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Report To: Planning and Development Committee
Date of Meeting: May 12, 2025 Report Number: PDS-024-25
Authored by: Lisa Backus, Manager, Community Planning, Planning and Infrastructure
Services
Submitted By: Darryl Lyons, Deputy CAO, Planning and Infrastructure Services
Reviewed By: Mary-Anne Dempster, CAO
By-law Number: Resolution Number:
File Number: PLN 15.17
Report Subject: Clarington Waterfront Strategy Update
Recommendation:
1.That Report PDS-024-25, and any related delegations or communication items, be
received for information;
2.That staff be authorized to continue finalizing the Clarington Waterfront Strategy as
outlined in this report; and,
3.That all interested parties listed in Report PDS-024-25 and any delegations be advised
of Council’s decision.
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Report Overview
Clarington is undertaking its first comprehensive Waterfront Strategy update since 1992.
This update reflects significant progress in public waterfront access and growing community
interest in this vital asset.
The Waterfront Strategy aims to guide recreation, environmental protection, and land
development along the Municipality's 34-kilometre Lake Ontario shoreline (see Figure 1,
Waterfront Strategy Area).
Public ownership of waterfront lands has been a significant success of the 1992 Waterfront
Strategy, increasing from 3% to over 30% since 1992. This community success took more
than 30 years to accomplish, and with this update, the Waterfront Strategy will set the
framework for the next 25 to 30 years. In addition , strong community support for investment in
the waterfront is evidenced by extensive public consultation for the recently adopted Parks,
Recreation, and Culture Master Plan; the timing is ideal for this strategic planning effort.
1. Background
Waterfront Strategy Update
1.1 In May 2022, Council authorized staff to update the 1992 Waterfront Strategy (PDS
026-22; FSD-020-22) and Dillon Consulting Inc. was retained for the project. The project
was initiated in the summer of 2022. In early 2023, staff were directed to prioritize
developing the Parks, Recreation, and Culture Master Plan (Master Plan). The PRCMP
was approved by Council in the fall of 2024 (CAO-007-24) and included specific
directions for the Waterfront Strategy.
1.2 The municipality faces a different set of challenges and opportunities than it did in 1992
when the first waterfront strategy was developed. Although public ownership of the
shoreline has increased substantially, reaching 30 per cent, Clarington is experiencing
growing population pressure and increased development activity in waterfront areas.
Environmental protection and climate resilience have also become more pressing while
demand for recreational amenities and public access continues to grow.
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Figure 1. Waterfront Strategy Area.
2. Community Engagement
Consultation Process – Key Community Priorities
2.1 The Waterfront Strategy Update planning process has been marked by extensive public
input through multiple channels over two phases. The first phase of public consultation
took place during the latter part of 2022, and the second phase through the preparation
of the PRCMP. This section presents the highlights of both public consultation phases.
2.2 Public engagement activities included:
a) Public open houses
b) Online surveys
c) Focus group sessions
d) Advisory Committee Meetings
e) Staff workshops
f) Council interviews
2.3 The Clarington community provided valuable feedback from 2022-2024. A key finding
revealed that the waterfront is viewed by the public as one of Clarington's most valuable
natural assets, with 85 per cent of survey respondents supporting additional public
investment in waterfront improvements. This high level of community support, combined
with the Waterfront Strategy being ranked as a top priority for facility investment (open
space, parks, trails), underscores the importance of this initiative to residents.
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2.4 The feedback also highlights a clear vision for Clarington's waterfront: a balanced
approach to development that enhances public access and amenities while preserving
the natural environment.
Key Community Priorities
2.5 Key Priorities Identified through community consultation:
a) Create an accessible, public-oriented waterfront that serves both local and tourism
needs
b) Enhance and expand the trail network with improved wayfinding and safe
connections
c) Develop year-round recreational opportunities and event spaces
d) Establish a more substantial commercial presence with distributed amenities
e) Protect and preserve the natural environment through sustainable development
f) Improve infrastructure, including parking facilities and waterfront access points
g) Create spaces for passive recreation and performing arts
h) Integrate environmental stewardship into all development aspects
3. PRCMP and Waterfront Strategy Integration
3.1 Council adopted the Master Plan in the fall of 2024 (CAO-007-24). It included specific
directions for updating the Waterfront Strategy. This section summarizes that direction,
and Attachment 1 Parks, Recreation, and Culture Master Plan Waterfront
Recommendations presents the specific recommendations related to Clarington's
Waterfront.
Community Access and Connectivity
3.2 The Master Plan emphasizes the critical role of the waterfront in Clarington's
recreational ecosystem. A key priority is the development of a "circle of green" around
Bowmanville and Newcastle. The circle of green being a looped trail system connecting
urban areas to the waterfront (See Figure 2 Trails. Clarington Official Plan). The Master
Plan advocates for strengthening connections between parks, trails, and the waterfront
to facilitate seamless movement throughout the municipality.
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Facility Development and Programming
3.3 The Master Plan identifies several priority facilities and programs for waterfront areas,
including outdoor fitness equipment, natural playgrounds, and performance spaces.
Cultural programming will be enhanced through dedicated spaces for outdoor
performances and events. The plan emphasizes multi-use facilities that can
accommodate various activities while maintaining the natural character of the
waterfront.
Strategic Land Acquisition and Environmental Stewardship
3.4 The Master Plan continues the successful land acquisition strategy and supports
ongoing efforts to secure additional waterfront properties for public use while preserving
environmentally sensitive areas. Environmental education programs will promote
stewardship among visitors, and wildlife corridors will be maintained along the
waterfront.
Figure 2. Trails. Clarington Official Plan
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4. Vision, Guiding Principles and Focus Areas
4.1 Based on the public engagement results and technical analysis, the following is a
summary of the Draft Vision and Principles we are seeking feedback on.
Draft Waterfront Vision
One Connected Waterfront, Five Distinct Experiences.
Clarington's waterfront is a mosaic of enriching experiences offering vibrant and accessible
destinations where community, nature, parks and heritage converge. Our shoreline flourishes
through ecological resilience, interconnected trails, diverse recreational opportunities, and
hubs of economic vitality. By prioritizing sustainable development, conserving cultural
treasures, and ensuring public access, Clarington’s waterfront enhances the lives of residents
and captivates visitors, establishing a legacy of stewardship for generations to come.
Draft Vision Guiding Principles
4.2 The following draft principles will guide the revitalization and sustainable management
of Clarington's waterfront, ensuring a vibrant and thriving destination for all. These
principles build upon the foundation of the 1992 strategy, updated to reflect current
priorities and community values.
Environmental Stewardship: Protect and enhance the natural environment, including
the Lake Ontario shoreline, wetlands, and wildlife habitats. Implement sustainable
practices to mitigate development impacts and preserve ecological integrity for future
generations.
Public Access, Connection and Enjoyment: Ensure equitable access to the
waterfront for all residents and visitors. Create a network of accessible trails, parks, and
open spaces that connect communities to the waterfront and provide diverse
recreational opportunities.
Economic Viability: Foster a vibrant and sustainable waterfront economy that supports
local businesses, attracts investment, and creates employment opportunities.
Encourage diverse commercial activities that complement the natural environm ent and
enhance the visitor experience.
Design Excellence and Cultural Heritage Preservation: Create high-quality and
impactful public and private realm, while also recognizing, protecting, and celebrating
the rich cultural heritage of the waterfront.
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Draft Vision Focus Areas
4.3 Five key project areas are shaping the future of Clarington’s Waterfront as outlined
below.
Courtice Waterfront and Energy Park Secondary Plan
4.4 The Courtice Waterfront Park is anticipated to be located in the Courtice Waterfront and
Energy Park Secondary Plan area. This Secondary Plan is anchored by the Courtice
Waterfront Park, which is a new 16-hectare (minimum) park that is envisioned as a
regional destination designed and programmed to serve Courtice Waterfront residents
and Energy Park employees, as well as the broader Clarington community.
4.5 The development of this waterfront park will provide needed amenities for a growing
population. Connection to the broader trail networks will improve accessibility and
recreation opportunities. The Waterfront Strategy will integrate the Secondary Plan
outcomes following its approval by Council.
Bowmanville Waterfront
4.6 The Bowmanville Waterfront has the potential to become a vibrant and accessible
waterfront destination, balancing economic vitality with public enjoyment. Planning for
West Beach cottage lands will support sustainable growth and enhanced recreational
opportunities. Strategically incorporating additional lands along West Beach Road will
emphasize public benefit and environmental stewardship. Resolving the future of the
Port Darlington Harbour Company lands will expand public waterfront access through
collaborative planning. Village Commercial lands will thrive economically, preserving
open spaces and public accessibility.
Newcastle Waterfront
4.7 Key elements at Newcastle include thoughtful park design for newly acquired lands to
meet community needs while preserving natural features. The integration of west pier
repairs must be coordinated with marina operations to minimize disruption and
maximize efficiency. Coordination with private development initiatives requires careful
balance to ensure public benefit while supporting economic growth.
Port Granby Nature Reserve
4.8 The Port Granby area represents a unique opportunity for environmental restoration and
public access. The surplus federal Port Granby Project lands, currently under
discussion with Atomic Energy Canada Ltd. for transfer to the Municipality, have an
established concept plan previously endorsed by Council. This area will be transformed
into a nature reserve, incorporating enhanced wetlands, forest areas, and agricultural
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zones. The plan emphasizes preserving natural features while creating controlled public
access points and educational opportunities. Integration with the broader waterfront trail
system will provide connectivity while respecting the sensitive environmental
characteristics of the site.
Agricultural Heritage
4.9 The waterfront lands from Newcastle to Port Granby offer a unique opportunity to blend
agricultural heritage, environmental stewardship, and public enjoyment. Maintaining
active agricultural uses preserves local traditions and supports community food
production while enhancing natural habitats - such as creeks, wetlands, and forests -
strengthens biodiversity and ecological resilience. Thoughtful planning of waterfront
trails and public spaces ensures inclusive access, allowing residents and visitors to
experience Lake Ontario's shoreline. This balanced approach will sustain Clarington's
waterfront character for generations.
5. Next Steps
5.1 The following section presents the next steps in updating the Waterfront Strategy.
Community Engagement: Building on extensive community consultation already
completed, staff will continue to engage the community and key partners. As a first step
staff plan to engage on the Draft Vision and Principles to inform development of the
draft strategy.
Prepare Draft Concepts for Bowmanville and Newcastle Waterfronts: As part of the
update, it is proposed that the original direction to prepare the concept plans for the
Bowmanville and Newcastle W aterfronts be maintained.
Integrate Recommendations from the Courtice Waterfront and Energy Park
Secondary Plan and Courtice Waterfront Park Master Plan. The intent is to finalize
the Waterfront Park Design Plan prior to proceeding with a recommendation report for
the Courtice Energy Park and Waterfront Secondary Plan, and to ultimately incorporate
the park and its design into the overall Waterfront Strategy.
Prepare and Present the Draft Strategy: A draft of the strategy is targeted for
Planning and Development Committee in the Fall 2025.
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6. Financial Considerations
6.1 The Waterfront Strategy was funded by Council in 2022 through resolution #C-124-22
(FSD-020-22 and PDS-026-22). It is anticipated that some additional funds may be
necessary to complete the project as additional public engagement is planned given the
importance of this project to the community. Strategic Plan
7. Strategic Plan
7.1 The preparation of the Waterfront Strategy directly addresses the following actions in
the 2024-2027 Clarington Strategic Plan:
G.3.3. Enhance Clarington’s Waterfront. The specific action identified to address this
priority includes Completion of the Waterfront Strategy.
8. Climate Change
Sustainability and resilience have been identified as a cornerstone of waterfront
planning and development. Sustainable development has been identified in the draft
Vision and several of the draft Guiding Principles including Environmental Stewardship,
Public Access and Enjoyment and Economic Viability.
9. Concurrence
Not Applicable.
10. Conclusion
10.1 The Waterfront Strategy update represents a critical opportunity to enhance one of
Clarington's most valuable natural assets. Success will require balancing competing
interests and priorities, strong stakeholder engagement, and a commitment to a long-
term vision.
10.2 Proper implementation will help ensure that the waterfront remains an accessible and
sustainable resource for future generations. Regular review and adjustment will ensure
that the strategy remains relevant and practical in meeting community needs while
protecting environmental values.
10.3 The Waterfront Strategy will emphasize several key elements that will guide future
development. Sustainability and resilience form the cornerstone of waterfront
development planning, ensuring the long-term viability of improvements:
Integration with more extensive trail networks and barrier-free access
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Ensuring waterfront amenities are accessible to all residents
High-quality built form and park design will maintain aesthetic standards while meeting
functional needs
The strategy also emphasizes integration with broader municipal systems and carefully
balances preserving environmentally sensitive areas and activating waterfront spaces.
Staff Contact: Lisa Backus, Manager, 905-623-3379 ext. 2413 or lbackus@clarington.net or
Darryl Lyons, Deputy CAO, 905-623-3379 ext. 2402 or dlyons@clarington.net.
Attachments:
Attachment 1 - Parks, Recreation, and Culture Master Plan - Waterfront Recommendations
Interested Parties:
List of Interested Parties available from Department.
Attachment 1 to Report PDS-024-25
Parks, Recreation, and Culture Master Plan -- Waterfront Recommendations
The Council-approved Master Plan is an ambitious blueprint that encompasses 113
recommendations designed to enhance our community. Five recommendations focus
directly on the waterfront, forming a crucial component of the Waterfront Strategy update.
Recreation Trails
Recommendation 15: Use the conceptual network in this Master Plan to guide the future
development of recreational trails in Clarington. Key strategies to strengthen the trail
network and to promote active movement within the Municipality include: Work with
community partners (e.g., conservation authorities), landowners, agencies, and other
levels of government to improve connectivity within and between settlement areas and to
the rural area, including north-south connections between the Waterfront Trail, Greenbelt
Trail, Oak Ridges Moraine Trail, and Bowmanville Valley Trail to encourage active
transportation and expand the trail network. Leveraging the use of hydro corridors should
be explored, as well as strategies to connect to trail systems in adjacent municipalities,
such as the future Durham Meadoway.
Aligning with the Clarington Waterfront Strategy
Recommendation 16 Update Clarington's Waterfront Strategy to have regard for the
input received and the guidance put forward through this Master Plan, including
preserving environmentally sensitive areas such as along the Lake Ontario Shoreline and
the Samuel Wilmot Nature Area and undertaking enhancements to encourage greater
passive uses along the waterfront, including economic development opportunities,
comfort features, and supporting amenities, while maintaining wildlife corridor
connections along the waterfront.
Outdoor Fitness Equipment
Recommendation 56 Install outdoor fitness equipment at four parks to strengthen
geographic distribution. New installations should be at parks in high traffic areas such as
along the waterfront trail in Newcastle and Bowmanville (to be reconfirmed through the
Waterfront Strategy), Municipal Wide or Community Parks, or in gap areas including at
two parks in Courtice's Secondary Plan Areas. Long-term opportunities to provide outdoor
fitness equipment in MTSAs should also be explored.
Playgrounds
Recommendation 59 Evaluate opportunities to construct natural playgrounds in strategic
locations such as at Municipal Wide and Community Parks, along the waterfront, and
parks serving MTSAs. Incorporating natural playgrounds in strategic open greenspaces
and natural areas may also be considered to complement the surrounding area.
Arts and Culture Facilities
Recommendation 66. Enhance opportunities to provide outdoor productions and
performances such as along the waterfront, Bowmanville Park on the former Zoo Lands,
or other locations