban Centre. Public Squares shall be
distributed throughout the Plan area, with at least one encouraged in each Character
Area. Though the precise location of these spaces will be determined through the
development approvals process, the following have been identified as desirable
locations for Public Squares:
a) In the vicinity of King Street East and Simpson Avenue;
b) In the vicinity of King Street East and Liberty Street North;
c) In the vicinity of King Street East and Temperance Street; and,
d) Within the Goodyear Lands Character Area.
7.2.9 Public Squares are intended to enhance the public realm by providing defined spaces for
social interaction. They are to be up to 10,000 square metres (1 ha) in size and shall be
highly visible from the dominant frontage. They shall be designed to support activity
year-round and can be used for cultural events, public art, farmers markets, and small
scale outdoor activities.
7.2.10 The planning, design and development of parks and open spaces will be guided by the
following design considerations to ensure the creation of a high-quality park experience:
a) Connect and extend to streets, open spaces and natural areas in and
surrounding the Plan area;
b) Be programmable and have a functional size, shape, configuration, and
topography as determined by the Municipality,
c) Incorporate convenient, safe and visible pedestrian and/or trail connections to
provide public access through the park;
d) Provide a place to rest, and social interaction and to seek shelter;
e) Provide shade through trees or shade structures;
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f) Meet accessibility standards for the design of public spaces;
g) Ensure continuity with the design elements of the public boulevard
h) Integrate public art or cultural features, including opportunities for heritage
interpretation and commemoration to celebrate the cultural heritage of the
area; and,
i) Where possible, provide opportunities for expansion when adjacent properties
redevelop.
7.2.11 Development adjacent to parks and open spaces will:
a) Be set back to allow the building and any of its exterior features and amenities to
be provided and maintained on the development site; and
b) generally, not be permitted to locate loading and servicing areas adjacent to the
park.
7.2.12 Dedication of lands for parks will be in accordance with Section 18 of the Clarington
Official Plan. Areas conveyed for parkland purposes will be of a size and shape that they
can be programmed with activities.
7.2.13 Environmental Protection Areas, associated vegetation protection zones and
stormwater management areas shall not be conveyed to satisfy parkland dedication
requirements under the Planning Act.
7.3 Privately Owned Publicly-Accessible Spaces
7.3.1 In addition to the publicly owned lands that form the parks designation, development is
encouraged to include privately owned publicly-accessible spaces that contribute to the
sense of place in the community and the quality of the urban environment.
7.3.2 Privately owned publicly-accessible spaces will complement the parks and open space
system and contribute to the urban environment by creating extra spaces for social
interaction, adding to visual interest, improving mid-block permeability and
complementing adjacent land uses. Among others, they can include mid-block
connections, sliver parks, forecourts, walkways and passages, courtyards, mews, and
other park-like spaces.
7.3.3 Public access to privately owned publicly-accessible spaces will be secured through the
development approvals process.
7.3.4 Privately owned publicly-accessible spaces provided through development will be
coordinated with active at-grade uses in adjacent buildings such as retail and
community spaces to provide seating and gathering spaces within the public realm and
avoid locating loading and servicing areas adjacent to privately owned publicly-
accessible spaces.
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7.4 Schools
7.4.1 The location of a potential future school site is shown symbolically on Schedule B and
will be further delineated through the development review process or during site
selection by a School Board. Schedule B does not preclude the selection of alternate
school sites by a School Board. School sites will be developed in accordance with the
relevant policies of the Clarington Official Plan.
7.4.2 The potential future school site is encouraged to be developed as an urban vertical
school, which may include the co-location of school uses within mixed use, multi-storey
buildings. The final design and specifications are subject to input from the respective
School Board and Municipality and requisite standards from the Ontario Ministry of
Education.
7.4.3 The co-location of the potential future school with other public amenities and services,
such as day cares and community centres, is encouraged.
7.4.4 The potential future school shall be sited to promote accessibility and active
transportation including, where feasible, adjacency to planned parks and open spaces.
7.5 Community and Recreation Facilities
7.5.1 The Municipality shall undertake an update of its plan for community and recreation
facilities based on the projected population of the Plan area.
7.5.2 Future community facilities shall be located in highly accessible areas that can be
accessed easily by pedestrians and cyclists, as well as by automobile.
7.5.3 Future community facilities should evoke a prominent civic presence, demonstrate
design excellence, and contribute to placemaking objectives for the downtown.
7.5.4 Development that is phased should include required on-site facilities as part of the first
phase of development, where feasible.
8.0 Housing
8.1 Objectives
8.1.1 To support the delivery of a variety of housing forms, sizes and tenures, that allow
households of various sizes and incomes to find a home within Bowmanville East.
8.1.2 To encourage the provision and retention of affordable housing and rental housing for
low and moderately-low income households.
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8.1.3 To encourage the provision and retention of housing which serves the specialized
support needs of residents, including supportive housing, assisted housing and seniors
housing.
8.2 General Policies
8.2.1 Developments will deliver a range of building and unit types, sizes, configurations and
tenures, including purpose-built rental housing and seniors housing, to accommodate a
variety of individuals and households and deliver a broad spectrum of housing options.
8.2.2 A range of unit sizes, including those suitable for larger households, is encouraged
within apartment and multi-unit buildings.
8.2.3 Residential units within apartments or multi-unit buildings will include operable
windows and are encouraged to include storage space and balconies or terraces.
8.2.4 All development proposals should incorporate barrier-free, universal or flex design
features in both common and living areas.
8.2.5 New multi-unit buildings with residential uses will be encouraged to include both indoor
and outdoor amenity spaces, which are capable of hosting a variety of programming and
are suitable for a range of household types.
8.2.6 Two additional dwelling units (ADUs) are permitted within a detached dwelling, semi-
detached dwelling, or townhouse, and one ADU is permitted within a building or
structure ancillary to a detached dwelling, semi-detached dwelling or townhouse, in
accordance with the Clarington Official Plan and subject to the provisions of the zoning
by-law and other relevant regulations.
8.2.7 Where possible, residential development should include Additional Dwelling Unit (ADU)
ready design so that the owner can add an ADU, such as a basement suite.
8.2.8 Notwithstanding Policies 8.2.6 to 8.2.7, ADUs will not be permitted within hazard lands
or in areas that have no safe access.
8.3 Affordable Housing
8.3.1 The Municipality will collaborate with public and non-profit housing providers to
encourage a supply of affordable housing units within the Plan area.
8.3.2 Affordable housing, including subsidized non-market housing units, are encouraged to
be integrated within neighbourhoods and combined within developments that also
provide market housing to encourage mixed-income communities.
8.3.3 Where redevelopment involves the removal of existing affordable housing units, it shall
replace the number of affordable units displaced within the new development.
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8.3.4 Affordable housing is encouraged to locate near to existing and planned transit.
8.3.5 The provision of assisted and supportive housing by cooperative and non-profit housing
associations is encouraged within the Plan area. The Municipality will work with Durham
Region to identify opportunities and potential locations for assisted and supportive
housing.
8.3.6 To facilitate the development of affordable housing units within the Plan area and in the
Municipality, in accordance with Policy 8.3.2, developers shall provide either land or a
contribution of funds to the Municipality for the development of affordable housing in
the community. The Municipality may consider a reduction in contribution where
affordable housing is provided as part of a development.
8.3.7 The contribution of funds will be facilitated through a contribution agreement between
the Municipality and the developer. The agreement will be negotiated by Municipal
staff prior to site plan approval. At the time of site plan approval, 50% of the funds will
be paid, with the remaining 50% to be paid at the time of first building permit.
8.3.8 To support the provision of affordable housing units, the Municipality will explore other
potential incentives such as reduced or deferred development charges, reduced
application fees, grants, and loans, to encourage the development of affordable housing
units. The reduction or deferral of development charges shall be done in consultation
with the Region of Durham. The Municipality will also encourage Durham Region to
consider financial incentives for affordable housing.
8.3.9 The Municipality will give priority to development approval applications which include
affordable housing units, including those that are being funded by federal and provincial
government programs or non-profit groups.
9.0 Mobility and Street Network
9.1 Objectives
9.1.1 To establish a well-designed, connected and accessible road network which enables
safe, reliable and efficient movement throughout the community.
9.1.2 To foster an urban environment where walking, cycling and transit are viable and
attractive alternatives to travel by automobile.
9.1.3 To support a fine-grained street grid pattern which appropriately defines development
blocks, active transportation, and maximizes access to future transit.
9.1.4 To strengthen the active transportation network to encourage the uptake of more
sustainable transportation methods, reduce greenhouse gas emissions and encourage a
healthy and active lifestyle for residents.
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9.1.5 To support a well-integrated transportation network which improves permeability of the
urban fabric and supports connections to adjacent neighbourhoods and the surrounding
natural heritage network.
9.2 Transportation Network
9.2.1 The transportation network will be developed generally as indicated on Schedule C.
Development of the transportation network shall apply a complete streets approach,
reflective of the planned Secondary Plan context of transit-oriented development and
transit-supportive density with reduced automobile reliance.
9.2.2 The road network includes the following types of roads:
a) Arterial Roads: Arterial Roads carry the highest volumes of traffic over long
distances, are used as primary transit routes, and provide limited vehicular
access to adjacent properties. Arterial Roads may be under the jurisdiction of
the Region of Durham or the Municipality.
b) Collector Roads: Collector Roads provide for key linkages between Local Roads
and Arterial Roads and are designed to carry moderate amounts of traffic over
short distances. Collector Roads are under Municipal jurisdiction.
c) Local Roads: Local Roads carry lower volumes of vehicular traffic and facilitate
access to individual properties. Local Roads are under Municipal jurisdiction.
d) Rear Lanes: Rear lanes provide access to private garages, parking spaces, and
loading and servicing areas at the rear of buildings (such as an apartment or
mixed use building). Rear lanes may be under Municipal jurisdiction or privately
owned.
9.2.3 Design roads as complete streets to ensure that all modes of mobility can move along
and cross them in a safer and more comfortable manner: motorists, transit users,
cyclists and pedestrians of all ages and abilities. Prioritize active modes of transportation
and the quality of service for the most vulnerable users, including those with
accessibility needs.
9.2.4 Design roads as significant public spaces such that they are enjoyable, comfortable and
visually-appealing. Create environments which are human-scaled and inviting and can
act as multifunctional public spaces that contribute strongly to a sense of place.
9.2.5 The existing grid of public streets shall be maintained and extended where possible. It is
the Municipality’s policy to implement the following extensions of the grid system as
required by transportation need and when funding is budgeted. This includes the
extension of Church Street East through to connect with Galbraith Court. In addition,
the Municipality will investigate the possible construction of private roads on the
hospital lands in any hospital expansion.
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9.2.6 Promote the safety and visibility of vulnerable road users through the use of street
lighting, crosswalks, materials, and speed control measures such as speed humps and
intersection bump-outs, particularly around neighbourhood destinations.
9.2.7 Incorporate green infrastructure, such as perforated pipes, rain gardens and bioswales,
on public right-of-ways.
9.2.8 Incorporate landscaping treatments, such as trees, plants and flowerbeds, within the
public boulevards to support urban drainage and maintenance of biodiversity.
9.2.9 Design Arterial, Collector and Local Roads to include a vibrant and healthy tree canopy.
9.2.10 All new and improved roads, public or private, will be built to be consistent with the
requirements of the road authority having jurisdiction.
9.2.11 The conveyance of land consistent with the widening of the right-of-way may be
required to permit development adjacent to roads. Additional dedication for road
widenings may be required, such as for grading, drainage and stormwater management,
auxiliary turn lanes, transit provisions and utilities.
9.2.12 The Municipality may require completion of transportation and traffic impact studies to
complement submitted Draft Plans of Subdivision and/or Site Plans, or for phases of the
Goodyear development. The timing for the need of these studies, as well as the scope of
work should be reviewed with Municipal staff to confirm the approach and
assumptions, but it is generally noted that the work will include a comprehensive and
detailed assessment of traffic conditions, demand forecasts, traffic impacts,
Transportation Demand Management (TDM) measures, improvement needs (road
widenings, auxiliary turn lanes, traffic controls, pedestrian and bicycle facilities, and
transit provisions, as applicable), and basic design elements (e.g. turn lane storage
lengths).
9.2.13 Wherever possible, development shall provide for joint parking and street access
between abutting properties to facilitate the movement of vehicles and improve the
supply of parking. In no case shall development preclude the possibility of shared
parking and access being provided to adjoining properties at a future date.
9.2.14 To reduce traffic congestion, improve air quality, and enhance mobility options for
residents and visitors, the Municipality shall review implementation of a Micro-mobility
Program to permit single-person lightweight human- or electric-powered modes of
travel, such as e-skateboards, e-bicycles, e-scooters and limited-speed motorcycles.
9.3 Arterial Roads
9.3.1 King Street and Liberty Street are classified as Type B Arterial Roads. Scugog Street north
of King Street and Mearns Avenue are classified as Type C Arterial Roads.
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9.3.2 Arterial Roads will be improved in accordance with Durham Region and Clarington
requirements, as appropriate, and the policies of the Clarington Official Plan, including
the Arterial Road design criteria.
9.3.3 Access directly onto King Street and Liberty Street will generally be prohibited. Access
consolidation and joint accesses will be encouraged through development and
redevelopment opportunities. Access from side streets and/or shared access with
adjacent development should be provided.
9.3.4 The Municipality will implement various measures, subject to budgetary approval and in
consultation with the Region of Durham, to enhance traffic operations, safety and
capacity on King Street, and achieve the objectives of this Plan including:
a) Improving road geometry, rationalizing lane arrangements, installing raised
centre medians where appropriate and other design modifications;
b) Widening sidewalks and incorporating streetscape enhancements to improve
the pedestrian environment;
c) Reviewing regulations for street parking;
d) Adding additional traffic signals and optimizing traffic signal timing;
e) Encouraging the relocation of undesirable private accesses;
f) Investigating the designation of King Street as a controlled access road under
the Municipal Act, 2001, and the closing of undesirable private accesses; and,
g) Investigating of potential on-road or off-road cycling facilities along King Street
East as identified on Schedule C.
9.3.5 Liberty Street South (Regional Road 14), from Baseline Road to King Street, is planned to
be reconfigured from its current two-lane cross section to a three-lane cross section
with a new centre two-way left-turn lane, as identified in Municipality of Clarington and
Region of Durham Transportation Master Plans.
9.3.6 Intersection spacing on Arterial Roads is limited in accordance with Durham Region
guidelines and the policies of the Clarington Official Plan.
9.4 Collector Roads
9.4.1 The following are classified as Collector Roads:
a) Simpson Avenue;
b) Church Street and Queen Street, between Scugog Street and Liberty Street; and,
c) Scugog Street, between King Street and Queen Street.
9.4.2 Collector Roads will be designed in accordance with the Clarington Official Plan and the
following standards:
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a) Prove a minimum of two through lanes and the road may include an auxiliary
turning lane at junctions and intersections where required;
b) Provide a multi-use path on one side of the road and a pedestrian sidewalk on
the other;
c) Landscaping and tree plantings are required within the right-of-way;
d) Provide appropriate lighting to contribute to the safe function of the roadway
as well as the safe and appropriate lighting of the pedestrian realm.
e) Lighting should be downcast to reduce light pollution.
f) Incorporate passive and physical traffic-calming measures where appropriate
to reduce speeds and improve safety.
9.5 Local Roads
9.5.1 Local Roads shall be established in a modified rectilinear grid pattern to realize high
levels of connectivity and permeability across the Plan area. Cul-de-sacs are generally
not permitted.
9.5.2 Local Roads will be designed in accordance with the Clarington Official Plan and the
following standards:
a) Connect to Collector Roads and Local Roads. Permit direct connections to Type
B and C Arterial Roads only if such intersections do not affect the operating
conditions of the Arterial Road;
b) Provide sidewalks as part of the right-of-way;
c) Limit long blocks (over 250 metres), where possible, to facilitate walkability;
d) Provide appropriate lighting to contribute to the safe function of the roadway
as well as the safe and appropriate lighting of the pedestrian realm.
e) Lighting should be downcast to reduce light pollution.
f) Incorporate passive and physical traffic-calming measures where appropriate
to reduce speeds and improve safety.
9.6 Rear Lanes
9.6.1 Rear lanes will be located to provide access to a private garage or parking space at the
rear of residential and commercial lots. They may be considered where it is either not
desirable or possible to have driveways and garages fronting directly onto a road.
9.6.2 Rear lanes shall be designed in accordance with the road classification criteria in
Appendix C, Table C-2 of the Clarington Official Plan.
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9.6.3 In addition to their vehicular functions, rear lanes can serve as alternative pedestrian
and cyclist routes which may supplement the more formalized active transportation
network.
9.6.4 Public utilities may be located within rear lanes subject to functional and design
standards established by the Municipality. Public rear lanes may provide access to
service and maintenance vehicles for required uses and may include enhanced lane
widths and turning radii to accommodate municipal vehicles as deemed necessary by
the Municipality and the Region.
9.6.5 Within the East Business District, an integrated system of private rear lanes is
encouraged to be provided through redevelopment to permit movement of passenger
vehicles between adjoining commercial properties. The Municipality will encourage the
transfer of easements by private land owners to secure access between abutting
properties on internal lanes.
9.7 Public Transit
9.7.1 Public transit will help reduce automobile reliance and associated greenhouse gas
emissions, facilitate the uptake of active transportation choices, enhance local and
regional connectivity, and encourage the adoption of healthy and active lifestyles within
the Bowmanville East Urban Centre.
9.7.2 The location and design of streets, buildings and the public realm will consider the
operation of public transit vehicles, and the ability for pedestrians and cyclists to have
safe, convenient access to surface transit stops and designated waiting areas.
9.7.3 The location and design of transit stops should optimize pedestrian access to building
entrances and community amenities, where possible.
9.7.4 Transit stops should accommodate appropriate amenities including transit shelters,
street furniture, bike racks, and pedestrian-oriented lighting. Where feasible, the
integration of transit waiting areas in buildings located adjacent to transit stops shall be
considered to support existing and growing transit ridership.
9.7.5 The transit system, including transit stops and shelters, shall be planned and designed to
be barrier free in order to be accessible to people with disabilities in accordance with
the Accessibility for Ontarians with Disabilities Act (AODA).
9.7.6 Future public transit routes will generally follow the Arterial and Collector Road network
as illustrated on Schedule C. Therefore, the delineation of Local Roads will facilitate easy
and convenient connections for pedestrians and cyclists to these streets.
9.7.7 The Municipality shall continue to work with Durham Region and transit agencies to
expedite the planning, design and construction of regional transit improvements,
including monitoring future growth and service demand needs, planning for additional
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transit routes along the Arterial and Collector road network, and ensuring that sufficient
space is protected for transit stops as part of Arterial rights-of-way.
9.7.8 The Municipality is supportive of the introduction of higher-order transit along the King
Street, which is designated as a Regional Transit Spine under the Clarington Official Plan.
9.8 Active Transportation Network
9.8.1 The active transportation network will be improved by introducing additional
improvements to pedestrian and cycling routes to expand mobility options and offer
alternative modes of transport to move to and through the Bowmanville Urban Center,
including connections with the surrounding neighbourhoods and natural heritage
network.
9.8.2 The active transportation network includes both on- and off-street facilities including
trails, multi-use paths, sidewalks, and cycle tracks and on-street bicycle lanes to
accommodate all abilities and facilitate all self-powered forms of mobility and provide
alternatives to automobile transportation lanes. The active transportation network will
be delivered as shown on Schedule C.
9.8.3 The active transportation network shall prioritize connectivity to destinations such as
natural heritage areas, parks, schools, community or institutional uses and high-traffic
streets outside the Plan area boundaries.
9.8.4 A number of extensions to the cycling network are proposed throughout the
Bowmanville Urban Centre. The preferred type and configuration of cycling facilities
shall be subject to further study to determine their feasibility and shall be subject to the
applicable Municipal and Regional technical design standards and Ontario Traffic
Manual Book 18 Guidelines. These future extensions are identified in Schedule C.
9.8.5 Schedule C identifies a number of locations for Planned Cycling Infrastructure, where
routes are currently under study or design development by the Municipality. This
includes:
a) King Street East between Ontario Street and Liberty Street;
b) King Street East between Liberty Street and Mearns Avenue; and
c) Liberty Street South south of King Street East.
9.8.6 A number of extensions to the trail network are proposed to enhance connectivity with
existing trails within both the Bowmanville Creek and Soper Creek valleylands. Trails
serve as a key form of off-street connectivity and provide opportunities for a range of
recreational activities. These future extensions are identified in Schedule C.
9.8.7 Trails shall be designed to allow for comfortable, two-way pedestrian passage, have
multiple entry points, and be supported by a suite of amenities including, but not
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limited to, washroom facilities, benches and seating areas, signage and waste
receptacles.
9.8.8 Certain proposed trail extensions fall within lands owned or regulated by the Central
Lake Ontario Conservation Authority (CLOCA). The design and implementation of these
facilities should be coordinated with the CLOCA and subject to requisite environmental
and engineering studies to determine appropriate locations and design.
9.8.9 A number of extensions to the existing sidewalk network are proposed to supplement
gaps within the existing pedestrian network, improve mobility and safety, and facilitate
an increased walking mode share within the Plan area for trips to and from residences,
institutions and local businesses. These future extensions are identified in Schedule C.
9.8.10 Any new street shall incorporate a sidewalk.
9.8.11 Owners of abutting properties are encouraged to provide pedestrian easements along
mutual property lines to help establish a publicly-accessible network of mid-block
connections.
9.8.12 Development should minimize conflicts between pedestrians and other road users
through signage, appropriate grades, paved surface, surfacing width and delineation of
rights-of-way, and well-designed transitions where facilities merge with roads.
10.0 Servicing
10.1 Objectives
10.1.1 To ensure all servicing and utility infrastructure complies with applicable Municipal and
Regional standards, and that adequate servicing is available to support the
intensification and development envisioned within the Plan area.
10.1.2 To ensure that stormwater management systems minimize stormwater runoff and
mitigate the potential adverse impacts on natural environments through the use of low
impact development (LID) principles and other quality and quantity control measures in
accordance with Municipal, Regional and Provincial requirements.
10.2 Municipal Services
10.2.1 All new development within the Bowmanville East Urban Centre will be serviced by
municipal water and sewer services and storm water management facilities.
10.2.2 Development will not exceed the capacity of existing municipal servicing infrastructure
within and external to the Plan area. Where improvements and/or upgrades to existing
municipal infrastructure, or new municipal servicing infrastructure, is planned for
implementation, timing and/or phasing of development will be coordinated with such
42
planned new, improved and/or upgraded infrastructure so as to streamline the land use
planning, infrastructure planning and infrastructure investment process.
10.2.3 New development will proceed based on the sequential extension of full municipal
services in accordance with the municipal capital works program.
10.2.4 Where infrastructure capacity is inadequate to support proposed and planned growth,
development will be required to provide upgrades and/or improvements to municipal
servicing infrastructure, and new municipal servicing infrastructure, where appropriate,
to provide adequate capacity. Landowners will be required to work with the
Municipality and the Regional Municipality of Durham to develop a plan for the phasing
of extensions to existing services at the time an application for draft plan of subdivision
is submitted.
10.2.5 The upgrades and/or improvements to, or new, municipal servicing infrastructure may
be secured in a servicing agreement entered into between various landowners to
identify cost-sharing obligations, coordination on construction of such infrastructure,
cost and implementation.
10.2.6 Development proponents and the Municipality will seek to incorporate infrastructure
and utilities in a manner that is sensitive to the quality of the public realm and reduce
the impact of development on hydrologic and ecological systems.
10.2.7 Wherever possible, watermain extensions to the existing systems should be designed in
grid patterns. Dead-end watermains should be avoided for improved water quality.
Watermain looping will be required either through public streets or servicing
easements.
10.2.8 Sanitary collection system shall be designed, constructed and commissioned by
incorporating best practices to reduce infiltration and inflow into the sewers.
10.3 Stormwater Management and Low Impact Development
10.3.1 Proposed stormwater management quality, quantity, erosion control and water balance
for ground water and natural systems shall be assessed during the development
approval process to determine the impact on the natural heritage system and
environmental features.
10.3.2 Development will be encouraged to use Low Impact Development (LID) measures
intended to minimize stormwater runoff and to manage stormwater on-site.
10.3.3 The submission of the following plans and reports are required to determine the impact
of stormwater quality/quantity, erosion and water balance of the proposed
development:
a) Stormwater Management Report and Plan;
43
b) Erosion and Sediment Control Plan;
c) Servicing Plans;
d) Grading Plans;
e) Geotechnical reports;
f) Hydrogeologic reports; and
g) Other technical reports as deemed necessary.
10.3.4 The Stormwater Management Report and Plan identified in Policy 10.3.3 will apply a
range of stormwater management practices including Low Impact Development (LID)
techniques to ensure water quality control, baseflow management, water temperature
control and the protection of aquatic habitat. The Stormwater Management Report and
Plan shall explore and consider the feasibility of, and opportunities to, implement such
LID measures as:
a) Permeable hardscaping;
b) Bioretention areas;
c) Exfiltration systems;
d) Bioswales and infiltration trenches;
e) Third pipe systems;
f) Vegetation filter strips;
g) Green roofs (multi-unit buildings);
h) Rainwater harvesting systems; and
i) Other potential measures.
10.3.5 Stormwater management plans shall adhere to the targets and requirements outlined in
the Soper Creek Subwatershed Study and the Bowmanville / Soper Creek 2020
Watershed Plan Update, where applicable.
10.3.6 Stormwater management for all development will be undertaken on a volume control
basis and demonstrate the maintenance of recharge rates, flow paths and water quality
to the greatest extent possible. Peak flow control and the maintenance of pre-
development water balance will be demonstrated.
10.3.7 Development proposals will demonstrate the use of an adequate volume of amended
topsoil or equivalent system to improve surface porosity and permeability over all turf
and landscaped areas beyond 3 metres of a building foundation and beyond tree
protection areas.
10.4 Utilities
10.4.1 The Municipality will participate in discussions with utility providers such as
hydroelectric power, communications/telecommunications facilities and utilities,
44
broadband fibre optics, and natural gas to ensure that sufficient infrastructure is or will
be in place to serve the Plan area.
10.4.2 The Municipality will promote utilities to be planned for and installed in common
trenches, where feasible, in a coordinated and integrated manner in order to be more
efficient, cost effective, and minimize disruption.
10.4.3 Telecommunications/communications utilities, electrical stations or sub-stations, mail
boxes or super mail boxes and similar facilities should be incorporated and built into
architectural and landscaping features, rather than being freestanding. Where feasible,
these will be compatible with the appearance of adjacent uses and include anti-graffiti
initiatives, and not be located in a municipally owned park.
10.4.4 Future development shall consider the visual impact and location of existing above and
below-grade utilities including telephone, hydro, water and natural gas.
10.4.5 Future development is encouraged to implement buried utilities.
10.4.6 Utilities, infrastructure and servicing shall be located so as not to interfere with existing
trees, mature tree growth or landscaping.
11.0 Cultural and Built Heritage
11.1 Objectives
11.1.1 To promote a culture of conservation that recognizes the significance of cultural and
built heritage resources and their contribution to the character of the Bowmanville East
Urban Centre.
11.1.2 To incorporate cultural heritage resources into community design and development.
11.2 General Policies
11.2.1 Where possible, the Municipality will seek the retention, conservation and/or
rehabilitation of cultural heritage resources in their original locations and for their
original uses within the Plan area, as appropriate. Where it is not possible to retain the
original uses, adaptive re-use of heritage buildings shall be encouraged.
11.2.2 New development should achieve a compatible relationship with cultural heritage
resources in their context through consideration of elements such as urban scale,
building height, massing, materiality, profile and architectural character and expression.
11.2.3 Development on or adjacent to a cultural heritage resource identified on the
Municipality’s Heritage Resource List is subject to evaluation through a Heritage Impact
Assessment to the satisfaction of Municipal staff.
45
11.2.4 Development within the Goodyear Lands shall aim to retain the industrial heritage
character of the former factory complex. Where possible, adaptive re-use of the existing
factory buildings is encouraged.
11.2.5 The industrial and commercial history of the Bowmanville East Urban Centre should be
incorporated into the design of the public realm through landscaping, lighting, signage,
heritage interpretation installations, public art, and other appropriate forms.
12.0 Implementation and Interpretation
12.1 Implementation
12.1.1 The policies of this Plan will inform decisions related to development of the lands within
the Bowmanville East Urban Centre Plan area. The policies of this Plan will be
implemented by exercising the powers conferred upon the Municipality by the Planning
Act, the Municipal Act and any other applicable statues, and in accordance with the
applicable policies of the Clarington Official Plan.
12.1.2 A Zoning By-law will implement the policies of this Plan.
12.1.3 The Municipality will monitor the policies of this Secondary Plan as part of the regular
Official Plan review and propose updates as deemed necessary.
12.1.4 An existing use of land, building or structure which is lawfully in existence prior to the
passage of the implementing Zoning By-law and which does not conform to this
Secondary Plan, but continues to be used for such purposes, shall be deemed to be legal
non-conforming.
12.1.5 Non-conforming uses, legal or otherwise, shall be encouraged to relocate or redevelop
so that the subject land may be used in conformity with the policies of this Secondary
Plan and the provisions of the implementing Zoning By-law.
12.1.6 Inherent to this Secondary Plan is the principle of flexibility, provided that the general
intent and structure of the Plan are maintained to the satisfaction of the Municipality.
As such, it is the intent of the Municipality to permit some flexibility in accordance with
the Clarington Official Plan in the interpretation of the policies, regulations and
numerical requirements of this Plan except where this Plan is explicitly intended to be
prescriptive, such as those regarding minimum densities and minimum and maximum
heights.
12.1.7 No development is permitted within the Goodyear Lands Character Area until a Record
of Site Condition has been provided to the satisfaction of the Municipality of Clarington.
A holding provision shall be included within the implementing zoning by-law.
46
12.1.8 Any proposed development within a 1000 metre radius of the Lakeridge Health
Bowmanville Hospital with a proposed building height taller than 9 storeys or the height
of the rooftop heliport, whichever is less, may be required by Municipal staff to include,
as part of a complete application, a report prepared by an Aeronautical expert which
assesses impacts of the proposed development on heliport flight paths.
12.1.9 A Sustainability Report is required to be submitted along with any development
applications for lands in the Secondary Plan area. The report should indicate how the
development meets the sustainable development principles and policies of this Plan, the
Clarington Official Plan, and the Priority Green Development Standards, and should
address sustainable community, site, and building design.
12.1.10 The Urban Design Guidelines are contained as an appendix (Appendix A) to this
Plan. The Urban Design Guidelines provide 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 the Bowmanville East Urban Centre
community. The Demonstration Plan illustrates one manner of implementing the
planning principles of the Secondary Plan. The Urban Design Guidelines and
Demonstration Plan have been approved by Council, however, do not require an
amendment to implement an alternative design solution, or solutions at any time in the
future.
12.1.11 Engineering infrastructure must follow the schedule within the Municipality’s
and Region’s capital budget.
12.1.12 Development applications for lands abutting the Arterial Roads shown in
Schedule C shall require that lands be dedicated for road widenings, as determined by
the Municipality and the Region.
12.1.13 Approval of development applications are conditional upon commitments from
the appropriate authorities and the proponents of development to the timing and
funding of the required road and transportation facilities, parks and community
facilities. These works will be provided for in the subdivision and site plan agreements.
Phasing of the development, based on the completion of the external road works, may
be required by the Municipality of Clarington.
12.1.14 Approval of development applications are conditional upon commitments from
the appropriate authorities and the proponents of development to the timing and
funding of required stormwater management, sanitary sewer and water supply facilities.
These works will be provided for in subdivision and site plan agreements. Phasing of
development, based on the completion of external sewer and water services, may be
implemented if required by the Municipality of Clarington.
12.1.15 Development applications which require an archaeological study are required to
consult and engage First Nations in the Stage One Archaeological Assessment process
and to notify First Nations expediently if archaeological artifacts are discovered.
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12.2 Interpretation
12.2.1 The Bowmanville East Urban Centre Secondary Plan aligns with the policies of the
Clarington Official Plan. The policies of this Plan, along with Schedules and Appendices
must be read and interpreted in conjunction with the policies of the Clarington Official
Plan.
12.2.2 In the event of a conflict between the Clarington Official Plan and this Plan, the policies
of this Secondary Plan prevail.
12.2.3 The boundaries shown the Schedules to this Plan are approximate, except where they
meet with existing roads, valleys or other clearly defined physical features. Where the
general intent of this Secondary Plan is maintained to the satisfaction of the
Municipality, minor boundary adjustments will not require an amendment to this
Secondary Plan.
12.2.4 Where examples of permitted uses are listed under any specific land use designation,
they are intended to provide examples of possible uses. Other similar uses may be
permitted provided they conform to the intent and all applicable provisions of this
Secondary Plan.
Schedule A: Community Structure and Character Areas
Schedule B: Land Use
Schedule C: Transportation and Open Space Network
Municipality of Clarington
Bowmanville East Urban Centre
Urban Design Guidelines
May 2024
Attachment 1c
to PDS-033-24
Bowmanville East Urban Centre Secondary Plan2
Contents
1.0 Introduction 4
Purpose of the Guidelines 4
Interpretation 4
2.0 Vision and Guiding Principles 5
3.0 Community Structure 6
3.1 King Street – Main Spine 6
3.2 Character Areas 10
3.3 Parks and Open Spaces 10
3.2 Visually Prominent Locations and Gateways 10
4.0 Built Form 12
4.1 Siting and Orientation 12
4.2 Building Design and Articulation 13
4.2.1 Entrances 14
4.2.2 Street Activation and Ground Level Design 16
4.2.3 Podium/Street Wall 18
4.2.4 Tall Buildings (9+ storeys) 20
4.2.5 Transition 22
4.3 Visually Prominent Locations 24
4.4 Pedestrian Circulation 25
4.5 Vehicular Access, Loading, Storage and Waste Areas 25
4.6 Vehicle Parking 25
5.0 Public Realm 26
5.1 General Public Realm Guidelines 26
5.2 Streets 26
5.2.1 General Street Guidelines 27
5.2.2 King Street 28
5.2.3 Temperance Street 30
5.2.4 Streets with Active Transportation Links 32
5.3 Public Open Spaces 34
5.3.1 General Public Space Guidelines 34
5.3.2 Civic Green Parks 34
5.3.3 Public Squares and Parkettes 36
5.3.4 Slivers and Connections 38
5.4 Multi-Use Paths 40
5.5 Schools 41
Bowmanville East Urban Centre Urban Design Guidelines 3
6.0 Natural and Cultural Heritage 42
6.1 Natural Heritage/Valleyland 42
6.2 Cultural Heritage 42
7.0 Character Areas 44
7.1 Goodyear Lands Character Area 44
7.1.1 Street and Block Network 46
7.1.2 Parks and Open Space Network 48
7.1.3 Built Form 50
7.2 Residential Neighbourhoods Character Area 54
7.2.1 Siting and Orientation 54
7.2.2 Building Design and Articulation 54
7.2.1 Vehicular Access and Parking 54
Bowmanville East Urban Centre Secondary Plan4
1.0 Introduction
Purpose of the Guidelines
The purpose of the Guidelines is to provide urban
design standards and expectations for public and
private development in the Bowmanville East Urban
Centre. The Guidelines articulate a ‘how-to’ for
the vision and policies of the Secondary Plan. The
Guidelines promote new development that achieves
the following:
• Protects and enhances the natural heritage
system and celebrates those features within the
community;
• Maintains, enhances and expands a vibrant,
walkable and complete community;
• Ensures buildings, streets, parks, and
open spaces are of a high design standard
contributing to memorable public and private
realms; and
• Promotes health and safety by prioritizing active
transportation as the primary, day-to-day choice
for moving around.
The Guidelines will be used to guide and evaluate
public and private development initiatives. They will
be used by:
• Municipal council and committees to evaluate if
an application meets the Municipality’s vision for
development in Bowmanville East Urban Centre;
• Municipal staff and external agencies when
reviewing private development applications, and,
as a framework to guide Municipal studies and
projects;
• The development industry, including but
not limited to landowners, developers, and
consultants, to guide and shape development
proposals; and
• The public to understand the vision for the
Bowmanville East Urban Centre, and the
benefits of urban design in their community.
Interpretation
The Guidelines provide further elaboration and
guidance of the policies of the Clarington Official
Plan (Official Plan) and the Bowmanville East Urban
Centre Secondary Plan as they relate to matters of
urban design, including community structure, public
realm, site design, and built form. The Guidelines are
to be read in conjunction with:
• The Official Plan, particularly Section 5: Creating
Vibrant and Sustainable Places and Section 9:
Livable Neighbourhoods;
• The Bowmanville East Urban Centre Secondary
Plan;
• The Clarington Zoning By-law;
• The Clarington General Architectural Design
Guidelines;
• The Amenity Guidelines for Medium and High-
Density Residences;
• The Landscape Design Guidelines;
• The Lighting Guidelines; and,
• Priority Green Development Framework and The
Implementation Plan.
These Guidelines establish good general urban
design practices applicable across the Bowmanville
East Urban Centre and all of its conditions, with a
focus on infill, redevelopment and intensification.
The Clarington General Architectural Design
Guidelines will be more applicable to low-rise,
house-form development in the Residential
Neighbourhoods Character Area.
The Guidelines will be used as a tool to guide and
evaluate planning applications including draft plan
of subdivision, zoning, site plan control, and minor
variance, at the discretion of the Municipality of
Clarington, to ensure that high levels of urban
design are achieved.
Bowmanville East Urban Centre Urban Design Guidelines 5
2.0 Vision and Guiding Principles
Vision
Bowmanville East Urban Centre will be a vibrant,
livable and sustainable community. Bowmanville
East will embody a unique identity, one which
celebrates and values its historic character while
evolving and adapting to meet the needs of future
generations. It will maintain and build on the existing
urban fabric, while accommodating opportunities for
gradual growth and change.
The Bowmanville East Urban Centre will feature
a mix of uses of varying intensity, including
residential, commercial, employment, open space
and institutional uses, in order to meet the everyday
needs of both existing and future residents. A
variety of housing, businesses, and essential
services will be located within the Urban Centre,
helping shape Bowmanville East into a retail, tourism
and civic destination—welcoming people of all ages,
incomes and abilities to live, work and play
New infill buildings will be developed at appropriate
and complementary heights and densities and
implement transitions to the existing built form.
The redevelopment of the Goodyear Lands will
provide an exciting opportunity to repurpose former
industrial lands for the establishment of a new
higher-density, mixed use community.
It will provide a cohesive and walkable public realm,
comprised of a network of ecologically-rich parks,
open spaces, and multimodal streetscapes. These
will introduce additional opportunities for greenery,
public art and active transportation, encouraging
users to explore and interact with the community.
The natural heritage system, including the
valleylands adjacent to the Bowmanville and Soper
Creeks, will be preserved, enhanced and connected.
Finally, the Bowmanville East Urban Centre is
envisioned as an inclusive and forward-thinking
community. This includes support for affordable
housing targets and a wide range of housing options
to meet the varied needs of residents. Development
will be designed to minimize environmental impact,
adopt sustainable building technologies and support
greater urban resilience in pursuit of a post-carbon
future.
Guiding Principles
The following principles form the core tenets of the
Bowmanville East Urban Centre Secondary Plan.
Together with the vision, these principles will guide
decision-making as the Secondary Plan is prepared
and implemented.
Provide Housing Choice
and Affordability
Improve Connections
Diversify Open Spaces
Maintain Historical
Character
Establish An Active Street
Wall
Promote a Sense of Place
Create a Sustainable
Future
Bowmanville East Urban Centre Secondary Plan6
3.0 Community Structure
This section provides an overview of the key urban
design drivers that shape the overall approach to
the physical character and form of the Bowmanville
East Urban Centre. The structuring elements, below,
include:
• King Street – Main Spine
• Character Areas
• Parks and Open Spaces
• Gateways and Visually Prominent Intersections
An overview of the key objectives of each
structuring element is provided to show, at a high
level, how it shapes design responses. They should
be read in conjunction with the other Guidelines.
3.1 King Street – Main Spine
King Street is the traditional main street of
Bowmanville. It has been, and will continue to be,
the principal thoroughfare and the retail/civic
heart of the community. At its western end, the
historic blocks of the downtown are characterized
by a 2 to 3 storey street wall continuously along
the street edge, ground floor retail, mixed uses
above, and tree-lined pedestrian-friendly sidewalks.
This successful model will be continued to the
east, presently characterized by auto-oriented
development, so that over time, the entire length
of King Street will become an active, walkable main
spine lined by great buildings.
The King Street corridor is the focal point for
higher densities and mixed uses, which are key
ingredients of a compact, complete community. An
enhanced streetscape environment is envisioned to
support active transportation, create a vibrant and
attractive public realm, and provide connectivity to
Bowmanville and Soper Creeks.
Key Objectives
• Focus the greatest mix of uses, highest
densities, and tallest buildings towards King
Street.
• Provide for frequent pedestrian linkages to
King Street, through a finely scaled grid pattern
of streets, mid-block connections and direct
building entrances.
• Development facing King Street shall be of
the highest design and architectural quality,
with a focus on active uses at ground level and
pedestrian scale street edges.
• Public realm landscaping will provide wide
sidewalks supporting large street trees and
places for retail to spill out, with beautiful paving
and furniture.
3.2 Character Areas
The urban areas outside of the creek valleys
have been classified into different development
typologies, or Character Areas, based on existing
conditions and development forms, as well as on
planned character, role and function. The Character
Areas provide a general framework for the continued
evolution of the Bowmanville East Urban Centre.
Some Character Areas are intended for significant
revitalization, some allow for modest change and
intensification that maintains the existing identity,
and some will not see significant change. While the
principles of good urban design set out in these
Guidelines apply across all Character Areas, there
are some specific guidelines that apply to individual
Character Areas.
East Business District
Currently typified by low density, automobile-
oriented uses, this area can accommodate the
greatest intensification, accompanied by investment
in a high quality public realm that provides the
outdoor amenity space for the new population.
Key Objectives
• Re-orientation of new buildings to line King
Street, with retail at ground level and other uses
above. Parking is screened from view.
• New Parkettes, Public Squares, Sliver Parks,
Mid-block Connections, and streetscape
enhancements will be sprinkled throughout,
providing recreational amenities. One larger
Public Square is intended to function as a
neighbourhood focal point and gathering area.
Bowmanville East Urban Centre Urban Design Guidelines 7
Figure 01: King Street - Main Spine
Bowmanville East Urban Centre Secondary Plan8
• Potential redevelopment of the Lakeridge
Health Centre supports great streetscapes and
provides a supportive community anchor.
• Potential redevelopment of the Bowmanville Mall
should create a complete new neighbourhood,
with a fine-grained grid of streets, new public
parks, and a mix of retail, residential and other
uses.
Downtown Corridor
Currently a mix of street related and automobile-
oriented uses, this area is a transition between the
Historic Downtown Character Area and the East
Business District Character Area. Sensitive infill and
redevelopment will preserve the best of the street
related buildings while adding density.
Key Objectives
• Re-orientation of new buildings to line King
Street, with retail at ground level and other uses
above. Parking is screened from view.
• New Parkettes, Public Squares, Sliver Parks,
Mid-block Connections, and streetscape
enhancements will be sprinkled throughout,
providing recreational amenities. One larger
Public Square is intended to function as a
neighbourhood focal point and gathering area.
• Preservation of historic and character-defining
buildings along King Street wherever possible.
• Sensitive transitions to historic and surrounding
low-rise buildings.
Historic Downtown
A vibrant, cohesive and continuous historic
streetscape will be preserved. New development is
encouraged to support the diversity of business and
cultural destinations, but must maintain the heritage
character. Overall building heights will be lower.
Key Objectives
• New development will infill street wall gaps
and maintain the street wall heights. Building
additions will be stepped back from the street
edge and have a compatible architectural
character that maintains the focus on historic
streetscapes.
• Investment in King Street, Temperance Street
and the Clarington Museum and Archives
site will create new amenities for the area and
flexible civic gathering areas.
• Sensitive transitions to historic and surrounding
low-rise buildings.
Residential Neighbourhoods
The Residential Neighbourhoods Character Area
captures established low rise communities around
the edges of the downtown and King Street. They
are primarily residential with some small scale
retail. These areas can accommodate modest
intensification and a greater diversity of housing
forms in low rise building forms while maintaining
their existing character.
Key Objectives
• Infill development will maintain a low rise
character at the street edge.
• Additions will maintain house form massing
along the streetscape, with taller elements set
well back.
Goodyear Lands Character Area
The Goodyear Lands Character Area has
tremendous potential to develop as an exciting
district within the Bowmanville East Urban Centre,
complementing the downtown, while being a
complete community unto itself.
Key Objectives
• New street and block pattern ties into existing
streets and blocks to create a seamless
integration with the urban fabric.
• A central public open space spine Parkette
links Queen Street with the Bowmanville Creek
and is the focal point for the district, enhancing
the connectivity of the park network for the
Bowmanville East Urban Centre.
• New retail at the district’s heart creates lively
streets and supports local residents.
• A mix of building forms, with taller buildings
located closer to the Bowmanville Creek at
the heart of the district transitions to lower
buildings adjacent to the existing surrounding
neighbourhood.
• The site’s industrial heritage is celebrated
through appropriate preservation and
interpretive strategies.
Bowmanville East Urban Centre Urban Design Guidelines 9
Figure 02: Character Areas
Bowmanville East Urban Centre Secondary Plan10
3.3 Parks and Open Spaces
Parks and open spaces include the Bowmanville and
Soper Creek valleys, as well as existing and future
formal parks and plaza spaces. They are highly
accessible to the community through the well-
connected grid pattern of streets. They support
community gathering and recreation as well as
ecological and hydrological functions. They are
green lungs that complement the urban character of
the community.
Key Objectives
• Each Character Area (other than the Residential
Neighbourhoods Character Area) is intended to
have a central public open space and gathering
area, each with a unique role and character.
• New Parkettes and other open spaces will be
established through new development. As such,
their locations will be opportunistic and proceed
at the pace of new development.
• New open spaces will be located along streets
where they are highly visible and accessible to
the community.
• New development will front, face and feature
open spaces.
• Open spaces will be designed and programmed
to promote accessibility and usage for
all. Together, the network of open spaces
will provide a diversity of experiences and
recreation.
3.4 Visually Prominent Locations and
Gateways
Visually prominent locations are unique and special
because the public realm and buildings at these
locations has an important role to play in defining
the overall image and character of the Bowmanville
East Urban Centre. Because they are so visible,
the quality of design should be elevated, creating
memorable landmarks and experiences.
Gateways mark the threshold of the Bowmanville
East Urban Centre along King Street, the primary
spine of the community. The Bowmanville Creek and
Soper Creek valleys bookend the Bowmanville East
Urban Centre, and the passage through the valleys,
over the bridges, and into a pedestrian-scaled, urban
environment establish special gateway experiences
unique in Clarington.
There are several locations along King Street where
it intersects with other busy or important streets
that create visually Prominent Intersections, where
it is appropriate for buildings to have enhanced
architectural features and for the public realm to
provide enhanced pedestrian amenities.
The alignment of the street network, including the
interface of different street grid orientations, creates
View Terminus sites that are focal points of long
views. Because of their visual prominence, these
locations should also have enhanced built form and
public realm features.
Key Objectives
• Create gateways along King Street at each
end of the Bowmanville East Urban Centre.
The gateway experience should include the
streetscape experience transitioning from the
creek valleys into the downtown area.
• Gateways and visually prominent locations
should feature landmark characteristics in
building design and landscape, for example
through enhanced planting, decorative paving,
additional seating and street furniture, taller
building elements, main building entrances that
are aligned to view corridors, active uses, and
location of public open spaces.
Bowmanville East Urban Centre Urban Design Guidelines 11
Figure 03: Parks and Open Spaces
Figure 04: Gateways and Visually Prominent Locations
Bowmanville East Urban Centre Secondary Plan12
4.0 Built Form
The following guidelines apply to the lots and
parcels that make up the residential, commercial,
employment and institutional uses of the
Bowmanville East Urban Centre. They include
guidance on overall site layout inclusive of building
location, site access and circulation, as well as on
building design, with the goal of creating attractive,
interesting and pedestrian-scaled streetscapes. The
core principles of the Built Form guidelines should
also be applied to the development of publicly
owned buildings such as schools, halls, community
centres and the like.
4.1 Siting and Orientation
• The primary facade of buildings should be
located at or close to the street line (right of
way) and generally be parallel to it, creating a
well-defined street edge.
• In the Residential Neighbourhoods Character
Area, buildings should be set back consistently
with the predominant setback on the block.
• Where public open spaces are provided, such as
Public Squares, Parkettes, forecourts, or patios,
buildings should be sited to define the edges of
the public space.
• Buildings shall be oriented to and address public
streets and urban open spaces with a frontal
appearance inclusive of windows and building
entrances. Where buildings front onto more than
one public street or open space, all building
facades shall have a frontal appearance.
• Along King Street, buildings should be
continuous along its frontage.
• Locate taller buildings to minimize overlook and
shadow impacts on public open space and the
Residential Neighbourhoods Character Area.
Figure 05: Buildings are sited to define street edges. The mid-
rise building has retail at ground level and is located beside the
sidewalk (right). The townhouse units have small front yard
zones (left). A small setback (bottom) provides a public space
at the building entrance and for retail spill-out.
Figure 06: Buildings line the street edge. Over time, as
properties redevelop, a continuous street wall will be created.
Figure 07: Buildings can be set back from the street edge
where they create public spaces or amenities.
Bowmanville East Urban Centre Urban Design Guidelines 13
4.2 Building Design and Articulation
• Building massing should be articulated through
vertical and horizontal recesses or projections,
datum lines, and changes in plane, materials,
texture or colour.
• A rhythm of vertical elements, such as bays,
columns, window alignments, entrances and/or
datum lines should be provided for all buildings
with over 12 metres of frontage to create a fine-
grained character and human scale.
• All facades facing public streets and open
spaces should be consistent in their design and
materials. No blank walls or reduced material
quality is permitted facing streets.
• Building materials should be chosen for
their functional and aesthetic quality and
exterior finishes should exhibit quality of
workmanship, longevity, sustainability and ease
of maintenance.
• Change of materials should coincide with
defined architectural elements such as
projections, datum lines, and bays in the facade.
Materials should wrap corners.
Building design should incorporate distinct base,
middle and top portions in order to visually break up
vertical massing and help establish pedestrian scale.
The scale of the base, middle and top may vary; the
design principles are equally applicable to a 2 storey
building or a tall building.
Base Portion
Provide visual interest through the materials,
colours, fenestration, articulation and architectural
detailing in order to reinforce a pedestrian scale
environment at street level and mark a distinct base
or transition to ground level.
Middle Portion
The middle portion of the building is usually the
largest component. Variation in the design and
articulation of this portion of the building should
promote visual interest and contribute to the overall
streetscape.
Top Portion
The top portion of the building, which may include
the upper storeys as well as the roof profile, should
contribute to the visual identity of the building and
create a cap at the skyline. Rooftop mechanical
systems should be integrated with the primary
façade expression or concealed into the roof design.
Figure 08: Base, Middle and Top
Bowmanville East Urban Centre Secondary Plan14
4.2.1 Entrances
• Primary building entrances should address
primary streets and should be clearly articulated
and expressed in the façade composition.
Secondary entrances are encouraged on all
streets.
• Emphasize entrances with architectural forms
and detailing such as changes in height and
massing, projection, shadow, punctuation,
materials, and change in roofline. Modest
variation in height, setback and/or step backs
are appropriate.
• Ensure main entrances to public buildings,
offices, and residential lobbies are weather
protected through use of canopies, awnings or
recesses.
• Ensure the grading of entrance areas and
transitions from inside to outside are barrier free
and accessible.
Bowmanville East Urban Centre Urban Design Guidelines 15
Figure 09: The main entrance is emphasized through massing, roof profile, and material expression in the facade, with a forecourt in
front.
Figure 10: The main building entrance is emphasized through
a central, taller massing element clad in an accent material.
The entrance is a double height volume, and recessed for
weather protection.
Figure 11: The building entrance is covered, with a small
forecourt. The architectural expression above (balconies, brick)
changes.
Bowmanville East Urban Centre Secondary Plan16
Figure 12: Priority Retail Frontages
4.2.2 Street Activation and Ground
Level Design
• Provide active uses at ground level to promote
indoor-outdoor activity. Prioritize retail,
commercial or institutional uses that generate
pedestrian activity.
• Commercial frontages, and all frontages along
King Street, shall have a minimum ground floor
height of 4.5 metres.
• Animated ground level facades shall be created
through substantial transparency and frequent
entrances.
Retail
• Retail uses are preferred along King Street, and
within the heart of the Historic Downtown and
Goodyear Lands Character Areas. Refer to the
Priority Retail Frontages diagram (Figure 12).
• Retail uses shall incorporate a minimum of 75%
transparency along their frontages.
• Retail display windows shall be located as
close to the street line as possible. Avoid deep
columns, recesses or building projections that
screen retail windows from view along the
sidewalk.
• If a building is setback from the street line, the
setback zone shall be designed as an extension
of the public sidewalk, and may include an
additional row of street trees and street furniture
as space permits. Retail or café spill out is
encouraged.
Residential
• Units at ground level shall be designed with
individual entrance doors from the unit to the
street, and their individuality expressed in the
façade design.
• The setback zone in front of ground level units
shall be designed as a traditional front yard area,
with a walkway, porch or stoop, low walls and
landscaping, and other elements to create a
semi-private transition.
• A generous pedestrian connection should be
provided from the street edge to residential
lobbies. Seating and planting framing the
entrance area is encouraged.
• Live-work zoning is encouraged.
Bowmanville East Urban Centre Urban Design Guidelines 17
Figure 13: The retail uses extend along the street edge, with a high degree of transparency.
Figure 14: Ground level units are individually articulated in the architectural expression. Each has a direct entrance to the adjacent
sidewalk with a small front yard transition zone.
Bowmanville East Urban Centre Secondary Plan18
Maximum Podium Height
3-Storey 3m
Step-Back
Minimum Podium Height
2-Storey
3m
Step-Back
Maximum Podium Height
4-Storey
Minimum Podium Height
3-Storey
Figure 15: Podium Street Wall in the Downtown Corridor, East
Business District and Goodyear Lands Character Areas
Figure 16: Podium Street Wall in the Historic Downtown
Character Area
4.2.3 Podium/Street Wall
New development should establish a consistent
street edge definition adjacent to the public
realm. With the exception of the Residential
Neighbourhoods Character Area, this will be a
continuous street wall along street frontages, where
each development is built to the lot line or to public
spaces such as mid-block connections or parkettes.
Taller buildings will be designed with a podium to
create the street wall.
Downtown Corridor, East Business District, and
the Goodyear Lands Character Areas
• For buildings greater than 4 storeys, provide a
minimum 3.0 metre step back to taller portions
of the building above the 3rd to 4th storey,.
Historic Downtown Character Area
• For buildings greater than 3 storeys, provide a
minimum 3.0 metre step back to taller portions
of the building above the 2nd or 3rd storey.
Bowmanville East Urban Centre Urban Design Guidelines 19
Figure 17: This building has a 4 storey podium. Above the podium the building is stepped back. This is appropriate for the Downtown
Corridor, East Business District and Goodyear Lands Character Areas.
Figure 18: In the Historic Downtown Character Area, podiums should be 2 to 3 storeys in height to match the existing context. Above
the podium the building is stepped back.
Bowmanville East Urban Centre Secondary Plan20
Figure 19: Mechanical penthouses set back from the egde of the building have an architectural expression different from, but
consistent with, the facade, while contributing to an interesting skyline.
4.2.4 Tall Buildings (9+ storeys)
Tall buildings have a responsibility to ensure their
design qualities benefit the Bowmanville East
Urban Centre. The increased population that tall
buildings provide must be served by public realm
benefits such as new open space, high quality
streets with amenities, and increased material
quality. Taller buildings must mitigate their height
and bulk to maintain sky view and sunlight access to
surrounding streets, open spaces and properties.
• The tower portions of tall buildings shall be
separated by a minimum of 25 metres.
• Tall buildings shall provide a minimum of 12.5
metres of separation to the property lines of
adjacent sites with development potential.
• Tower floorplates of residential buildings shall
not exceed 750 square metres in area.
• Variation in the podium massing and articulation
is encouraged, for example, to express the
massing of the tower element to ground level.
• The top level(s) of the building must contribute
to the creation of an attractive skyline through
massing, materials and architectural treatment
• Mechanical penthouses should set back 5
metres from the edge of the building and
incorporate a high-quality architectural
expression, or where not set back, be designed
to be fully integrated with the primary façade
massing, expression and materials.
Bowmanville East Urban Centre Urban Design Guidelines 21
Figure 20: This mechanical penthouse is fully integrated with the architectural expression to create a dynamic skyline profile.
Bowmanville East Urban Centre Secondary Plan22
4.2.5 Transition
New development should provide a transition to
Residential Neighbourhoods Character Areas,
to avoid abrupt changes in scale and significant
overshadowing, and to provide privacy and sky view
for those properties. There are a variety of design
strategies that can be employed, such as:
• Locate the tallest buildings away from
Residential Neighbourhoods Character Areas.
• Shadows from new development should not
adversely impact the rear yards of Residential
Neighbourhoods Character Areas.
• Where new development is located with a
flankage (side yard) relationship to Residential
Neighbourhoods Character Areas within
the Regional Centre, the massing of new
development should be 3-4 storeys adjacent
to those areas, with taller massing set back.
This provides a compatible scale along the
streetscape.
• Where new development is located with a
flankage (side yard) relationship to Residential
Neighbourhoods Character Areas outside
of the Regional Centre, the massing of new
development should be 2-3 storeys adjacent
to those areas, with taller massing set back.
This provides a compatible scale along the
streetscape.
• Where new development backs onto the rear
yards of Residential Neighbourhoods Character
Areas, a buffer should be provided:
–Spatial buffer: a separation between the
property line and the new building massing
should be provided. The separation should
include a landscape buffer (below), but could
also include driveways, parking, or outdoor
amenity space;
–Landscape buffer: an opaque fence and buffer
landscaping, inclusive of groundcover, shrub
and small or large tree planting should be
provided.
• New development that fronts onto a street
with a Neighbourhood Residential Character
Area across the street could be up to 4
storeys in height, with taller massing set back.
This provides a compatible scale across the
streetscape while allowing for an increase in
scale for the development site.
• Provide architectural design features in the
podium that reference the design of the
Residential Neighbourhoods Character Areas,
such as setbacks, materiality (e.g. brick), and
datum lines.
Bowmanville East Urban Centre Urban Design Guidelines 23
Figure 21: Built Form Transition for Flankage Conditions
Figure 22: Built Form Transition for Rear Yard Conditions
Figure 23: Built Form Transition for Frontage Conditions
Bowmanville East Urban Centre Secondary Plan24
Figure 24: The building addresses both streets with a frontal
appearance. The round architectural form at the corner creates
a landmark appropriate for Prominent Intersections.
Figure 25: Taller building elements are encouraged at visually
prominent locations.
4.3 Visually Prominent Locations
Visually prominent locations include Gateways,
Prominent Intersections, and View Terminus sites, as
well as the edges of other important locations such
as public open spaces and natural features, that
because of their high visibility and role in defining
the public realm, have increased importance in
contributing to the image and character of the
Bowmanville East Urban Centre. As such, the design
of the public and private realm should be enhanced.
• New development and landscaping will frame
rather than block public views of prominent
natural features, view termini, landmark
buildings, public art and other prominent
downtown features.
• At Prominent Intersection sites, develop both
street facing facades as front elevations with
pronounced entrances oriented to the corner
and/or the primary streets.
• Taller building elements at Prominent
Intersections and View Terminus locations are
encouraged, such as small towers, rotundas,
porticos, change in building plane, special
rooflines, public art, and street wall height
exceptions, where those elements exhibit:
–compatibility with adjacent context, including
appropriate scale;
–compatibility with the principal building
expression; and,
–Design excellence.
• Along King Street, at Prominent Intersections
and View Terminus sites, podium height at the
focal point may be up to 6 storeys for a distance
of 10 metres along both street frontages. Taller
architectural features are encouraged.
• Enhanced quality of materials and detailing is
encouraged.
• Surface parking lots visible from the street edge
are not appropriate.
10m 10m
Figure 26: Increased podium heights are encouraged at
visually prominent locations to provide distinctive architectural
features.
Bowmanville East Urban Centre Urban Design Guidelines 25
4.4 Pedestrian Circulation
• Pedestrian circulation networks should be
clear, direct and barrier-free and incorporate
pedestrian amenities where appropriate.
• Clear and accessible pedestrian walkways
should be provided from the sidewalk to the
main entrance of each building.
• Pedestrian walkways should be well defined and
provide direct connection to public open spaces,
parking areas, other building entrances, transit
shelters and adjacent developments.
• Pedestrian walkways (may include public
sidewalks) should be provided along the full
length of the building along any façade including
consolidated residential lobbies, individual at-
grade residential unit entrances, and along any
façade abutting parking areas.
• Internal pedestrian walkways should be
distinguished from driving surfaces through the
use of concrete or special paving to enhance
pedestrian safety and the attractiveness of the
walkway.
4.5 Vehicular Access, Loading,
Storage and Waste Areas
Access, loading, storage and waste areas are
important building functions, but they should be
subordinate to the quality of streetscapes and the
public realm.
• Vehicular entrances should be consolidated and
shared wherever possible.
• Vehicular entrances should be located on lower
order side streets or lanes, and minimize impacts
on adjacent properties.
• Loading, service, storage and garbage areas
should be integrated into the building design or
placed away from street frontages and screened
from view. Specifically, for a garbage collection
enclosure, a fully enclosed/roofed building that
is screened with a privacy fence or landscaping
and integrated with the architectural style of the
main building or incorporated within the main
building is required.
• Curb cuts and driveways should be minimized in
radii and width.
• Garbage storage should be centralized indoors,
and at the rear of the building.
• Loading and service areas should be buffered
visually and as necessary for noise impacts,
especially when located adjacent to Residential
Neighbourhood Character Areas. Enclosures
should be constructed of materials to match or
complement the building material.
• Outside storage should not be visible from any
public street or open space.
• Utility meters, transformers and HVAC
equipment should be located away from public
view and / or screened.
4.6 Vehicle Parking
The design of vehicle parking areas, whether
surface or structured, should prioritize pedestrian
circulation, and should incorporate appropriate
siting, orientation and screening.
• Surface and above-grade structured parking
should be located at the side or rear of buildings
and screened from public view. Parking shall not
be located between buildings and the street line.
• Surface parking spaces adjacent to streets
should have landscaped edges incorporating
low planting and hard elements (e.g. fencing,
walls) that screen vehicles but maintain clear
views at eye level.
• Pedestrian movement should be given priority
in the design of all parking facilities. Clearly
marked, direct and safe pedestrian routes
should be provided.
• Lighting for parking should be oriented to limit
visual impact on adjacent properties.
• Landscaping and site organization should
prioritize managing stormwater quality and
quantity on-site, wherever possible.
Bowmanville East Urban Centre Secondary Plan26
5.0 Public Realm
The public realm encompasses all of the outdoor
spaces within the Bowmanville East Urban Centre
which are visually or physically accessible to the
general public. It includes publicly owned land, such
as streets and parks, as well as Privately Owned
Public Space (POPS) that is publicly accessible,
such as forecourts and mid-block connections. The
public realm is a vital component of the Bowmanville
East Urban Centre. It forms the communal ‘living
room’ for the community, provides access to its
diverse land uses and destinations, and together
with the built form, defines its character and image.
The design of the public realm should reflect a high
standard of quality and relate to the surrounding
context, land uses, and landmarks. The public realm
should create an interlinked network of streets and
public open spaces that facilitate social and civic
interactions. A successful public realm provides:
• A functional, safe, accessible, sustainable and
enriching environment;
• Well-articulated streetscapes that are beautiful
and comfortable;
• A network of streets that supports multi-modal
choices for pedestrians, cyclists, transit users
and motorists;
• Pedestrian linkages that connect people to
destinations, including adjacent commercial and
mixed use uses;
• Diverse open spaces that provide a wide
spectrum of environments and experiences,
from passive natural spaces to actively
programmed urban spaces;
• Amenities, furnishings, wayfinding, and public art
that provide orientation, identity and a sense of
place.
5.1 General Public Realm Guidelines
• To support the health and development of the
urban forest, provide 30 cubic metres of soil
volume for each large canopy tree. Soil volumes
may be continuous, and achieved through street
boulevards, landscaped areas, open planters, or
soil cells.
• Select species that are adapted to their
condition with a preference for native species
that provide SWM and habitat/pollinator benefits
• The pattern of tree planting should provide
options for both sunny and shaded areas,
depending on time of year and day.
• Consider permeable paving, rain gardens, and
other low-impact development strategies.
5.2 Streets
The streets network provides for safe and
convenient movement for pedestrians, cyclists,
transit users and motorists throughout the
Bowmanville East Urban Centre to support
accessibility. As an established urban area, the
Bowmanville East Urban Centre has a well-defined
and -connected hierarchy of streets that function as
the backbone of the community. The grid pattern,
the high frequency of street intersections, the small
scale of blocks, and the integration of different
street grid orientations, are fundamental structuring
elements that have shaped, and should continue to
shape, the evolution of the community.
In order to support road network functions, enhance
the public realm and establish a strong visual
identity for the Bowmanville East Urban Centre,
streetscape design should be a high priority. The
streetscape includes the configuration of elements
within the right of way such as travel lanes, cycling
facilities, pedestrian zones, and landscaping, as
well as how the adjacent buildings frame the
street edges and support street activity. As the
Bowmanville East Urban Centre continues to
intensify and support walking as a primary means of
transportation, street design should prioritize wide
sidewalks and a generous street tree and furniture
zone.
Bowmanville East Urban Centre Urban Design Guidelines 27
Figure 27: Streets should provide for the needs of pedestrians and cyclists while balancing their vehicular function. All streets should
provide a wide sidewalk, as well as a generous zone for street trees and furniture.
5.2.1 General Street Guidelines
• Streets should be designed to reflect complete
street design principles, in order to balance the
needs of pedestrians, cyclists, transit users and
motorists.
• Streets should provide a continuous canopy of
street trees at maturity.
• New sidewalks should be provided for existing
streets without sidewalks on at least one side.
• All new streets should have sidewalks
on both sides, in order to accommodate
increased pedestrian movement as a result of
intensification.
• New streets should be designed and laid out
based on a grid pattern, including extensions of
and connections to existing surrounding streets.
• Where new streets are created, block lengths
should generally be short, 175 metres or less as
measured from intersection to intersection.
Bowmanville East Urban Centre Secondary Plan28
5.2.2 King Street
King Street is the heart and soul of downtown
Bowmanville and the main spine of the Bowmanville
East Urban Centre. As the community evolves, King
Street will continue to play its role as the main street.
The highly walkable, attractive and active character
of King Street through the historic downtown will
be extended through the entire Bowmanville East
Urban Centre. It will have a dual function both as a
destination for shopping and civic life, as well as a
connector that links the Bowmanville Creek valley in
the west with the Soper Creek valley in the east, and
all points in between. King Street will be the highest
priority for streetscape enhancements and quality.
• Provide wide sidewalks on both sides of the
street that feature:
–Special paving that references the rich history
of Bowmanville, with distinct colour and
textures;
–Public art, particularly at visually prominent
locations, as stand-alone elements or
integrated with the streetscape furnishings;
–Wayfinding that creates a distinct identity
for the Bowmanville East Urban Centre, and
provides orientation for area destinations and
businesses;
–A coordinated family of street furniture and
elements, such as poles, lighting, and seating;
and
–Low level planting along the sidewalks
wherever space permits, e.g. in bump-outs
and tree planters.
• Provide street trees on both sides of the street,
with preference for soil cells to provide the
needed soil volumes under sidewalks.
• Continue the streetscape character exhibited by
the historic downtown through the Downtown
Corridor and East Business District, including
provision of narrow vehicular travel lanes, on-
street parking, wide sidewalks, and streetscape
enhancements such as decorative paving,
seating and pedestrian-scaled street lighting.
New streetscaping should be compatible with
the historical-themed streetscaping in the
historic downtown without needing to be the
same, i.e. it may reflect the contemporary nature
of surrounding new development.
• Ensure pedestrian sidewalks are a minimum of
1.8 metres on both sides of the street.
• Provide clear and direct connections to existing
and planned trails within the creek valleys at
each end of Bowmanville East Urban Centre.
• Enhance the gateway experience of the creek
valleys as thresholds to the Bowmanville
East Urban Centre through streetscape
enhancements, public art, lighting, and planting
design.
Bowmanville East Urban Centre Urban Design Guidelines 29
Figure 28: Special streetscaping elements are appropriate for King Street to create a pedestrian-friendly environment, including high-
quality paving, well-defined crosswalks, decorative pedestrian ligthing, seating, planting, and street trees.
Bowmanville East Urban Centre Secondary Plan30
Figure 29: Temperance Street as Shared Street
5.2.3 Temperance Street
Temperance Street is an important cross street to
King Street in the downtown. It forms a civic spine,
connecting Rotary Park, City Hall and its plaza,
the Library, Clarington Museum and Archives,
and two churches. To reinforce this symbolic role,
Temperance Street should have an enhanced
streetstcape that expands the function of the public
spaces along it and provides new opportunities for
programming and events in the historic downtown.
• Create a shared street treatment along some or
all of Temperance Street that features:
–A continuous decorative hard surface
encompassing driving, cycling and walking
zones. A mountable curb to permit flexibility
in programming when the street is closed for
events;
–Wayfinding that creates a distinct identity,
and provides orientation for adjacent civic
buildings, public spaces, and businesses;
–A coordinated family of street furniture and
elements along it, such as poles, lighting, and
seating; and
–Street elements such as benches, planters,
trees, bollards, and bike parking that
provide definition within the shared space
and delineate vehicular travel zones from
pedestrian- and cycling-only areas.
• Provide street trees on both sides of the street,
with preference for soil cells to provide the
needed soil volumes under sidewalks.
• Provide direct connections to adjacent public
spaces, including design continuity between
City Hall plaza and Temperance Street,
• The shared street treatment should be
prioritized between Church Street and King
Street, linking City Hall with Bowmanville’s main
street. This streetscaping can be extended to
link Rotary Park and Wellington Street.
Bowmanville East Urban Centre Urban Design Guidelines 31
Figure 30: Shared street designs provide pedestrian-oriented streetscaping elements across the entire right-of-way, from building
face to buliding face. While accommodating vehicles and/or parking, the shared street design prioritizes active transportation. It can
be closed to vehicular traffic during events or seasonally, providing a flexible urban plaza for gathering and activities.
Bowmanville East Urban Centre Secondary Plan32
Figure 31: Example of on-street painted bicycle lanes with bike boxes and cross-ride.
5.2.4 Streets with Active Transportation Links
Many streets in the Bowmanville East Urban Centre
are planned for active transportation links. This
means that cycling is encouraged. The design
configuration will need to be determined through
further study, for example, whether uni- or bi-
directional cycle tracks, multi-use paths, or signed
bike routes are most appropriate. It will be important
to also maintain generous pedestrian sidewalks
on these streets; space for active transportation
facilities is preferred to come from the vehicular
zone through a ‘road diet.’
• Prioritize separated and protected cycling
facilities with buffering to vehicular traffic
inclusive of grade differential and spatial
separation.
• Ensure signage and pavement markings clearly
identify cycling zones, including, at intersections,
both cycling and pedestrian crossings.
• Provide cycling signalization where warranted,
for example at major streets with high traffic
volumes.
• Ensure continuity and safe turn movements
between other cycling facilities and off-road
trails.
Bowmanville East Urban Centre Urban Design Guidelines 33
Figure 32: Example of a protected bicyle facility, separated by physcal buffers to the vehicular and pedestrian portions of the right-of-
way.
Bowmanville East Urban Centre Secondary Plan34
5.3 Public Open Spaces
There is a diversity of existing and planned public
spaces within the Bowmanville East Urban Centre
that will create a wide range of recreational
opportunities. Public spaces will be linked by the
street system to create an interlinked public realm
network.
New public open spaces may be publicly owned, or
they may be Privately Owned Public Spaces (POPS),
at the discretion of the Municipality of Clarington.
The following guidelines apply to both; there is no
difference in design intent based on ownership.
5.3.1 General Public Space Guidelines
• Open Spaces should be visible to and accessible
from adjacent streets.
• Sidewalks, trails and multi-use paths should
provide direct connections to open spaces.
• Viewing opportunities to the Natural Heritage
System should be provided.
• Apply Crime Prevention Through Environmental
Design principles.
5.3.2 Civic Green Parks
Rotary Park is a traditional green civic park that
provides a multi-functional green space for the
community, and includes walking, seating, viewing,
covered areas, lawn areas, decorative landscaping,
and trees. Rotary Park provides access to the
Bowmanville Creek Valley at the southern end
of Temperance Street. At the northern end of
Temperance Street, the green area around the
Clarington Museum and Archives has a similar
character, with walking, seating, picnic, landscaping
and treed areas. Together, these Civic Green Parks
anchor each end of the Temperance Street spine.
• Maintain the green character through extensive
soft surface and planted areas.
• New amenities and facilities should be
compatible with their passive recreational
character.
• Consider enhancements to the Clarington
Museum and Archives, such as:
–Expanding amenities by providing, seating,
additional pathways, a pavilion, interpretive
signage, or small games; and
–Creating strong linkages to Temperance
Street, on each side of the Clarington
Museum and Archives (62 Temperance
Street), with outdoor walkways incorporating
a shade structure, seating, public art or other
landscape elements.
Bowmanville East Urban Centre Urban Design Guidelines 35
Figure 33: Enhanced pedestrian walkways along the Clarington Museum and Archives building can link Temperance Street with the
open space amenities interior to the block.
Bowmanville East Urban Centre Secondary Plan36
Figure 34: Parkette Diagram
Frontage
Minimum
20m
Street
Depth
Maximum
1.5 x Frontage
5.3.3 Public Squares and Parkettes
As the Bowmanville East Urban Centre intensifies,
it is important that new public open spaces are
provided to keep pace with the growth of new
residents, employees and visitors. Public Squares
and Parkettes will be the primary new public open
spaces, located and designed in conjunction with
new development.
Public Squares and Parkettes are small open spaces
that have a concentrated variety of amenities within
them that attract a full range of users. They are more
urban in character than typical suburban parks, and
will be sprinkled throughout the highly walkable
urban fabric. They complement surrounding retail
and residential uses by providing a place for those
uses to spill out into in the form of both passive
recreation and small-scale active recreation.
Public Squares and Parkettes will range in size and
amenities based on the size of development. It is
a goal to provide a large Public Square or Parkette
within each Character Area as a focal point. Other
Public Squares and Parkettes will be provided in
conjunction with development at the discretion of
the Municipality of Clarington.
• In the Bowmanville East Urban Centre, Public
Squares will typically range from approximately
400 square metres to 3,500 square metres, and
may be up to 10,000 square metres. Parkettes
will range from 5,000 to 10,000 square metres.
• Public Squares and Parkettes should have a
minimum frontage of 20 metres along public
streets. Larger Public Squares and Parkettes
should have longer street frontages. Generally,
the ratio of street frontage to depth should not
exceed 1:1.5. An exception to this ratio would
be a linear Parkette that connects multiple
development blocks with a continuous public
realm experience.
• Adjacent uses should address the Public
Squares and Parkettes with a frontal appearance
inclusive of windows and doors. Public Squares
and Parkettes shall not be located adjacent to
loading areas, garbage areas or blank walls.
• Public Square and Parkette design should
consider or be inclusive of the adjacent public
right of way.
• Prioritize locating Public Squares and Parkettes
in locations that receive sunlight in the
afternoon hours during shoulder seasons.
• Public Squares that are located along King
Street and are the focal points of Character
Areas should be located with a minimum of 30
metres of frontage along King Street where
possible.
• At a minimum, Public Squares and Parkettes
should provide trees, seating, a hard surface
walkway or plaza area, waste/recycling
receptacles, bicycle facilities, lighting, and at
least one other amenity. Larger Public Squares
and Parkettes will provide more amenities.
• Public Squares and Parkettes should incorporate
a range of active and passive recreational
amenities, such as Multi-Use Paths, children’s
play structures, multi-purpose play courts, water
play, shade structures, gathering areas, public
art, and/or unprogrammed flexible space for
patios or small events.
• Features and amenities within specific Public
Squares and Parkettes will vary depending on
need and context. Consider providing alternative
amenities to those of nearby existing and
planned Public Squares and Parkettes so there
is a diversity of options within the Bowmanville
East Urban Centre.
• Public Squares and Parkettes should provide
direct connections to street sidewalks, trails,
Multi-Use Paths, and all adjacent building
entrances.
• Public Squares and Parkettes should incorporate
special paving treatments at formal entries,
seating areas, and patio/event spaces.
Bowmanville East Urban Centre Urban Design Guidelines 37
Figure 35: Parkettes and Public Squares will have a variety of shapes, sizes and locations, and their design and amenities should
respond to their adjacencies. In retail contexts, they should include flexible plaza spaces, seating, and public art. In residential contexts,
they will be more passive with a higher proportion of green space.
Bowmanville East Urban Centre Secondary Plan38
5.3.4 Slivers and Connections
The Bowmanville East Urban Centre is an urban
setting that prioritizes walkability, and there will be
many small public open spaces that complement
the primary open space system, such as mid-block
connections, sliver parks, forecourts, courtyards,
mews and other micro spaces. These types
of spaces will be provided where the size of
development, and therefore the corresponding size
of the public realm, is small. They have a variety
of functions, including as miniature Parkettes, as
enhancements to the public right of way (e.g. wider
sidewalks, additional street trees), providing finer
grain pedestrian movement, or as moments of
landscaped beauty.
• Adjacent uses should address Slivers and
Connections with a frontal appearance such as
with windows or doors.
• Slivers and Connections should provide a clear
link with or extension of the adjacent public
right of way.
• Provide appropriate surfaces and landscaping.
Generally, their small size will require a hard
surface that functions as an extension of the
sidewalk.
• Where space permits, provide trees and seating.
Consider additional amenities such as public art,
shade structures, and planting beds.
• Ensure clear sight lines and path of travel to
all adjacent building entrances and the public
sidewalk.
• Planting and amenities should have a consistent
design, landscape and material palette with the
adjacent right of way or public space.
• Ensure Slivers and Connections are adequately
lit by pedestrian scale lighting or from the
surrounding streets.
Bowmanville East Urban Centre Urban Design Guidelines 39
Figure 36: Forecourts and sliver parks can augment the sidewalk by providing small places to sit or gather.
Figure 37: Courtyards and interior block spaces can provide a quieter form of public space. They should be visible and accessible
from the surrounding street network.
Figure 38: Mid-block connections provide pedestrian porosity through the centre of blocks and can be small amenity spaces in
themselves.
Bowmanville East Urban Centre Secondary Plan40
Figure 39: Multi-use paths can be provided in the valley land
areas, incorporating amenities such as seating, shelters and
lookouts.
Figure 40: Multi-use paths along rights-of-way should be
separated from vehicular travel lanes, for example, by planting
buffer and grade shifts.
5.4 Multi-Use Paths
Over time, a network of shared pedestrian/cycling
routes may be implemented in the Bowmanville
East Urban Centre in the form of Multi-Use Paths.
Their function is to enhance active transportation
within the Urban Centre and to adjacent active
transportation systems. Multi-Use Paths may
be located within road rights-of-way, or within
public open spaces such as the valley lands. They
complement the street network.
• Multi-Use Paths should be planned and located
to extend the active transportation network
beyond the existing street network including
frequent connections with the street network.
• Separate Multi-Use Paths from vehicular travel
through horizontal and/or vertical offsets.
• Multi-Use Paths should be a minimum of 3
metres in width.
• Ensure the surface of Multi-Use Paths is a
hard surface, with continuous flush grading at
intersections and driveways.
• Ensure street crossings are marked and signed.
• Provide trees and landscaping on both sides of
Multi-Use Paths, space permitting.
• Where Multi-Use Paths are located adjacent
to pedestrian-only zones such as sidewalks or
public open spaces, ensure there is appropriate
separation and buffering, including design
elements such as bollards, planting, buffer strips,
signage, pavement markings, and/or small grade
separations (e.g. raised curb).
Bowmanville East Urban Centre Urban Design Guidelines 41
Figure 41: Urban-scaled mixed-use schools. Precedents:
Crosstown Elementary School in Vancouver and Jean Lumb
Public School / Canoe Landing Community Centre in Toronto
5.5 Schools
The Bowmanville East Urban Centre is well served
by schools that are within or immediately adjacent
to it, which can be reached easily on foot. As the
population continues to grow, there may be a need
for additional school space, either within the existing
sites or in a new site. As an intensifying downtown,
it is anticipated that additional school capacity
within the Bowmanville East Urban Centre will take
on an urban character. School sites and buildings
will be designed to have a compact footprint, and
may be mixed vertically or horizontally with other
compatible uses. The following guidelines are
primarily intended for new school sites in a mixed-
use context.
• Schools shall be located within a 5-minute
walking distance to most residents. Locations
south of King Street are preferred, where they
will have better spacing from the existing
schools to the north of the Bowmanville East
Urban Centre.
• School sites will be compact and may consider
shared uses, such as co-location with public
parks to share facilities, and/or shared parking.
• Schools shall be accessible by various modes
of transportation, including transit, walking and
cycling. School bus drop off zones, if required,
should minimize space needs, such as by being
located along public streets as layby lanes.
• School sites and adjacent streets should
prioritize pedestrian and cycling access and
safety through:
–Visibly marked and signed bicycle routes
and pedestrian crosswalks, with appropriate
lighting; and,
–Visibly marked pedestrian crosswalks with
appropriate lighting and signage.
• Multi-storey school buildings are preferred, to
provide compact footprints that minimize space
usage. They may be integrated with other uses
and development, such as within the podium
level of residential buildings.
• School buildings shall have one or more
dedicated, highly visible and well-articulated
entrances facing public street(s) for the
exclusive use of the school. Entrance design
shall provide for student comfort and amenity
through:
–Large canopy or other weather protection
over the main doors;
–Forecourt space for student gathering,
including seating and planting; and,
–Proximity and direct sidewalk connection to
bus drop off and/or transit.
Bowmanville East Urban Centre Secondary Plan42
6.0 Natural and Cultural Heritage
6.1 Natural Heritage/Valleyland
The Bowmanville Creek is the primary natural
feature within the Bowmanville East Urban Centre
boundary. It will function as the primary passive
recreational resource for the community, providing
a place to walk, sit, enjoy nature and escape from
the urban environment. There is a tributary of Soper
Creek within the eastern edge of the Bowmanville
East Urban Centre boundary, which provides
connectivity to the main Soper Creek Valley. The
Soper Creek tributary has a similar, though lesser,
role as Bowmanville Creek.
• Provide visual and physical connections to the
creek valleys from adjacent sidewalks, trails and
active transportation facilities.
• Provide seating and viewing opportunities along
trails within the valley areas.
• Existing healthy native vegetation and natural
areas should be preserved. Areas with degraded
environmental conditions should be restored.
• Planting within the valleys and their buffers
should be native, non-invasive and self-
sustaining with a priority to habitat creation.
• Adjacent development should match grades
between properties to minimize retaining wall
requirements.
Bowmanville Creek
• Extend the existing trail within the valley to the
north with, at King Street, a direct connection to
the King Street multi-use trail.
• Provide a major new trail connection to
Bowmanville Creek from the Goodyear Lands
Character Area, with a bridge crossing of the
creek.
6.2 Cultural Heritage
These guidelines inform the design of new
structures on or adjacent to properties of heritage
value. The principles and objectives are applicable
to all scales, from additions to low rise residential
buildings to the significant redevelopment of large
sites incorporating one or more heritage buildings.
The principles of design exhibited by historic
buildings can be separated from the style of their
architectural expression and detailing. The following
guidelines do not promote the mimicry of historic
styles. Contemporary building expressions are
preferred for their ability to be compatible with
heritage resources, as they avoid being derivative,
and their materials and detailing contrast, thus
emphasizing the unique qualities of the heritage
resource.
• New development shall not destroy historic
materials, features, and spatial relationships that
characterize a property or site.
• New development should be visibly
differentiated from the old, achieving
compatibility primarily through harmonious
scale, massing, façade articulation and
materiality.
• New development shall reference the street
wall height of adjacent heritage buildings by
matching street wall heights or by providing a
strong cornice line or other datum line in the
façade design.
• New development shall reference the heights
and proportions of adjacent and surrounding
heritage buildings in:
–First floor height;
–Sign band height;
–Window height, size and proportion in the
street wall;
–Entrance frequency, position and height; and,
–Vertical rhythm in the street wall as
articulated in architectural bays, window
alignments, or columns.
• New development should provide a minimum 10
metre setback or step back to existing, distinct
architectural features such as towers and
cupolas.
Bowmanville East Urban Centre Urban Design Guidelines 43
Figure 42: New development references datum lines in
the heritage building, including roof lines, eave lines, and
vertical proportions. The new development creates a sense
of separation and distinctness from the heritage building
through a recess (shadow line) where it is joined, and by using
a distinctly different material (glass).
Figure 43: The heritage building reads as a distinct expression
while being framed by new development that has similar
massing and articulation.
Figure 44: New development maintains a similar street wall
height as the heritage building, with taller elements of the new
development stepped back. The rhythm of punched windows
with vertical orientation references the heritage facade. Where
they join, the recess and high quality but contrasting materials
does not compete with the heritage building, and allows each
to contribute to a high quality street frontage.
Figure 45: Taller components of new development are stepped
back from the primary heritage facade.
Bowmanville East Urban Centre Secondary Plan44
7.0 Character Areas
7.1 Goodyear Lands Character Area
The Goodyear Lands Character Area will be a
new mixed use district within the Bowmanville
East Urban Centre, replacing a former industrial
use. In contrast to the broader Urban Centre, the
streets, blocks, and public spaces of the Goodyear
Lands Character Area will be created from scratch.
This affords the opportunity to implement best
practices for urban design and placemaking. New
development shall have regard for the design
guidelines in this document, with a particular focus
on:
• Creating a safe, attractive, and connected public
realm that comprises the street network, new
public open spaces, and the Bowmanville Creek.
• Maximizing connectivity between the Goodyear
Lands Character Area and the existing urban
fabric.
• Ensuring streetscapes and new public open
spaces have a high quality of design inclusive
of paving, seating, street furniture, lighting, and
planting.
• Establishing a pedestrian scaled street wall, with
active uses facing all public streets and spaces.
• Providing a distinct sense of character within
the precinct, inclusive of landmark elements in
the built form or landscape.
A demonstration plan has been prepared to illustrate
how the design guidelines could be applied to the
Goodyear Lands Character Area.
The following guidelines provide additional design
requirements specific to the Goodyear Lands
Character Area.
Bowmanville East Urban Centre Urban Design Guidelines 45NE
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STACKED TOWNHOMES
BACK-TO-BACK TOWNHOMES
MIXED USE RETAIL RESIDENTIAL
CYCLING INFRASTRUCTURE
PUBLIC PARKETTES
CENTRAL PUBLIC REALM SPINE
CONNECTION TO QUEEN STREET
POPS
STABLE TOP-OF-BANK
10M TOP OF BANK SETBACK ZONE
CLOCA REGULATED AREA LIMIT
BOWMANVILLE CREEK DAM
GOODYEAR STRUCTURES TO REMAIN
EXISTING TRAILS
PROPOSED TRAILS
POTENTIAL TRAIL CROSSING
LOW-RISE APARTMENTS
POTENTIAL CONNECTION TO KING STREET
Figure 46: Demonstration Plan for the Goodyear Lands Character Area
Bowmanville East Urban Centre Secondary Plan46
7.1.1 Street and Block Network
• Create a grid network of new streets that
provides connectivity throughout the Goodyear
Lands Character Area, including providing
access to the Bowmanville Creek.
• Link new streets to Queen Avenue, Nelson
Street, and Durham Street.
• Prioritize the safety and experience of
pedestrians within the streetscape design by
providing:
–a minimum 1.8 metre pedestrian sidewalk on
both sides of the street;
–street furniture distributed throughout the
district inclusive of seating and bicycle lock
up;
–street trees on both sides of the street,
ensuring 30 cubic metres of soil volume per
tree; and,
–crosswalks at all intersections.
• Provide cycling facilities within the Goodyear
Lands Character Area that provides continuous
links from north to south, including to the
Bowmanville Creek valley.
Bowmanville East Urban Centre Urban Design Guidelines 47
Figure 47: Goodyear Lands Character Area Location for New Connections NE
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Bowmanville East Urban Centre Secondary Plan48
7.1.2 Parks and Open Space Network
• Create a central public realm spine linking
Queen Street, via Devitts Lane, to the
Bowmanville Creek valley. The spine can take
a variety of forms such as promenades along
streets or lanes, wide mid-block connections,
one or more linked Parkettes, or a high quality
shared street. Design characteristics shall
include the following:
–Provide a continuous pedestrian and cycling
connection within the spine, linking the
sidewalk on Queen Street with the trail in the
Bowmanville Creek valley;
–Provide amenities along the spine such as
seating, pubic art, patio spaces, and children’s
play; and
–Create a larger Parkette at the terminus of
the spine adjacent to the Bowmanville Creek
valley, with a trail head to the valley trail.
• Provide placemaking within the public realm
that celebrates the site’s heritage through
interpretive signage and landscape elements.
Bowmanville East Urban Centre Urban Design Guidelines 49
Figure 48: Examples of linear public spaces that have a variety of amenities including passive recreation, playgrounds, plazas and
seating.
Figure 49: Placemaking elements within the public realm can celebrate the industrial heritage of the Goodyear Lands Character Area
by landscape references to former artifacts and uses, and by interpretive signage.
Bowmanville East Urban Centre Secondary Plan50
Figure 50: Additional Step-back for Tall Buildings within the
Goodyear Lands Character Area
7.1.3 Built Form
• Building heights should be tallest nearest the
Bowmanville Creek valley, in the centre of the
site. Building heights shall decrease towards
existing low-rise residential. Buildings, or
portions thereof, within 30 metres of existing
low-density residential should generally be
a maximum of 4 storeys in height. Note this
does not apply along the southern edge of of
the Goodyear Lands property, where a future
development, adjacent to the Goodyear Lands,
will provide a transition to the existing low-rise
residential.
• Increased building heights above that permitted
by the Secondary Plan may be considered,
provided that taller development:
–Is located near the Bowmanville Creek
valley, away from nearby existing low rise
neighbourhoods;
–Does not have significant visual, privacy or
shadow impacts on existing neighbourhoods;
–Is of exceptional design quality, with landmark
architectural treatment; and,
–Provides enhanced public realm benefits such
as plazas, mid-block connections, parkettes,
public art and/or community amenities such
as daycare or community space.
• Buildings shall face all new streets and public
spaces internal to the Character Area (i.e, all
open spaces except the Bowmanville Creek
Valley) with a frontal expression inclusive of
windows, doors, balconies, stoops, and other
architectural elements.
• A minimum of 50% of the Bowmanville Creek
valley shall be visible to and accessible from new
public roads, without building frontage.
• Provide retail and/or commercial opportunities
at the heart of the neighbourhood, clustering
around the principal street(s) and public spaces
including the spine.
• In addition to the stepback requirements of
these Guidelines, buildings within the Goodyear
Lands Character Area of 9 or more storeys in
height should incorporate an additional 1.5 metre
minimum step back within the top two storeys
where they face public streets or public spaces.
Bowmanville East Urban Centre Urban Design Guidelines 51
Figure 51: Goodyear Lands Character Area Building Heights and Transition
4
Bowmanville East Urban Centre Secondary Plan52
Figure 52: Goodyear Lands Character Area Bowmanville Creek Valley: Minimum 50% Visibility and Accessibility
Bowmanville East Urban Centre Urban Design Guidelines 53
Figure 53: Goodyear Lands Character Area Retail/Commercial Frontages
Bowmanville East Urban Centre Secondary Plan54
7.2 Residential Neighbourhoods
Character Area
The following guidelines apply to significant
changes to sites within the existing Residential
Neighbourhoods Character Area, including infill
redevelopment, replacement dwellings, major
additions, additional dwelling units on a lot, and
major façade remodeling. New development in
Residential Neighbourhoods Character Areas shall
have regard for the general design guidelines in this
document and the Clarington General Architectural
Design Guidelines.
7.2.1 Siting and Organization
• Buildings should be placed in relation to the
streetscape and immediate neighbours. New
development should have a set back consistent
with the predominant set back along the street.
• Generally, locate new development close to the
street edge to frame streetscapes.
• Site new development to preserve existing trees.
7.2.2 Building Design and Articulation
• Ensure the massing of new buildings is generally
consistent with the massing of other buildings
along the streetscape as seen from the street
edge. Taller building elements should be located
with greater set back from the street edge.
• Building massing and architectural design
should reference the architectural treatment of
existing buildings along the streetscape or in
the immediate neighbourhood. The objective is
to ensure new development is compatible with
existing buildings by incorporating similarities
in design language, not to replicate existing
buildings. Building references can include
similarities in:
–Building shape;
–Roof lines and profile;
–Principal massing elements such as bays,
projections, floor heights, and entrance
treatments;
–Architectural features such as porches,
stoops, chimneys, columns, frieze boards and
other details;
–Datum lines such as cornices, base courses,
bays, and window alignments;
–Proportions; and,
–Materials.
7.2.3 Vehicular Access and Parking
• Parking, including garages, should be designed
and located to minimize their impact on the
streetscape. Parking should be located at the
side or rear of principal buildings.
• Front-facing garages attached to the main
building should not occupy more than 50% of
the building’s width.
• Driveways should be located and spaced
to reinforce the rhythm of the streetscape
including the ability to provide street trees in the
boulevard.
Bowmanville East Urban Centre Urban Design Guidelines 55
Figure 54: The multi-unit infill building (right) maintains the street character through similar setback to the the existing homes. Taller
elements of the infill building are located at the corner, and parking is located behind the building.
Figure 55: The new dwelling, while modern, references many characteristics of the existing buildings along the streetscape including
massing, setback, prominent entry, and roof form.
Figure 56: This infill project preserves a single detached house while intensifying with row housing that has a compatible scale and
character with the existing streetscape.
Bowmanville East Urban Centre Secondary Plan56
Attachment 2
to PDS-033-24
Sequence of Events Summary
Date Event
October 2, 2017 Initiation of the Secondary Plan Update PSD-072-17
September 20, 2018 Steering Committee Meeting #1
November 22, 2018 Public Information Centre #1
March 19, 2019 Steering Committee Meeting #2
October 15, 2019 Meeting with Goodyear Landowner
May 1, 2019 Public Information Centre #2
January 20, 2020 Steering Committee Meeting #3
July 20, 2020, May 26,
2021, January 13, 2022 Meetings with Goodyear Landowner
April 13, 2022 Steering Committee Meeting #4
June 1, 2022 Public Information Centre #3
October 17, 2022 and
February 9, 2023 Meeting with Goodyear Landowner
October 12, 2023 Steering Committee Meeting #5
December 20, 2023 Notice of Statutory Public Meeting mailed to properties in the
Secondary Plan area and within 300m
December 21, 2023 Draft materials; Official Plan Amendment, Secondary Plan,
Urban Design Guidelines, available on project webpage
December 21, 2023 Interested Parties notified of draft documents available on
project webpage
December 20, 2023 and
January 10, 2024 Newspaper advertisements of Statutory Public Meeting
December 20, 2023 –
January 21, 2024
Notice of Statutory Public Meeting advertised on Municipal
facilities reach screens
January 17, 2024 Staff Report available
January 22, 2024 Statutory Public Meeting
September 9, 2024 All notices sent out by this date including to IPs and
properties within the Secondary Plan area and within 300m
September 12, 2024 Website updated with recommendation report and
supporting materials
September 12, 2024 Agenda Published with recommended OPA, Secondary Plan
and Urban Design Guidelines
September 16, 2024 Planning and Development Committee Meeting and
Recommendation
TBD Council Adoption of OPA 136
TBD Document Package forwarded to the Region of Durham for
review and approval
TBD Region of Durham approval of OPA 136
TBD Zoning By-law to implement the Secondary Plan
Attachment 3
to PDS-033-24
Public Comments Summary Table
Submission Number Details of Submission Staff Response
S-1
Andrew Rice
Acknowledges importance of creating a medical
district but suggests a transition plan to achieve
it is necessary and should be shared for public
input.
Requests a meeting with the Municipality to
discuss how development plans from 2019 can
conform with the Secondary Plan.
The East Business District Character Area is envisioned
to continue to develop as a commercial and mixed-use
centre. The Plan encourages medical clinics, offices,
laboratories and other supportive uses to be located in the
East Business District in order to create an expanded
medical campus adjacent to Lakeridge Health
Bowmanville.
However, the Plan also permits an array of uses within
the Mixed Use Area, such as commercial uses, including
retail stores, restaurants and personal service uses, office
uses, community uses, and hotels/event facilities.
Policy 12.1.4 speaks to existing uses that may be legal
non-conforming within the Secondary Plan area. Existing
non-conforming uses are encouraged to relocate or
redevelop over time (Policy 12.1.5).
Requested meeting held.
S-2
Maya Staresinic
Concerned about strain on infrastructure,
particularly road infrastructure and bottlenecks
getting into town. Suggests Bowmanville is
growing too quickly, and roadways are lacking
support to accommodate the population
projection of 10,500 people. Clarington should
invest in roadway infrastructure before moving
forward with this Plan. More highway access
points would greatly benefit the town.
A Transportation Impact Study for the Goodyear Lands as
part of the Secondary Plan process was completed by
AECOM to investigate traffic impact on the existing road
network. As part of a future development application, the
developer will be required to submit a Transportation
Impact Study that will access the development’s impact
on the transportation network. Ultimately, it will be the
developers’ responsibility to extend the existing road
network and implement road improvements as a result of
increased traffic from new development.
S-3
Kailey Sutton
(McMillian LLP) on
Requests additional clarity on key terms and
provisions in the Draft SP, particularly
concerning permitted uses in "Mixed Use"
areas. Highlights the lack of definitions for
The Mixed Use Area designation permits commercial
uses, including restaurants, retail stores and personal
service uses.
Attachment 3
to PDS-033-24
behalf of Bank of
Montreal
terms like "commercial uses" and "personal
service uses," causing confusion about whether
certain businesses, like restaurants, fall under
these categories.
Concern about the strict requirement for
buildings in Historic Downtown and East
Business District areas to be a minimum of 3
storeys, which could discourage various
commercial uses and go against the intent of
accommodating responsible growth.
Both the Secondary Plan and the Clarington Official Plan
speak to existing uses that may be legal non-conforming
within the Secondary Plan area. Existing non-conforming
uses are encouraged to relocate or redevelop over time.
However, existing uses or buildings are also permitted to
extend or be enlarged subject to specific criteria (Policy
23.5.3 of the Clarington Official Plan).
New development will be required to conform to the
Secondary Plan policies regarding height (minimum 3-
storeys in the Historic Downtown and 4-storeys in the
East Business District).
S-4
Paul Wirch
4.3.3/ Climate Change/ Urban Resilience
Suggest adding "...non-residential development
with shared..." to policy.
Revised policy “4.3.3 In multi-unit residential, townhomes,
and non-residential development with shared common
onsite parking spaces, provide at least 20% of parking
spaces with electrical vehicle charging stations. All
remaining spaces will be designed to enable future
charging station installation.”
S-4
4.4.3/ Sustainable Design: How to prioritize
development applications that include energy
efficient building design with Bill 109?
Revised policy “4.4.3 Encourage development proposals
that include energy efficient building design and practices
in all new buildings.”
S-4 4.4.4/Sustainable Design: How will this policy
regarding incorporating energy-saving
measures in buildings be enforced?
Through the development application process a
Sustainability Plan is required to be submitted to
demonstrate how sustainable development principle and
polices of Secondary Plan, Clarington Official Plan, and
Priority Green Standards are addressed.
S-4 4.4.7/Sustainable Design: Clarify which
Municipal standards public realm light fixtures
will be required to conform to.
Municipal lighting standards are anticipated to be included
in an update to Municipal standards currently being
amended. Until this time, Staff would recommend a
product that is satisfactory through the development
application process.
S-4 5.1.4/ Land Use: Suggest ‘buffer’ and not
transition to natural heritage.
Transition is the appropriate language to describe intent
of policy.
Attachment 3
to PDS-033-24
S-4 5.2.3g)/ Land Use: Clarify Environmental
Protection Area or Areas? Note discrepancy
with Schedules.
Schedules revised.
S-4 5.2.5/ Land Use: Suggest adding "...in
accordance with Section 9.3.2 of the COP."
Revised policy (now policy 5.2.6) “5.2.6 Within all
residential land use designations, small-scale service and
neighbourhood retail uses are permitted to the extent that
their nature, scale, design and location are compatible
with residential uses. These uses are intended to serve
the population within the immediate area and improve the
walkability and concentration of local amenities, in
accordance with Section 9.3.2 of the Clarington Official
Plan.”
S-4 5.2.6/ Land Use: Live-work is built form more
than land use. If mixed use is permitted, what is
gained from permitting live-work?
Added policy that defines ‘live-work’ use to provide clarity.
S-4 5.3.3c)/ Mixed Use Area: Clarify what is the
definition of Assisted and special needs
housing. Does it include Long term care?
Special needs and assisted housing is defined in the
Clarington Official Plan. Long term care facilities are
included as special needs housing.
S-4 5.3.7/Mixed Use Area: Recommend transition
from property line to include right-of-way as
transition.
Intent of policy is to require transition between high-rise
and mid-rise forms and existing low density residential
areas where the Mixed Use Area immediately abuts Low
Density Residential lands. The Urban Design Guidelines
provide examples of appropriate transition.
S-4 5.3.8/Mixed Use Area: Encourage private
laneway connections between properties to
reduce the need for multiple access points onto
major roads
Revised policy (now policy 5.3.13) to add “c) Encourage
private laneway connections between properties to
reduce the need for multiple access points onto major
roads”
S-4 5.5.4/ High Density Residential: Suggest revise
policy year reference from "2004” to “2024".
Revised.
S-4 5.6.4/ Low Density Residential: Clarify
reasoning for policy. Concerned that
Engineering may object to increased number of
driveways this will cause.
Policy removed.
S-4 6.3.2/ Placemaking and Streetscape:
Formatting of policy.
Revised policy to correct formatting.
Attachment 3
to PDS-033-24
S-4 7.2/ Parks: Should be parks provided that are
less than 5,000 sq. m.? There are no public
squares shown on Schedule C.
The size of public squares can be up to 1ha (10,000
square metres) as outlined in the Clarington Official Plan.
Desirable locations for public squares are listed in Policy
7.2.8. However, the precise location of these squares will
be determined through the development approvals
process.
S-4 7.2.10/ Parks: Is this policy necessary? Policy aligns with the Clarington Official Plan regarding
considerations for planning, design, and development of
parks and open spaces.
S-4 8.2.5/ Housing: Suggest revision to policy "...will
be encouraged..."
Revised policy added 'be' before encouraged.
S-4 8.2.6/ Housing: Clarify whether accessory
dwelling units are envisioned in stacked
townhouses.
Accessory Dwelling Units (ADUs) are permitted in
townhouses in urban areas, such as in the Bowmanville
East Secondary Plan area.
S-4 Schedule A: Suggest adding more contrast
between orange colours. Clarify why is there a
prominent intersection in the Goodyear lands.
Orange colour used to identify Downtown Corridor and
red colour used to identify East Business District.
Prominent intersection identified in Goodyear Lands due
to intersection of green spine/connection and Queen
Avenue extension.
S-4 Schedule B: Should the former Edna Thomson
daycare be designated Institutional? Is high
density realistic south of Climie Court?; Is
Vincent Massey school not Institutional?;
Recommend less mixed-use space on
Goodyear lands to reduce competition with
downtown.
Mixed Use Area designation permits community uses,
which is appropriate for Shaw House (former Edna
Thomson daycare).
Revised land use designation of lands on the southside of
Climie Court to Low Density Residential.
Vincent Massey school identified with a school symbol
with Low Density Residential designation underneath, as
schools are permitted in any Residential Area.
The Goodyear Lands are located in the Regional Centre,
where mixed use development is encouraged.
S-4 Figure 3/ Urban Design Guidelines: Note that
colours in legend appear to be different from
map colours.
Revised colours in Figure 3 to match legend.
Attachment 3
to PDS-033-24
S-4 Figure 23/ Urban Design Guidelines: Clarify
why the tall building element is required to be
so far away from the residential building in this
scenario than in Figure 21? The buffer provided
by the road should allow the taller element to
the closer to the street while still maintaining
the same separation from the residence.
Urban Design Guidelines provide examples of how
transition can be achieved. However, alternative design
solutions do not require amendments to be plan (Policy
12.1.10).
S-4 Raised concerns on the discrepancy in the park
sizes between Bowmanville East and
Bowmanville West Secondary Plans:
Note discrepancy between the park sizes in
plans. Suggest there should be another scale of
park below 5,000 sq.m. Sliver Parks are
discussed in the Urban Design Guidelines but
are not carried forward into the Secondary
Plan. Clarify where in Bowmanville East
Secondary Plan the expectation is to create
Public Squares or Parkettes that take up an
entire city block.
Clarington Official Plan policies reference 'up to 1 hectare
or 10,000 square metres'. A public square in Bowmanville
East Secondary Plan would be sized appropriately for the
context.
S-5
Bryce Jordan (GHD)
on behalf of Vanstone
Mill Inc., Gerard and
Steven Gervais
Unclear if all Vanstone Mill Inc lands are
included in the Secondary Plan and are
opposed their inclusion. Request that the
Secondary Plan boundary line be more clearly
drawn to exclude the Vanstone Mill lands west
of Bowmanville Creek.
Requests modification to policy 4.2.7 to extend
the exception to 14.4 to include Section 3.4 of
the Clarington Official Plan.
Opposes policies 8.3.6 and 8.3.7 regarding
affordable housing. These policies are not
mandated in the Planning Act or Development
Charges Act.
Removed Vanstone Mill lands west of the creek from
Secondary Plan boundary.
Revised policy to include reference to Sections 3.4 and
3.7 of the Clarington Official Plan.
Affordable housing contribution is direction of Council
based on past Secondary Plan approval. Contribution to
affordable housing is a Council direction as per previous
Secondary Plan approvals. Specific reference to
contribution per unit amount was removed from 8.3.7.
Attachment 3
to PDS-033-24
S-6
Stacie Kolpak-Field
Are there plans to expropriate residential
properties within the business district to
implement the plan?
There are no plans to expropriate residential properties.
Through the development approvals process, there may
be expansions to the road right-of-way.
S-7
Andrew Rice
Drive throughs are particularly important for fast
food revenue. Concern that 12-car driveway is
required for drive throughs, which is above the
average need.
Requests more information about density.
Request meeting with Staff regarding medical
precinct implementation.
The Clarington Official Plan states that drive-through
facilities are not desirable in Urban Centres, which is
identified in the Bowmanville East Secondary Plan (Policy
10.4.5). The Bowmanville East Secondary Plan does not
permit drive-through facilities.
Minimum densities for each designation were added to
the Secondary Plan.
Requested meeting held.
S-8
Ryan Guetter (Weston
Consulting) on behalf
of property owner of
lands located between
Wellington, Church
and Scugog Streets,
Janet and Andrew
Rice
Request for a meeting with Staff to clarify
several policies. Questions about policy related
to segment of land between Church, Scugog
and Wellington and the removal of commercial
permissions/neighbourhood scale commercial.
Concerned with height pertaining to some
designations, should be able to accommodate
additional height through transitions on the site.
Clarification about supportive commercial retail
and permitted uses. Clarification on permitted
townhouse types. Clarity on flexibility in the
Guidelines related to built form and setbacks.
Suggest there is an opportunity to laneway
housing. Requests policy framework to
accommodate.
Additional comments submitted March 8, 2024, see
responses S-20.
S-9
Bill Grainger
Concerns with adequate consultation with
seniors, suburbs near highway interchanges.
Concerns with potential impact of development
on the nearby retirement residence. Concerned
Retirement Residence was circulated notice of Statutory
Public Meeting, which is required to be posted in a
common area such as the lobby of the building for all
residents to view.
As part of development application process, a Traffic
Impact Study will be prepared to assess impacts on road
Attachment 3
to PDS-033-24
with traffic, noise concerns, dangerous road
conditions, height of buildings. Requests
sustainable, family friendly development.
network. A Noise Study may also be required at time of
development. Sustainability policies are included in the
Secondary Plan to promote green development.
Maximum building heights are outlined in each land use
designation, in order to provide for increased density
within the plan area while also providing the appropriate
transition.
S-10
David Crofton
Policies 5.3.3 and 5.3.4/ Mixed Use Area:
Will Semi-detached homes, like the ones
currently existing at the southwest corner of
Liberty and King Street continue to be a
permitted use in Mixed Use Area designation?
9.3.3/ Arterial Roads: Access directly onto King
Street and Liberty Street will generally be
prohibited. Access consolidation and joint
accesses will be encouraged through
development and redevelopment opportunities.
Access from side streets and/or shared access
with adjacent development should be provided.
Does this access prohibition include residents
of the semi-detached units on the SW corner of
King and Liberty? What is the timeline for this
prohibition coming into effect?
9.3.5/Arterial Roads: Liberty Street South
(Regional Road 14), from Baseline Road to
King Street, is planned to be widened from its
current two-lane cross section to a three-lane
cross section with a new centre two-way left-
turn lane, as identified in Municipality of
The proposed Secondary Plan currently envisions a
Mixed Use designation in this area, which doesn’t
permitted semi-detached dwellings. However, these
semi’s would be legal non-conforming and can remain.
Access directly onto King St and Liberty will generally be
prohibited for new development or where a new access is
proposed. Existing access will be maintained.
Please note that the Liberty Street road widening is a
Region of Durham project. At this time staff have received
the preliminary design for the road widening from the
Region which staff are reviewing. The preliminary design
indicates that the east side of Liberty will be widened to
accommodate a right turn lane. The curb on the west side
of Liberty is not changing except where it turns into
Queen Street. Construction is estimated to start in 2027.
Attachment 3
to PDS-033-24
Clarington and Region of Durham
Transportation Master Plans
Will this 3rd lane come out of the Staples lot?
Or will it come out of the boulevard on which
the residents of the semi-detached units on the
SW corner of King & Liberty park their
vehicles? Please note these semi's do not have
driveways, with the exception of the two end
units, which have driveways and room for two
vehicles each. The town's paved boulevard is
the only place we can park. There is nowhere
else.
There will be future public information sessions held by
the Region of Durham for this project.
S-11
Mark Jacobs (Biglieri
Group) on behalf of
property owner of
Goodyear Lands,
Lifelong
Developments
Developer is committed to revitalize the
Goodyear site.
Concerns with transition in height policies as it
relates to the Goodyear Lands, request 4
storeys as transitional zone.
Revised policy 6.8.6 c) regarding height limits of
development in the Goodyear Lands within 30 metres of
Residential Neighbourhood Character Area from
maximum 3-storeys to 4-storeys.
S-12
Brent Cavalry
Schedule C: Concern with lack of room for
sidewalks at Church and Brown due to lack of
setbacks of existing homes.
Sidewalk along east side of Brown Street shown in error,
Schedule C has been revised to remove the sidewalk.
S-13
Kristi Sawyer
Requests clarification on right of way passage
adjacent to Rotary Park and existing treelines.
Issues with flooding currently from the
Retirement home development, concern with
more issues with the Goodyear development.
Requests advanced notice for demolition.
Access would not be removed to private property through
the Secondary Plan. Currently there is an easement in
favour of 119 Queen Street over municipal land.
A Stormwater Management Report would be required as
part of redevelopment of the Goodyear Lands to assess
and address stormwater issues as a result of the
development.
Demolition permit has currently not been issued for
buildings on the Goodyear Lands.
Attachment 3
to PDS-033-24
S-14
Ron Hooper
Request for communication to current
businesses as Plan develops. Are individual
businesses contacted?
Individual businesses received notice of the Statutory
Public Meeting through Canada Post bulk mail service.
Owners of the buildings also received mail notice of the
Statutory Public Meeting held in January 2024.
Draft Secondary Plan presented at the Bowmanville
Improvement Area (BIA) meeting in February 2024.
S-15
Krysta Dudley
Report incorrectly shows intersection of Scugog
and King and the configuration of turn lanes.
This intersection is dangerous in its current
configuration. Request that the map be updated
to reflect conditions so that concerns can be
properly documented and resolved.
Revised Transportation Impact Study (TIS) Figure 2.1 to
match the current configuration of the intersection of
Scugog and King, which has recently been repainted.
S-16
Mark Jacobs (Biglieri
Group) on behalf of
property owner of
Goodyear Lands,
Lifelong
Developments
In support of the proposed designations on
Scheduled B. Supportive of most of the policies
for the Goodyear Lands Character Area and
Mixed-Use designation.
Suggest reclassifying all properties on Queen
Street between Ontario Street and Queen
Avenue as Downtown Corridor.
6.8.6c: Revise maximum building height for
buildings within 30 metres of Residential
Neighbourhood Character Area from 3 to 4
storeys.
8.3.7: Affordable housing units provided as part
of a development application should be credited
and exempt financial contribution. Amount of
credit to be determined through preparation of
the contribution agreement.
Acknowledged.
Residential Neighbourhood Character Area is appropriate
for the properties along Queen Street.
Revised policy 6.8.6 c) regarding height limits of
development in the Goodyear Lands within 30 metres of
Residential Neighbourhood Character Area from
maximum 3-storeys to 4-storeys.
Revised Policy 8.3.6 "To facilitate the development of
affordable housing units within the Plan area and in the
Municipality, in accordance with Policy 8.3.2, developers
shall provide a contribution of funds to the Municipality for
the development of affordable housing
in the community. The Municipality may consider
reduction in contribution where affordable housing is
Attachment 3
to PDS-033-24
9.2.5 Add Hunt Street from Albert Street to
Durham Street as a local road to extend in the
Municipality's grid system.
Suggest that the B3 Community Improvement
Plan be updated at the same time that the
Goodyear Lands are brought into the BEUC
Secondary Plan area.
provided as part of a development.” Policy 8.3.7 revised
to remove the specific amount of contribution.
Hunt Street cannot connect to Albert St. due to private
property.
CIP not anticipated to be updated at the same time as the
Secondary Plan.
S-17
Kevin Nesbitt
Commends the planning department for their
efforts on the Bowmanville East Secondary
Plan project but expresses concerns about the
developer of the Goodyear Lands conduct and
potential risks to the community.
Requests oversight to protect residents from
harm, including pre-construction surveys for
adjacent property owners, careful demolition to
mitigate pollutants, and consideration for
wildlife habitat. The suggestion of a community
liaison is proposed to facilitate communication
between residents, the city, and the developer.
Emphasizes that while residents support the
project, there's a general distrust of the
developer and a desire for close monitoring by
the city.
A Holding Provision will be put on Goodyear lands
through a zoning by-law amendment in association with
the Secondary Plan that would not permit development on
the lands until a record of site condition has been
provided (Policy 12.1.7).
A demolition permit is required for demolition of buildings
on Goodyear Lands. Staff typically do not require as-built
surveys on existing homes for truck hauling, the route is
usually approved by the Municipality and the road is
generally built to handle the load of the vehicles.
However, for the demolition part of the work, a site
alteration permit will be required for any material moved
off-site. Through the site alteration permit, the Municipality
will ask for the Developer to have their consultant
establish a line of influence and those houses will be
given the opportunity to have a pre-construction survey
done on the house.
Acknowledged.
Attachment 3
to PDS-033-24
S-18
Tim’s Rent-All Ltd,
Nancy and Susan
Coffey
Concerns with traffic control and creating an
unsafe intersection (Highway 2 and Scugog
Street) for pedestrians and vehicles which will
be exacerbated by larger traffic volumes.
Acknowledged. Staff will continue to monitor intersection,
and improvements will be made if warranted. Timing of
improvements is dependent on redevelopment of existing
property.
S-19
Bryce Jordan (GHD),
on behalf of Vanstone
Mill Inc., Gerard and
Steven Gervais
As stated in previous comments, maintain that
Vanstone Mill lands located on the west side of
Bowmanville Creek should not be included in
the Secondary Plan boundary. If the lands are
included, policies must recognize the existing
permissions.
Below are the changes needed to the Plan if
the property is included:
Schedule A should be revised to include the
property into the Residential Neighbourhood
character area. Schedule B should show the
property as High Density Designation.
Schedule C should show King St W south of
the subject property and the subject property
should be in white with a green between the
parcel and the creek. An exception to Section
4.2 policies should be incorporated to reflect
the provisions of the R4-13 zoning. A new
policy after 6.8.5 should be created to
recognize that 5 storeys is permitted on this
parcel.
Removed Vanstone Mill lands west of the creek from
Secondary Plan boundary.
S-20
Ryan Guetter (Weston
Consulting) on behalf
of property owner of
lands located between
Wellington, Church
and Scugog Streets,
Janet and Andrew
Rice
Draft Official Plan Amendment policy 23.3.5:
Acknowledge and support proposed policy.
Acknowledged.
Attachment 3
to PDS-033-24
S-20 3.1.1/ Community Structure: Understand that
Character Areas are distinct from land use
designations.
Correct.
S-20 3.4.2/ Downtown Corridor Character Area:
Confirm this policy is referring only to built form,
not permitted uses.
Correct.
S-20 3.5.2/ Residential Neighbourhoods Character
Area: Confirm that this policy is not requiring
various building forms on a single site but is
referencing housing diversity across the Plan
area.
Correct.
S-20 4.4.10/ Sustainable Design: Propose
modification from "possible" to "appropriate" to
recognize that it may not be appropriate to
retain trees in all circumstances to achieve
good planning.
Revised Policy 4.4.10: “Protect the existing urban tree
canopy by retaining mature trees, where appropriate.”
S-20 5.2.1/ Land Use: Requesting site-specific
density policy for properties located between
Wellington, Church and Scugog Streets
Revised Land Use Schedule to designate the lands along
the north side of Church Street from Medium Density
Residential to Mixed Use Area. Staff opinion is that the
revised Secondary Plan policies, which now include
minimum densities for each land use designation (150
units per net hectare, in aggregate Mixed Use Area
(Downtown Corridor Character Area) and 65 units per net
hectare in Medium Density Residential, provides for
flexibility as there are no maximum densities included. A
site-specific policy is not necessary.
S-20 5.2.4-6 / Land Use: Request for more explicit
permission for small-scale service and
neighbourhood retail within the Medium Density
Residential designation. Request small scale
service and retail be permitted without
prescribed floor area or parking, access and
other use limitations.
Policy revised to reference the Official Plan policy 9.3.2.
that speaks to criteria for small scale service/retail.
S-20 5.5.2/Medium Density Residential: Request that
Small scale service retail, Retail, and
Neighbourhood Retail be added as permitted
Small scale service and retail / neighbourhood retail
permitted in all residential land use designations, under
policy 5.2.5. However, this permission is subject to
Attachment 3
to PDS-033-24
uses in the Medium Density Residential
Designation
compatibility with residential uses in terms of nature,
scale, design and location as outlined in Official Plan
policy 9.3.2.
S-20 5.5.3/ Medium Density Residential: Request
confirmation that all forms of townhouses
includes: street townhouses, laneway
townhouses, back-to-back townhouses,
stacked townhouses, and back-to-back stacked
townhouses. If this is not the case, request
revised policy to all these forms.
Correct, all forms of townhouses are permitted in the
Medium Density Residential designation.
S-20 6.2.1/Urban Design and Built Form: Request
revision to explicitly recognize that the Urban
Design Guidelines (UDG) are not policy. Also
request policy expresses that UDGs are one
expression of the policy, but that other means
could achieve policy outcomes.
Further clarification provided in Section 12:
Implementation of the Secondary Plan. Specifically, policy
12.1.10 which states: “The Urban Design and
Sustainability Guidelines and Demonstration Plan have
been approved by Council, however, do not require an
amendment to implement an alternative design solution,
or solutions at any time in the future.”
S-20 6.5.7/ Building Siting and Design: Suggest
revision: "Buildings shall be sited and designed
to address appropriate shadow impacts on
parks and open spaces"
Revised policy “6.5.7 Buildings shall be sited and
designed to address shadow impacts on sensitive uses,
including surrounding residential neighbourhoods and
parks and open spaces. Where requested by Municipal
staff, development applications may be required to submit
a supporting Sun/Shadow Study.”
S-20 6.5.8/Building Siting and Design: Suggest this
policy regarding balconies is too prescriptive,
should be removed or revised for increased
flexibility.
Policy regarding balconies is flexible as policy provides
option for recessed balconies and/or a balcony design
that is integrated into the design of the building façade.
S-20 6.6.3/Active At-Grade Uses: Suggest specific
metric of minimum 4.0 metres for ground floor
height of commercial or institutional uses be
removed.
Minimum 4.0 metre height is appropriate.
S-20 6.8.4: a)/ Built Form by Character Area:
Suggest revision to a maximum of 12 storeys;
suggest c) and d) be removed, such that
specific setbacks are set out in the zoning by-
law
Maximum 10-storey height in the Downtown Corridor
Character Area is appropriate, as it provides a transition
zone to link the Historic Downtown and East Business
District.
Attachment 3
to PDS-033-24
Front yard setback range and step back provided to help
establish a consistent street wall. Revised policy “6.8.4 c)
Maintain a front yard setback of a minimum of 1.0 metre
and a maximum of 3.0 metres, where appropriate;”
S-20 6.8.5: b)/ Built Form by Character Area: Do not
recommend specific setbacks in the policy.
Should be in the Zoning by-law.
Front yard setback minimum provided to ensure
consistency along the street. Revised policy “6.8.5 b)
Maintain a minimum 3.0 metre minimum front yard
setback, where appropriate.”
S-20 9.2.2/ Transportation Network and 9.6.1/ Rear
Lanes: Request additional flexibility to allow
private roads and rear lanes regardless of
applicable designation.
Private streets and lanes are not permitted in Low Density
Residential designation. Through the development review
process, staff will review each application on its own merit
in regard to private roads and rear lanes.
S-20 12.1.6/ Implementation: Support this policy and
reiterate specific requests for flexibility.
Policy 12.1.6 provides for flexibility: “Inherent to this
Secondary Plan is the principle of flexibility, provided that
the general intent and structure of the Plan are
maintained to the satisfaction of the Municipality. As such,
it is the intent of the Municipality to permit some flexibility
in accordance with the Clarington Official Plan in the
interpretation of the policies, regulations and numerical
requirements of this Plan except where this Plan is
explicitly intended to be prescriptive such as those
regarding minimum densities and minimum and maximum
heights.”
S-20 12.1.10/ Implementation: Request policy be
more aligned with the proposed policy in the
Bowmanville West Secondary Plan, Policy
7.1.2.
Policy 12.1.6 references flexibility of the Secondary Plan
which is similar to Bowmanville West Secondary Plan
policy 7.1.2. Policy 12.1.10 is specific to implementation
of Urban Design Guidelines and provides flexibility as
well.
S-20 8.3.3, 8.3.6, 8.3.7/ Affordable Housing: Do not
support these policies as drafted. Suggest
increased flexibility to allow for greater supply
of housing. Unclear as to the basis of the
authority to require contributions. Support policy
8.3.8.
Revised Policy “8.3.6 To facilitate the development of
affordable housing units within the Plan area and in the
Municipality, in accordance with Policy 8.3.2, developers
shall provide a contribution of funds to the Municipality for
the development of affordable housing in the community.
The Municipality may consider a reduction in contribution
where affordable housing is provided as part of a
development.”
Attachment 3
to PDS-033-24
Contribution to affordable housing is a Council direction
as per previous Secondary Plan approvals. Specific
reference to contribution per unit amount was removed
from 8.3.7.
S-20 Suggest a site-specific policy: "The lands
designated Medium Density Residential on
Schedule B, which are municipality known as
139 and 151 Wellington Street, 194-196, 198,
200, 204 and 208, 2010-212 Church Street and
35 Scugog Street shall be permitted a
maximum density of 150 units per net hectare
and the building height within 15 metres of
Church Street shall be a maximum of 12
storeys and the building height within 15 metres
of Wellington Street shall be a maximum of 4
storeys. Building heights beyond the immediate
frontage of either Church Street or Wellington
Street may vary in height between 4 and 12
storeys.
The Downtown Corridor designation allows maximum 10-
storeys. Including a site-specific policy to allow up to 12 -
storeys along the north side of Church Street is not
supported, as the Downtown Corridor Character Area
height permissions apply across the entire Secondary
Plan area and is intended to act as a transition area.
Minimum densities have been added to the Secondary
Plan for each designation. Applying a maximum density of
150 units per net hectare may unnecessarily limit
development on the site as the Plan does not include
maximum densities.
S-20 Urban Design Guidelines/ Figure 2: Advise that
this figure is not consistent with Schedule A.
Request it be revised for consistency.
Revised Figure 2 to match Schedule A.
S-21
John McDermott on
behalf of property
owners at SW corner
of King St E & St.
George St, Janet and
Andrew Rice
Section 5.3.6/ Mixed Use Area: Policy is more
prescriptive as to what uses are permitted than
the Mixed Use Area designation on the subject
property. The feasibility and necessity of
implementing a medical campus on the
property is questioned. Requests the reference
to a medical campus be deleted to allow
greater certainty surrounding the permitted
uses on site.
Policy 5.3.6 regarding a medical campus encourages
medical related uses surrounding the hospital. Other
uses, such as commercial (retail, restaurants, personal
service), offices are permitted in Mixed Use Area
designation.
The term medical campus is used as a description for this
long-term vision, however, it is not intended to be
prescriptive and limit other uses surrounding the hospital.
S-21 Clarification requested on the proposed design
right of way width of St. George St and Queen
St given the proposed enhancements on
Schedule C.
Staff advise that a St. George Street is intended to be a
18.0m right-of-way, to match row design north of King.
This would mean a 2.0m road widening on west side of
St. George. Queen Street is intended to be a 18.0m right-
of-way to accommodate the type of vehicles accessing
Attachment 3
to PDS-033-24
Queen Street, this would mean 4.0m road widening on
each side.
S-21 3.3.5 / East Business District: Clarification
requested regarding implementation of policy
3.3.5 and the provision of finer grained street
network in the East Business District. Request
that possible future improvements and
extensions of the road network in this area be
delineated on Schedule C.
Finer grained street network encouraged around the
Bowmanville Hospital in Policy 3.3.5. Policy 9.2.5 states
that the Municipality will investigate the possible
construction of private roads on the hospital lands in any
hospital expansion.
S-21 12.1.8/ Implementation: Clarification requested
on the proposed location and height of the
heliport referenced in 12.1.8 as well as
applicable restrictions by Transport Canada.
Revised policy based on new information provided
Lakeridge Health Bowmanville regarding helipad: “12.1.8
Any proposed development within a 1000 metre radius of
the Lakeridge Health Bowmanville Hospital with a
proposed building height taller than 9 storeys or the height
of the rooftop heliport, whichever is less, may be required
by Municipal staff to include, as part of a complete
application, a report prepared by an Aeronautical expert
which assesses impacts of the proposed development on
heliport flight paths.”
S-21 Suggests lack of interim forms of land use
discourages private investment. Suggest
adding policy which provides for a change in an
existing use if it is similar in nature.
Mixed Use Area designation allows for a wide range of
permitted uses, such as residential (dwelling units above
ground floor within a mixed use building, apartment
buildings, and townhouses subject to criteria), commercial
(retail, restaurants, personal service), office uses, live-
work, community uses, and hotels/event facilities.
Clarington Official Plan Policy 23.5.3 speaks to extension
or enlargement of legal non-conforming uses, buildings or
structures. This includes change of use to a similar use.
Existing policy outlines criteria for approval for these
requests.
S-21 Suggests considering the introduction of a
public parking facility. Suggests revising 6.7.1
to also refer to the East Business District.
Revised Policy 6.7.1: "The Municipality shall consider the
implementation of a payment-in-lieu parking policy within
the Regional Centre"
Attachment 3
to PDS-033-24
S-21 Suggests potential future cycling infrastructure
over the proposed easterly extension of Church
Street, east of St. George St to Galbraith Court
and south to King Street East, to directly link to
the Soper Creek valleylands over Climie Court.
Also suggest enhancing the cycling network
south of King Street East.
Extension of Church Street is shown as a potential future
local road. Local roads have implied shared facilities, with
a sidewalk on one side.
Planned Municipal cycling infrastructure on Liberty Street
South, and potential for future municipal cycling
infrastructure along Queen Street and St. George to
connect to King St East.
S-22
Scott Horn
While I appreciate how the plan for Goodyear
Lands was designed to hide the taller buildings
in the centre, it is not actually the visual aspects
of the plan that I’m concerned with, it is more so
the density and associated traffic concerns.
Zoning the land as low density would negate
the need for a buffer as it would be in keeping
with the existing neighbourhood. This would
also address my traffic concerns, as the roads
clearly aren’t adequate for supporting higher
density.
The Goodyear Lands are located in a Regional Centre,
which is identified at the Regional scale to be the focus for
accommodating intensification and high-density mixed
uses. The vision for the Goodyear Lands, as part of the
Bowmanville East Secondary Plan, aligns with this
direction by permitting mixed use development at higher-
densities and heights. The Transportation Impact Study
(TIS) completed for the Goodyear Lands as part of the
Secondary Plan process indicates that build-out of the
Goodyear Lands does not significantly affect the road
network operations.
As part of a future development application, the developer
of the Goodyear Lands will also need to submit a
Transportation Impact Study (TIS) which will assess
impacts of the proposed development on the
transportation network, as well as mitigation measures. If
improvements are required, the developer will need to
make these changes to support the development.
S-23
Ryan Guetter (Weston
Consulting) on behalf
of property owner of
lands located between
Wellington, Church
and Scugog Streets,
Janet and Andrew
Rice
Requested that a site-specific policy be
included to permit a transition between the
Downtown Corridor Character Area at the south
of the site and the Residential Neighbourhoods
Character Area along Wellington Street:
“Notwithstanding any other policies to the
contrary, the lands designated Medium
Density Residential and Mixed Use Area on
Schedule B, which are municipally
Added Policy 6.8.5c) to permit up to 5 storeys in the block
containing these parcels to carry forward permissions
granted in a 1990 OMB decision:
“Notwithstanding policy 6.8.5 a), for the lands bound by
Silver Street, Wellington Street, Scugog Street and
Church Street that are in the Residential Neighbourhoods
Character Area, building heights shall be permitted to a
maximum of 5 storeys. The maximum height of buildings
located within 15 metres of Wellington Street shall be a
Attachment 3
to PDS-033-24
known as 139 and 151 Wellington Street, 194-
196, 198, 200, 204 and 208, 210 -212
Church Street and 35 Scugog Street shall be
permitted a density of between 150
and 200 units per net hectare and the building
height within 15 metres of Church
Street shall be a maximum of 10 storeys and
the building height within 15 metres
of Wellington Street shall be a maximum of 4
storeys. Building heights beyond
the immediate frontage of either Church Street
or Wellington Street may vary in
height between 4 and 10 storeys.”
maximum of 4 storeys in order to provide appropriate
transition in building height to the north side of Wellington
Street.”
Attachment 4
to PDS-033-24
Agency Comment Summary Table
Agency Details of Submission Staff Response
Hydro One
Requests to continue to be informed as more information is available on
this project, so as to advise of conflicts with Hydro One infrastructure
and potential mitigation options.
Acknowledged.
Alderville First
Nation
Alderville First Nation and other First Nations in the Williams Treaties
have harvesting rights in the area. Requests a file fee of $300 for
project consultation services. Outlines consultation process and
requests to be notified expediently if archaeological artifacts are
discovered.
Provided follow up with Alderville First
Nation to clarify that no archaeological
studies completed as part of the
Secondary Plan. Archaeological studies
will be completed as part of private
development applications.
New Policy added “12.1.15 Development
applications which require an
archaeological study are required to
consult and engage First Nations in the
Stage One Archaeological Assessment
process and to notify First Nations
expediently if archaeological artifacts are
discovered.”
Lakeridge
Health
Bowmanville
A rooftop heliport will be located on the roof of Floor 6, or the equivalent
of the roof of a standard 9 storey building. This may require that
buildings in the flight path be limited to 10 storeys. The flight path is not
yet determined and more details are not available until the design
process is underway.
Revised policy 12.1.8 to 9-storeys from 6-
storeys based on this new information.
Request that the proposed plan be revised to show the three residential
properties along Prince Street on the hospital lands designated
institutional instead of residential to align with future development plans.
Revised Schedules to show three
residential properties along Prince (#18,
#20, and #22) as institutional to reflect
additional hospital properties.
Durham
Region
Planning
Require the preparation of a land budget. To allow an assessment of
the population and employment forecasts to full build out.
Land budget has been prepared to
ensure Plan can achieve minimum 100-
150 people and jobs per hectare, as
required for Urban Centres not located on
rapid transit corridors.
Attachment 4
to PDS-033-24
Request additional information to understand how the area will achieve
the minimum density target without minimum density provisions by land
use designation.
Added minimum densities to each land
use designation (Policies 5.4.2, 5.5.2 and
5.6.2).
Draft policies may permit and encourage development patterns that
would not lead to transit supportive densities and a mix of land uses.
Acknowledged. Land use policies have
been revised based on land budget.
Section 1.0/ Introduction:
Add additional information/policy language to demonstrate how the Plan
is in conformity with the current and new Regional Official Plan. The
paragraph at the bottom of the page starts with “The policies of the
Secondary Plan are in conformity with the Durham Region Official
Plan”, however it is not clear how this plan conforms to or implements
the policies of section 5.2, particularly regarding planning for the
achievement of the long-term transit supportive density target for
Strategic Growth Areas, which is of particular importance for the
function of the Regional Centre.
The following matters need to be addressed in the policy in order for
Regional Staff to be able to confirm that the plan conforms with the new
Council adopted ROP goals regarding Strategic Growth Areas:
• Minimum residential density limits for each land use area within the
Regional Centre, which would result in the achievement of the minimum
density target for the Regional Centre even if developed to their
minimum permitted densities; and
• Policies prohibiting the reduction of minimum density limits, if these
would negatively impact the achievement of the minimum density target
for the Regional Centre.
This Secondary Plan is in conformity with
the Durham Region Official Plan. Specific
revisions to address conformity include
adding minimum densities to each land
use designation which would result in
achievement of minimum density target
for the Regional Centre if developed to
minimum permitted densities.
5.3.4 c)/ Mixed Use Area designation:
Object to allowing all forms of townhouses. Townhouses will lessen the
ability to achieve the minimum target densities and provide a mix of
uses as directed by the new ROP. Suggest removing townhouse
permissions or identifying specific areas where they would be permitted.
Revised policy to remove townhouses
from list of standard permitted uses (now
policy 5.3.6).
New policy added “5.3.7 Notwithstanding
Policy 5.3.6, townhouses may be
permitted in the Mixed Use Area
Attachment 4
to PDS-033-24
designation within the Goodyear Lands
Character Area as part of a larger mixed-
use development.”.
New policy added “5.3.8 Notwithstanding
Policy 5.3.6, townhouses may be
permitted in the Mixed Use Area
designation as part of a larger mixed use
development which includes one or more
of the residential dwelling types identified
in Policy 5.3.6, to act as a transitional
form to low density residential areas.”
5.3.7 / Mixed Use Area designation:
Object to removal of policy 5.3.7. Single use residential development,
particularly townhouses should not be permitted as it will lessen the
ability to achieve minimum target densities and provide a mix of uses.
Policy could be added to permit standalone residential uses within a
larger mixed use development proposal. Additional policy could add
flexibility by permitting both residential and non-residential on the
ground floor of a podium building.
New policy added “5.3.9 Standalone
residential buildings are only permitted in
the Mixed Use Area as part of a larger
mixed-use development.”
6.8.6 c)/ Goodyear Lands Character Area:
Suggest Maximum height be revised to 4 storeys as proposed
maximum height in Residential Neighbourhoods is higher than in this
area of the Goodyear Lands.
Revised policy “6.8.6 c) Limit buildings
within 30 metres of the north and east lot
line adjacent to the Residential
Neighbourhoods Character Area to a
maximum of 4 storeys”
3.2.4 and 3.2.5/ Historic Downtown Character Area:
Suggest combining polices 3.2.4 & 3.2.5 and clarify that increase in
height and density over existing built form is not prevented.
“3.2.4: New development will be comprised of primarily mid-rise forms
and will preserve the historic character and existing fine-grain
streetscape of the King Street corridor. Context-sensitive intensification
and redevelopment will be encouraged, which supports and enhances
the historic streetscape along King Street while providing additional
massing and height without negatively impacting the streetscape.”
Revised policy “3.2.4 New development
will be comprised of primarily mid-rise
forms and will preserve the historic
character and existing fine-grain
streetscape of the King Street corridor.
Context-sensitive intensification and
redevelopment will be encouraged, which
supports and enhances the historic
streetscape along King Street while
providing additional massing and height
Attachment 4
to PDS-033-24
without negatively impacting the
streetscape.”
Section 3.4/ Downtown Corridor Character Area:
Suggest revising policy to ensure minimum density targets can be
reached. Allowing townhouses throughout the majority of the Regional
Centre may not conform with the new Regional OP.
Added minimum densities to each land
use designation.
Revised policy in Mixed Use Area
designation to remove townhouses from
list of standard permitted uses (now
policy 5.3.6).
Section 3.5/ Residential Neighbourhood Character Area:
Clarification required. Residential Neighbourhood Character Areas are
still shown within the Regional Centre, as Medium Density Residential
Areas. This is considered acceptable so long as new low-density
residential uses are not permitted.
Residential Neighbourhoods Character
Areas in the Regional Centre are planned
to accommodate higher densities. The
Medium Density Residential designation
only permits townhouses and apartments.
Section 5.1/ Land Use:
Transitional policies should not limit the achievement of transit-
supportive density or walkability within the Regional Centre based on
existing under-developed (pre-designated or pre-zoned) lots which are
intended to intensify over time in accordance with the Official Plan. A
policy may be required to explicitly state that development planning is
intended to maximize the potential density and walkability within the
Regional Centre.
Suggest adding policy “5.1.5 Developments within the Regional Centre
shall be planned to maximize permitted heights and massing in order to
reach their highest potential transit-supportive density and walkability.”
Draft policies don't demonstrate how the density targets will be met. A
land budget is required.
New policy added to Section 5.2 Land
Use, General Policies: “5.2.4
Developments within the Regional Centre
shall be planned to maximize permitted
heights and massing in order to reach
their highest potential transit-supportive
density and walkability, where
appropriate.”
Added minimum densities to each land
use designation.
5.2.1/ General Policies: Additional policy language may be required to
describe how density target achievement will be monitored, evaluated
and enforced.
Added minimum densities to each land
use designation.
5.2.6 / General Policies: proposed definition may inadvertently restrict
compatible uses and impact flexibility. Suggest revisions: "Live-work
units are defined as a single unit which can accommodate consisting of
Revised policy (now policy 5.2.7) “Live-
work units are defined as a single unit
which can accommodate combined
Attachment 4
to PDS-033-24
both a commercial, retail, and/or office component non-residential
and/or a residential component uses that is occupied by the same
resident(s)."
residential and personal service or office
uses, as appropriate.”
5.3.4 / Mixed Use Area designation:
This policy could permit/encourage low densities in the mixed use areas
which would negatively impact the achievement of transit supportive
densities and a mix of land uses in the Regional Centre. It is
recommended that the Municipality reverse the revision that permits
stand alone townhouses in the mixed use areas or identify which
specific areas this would be suitable.
New policy added “5.3.7 Notwithstanding
Policy 5.3.6, townhouses may be
permitted in the Mixed Use Area
designation within the Goodyear Lands
Character Area as part of a larger mixed-
use development.”
New policy added “5.3.8 Notwithstanding
Policy 5.3.6, townhouses may be
permitted in the Mixed Use Area
designation as part of a larger mixed use
development which includes one or more
of the residential dwelling types identified
in Policy 5.3.6, to act as a transitional
form to low density residential areas.”
New policy added “5.3.9 Standalone
residential buildings are only permitted in
the Mixed Use Area as part of a larger
mixed-use development.”
5.7.1 /Institutional designation:
This policy includes government uses, but could also encourage post-
secondary education uses. Suggest adding permissive language that
support and encourage these uses where appropriate.
Revised policy “5.7.1 Institutional includes
uses such as government offices,
museums/archives, hospitals and post-
secondary education uses. The
Institutional designation consists of lands
used for the Municipal Administrative
Centre and the Lakeridge Health
Bowmanville Hospital.”
6.2.5/ Urban Design and Built Form:
Suggest adding additional policy language to clarify that transitional
policies are not intended to apply to low-rise residential areas adjacent
to the Regional Centre, but to areas outside of the SP area. This is to
prevent the erosion of development potential of the Regional Centre
Revised policy “6.2.5 Development shall
provide appropriate transitions to
adjacent low density residential areas,
public parks and open spaces.”
Attachment 4
to PDS-033-24
lands.
Suggested:
“Buildings shall provide appropriate transitions to adjacent low-rise
residential areas, public parks, and open spaces, and low-rise
residential areas located outside of the Secondary Plan area.”
Elsewhere, a policy may be required to explicitly state that development
planning is intended to maximize the potential density and walkability
within the Regional Centre.
“Developments within the Regional Centre shall be planned to
maximize permitted heights and massing in order to reach their highest
potential transit-supportive density and walkability. To that end,
transitional policies are intended to apply based on the planned use of
adjacent parcels, not the existing use of adjacent parcels.”
Implementation of the density targets requires prescribed minimum
densities per land use area, greater minimum height requirements, and
a land budget demonstrating that these will result in the density target
being achieved across the Regional Centre even in a minimum
permitted density scenario.
Revised policies 3.3.4 and 6.8.6a) to
replace “low rise” residential with “low
density” residential.
New policy added to Land Use, General
Policies: “5.2.4 Developments within the
Regional Centre shall be planned to
maximize permitted heights and massing
in order to reach their highest potential
transit-supportive density and walkability,
where appropriate.”
Added minimum densities to each land
use designation, based on land budget
(Policies 5.4.2, 5.5.2 and 5.6.2).
Revised policies to increase minimum
heights in Downtown Corridor, East
Business District and Goodyear Lands
from 3-storeys to 4-storeys.
6.7.2/ Parking Loading and Mechanical Structures:
Consider adding language that shows integrated parking is preferable
to surface parking. Eg: “New off-street parking will generally be
screened from view of the public realm. Parking is to be provided within
buildings where possible, in accordance with policy 6.7.3. Where it is
not feasible to locate parking within buildings or structures, surface
parking shall Parking will be encouraged to be located to the rear or
side yard of buildings in order to preserve the frontage for a diversity of
soft and hard landscaping.”
Revised policy “6.7.2 New development
will remove and not retain large surface
parking areas. Where feasible, parking is
encouraged below grade or in structured
solutions in limited circumstances, only
where the ground floor has been
activated by the permitted land use, as an
ancillary use to maximize landscaping
opportunities and optimize development
sites.”
Durham
Region
Planning
6.7.7/ Parking Loading and Mechanical Structures: Replacement of
“establish” with “consider” was added; please confirm whether this
means maximum parking requirements will be established, as required.
Revised policy “6.7.7 The implementing
zoning by-law shall establish minimum
and maximum requirements for parking,
including requirements for accessible
Attachment 4
to PDS-033-24
parking spaces. Parking requirements
shall seek to reduce minimum and
maximum parking standards in order to
encourage a shift toward sustainable
modes of transportation and reflect the
walking distance to transit and
complementary uses.”
6.8.2/ Historic Downtown Character Area: Suggest additional policy
similar to 6.8.6e to permit additional height where street level visual
impact is minimized. Cultural heritage considerations should be
balanced with supporting the intensification and ultimate functioning of
the Regional Centre.
Policies allow for intensification in the
Historic Downtown along King Street, but
direct highest heights to Church and
Scugog Streets.
6.8.6/ Goodyear Lands Character Area:
Suggest changing the height limit within 30 metres of the Residential
Neighbourhoods Character Area to 6 storeys, to spread density across
the site, achieve minimum densities, and implement transition policies.
Goodyear Lands should permit increased height and density relative to
surrounding permitted built form. A maximum of no less than 6 storeys
is recommended, in order to represent a transition of built form, while
maximizing the potential of the redevelopment lands to provide the
density necessary to support the Regional Centre.
The Residential Neighbourhood character area adjacent to the
Goodyear lands within the Regional Centre has been revised to
Medium Density Residential. Height limits in the Goodyear lands
abutting these areas should not be lower than the maximum permitted
in the MDR.
Revised policies to increase minimum
heights within the Goodyear Lands
Character Area:
“6.8.6 a) Permit buildings with a minimum
height of 4 storeys and a maximum height
of 12 storeys”;
“6.8.6 c) Limit buildings within 30 metres
of the north and east lot line adjacent to
the Residential Neighbourhoods
Character Area to a maximum of 4
storeys”
9.2.10/ Transportation Network: There appears to be a phrase missing;
it should read: “All new and improved roads, public or private, will be
built to be consistent with the requirements of the road authority having
jurisdiction."
Revised policy “9.2.10 All new and
improved roads, public or private, will be
built to be consistent with the
requirements of the road authority having
jurisdiction.”
Consider adding definition for high-rise and mid-rise in the OP as these
terms are used throughout.
Added policy “5.2.8 Mid-rise buildings are
characterized as buildings between 4 to 6
storeys and high-rise buildings are
characterized as buildings between 7 to
Attachment 4
to PDS-033-24
12 storeys, in accordance with the
Clarington Official Plan’s policy on urban
structure typologies.”
Schedule A: Regional Staff concur with a suggested revision of the
lands south of Queen between Division and Ontario to be "Downtown
Corridor"
Character Area remains Residential
Neighbourhood to provide appropriate
transition in height from the Goodyear
Lands to existing historic homes.
Schedule C: Please revisit ways to show Bowmanville Creek parking
area and laneway.
Schedule C revised for clarity.
Schedule C: A trail connection to the west of the Secondary Plan area
should be shown, or alternatively, policy should be added to require
identification and implementation of the trail connection if identifying the
specific location is beyond the scope of this current study.
Identifying future trail connection to the
west on Schedule C is beyond the scope
of this study.
Section 4.2.5 / Fig 21, 22, 23 in Urban Design Guidelines regarding
Transition:
Transition policies should consider the proposed maximum height of 4
storeys in Residential Neighbourhoods. Existing transition policies
would require massing of 2-3 storeys abutting Residential
Neighbourhoods, regardless of whether those areas were built to the
maximum permitted height of 4 storeys. Transition policies should not
unreasonably reduce the development potential of land with higher
permitted heights and densities.
Revised maximum height in Residential
Neighbourhoods to 3-storeys, with the
exception of the Regional Centre where
maximum height remains 4-storeys.
Updated Figures 21, 22 and 23 in Urban
Design Guidelines to reflect this change.
Retail frontages in Goodyear Lands:
In response to Karmina comment on retail frontages; If revisions are
intended to permit residential frontage in Mixed Use areas, staff could
consider policies to promote and protect active at-grade uses where
appropriate. The Municipality should also consider how at-grade uses
could be built to allow for both residential uses and conversion to
commercial uses in the future.
This could include transferring the identified retail/commercial frontage
areas in Fig. 12 to Secondary Plan schedules and including supportive
policy language.
Policy 5.3.2 address this comment: “5.3.2
Development within the Mixed Use Area
designation shall predominantly consist of
street-oriented building forms with active
retail and service uses at-grade, and
residential and/or non-residential uses
above.”
New policy added to Goodyear Lands
Character Area “3.6.8 New development
is encouraged to incorporate active at-
grade uses to generate pedestrian
activity. Retail uses are encouraged at
Attachment 4
to PDS-033-24
the core of the Character Area to support
street animation and activity.”
Figure 51 in Urban Design Guidelines: Max height at the north and east
edge of the Goodyear lands has a lower permitted height than the
surrounding residential neighbourhood. Consider increasing the height
to reflect a gradual increase in permitted heights.
Updated Figure 51 to reflect change in
Secondary Plan policies regarding
heights within 30 metres of Residential
Neighbourhood Character Area to the
east and north of the Goodyear Lands.
Durham
Region,
Works
Staff have no comments related to water and sanitary servicing but
reiterated comments on background work.
Acknowledged.
There are existing operational issues related to traffic in the study area
that will worsen with development. Operational improvements will
provide some relief, but policies from the TIS must be implemented to
reduce the dependence on car use, as outlined in the study.
Transportation Impact Study (TIS)
provides mitigation measures and
recommendations to address
transportation network and traffic impacts.
Section 1.2 of Transportation Impact Study (TIS) for Goodyear Lands:
Highway 57 should be Regional Road 57.
Revised.
Section 3.3 of TIS: Description of the GO Station Services should align
with Metrolinx's current plans related to frequency, and timing of
infrastructure.
Revised.
Durham
Region,
Transportation
Section 2.1 of TIS: King street is under the jurisdiction of the
Municipality between Bowmanville Ave and Haines. Baseline Road is
also under jurisdiction of the Municipality.
Revised.
Routes 501 and 506 are no longer in operation. Now served by routes
502, 507, and 902
Revised.
Section 3.1 of TIS: should be rephrased to state: "To the east of the
BESP study area, Lambs Road has been identified as a potential future
interchange location on Highway 401 by the Region of Durham and
Municipality of Clarington (refer to Figures 3-1 and 3-2), which is
acknowledged by MTO but was not included as part of the preliminary
design in the Highway 401 EA Study, Courtice Road to East Townline
Road (2014)." Should also clarify that the subject TIS does not assume
the Lambs Road interchange as part of the 2041 future conditions.
Revised.
Section 3.3 of TIS: add sentence to clarify that GO Train Service is
assumed in the 2041 horizon.
Revised.
Section 3.7 of TIS: should be reworded to "Continue to monitor and
improve signal timing co-ordination…"
Revised.
Attachment 4
to PDS-033-24
Section 3.8.2 of TIS: Shared parking should be added as a strategy to
support TDM.
Added discussion of shared parking as
parking management strategy.
Section 4 of TIS: typo, Goodyer, instead of Goodyear Revised.
Durham
Region
Transit
From a transit perspective, the Durham Region Transit has no
comments.
Acknowledged.
Bell Canada
Requests notice of all development applications in the area. Requests
that Bell Canada be circulated as early as possible in future
development proposals so that appropriate services can be provided.
Acknowledged.
Central Lake
Ontario
Conservation
Authority
(CLOCA)
Section 3.6/ Goodyear Lands Character Area: The Bowmanville Creek,
dam, fish ladder, and trail are unique and well-used features of this
community. Suggest more emphasis on these features should be
included in the characterization of the area. A long term plan for the
dam structure will be outlined as part of the Goodyear lands
redevelopment. Recommend adding a requirement for an EA to
evaluate alternatives for the future of the dam.
Environmental Assessment (EA)
requirements are changing. If an EA is
required, an EA will be undertaken by the
property owner.
Section 4.2 / Environmental Protection Area: A policy item on EIS,
hazard delineation and VPZ requirements similar to Bowmanville West
can be added after Section 4.2.3.
Conservation Authority approval requirements should also be
mentioned. “Any new development in proximity to environmentally
significant and sensitive areas and natural heritage features shall be
required to complete an Environmental Impact Study (EIS) in
accordance with the Clarington Official Plan. The purpose of EIS would
be establishing the limits for development adjacent to the natural
heritage features and/or natural hazards through identifying feature
boundaries and applying appropriate Vegetation Protection Zones
(VPZ) as per Clarington OP policies”.
Policy added “4.2.4 Any new
development in proximity to the Natural
Heritage System shall be required to
complete an Environmental Impact Study
(EIS) in accordance with the Clarington
Official Plan. The purpose of EIS would
be establishing the limits for development
adjacent to the natural heritage features
and/or natural hazards through identifying
feature boundaries and applying
appropriate Vegetation Protection Zones
(VPZ) as per Clarington OP policies.”
4.2.7/ Environmental Protection: Clarify that any new development not
associated with the historical aspect of the mill (ie. Residential) must be
located out of natural hazards. The restoration of the mill and conditions
associated with the OMB decision must be referenced.
Revised policy (now 4.2.8) to include
reference to Sections 3.4 and 3.7 of the
Clarington Official Plan: “4.2.8
Notwithstanding the development policies
in Sections 3.4, 3.7 and 14.4 of the
Clarington Official Plan, it is recognized
that the Vanstone Mill has historically
Attachment 4
to PDS-033-24
been located within the valleyland of the
Bowmanville Creek. Further development
and redevelopment within the valleylands
is permitted provided:
a) It is located outside of the floodplain;
b) Erosion control works are undertaken;
c) Environmental protection lands are
dedicated to the Municipality; and
d) Arrangements are made to restore and
enhance the natural features within the
Bowmanville Creek corridor.
OMB decision regarding the Vanstone
Mill doesn’t need to be referenced.
8.2.5-7/ Housing: Additional policy should be added that
notwithstanding these policies, ARUs will not be permitted in flood or
slope hazards or in areas that have no safe access
Added policy “8.2.8 Notwithstanding
Policies 8.2.5 to 8.2.7, ADUs will not be
permitted within hazard lands or in areas
that have no safe access.”
9.8.6/ Active Transportation: Concerned with proposed trail on the east
side of Bowmanville Creek next to the Goodyear lands due to
contamination and steep valley slopes. Staff instead recommend a trail
connection from the east side of the creek to the existing trail on the
west side.
Acknowledged. No detail design has
been created for the potential future trail
connection. The intention is to show a
conceptual new trail connection from the
Goodyear lands, the exact location of this
may be refined.
10.3.1/ Stormwater Management: Recommend further study on the
impacts of the proposed land use plan on Bowmanville Creek.
Recommend an update to CLOCA's watershed model as part of the
study
Acknowledged. Watershed model not
intended to be updated as part of this
study.
10.3.3/ Stormwater Management: Recommend erosion assessments
consider existing erosion sites identified through past studies.
Assessments should determine appropriate development triggers for
mitigation/stabilization works and impact of increased runoff from future
intensification.
Policy 10.3.3 g) referenced “other
technical reports as deemed necessary”.
This would cover erosion assessments if
needed at development application stage.
Attachment 4
to PDS-033-24
10.3.5./Stormwater Management: Section references the Soper Creek
Subwatershed Study, but this Secondary Plan is out of the scope of the
SWS. SWS will not assess the impacts of the proposed land use
updates. Recommend that the SWS scope be expanded to evaluate
impacts on Soper Creek.
The eastern portion of the Bowmanville
East Secondary Plan is in the Soper
Creek Subwatershed Study (SWS).
Revised policy “10.3.5 Stormwater
management plans shall adhere to the
targets and requirements outlined in the
Soper Creek Subwatershed Study and
the Bowmanville / Soper Creek 2020
Watershed Plan Update, where
applicable.”
Attachment 5
to PDS-033-24
Summary of Technical Background Reports
(Available on
request)
Report
Existing
Conditions
Reports
Separate existing conditions reports were prepared by AECOM
for the Bowmanville East Urban Centre (February 25, 2019) and
the Goodyear Lands (September 16, 2020). The report provides
an analysis of existing servicing infrastructure for the
Bowmanville East Urban Centre and the Goodyear Lands. A
summary of the findings is below;
Phase 1
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.
Technical Report
Key Findings and Next Steps
The Phase 1 Technical Report (April 16, 2019) was prepared by
SvN as part of Phase 1 of the project. The report provides an
analysis of background conditions, including review of existing
conditions, policy and zoning evaluation, analysis of public realm
and transportation, municipal servicing, sustainable development
and affordable housing. Public engagement feedback gathered
from Phase 1 of the project was summarized into a series of key
messages. The outcomes of this review, including public
engagement feedback, informed the issues and opportunities,
identification of key project areas, and creation of a
redevelopment concept for the Bowmanville East Urban Centre
area in Phase 2.
Bowmanville East Urban Centre
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
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.
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.
Transportation
Impact Study
Phase 2
The Goodyear Lands Transportation Impact Study (November
2023) was prepared by AECOM as part of Phase 2 of the
project. The report assesses the existing traffic conditions in the
vicinity of the Goodyear Lands, forecasts future traffic volumes
associated with the new land use, assess the future operations
at intersections in the vicinity of the subject lands, and identify
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).
Goodyear Lands
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-
Technical Report
The Phase 2 Technical Report (April 21, 2023) was prepared by
SvN as part of Phase 2 of the project. The report provides an
overview of work completed in Phase 2 of the project, including
the redevelopment concept for the Bowmanville East Urban
Centre, results of public engagement activities, summary of
technical reports, preliminary policy directions and next steps.
The preliminary policy directions emerged based on outputs
from Phase 1 and Phase 2 work, including the establishment of
five character areas, streamlined land uses, height and built form
that allows the tallest buildings within the East Business District
and Goodyear Lands, and improvement to the public realm and
active transportation network.
operational concerns, safety concerns and any required
mitigation measures where appropriate.
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 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 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.
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.
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.
Goodyear Lands The Goodyear Lands Functional Servicing Report (December 6,
2023) was prepared by AECOM as part of Phase 2 of the
project. The report provides 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.
Functional
Servicing Report
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,
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.
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.
Hemson Consulting Ltd
1000 ‒ 30 St. Patrick Street, Toronto, ON M5T 3A3
416-593-5090 | hemson@hemson.com | www.hemson.com
MEMORANDUM
To: Paul Davidson, Manager, Financial Planning / Deputy Treasurer
From: Jaclyn Hall, Hemson
Date: September 10, 2024
Re: Bowmanville East Secondary Plan Fiscal Impact Analysis
Hemson was retained to complete a high-level Fiscal Impact Analysis (FIA) for the
Bowmanville East Secondary Plan Area on behalf of the Municipality of Clarington. This
memorandum summarizes Hemson’s evaluation of the capital costs, operating costs, and
revenue sources associated with the Preliminary Land Budget and anticipated capital
infrastructure needs.
As the current Land Budget is still preliminary and that a detailed assessment of the
infrastructure needs required to service development have not been completed, the results
should not be considered precise predictions of what will occur at build out of the
Secondary Plan Area. Only costs and revenues incurred/anticipated to be collected by the
Municipality of Clarington are included.
A.KEY ASSUMPTIONS
Results of the analysis are high-level in nature and are designed to show the potential fiscal
net impact of the anticipated development. The actual impact is influenced by many factors
including the cost and timing of projects, as well as the timing of development. The analysis
is based on:
•Municipality of Clarington actual expenditures and non-tax revenues for 2022 as
identified in Financial Information Returns (FIRs) and budget documents. The use of
the 2022 FIRs reflects current municipal expenditures;
•Current value assessments (CVAs) from the current assessment roll;
•A build out of all residential and non-residential development and supporting
infrastructure in the Secondary Plan Area; and
•All values are provided in $2024 unless otherwise stated.
Attachment 6
to PDS-033-24
| 2
B. PRELIMINARY LAND BUDGET
The Preliminary Land Budget was prepared by SvN in May of 2024 and has been used for
the purposes of the FIA. The total land area of the Secondary Plan amounts to 127.2
hectares (71.0 hectares in the Regional Centre and 56.1 hectares Outside of the Regional
Centre). The net developable land area amounts to 78.1 hectares.
Tables 1 and 2 provide a summary of the anticipated population, dwelling units and
employment growth based on the minimum densities anticipated for each land use
designation. These figures have been used to inform the analysis for the purposes of the
FIA.
Table 1: Summary of Population, Employment and Dwelling Unit Growth
MINIMUM GROWTH ESTIMATES
Population Growth 12,213
Dwelling Unit Growth 6,617
Employment Growth 4,450
Table 2: Unit Growth by Density Type
TOTAL UNIT GROWTH NUMBER OF UNITS
High Density 5,067
Medium Density 1,070
Low Density 480
Total 6,617
C. CAPITAL COST ANALYSIS
The fiscal impact analysis examined growth-related capital costs to be funded through
direct developer contributions and development charges (DCs), as well as any non-growth
shares of projects to be funded by the Municipality. The potential long-term lifecycle costs
associated with the new infrastructure is also examined. A brief description of the various
capital costs are provided below:
i. Developer Funded Capital
This analysis estimates the amount of additional funding for replacement capital required
as a result of the installation of capital by developers (also known as “local services”). Local
services capital typically includes local roads, streetlights, and sidewalks, as well as any
water, sanitary, and storm sewer infrastructure that is internal to a development.
| 3
For the purposes of this analysis local roads, including active transportation and sidewalks,
are considered to be local services. Capital infrastructure along collector roads are
considered to be external to future individual developments and eligible for funding through
DCs. In addition, parkland provided by developers through section 42 of the Planning Act is
considered to be local services capital.
ii. DC Funded Capital
DC-eligible capital costs include collector roads and related infrastructure, parks, fire
protection, recreation, and library services. All of the DC eligible costs identified for the
Secondary Plan Area are required to meet the increase in servicing need for new
development over the planning horizon to build out, therefore no benefit to existing (also
known as DC ineligible) shares of projects have been identified.
iii. Asset Management Contributions
Useful life assumptions for different asset types were used to estimate the Municipal long-
term incremental increase in capital replacement contributions associated with the new
DC-funded and local developer infrastructure. The analysis calculates the estimated annual
provision which the Municipality will be required to contribute to these assets once the
Secondary Plan Area is built out.
iv. Summary of Capital Costs
Anticipated capital costs are summarized in Table 3 and total $65.4 million to build out of
the Secondary Plan Area. Anticipated capital costs have been informed by anticipated
lengths of infrastructure (e.g. new local roads, active transportation, sidewalks, trails, new
collector roads etc.) as provided by staff and based on costs informed from the
Municipality’s ongoing 2025 DC Background Study update and/or estimates from other
municipalities as well as service level standards identified in the Municipality's current 2020
DC Background Study. The total capital cost of infrastructure related to the Secondary Plan
Area is anticipated to be funded by local developer contributions ($17.0 million or 27%) and
development charges ($47.1 million or 73%).
Table 4 shows that approximately $3.0 million per annum in asset management
contributions will be required for infrastructure related to servicing the needs of the
Secondary Plan Area.
Table 3: Summary of Capital Costs by Service Category
| 4
SERVICE TOTAL COST
($MILLIONS) SOURCE
Stormwater $1.0 million Staff estimates
Transportation Services $7.6 million Draft Secondary Plan
Infrastructure Details
General Services $55.5 million Draft Secondary Plan and
2020 DC Background Study
Total $65.1 million
Local Services $17.0 million (27%)
DC- Funded $47.1 million (73%)
Table 4: Summary of Asset Management Contributions
SERVICE ANNUAL PROVISION
BUILDOUT
Local Services $498,200
DC- Funded $2,500,400
Total $2,998,600
D. OPERATING ANALYSIS
Tax-supported operating costs arising from the construction of new developer- and DC-
funded capital, and the addition of households, people and jobs in the Bowmanville East
Secondary Plan Area, were estimated based on data from the Municipality’s 2022 Financial
Information Returns (FIR).
Table 5 summarizes the gross operating costs anticipated to be associated with
development in the Secondary Plan Area. Cost drivers were applied to FIR operating cost
data. Where appropriate, costs are driven by the planned infrastructure investments (e.g.
Roads and Related, Parks), whereas many services are considered to be driven by only
population growth, a combination of both population and employment growth, or household
growth. For certain services such as Recreation, Libraries, General Government, and
Planning and Development, incremental cost savings are common, as such a factor of 75%
and 50% were applied accordingly. The total additional annual operating cost associated
with development of the Secondary Plan Area is calculated at $10.8 million.
Table 5 also summarizes the anticipated non-tax revenues and resulting net operating
costs. These non-tax revenues include grants, user fees, and service charges as per the
FIR. It is assumed that these revenues will remain consistent on a per-capita basis. Annual
revenues associated with the Secondary Plan at build-out are calculated at $1.6 million.
| 5
The total net annual operating cost associated with the Secondary Plan Area is $9.2 million.
This translates to $553 per capita and employee.
Table 5: Operating Impact Summary
2022 FIR Total
Operating Costs
(Indexed to
$2024)
Quantity
(Based on 2021
Census Year)
Unit of Measure Operating Cost/
Unit of Measure SP Quantity SP Operating
Costs
2022 FIR Total
Grants, User
Fees, and Service
Charges
(Indexed to
$2024)
Per capita SP Revenue
Calc
Net SP Operating
Cost
General Government $7,981,759 131,350 Population + Employment (50%)$61 12,497 $759,415 $1,455,653 $14 $175,275 $584,141
Fire $18,178,371 35,950 Households (75%)$506 4,963 $2,509,589 $536,153 $5 $64,558 $2,445,031
Protective Inspection and Control $1,983,115 131,350 Population + Employment (75%)$15 12,497 $188,681 $75,156 $1 $9,050 $179,632
Building Permit and Inspection Services $1,967,011 35,950 Households (75%)$55 4,963 $271,553 $145 $0 $17 $271,535
Emergency Measures $375,313 131,350 Population + Employment (75%)$3 12,497 $35,709 $5,321 $0 $641 $35,068
Roads and Related $33,553,294 131,350 Population + Employment (75%)$255 12,497 $3,192,390 $1,313,016 $13 $158,100 $3,034,290
Transit $0 131,350 Population + Employment (75%)$0 12,497 $0 $0 $0 $0 $0
Parking $684,430 131,350 Population + Employment (75%)$5 12,497 $65,119 $214,899 $2 $25,876 $39,243
Storm - Urban $2,468,696 35,950 Households (75%)$69 4,963 $340,812 $42,022 $0 $5,060 $335,752
Storm - Rural $837,426 35,950 Households (75%)$23 4,963 $115,610 $0 $0 $0 $115,610
Erosion Control & Region services $376,711 Assume no additional expense tied to development $0
Public Health $0 101,427 Population (75%)$0 9,160 $0 $0 $0 $0 $0
Cemeteries $715,382 101,427 Population (75%)$7 9,160 $64,604 $314,162 $3 $37,828 $26,776
Social Services $0 101,427 Population (75%)$0 9,160 $0 $0 $0 $0 $0
Parks $5,990,139 101,427 Population (75%)$59 9,160 $540,953 $127,980 $1 $15,410 $525,543
Recreation $19,955,475 101,427 Population (75%)$197 9,160 $1,802,125 $4,461,032 $44 $537,152 $1,264,973
Libraries $4,188,401 101,427 Population (75%)$41 9,160 $378,243 $100,611 $1 $12,115 $366,129
Museums & Cultural Services $1,012,880 101,427 Population (50%)$10 6,106 $60,980 $372,447 $4 $44,846 $16,134
Planning and Development $6,820,457 131,350 Population + Employment (50%)$52 8,331 $432,616 $3,868,434 $38 $465,797 ($33,181)
Total $10,758,400 $1,551,724 $9,206,676
E. REVENUE ANALYSIS
i. Assessment
To estimate future property taxes, forecasts of new residential and non-residential
assessment were prepared.
Assessed values for residential units were determined with reference to the current value
assessment (CVA) of homes constructed in Clarington since 2014 that are of similar quality
and size to those that are likely to be constructed in Secondary Plan Area. Similarly, the
non-residential assessment forecasts were based on values per square metre of gross floor
area of recently constructed buildings in Clarington. The CVAs used in the analysis are as
follows:
Low Density Residential Units $500,000 per unit
Medium Density Residential Units $350,000 per unit
High Density Residential Units $300,000 per unit
Local Commercial Buildings $3,200 per square metre
The property tax revenue forecasts at build out of the Secondary Plan Area were developed
by applying the current Municipal tax rates for the applicable land classes to the projected
assessments.
As shown in Table 6, the total CVA of new buildings within the Secondary Plan Area is
forecasted at $12.9 million.
Table 6: Summary of Anticipated Revenues
F. CONCLUSIONS
Overall, development of the Secondary Plan Area will result in a marginal net financial
positive impact to the Municipality. After accounting for anticipated assessment revenues
and asset management and net operating expenditures, the development will result in a $41
per person and employment revenue surplus.
Unit Type Value per Unit
or per GFA Measure Forecast Units /
Square Metres
Forecast
Assessment Value
Clarington Tax
Rate
Annual Tax
Revenue
Low Density 500,000$ per unit 480 240,070,000$ 0.004432560 1,064,125$
Medium Density 350,000$ per unit 1,070 374,419,500$ 0.004432560 1,659,637$
High Density 300,000$ per unit 5,067 1,520,237,250$ 0.004875820 7,412,403$
Non-Residential 3,200$ per square metre 134,363 429,961,600$ 0.006427210 2,763,453$
Total 12,899,618$
| 8
Revenue or Expenses Total Amount $/Person &
Employee
Revenue
Assessment 12,899,618$ 774$
Sub-Total Revenue 12,899,618$ 774$
Expenses
Developer Constructed Assets - AMP Contribution 498,177$ 30$
DC Funded Assets - AMP Contribution 2,500,418$ 150$
Municipal-Funded Assets - AMP Contribution -$ -$
Net Operating Impacts 9,206,676$ 553$
Sub-Total Expenses 12,205,271$ 733$
Net Difference ($)694,347$ 41$
Net Difference (%)5%5%