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HomeMy WebLinkAboutPSD-015-04 ... .5 UNFINISHED BUSINESS Clfllmgron REPORT PLANNING SERVICES Meeting: GENERAL PURPOSE AND ADMINISTRATION COMMITTEE Date: Monday, January 26, 2004 Report#: PSD-015-04 File #: PLN 38.4.1 By-law #: Subject: COMMERCIAL POLICY REVIEW AND BOWMANVILLE WEST MAIN CENTRAL AREA SECONDARY PLAN REVIEW RECOMMENDATIONS: It is respectfully recommended that the General Purpose and Administration Committee recommend to Council the following: 1. THAT Report PSD-015-04 be received; 2. THAT Staff be authorized to initiate a Commercial Policy Review and the Bowmanville West Main Central Area Secondary Plan Review in accordance with the approach outlined in Report PSD-015-04; and 3. THAT all interested parties listed in this report and any delegations be advised of Council's decision. Submitted by: 11- A, C (iQ "Of (/ Reviewed by:"-.J L~ ~ t:"-...; '--L-" Franklin Wu Chief Administrative Officer d J. Crome, M.C.I.P.,R.P.P. Director, Planning Services RH*CP*DC*df 21 January 2004 CORPORATION OF THE MUNICIPALITY OF CLARINGTON 40 TEMPERANCE STREET, BOWMANVILLE, ONTARIO L1C 3A6 T (905)623-3379 F (905)623-0830 662 " REPORT NO.: PSD-015-04 PAGE 2 1.0 BACKGROUND 1.1 Valiant Property Management and Metrus Properties have submitted applications that, in combination, seek to expand the Bowmanville West Main Central Area boundary, and introduce an additional 51,700 m2 of retail floor space. Currently the Bowmanville West Main Central Area has approximately 26,000 m2 of existing commercial floor area. An addition 2600 m2 of retail floor area is zoned for development within the area. More recently, Loblaws filed a rezoning application to delete the requirement for a food store within the existing zoning of the Clarington Centre. There are additional applications for an expansion of the existing Loblaws and Zellers at their current locations. 1.2 Retail Market Study PricewaterhouseCoopers (PwC) was retained by the Municipality of Clarington, at the expense of the applicants, in late May 2003 to undertake the retail market impact study and limited commercial policy review for these applications. The objectives of the review are as follows: 1, The retail thresholds for the Bowmanville West Main Central Area are being reviewed to determine their appropriateness. 2. A determination of available retail market must be indicated for the proposals. 3. An appropriate phasing plan must be prepared if insufficient market exists. 4. The report must examine the impact of the proposals on existing and proposed retail areas both within and outside of Clarington, with special emphasis being placed on downtown retail areas. 1.3 Traffic Studies Valiant Property Management and Metrus Properties have retained the services of Marshall Macklin Monaghan and Sernas Transtech respectively to review traffic issues related to their applications. The two traffic consultants are working jointly in the preparation of a traffic report assessing the impact of the proposed additional retail floor space and the traffic generated as well as the impact of deleting aspects of the designated collector road network in the West Bowmanville Main Central Area. Totten Sims Hubicki will review this work for the Municipality at the expense of the two proponents. 1.4 Ontario Municipal Board Appeals At this time, two appeals to the Ontario Municipal Board have been received by the applicants. The appeals have been submitted as a result of the Municipality's failure to make a decision on the applications within 90 days. The first appeal was filed by Metrus on November 19, 2003. The second appeal received b6J ~, .' REPORT NO.: PSD-015-04 PAGE 3 January 14, 2004 was from Loblaws. Although both appeals have been forwarded to the Ontario Municipal Board, Metrus has indicated that they are willing to allow the necessary planning work to proceed provided it is done expeditiously. 2.0 STAFF COMMENTS 2.1 The Clarington Official Plan requires that a comprehensive review of the Plan be undertaken prior to exceeding the 40,000 m2 f100rspace limit established by the Plan. The combined potential of these applications should not be considered prior to a comprehensive review due to their scale and impact on the overall commercial hierarchy for Clarington and the major change in the planning policy framework for the Bowmanville West Main Central Area represented by big box form of development. 2.2 The Clarington Official Plan was approved in 1996 and conforms to the 1991 Durham Regional Official Plan. Under the Planning Act, official plans are to be reviewed and updated periodically to ensure that policies remain current. 2.3 The Durham Region Planning Department has embarked on a review of its Official Plan. Five background papers have been released for comment to area municipalities and stakeholders. Staff will be providing input to the Regional review process through a separate report to Council on this matter. 2.4 The statutory review of the Clarington Official Plan is to commence in late 2004 and may take several years to complete depending on the scale of the Review which is determined to be necessary. The necessity of an Official Plan Review has been discussed with the applicants. Both Valiant and Metrus have expressed a willingness to co-operate with the Municipality and offered to fund the majority of the study cost for the necessary commercial studies. The precise amount of the municipal contribution remains to be negotiated once the proposals have been submitted and reviewed. 2.5 Staff have prepared a Terms of Reference for a two phased study, which is contained in Attachment 1. The Terms of Reference have been forwarded to one representative of each group in the interested parties list (commercial stakeholders ). 2.6 Phase 1 - Commercial Policv Review Phase 1 is a review of commercial and central area policies. The Commercial Policy Review would need to address the following issues. . How appropriate is the overall commercial structure and policy framework? 06, REPORT NO.: PSD-015-04 PAGE 4 . How successful have the existing Official Plan policies been and what, if any, are the barriers to successful implementation? . What key principles should be used in the planning, design, and implementation of commercial and central areas? . Should the f100rspace thresholds in the Bowmanville West Main Central Area Secondary Plan be maintained, modified, or deleted? . What relationships should be considered/required between transportation and land use in the development of commercial and central areas? . What "smart growth" principles should be incorporated in the development of commercial and central areas? . Are further policies necessary to ensure the viability of existing and proposed Central Areas? . What is the functional relationship of Highway Commercial Areas to Central Areas and should there be any changes to the policy framework? The PwC retail market impact study will be used as background information for the Commercial Policy Review. The results of the commercial and central area policy review will determine whether increases in floors pace are warranted across the Municipality. If the results of Phase 1 indicate that no changes were required to the amount of designated commercial lands or the allocated retail floorspace in the Bowmanville West Main Central Area, then Phase 2 would not proceed. 2.7 Phase 2 - Bowmanville West Main Central Area Review Phase 2 of the study will review the Bowmanville West Main Central Area Secondary Plan and Urban Design Policies. The Bowmanville West Main Central Area Secondary Plan Review must address the following issues. . If the PwC retail market impact study recommends that additional commercial development is appropriate, how and where should it be accommodated? . A review of the appropriateness of policies for other land use designations within the Bowmanville West Main Central Secondary Plan must be undertaken. . If changes are proposed to the land use policies or designations, what changes are required to the transportation, transit, and pedestrian systems? . A review of the urban design policies is necessary to determine what, if anything, needs to be changed. . The interrelationship between the lands within the Bowmanville West Main Central Area and surrounding residential areas must be examined. . The relationship between existing street-related development policies and proposed large format development must be examined. 2.8 The public consultation process will incorporate a stakeholders group comprised of residents, community members and commercial developers, public information centres, and a public meeting before Council decision. \1c'.J '.., .' REPORT NO.: PSD-015-04 PAGE 5 A separate body of meetings will be held for both phases of the study process. In both cases, Staff will solicit stakeholder and public involvement in the review of background documents, study findings, and final recommendations. In addition, the consultant team will host an urban design charette in Phase 2 to determine urban design principles in the Bowmanville West Main Central Area. Although Metrus and Valiant have agreed to fund the majority of the Study's cost, it is recognized that their role in the Study will be similar to other stakeholders. 2.9 The consultant team will consist of planners qualified and specialized in the areas of commercial policy formulation, secondary plan formulation, and urban designers. Totten Sims Hubicki (TSH), the Municipality's transportation consultant, will undertake all traffic and engineering work required for this Study. Urban Metrics, made up largely of the staff of former retail branch of PwC, will complete the retail component. The project will be tendered to a limited number of firms determined by staff with input from the commercial stakeholders group. 2,10 The Clarington Official Plan review must be formally initiated through a public meeting under the Planning Act. The purpose of this meeting is to determine the scope and nature of the review required. Staff anticipate that such a meeting would be scheduled for mid 2004. A report outlining a comprehensive list of issues to be reviewed for all sections of the Clarington Official Plan will be prepared at this time. The Commercial Policy Review Study would constitute a background study and a component of the overall Clarington Official Plan review process. 3.0 RECOMMENDATIONS 3.1 Staff recommend the study approach outlined in this report for the following reasons. . Commercial policy issues have emerged as a key issue to be addressed in any Official Plan Review and this process allows for the early commencement of this work. . This background work is essential for the evaluations of the major proposals in the Bowmanville West Main Central Area. . The study process provides ample opportunity for public and stakeholder consultation. 3.2 It is respectfully requested that Council authorize Staff to proceed with a Commercial Policy Review and the Bowmanville West Main Central Area Secondary Plan at this time. 0... h" '-)) .' REPORT NO.: PSD-015-04 PAGE 6 Attachments: Attachment 1 - Terms of Reference: Commercial Policy Review and Bowmanville West Main Central Area Secondary Plan Review Interested parties to be notified of Council's decision Robert Hann Valiant Property Management 177 Nonquon Road, 20th Floor Oshawa, On L 1 G 3S2 Stanley Stein Osler, Hoskin & Harcourt Box 50 First Canadian Place Toronto, ON M5X 1 B8 Bryce Jordan Sernas Associates 110 Scotia Court, Unit 41 Whitby, ON L 1 N 8Y7 Marvin Green River Oaks Group 23 Lesmill Road, Suite 401 North York, ON M3B 3P6 Peter Smith Bousfield, Dale-Harris, Cutler & Smith Inc. 3 Church Street, Suite 200 Toronto, ON M5E 1 M2 Sam Cohen Torgan Group Madison Centre 4950 Yonge Street, Suite 601 Toronto, ON M2N 6K1 Robert DeGasperis West Diamond Properties Inc. & Players Business Park Ltd. c/o Metrus Properties Ltd. 30 Floral Parkway Concord, ON L4K 4R1 Anthony Turnbull Newcastle Village BIA 5 King Avenue East Newcastle, ON L 1 B 1 H7 Ron Hooper Bowmanville Business Improvement Area P.O. Box 365 Bowmanville, ON L 1C 3L 1 Evelyn Rozario Orono BIA 85 Station Street Orono, ON LOB 1 MO Steve Zakem Aird & Berlis BCE Place Suite 1800, Box 754 181 Bay Street Toronto, ON M5T 2T9 John Wells Courtice Business Group 15 Firwood Avenue Courtice, ON L 1 E 1 P6 66/ ATTACHMENT 1 TERMS OF REFERENCE COMMERCIAL POLICY REVIEW AND BOWMANVILLE WEST MAIN CENTRAL AREA SECONDARY PLAN REVIEW The Municipality of Clarington is seeking a Planning and Urban Design Consultant to work with the Municipality's Market Consultant, PwC and Transportation Consultant, TSH to undertake the following two studies: . Clarington Commercial Policy Review . Bowmanville West Main Central Area Secondary Plan Review PART 1: CLARINGTON COMMERCIAL POLICY REVIEW The Clarington Commercial Policy Review portion of the Study would need to consider the following background items. 1. Existing policy framework for Commercial and Central areas in the Clarington Official Plan; 2. Results of the PricewaterhouseCoopers LLP (PwC) retail market impact study work for the Bowmanville West Main Central Area development applications; 3. Emerging directions from the commercial component of the Durham Regional Official Plan Review, Provincial Policy Statement Review. Smart Growth Initiative, and policy directions in other regions and municipalities; 4. Review of current applications in the Municipality involving Central Area and Commercial designations, as identified by PwC; 5. Results of the Bowmanville King Street East Corridor Study (September 2003); 6. Results of the Courtice Main Central Area and Highway 2 Corridor Study (June 2001); and, 7. Results of the Orono, Downtown and Bowmanville Downtown Community Improvement Plans (currently underway). 8. An overview of changes and trends in retailing and urban centres since the Bowmanville West Main Central Area Secondary Plan and Clarington Official Plan were prepared. Oi'", -.../ .,-; PAGE 1 " DRAFT FOR DISCUSSION The Clarington Commercial Policy Review would need to address the following issues. 1. How appropriate is the overall commercial structure and policy framework and what, if anything, needs to be changed? 2. How successful have the existing Official Plan policies been and what, if any, are the barriers to successful implementation? 3. What key principles should be used in the planning, design, and implementation of commercial and central areas? 4. How can historic downtown areas in Bowmanville, Newcastle and Orono remain vibrant. 5. Should the floors pace thresholds in the Bowmanville West Main Central Area Secondary Plan be maintained, modified, or deleted? 6. What relationships should be considered/required between transportation and land use in the development of commercial and central areas? 7. What "smart growth" principles should be incorporated in the development of commercial and central areas? 8. What is the functional relationship between the Bowmanville East Main Central Area and the Bowmanville West Main Central Area? What roles do they play in Clarington's commercial hierarchy? 9. Are further policies necessary to ensure the viability of existing and proposed Central Areas? 10. What is the functional relationship of Highway Commercial Areas to Central Areas and should there be any changes to the policy framework? 11, Whether any adjustments, if any, are required to the planning policies for the: . Bowmanville East and West Main Central Areas; . Courtice Main Central Area; . Newcastle Village Main Central Area; . Courtice Sub-Central Central Area; . the Local Central Area level of the hierarchy; . the Neighbourhood Commercial level of the hierarchy; and, . the Highway Commercial level of the hierarchy. If the results of Part 1 indicated that no changes were required to the amount of designated commercial lands or the allocated retail floorspace in the Bowmanville West Main Central Area, then Part 2 would not proceed. b 6'} PAGE 2 '-. ...' DRAFT FOR DISCUSSION PART 2: BOWMANVILLEWEST MAIN CENTRAL AREA SECONDARY PLAN REVIEW The Bowmanville West Main Central Area Secondary Plan Review portion of the Study must consider the following items as background information. 1. Existing planning policy framework for the Bowmanville West Main Central Area Secondary Plan; 2. Results and input from the PwC retail market impact study and its study team; 3. Applications by submitted West Diamond, Valiant, and Zellers along with supporting materials; 4. Other types of applications and proposals within or adjacent to the Bowmanville West Main Central Area. In particular, the interface with the Brookhill Neighbourhood Design Plan must be considered; 5, Comprehensive traffic impact studies to be prepared by both Marshall Macklin Monaghan (for Valiant) and Sernas Transtech (for West Diamond), evaluating the impact on the road system in the West Main Central Area, In this regard, both applications propose to delete elements of the grid collector road network that has been designated in the Clarington Official Plan. The combined study will be peer reviewed by Totten Sims Hubicki (TSH) on behalf of the Municipality. 6. Urban design studies prepared by Berridge Lewinberg Greenberg and Urban Strategies Inc., and; 7, Information and draft study recommendations of the Brookhill Subwatershed Study. The Bowmanville West Main Central Area Secondary Plan Review must address the following issues. 1. If the PwC retail market impact study recommends that additional commercial development is appropriate for the Bowmanville West Main Central Area, options should be prepared on how best to accommodate additional commercial floorspace; 2. A review of the appropriateness of policies for other land use designations within the Bowmanville West Main Central Secondary Plan must be undertaken; 3. If changes are proposed to the land use policies or designations, the impact and changes required to the transportation system, including the road network, transit and pedestrian system, necessary to accommodate these changes, if any, must be determined; b \..-1 PAGE 3 DRAFT FOR DISCUSSION 4. A review of the urban design policies in the Clarington Official Plan and the Urban Design Guidelines of the West Bowmanville Main Central Area is necessary to determine what, if anything, needs to be changed. This includes a review of the relationship between existing and proposed development forms; 5. The interrelationship of the lands within the Bowmanville West Main Central Area and surrounding residential areas must be examined. In particular, the interrelationship with the Brookhill Neighbourhood to the north and an identification of compatibility issues needs to be addressed; 6. The form of commercial development needs to be reviewed giving consideration to the existing requirement for street-related development versus the proposed large format form of development; and 7. Recommendations regarding the various development application in the Bowmanville West Main Central Area. PART 3: PUBLIC CONSULTATION The Study will utilize three types of forums. 1. Stakeholders Group comprised of residents, community members and commercial developers. 2. Public information centres. 3. Public meeting before Council decision. MeetinQs Clarington Commercial Policy Review The following meetings are required for the Clarington Commercial Policy Review. 1. A meeting with municipal staff and the study team to confirm the timeframes, priorities, and contacts for both Phase 1 and Phase 2 of the Study, and initiate the Study. 2. A meeting with municipal staff to review findings of the draft background reports and provide comment prior to finalizing the background reports. 3. The consultant team will conduct an open house/public meeting to present the findings of the background work to solicit stakeholder and public input. 4. A community consultation with stakeholders. Oil PAGE 4 .' DRAFT FOR DISCUSSION 5. The consultant team will present the background findings and recommendations of the study to members of Council. 6. A meeting with municipal staff to review study findings and recommendations, as well as stakeholder and public input to the study and provide comment prior to finalizing the report and recommendations. 7. The consultant team will conduct an open house/public meeting to present the findings and final recommendations of the study. Bowmanville West Main Central Area Secondary Plan Review 1. A meeting with municipal staff to review findings of the draft background reports and provide comment prior to finalizing the background reports. 2. The consultant team will conduct an open house/public meeting to present the findings of the background work to solicit stakeholder and public input. 3. The consultant will conduct a design workshop. This shall include municipal staff, the stakeholder group, and members of the public. The workshop will confirm current conditions, develop an understanding of the challenges and opportunities and givens, confirm the fundamental design principles, prepare optional design plans based on the principles developed, evaluate options, and prepare a preferred design based on the evaluation of the options. 4. A meeting with municipal staff to review study findings and recommendations, as well as stakeholder and public input to the study and provide comment prior to finalizing the report and recommendations. 5. The consultant team will conduct an open house/public meeting to present the final recommendations of the study. iJ.!L PAGE 5