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HomeMy WebLinkAboutPDS-061-25Public Meeting and Recommendation Report If this information is required in an alternate accessible format, please contact the Accessibility Coordinator at 905-623-3379 ext. 2131. Report To: Planning and Development Committee Date of Meeting: November 10, 2025 Report Number: PDS-061-25 Authored By: Shrija Vora, Planner II Submitted By: Darryl Lyons, Deputy CAO, Planning and Infrastructure Services Reviewed By: Mary-Anne Dempster, CAO File Numbers: COPA2025-0014, ZBA2025-0019 Cross Reference: SPA2025-0024 Resolution#: Report Subject: Official Plan and Zoning By-law Amendment applications to permit a supermarket at 91 and 95 Baseline Road West, Bowmanville Purpose of Report: The purpose of this report is to provide information to the public and recommend approval if there are no major concerns raised from the public. Recommendations: 1.That Report PDS-061-25 and any related communication items, be received for information only; 2.That Staff receive and consider comments from the public, review agencies, and Council with respect to the Official Plan and Zoning by-law Amendment applications to permit a supermarket use; and 3.That the Clarington Official Plan amendment application submitted by the applicant, be supported and the Official Plan Amendment in Attachment 1 to this report be approved; 4.That the Zoning By-Law amendment application submitted by the applicant be supported and the By-law in Attachment 2 to this report be approved; 5.That all interested parties listed in Report PDS-061-25 and any delegations be advised of Council’s decision. Municipality of Clarington Page 2 Report PDS-061-25 Report Overview Zelinka Priamo Ltd., on behalf of Peavey Management Inc. C/O Loblaw Companies Limited, has submitted applications for an Official Plan Amendment and a Zoning By-law Amendment to permit a supermarket use at the property located at 91 and 95 Baseline Road West, Bowmanville. No changes are proposed to the existing footprint of the building, no additional access from Baseline Road has been requested and there is no proposed change to the existing parking layout. The purpose of this report is to obtain public input. If no significant issues are raised by the public, then staff recommends that Council approve the Official Plan Amendment and Zoning By-law Amendment contained in Attachment 1 and Attachment 2 of Report PDS-061-25. 1. Additional Details 1.1 Owner/Applicant: Peavey Management Inc. C/O Loblaw Companies Ltd 1.2 Agent: Zelinka Priamo Ltd 1.3 Proposal: Official Plan Amendment & Zoning By-law Amendment To permit the use of a supermarket 1.4 Area of Existing Lot: 2.25 hectares (5.55 acres) 1.5 Location: 91 and 95 Baseline Road West, Bowmanville (See Figure 1) 1.6 Roll Number: 1817-020-120-04900 Municipality of Clarington Page 3 Report PDS-061-25 Figure 1: Subject Property 2. Background 2.1 On August 19, 2025, the Municipality received an Official Plan Amendment, Zoning By- law Amendment and a Site Plan Amendment application to permit a supermarket within the existing vacant building on the subject site. 2.2 Loblaw Companies Limited is proposing to renovate the existing vacant commercial building on the subject lands to accommodate a No-Frills Supermarket within the existing building. 2.3 The proposed renovation of the existing building includes overall enhancements to both the interior and exterior façades to reflect No-Frills branding, with no major structural changes proposed. The existing on-site loading areas and access to the property will remain unchanged. A total of 86 parking spaces are existing out of which two existing spaces are proposed to be converted for cart corrals and existing spaces to be converted into two additional accessible parking spaces. Municipality of Clarington Page 4 Report PDS-061-25 3. Land Use Characteristics and Surroundings Uses 3.1 The subject property is a regular shaped lot with an area of approximately 2.25 hectares (5.55 acres). The subject lands contain a vacant building formerly occupied by Peavey Mart. The surrounding uses are as follows (see Figure 1):  a) North – Low rise residential dwellings b) West - A vacant land parcel c) East – Ramp to Highway 401 Westbound d) South – Highway 401 4. Provincial Policy Provincial Planning Statement (PPS 2024) 4.1 The Provincial Planning Statement (PPS 2024) encourages planning authorities to support achievement of healthy, livable, and safe communities by accommodating an appropriate range and mix of housing types an d development patterns, while making efficient use of land and infrastructure. Opportunities for redevelopment and intensification are to be promoted where it can be accommodated. Municipal officials plan, secondary plans, and neighbourhood design plans support the PPS through land use designations and policies. General Policies for Strategic Growth Area within PPS encourages to permit development and intensification in strategic growth areas to support achievement of complete communities and a compact built form. Also, any new proposed development adject to existing or planned corridor and transportation facility should be compatible with, and supportive of, the long-term purposes of the corridor and should be designed to avoid or minimize and mitigate negative impacts on and adverse effects from the corridor and transportation facilities. 4.2 The subject lands are within the existing settlement area and the proposed Supermarket within an existing building is an efficient use of the land and will utilize existing services and infrastructure that is in close proximity to a transportation corridor. 4.3 The proposal is consistent with the Provincial Planning Statement. Municipality of Clarington Page 5 Report PDS-061-25 5. Official Plans Durham Regional Official Plan (Envision Durham) 5.1 Envision Durham designates the subject property as “Community Area”. The objective of “Community Areas” is to develop complete communities that address various socio- economic factors, providing a range of housing, transportation, and lifestyle choices, and creating opportunities for residents to live, shop, work, and access services and amenities within their community. 5.2 The proposal conforms with the Durham Region Official Plan. Clarington Official Plan 5.3 The Clarington Official Plan designates the subject lands “Gateway Commercial Centre” and “Environmental Protection Areas”. The westerly portion of the site is primarily within the floodplain limits. Given that this area is already developed, the proposal to add the supermarket use to operate within the existing building does not pose any further risks. 5.4 CLOCA has confirmed that since the applicant has indicated no site works or modifications to the existing grading, parking lot, driveway entrance, or loading ar ea are required to facilitate the building’s conversion to a supermarket, no additional technical drawings or reports are necessary. CLOCA has no concerns with the proposed new use. 5.5 The Gateway Commercial Centre is intended to serve the specialized needs of residents and attract tourists and visitors to the Municipality. They generally require large parcels of land to accommodate certain types of large format retailers, and benefit from direct exposure to high volumes of traffic. 5.6 Gateway Commercial Centres are to be designed with a mix of building forms such as plazas and freestanding structures, maintaining consistent setbacks and a cohesive architectural style. They should ensure safe and efficient vehicle movement through road improvements, shared access, and internal circulation, while also providing defined pedestrian walkways. Parking areas must be convenient and well-screened with landscaping. The “Gateway Commercial Centre” land use designation permits the following;  Retail and service commercial uses including hotels, warehouse-style stores excluding department stores and grocery stores, and home furnishing uses;  Financial institutions;  Business, professional and medical offices;  Restaurants;  Limited number of complementary smaller retail stores and personal use services; and  Community facilities Municipality of Clarington Page 6 Report PDS-061-25 5.7 The existing land use policies in the Clarington Official Plan do not permit a supermarket within Gateway Commercial Centre and therefore an Official Plan Amendment is required. A retail market analysis was not requested, as the proposed use represents a like-for-like replacement within the existing building, with no change to its size, scale, or overall function. The proposed Official Plan Amendment introduces a policy to permit a supermarket use on the subject lands. 6. Zoning By-law 6.1 Zoning By-law 84-63 zones the subject property as “Special Purpose Commercial Exception (C5-13) Zone” and “Environmental Protection (EP) Zone” within Zoning By- Law 84-63. A portion of the property includes a floodplain hazard which represents the “EP” zoning on the subject property. 6.2 The owner is seeking an amendment to the “Special Purpose Commercial Exception (C5-13) Zone” in order to permit a supermarket that would facilitate the proposed redevelopment of the subject site. 7. Summary of Background Studies 7.1 The Owner’s consultant submitted following technical reports and studies in support of the application. A summary of their conclusions is provided below: Planning Justification Report and Urban Design Brief, Zelinka Priamo Ltd. August 2025 7.2 A Planning Justification Report and Urban Design Brief was prepared and submitted by Zelinka Priamo Ltd. in support of the additional supermarket use. The No Frills Supermarket is proposed within an existing building on the subject lands with n o changes proposed to the existing driveway access to Baseline Road West or the existing parking provided on-site (aside from two existing parking spaces that are proposed to be utilized for cart corrals and existing spaces that are proposed to be converted into two additional accessible parking spaces). 7.3 In conformance with the Urban Design policies of the Clarington Official Plan, the proposed No Frills Supermarket will refresh an existing vacant building, where as part of the proposed renovation and with details to be determined through the Site Plan Amendment application: • Additional trees will be proposed along the Baseline Road West frontage; • A bike rack with 6 parking spaces is proposed; • Shopping carts will be stored in new cart corrals; • Loading and refuse pickup will occur within the existing loading area, which is screened from public view; and • The existing elevations will be updated to reflect the No Frills branding and signage as shown on the preliminary elevations. Municipality of Clarington Page 7 Report PDS-061-25 7.4 The proposed elevations massing of the existing one-storey building that is compatible in scale with nearby existing buildings and is not proposed to change. In addition, the proposed elevations demonstrate the change to the exterior finishes, colours and signage to reflect the No Frills Supermarket. Accordingly, the proposed Supermarket within the existing building is compatible with the scale, built form, and character of the surrounding area and there are no anticipated impacts upon adjacent sites. Phase 1 Environmental Site Assessment, WSP Canada Inc., June 2025 7.5 A Phase One Environmental Site Assessment (ESA) prepared by WSP Canada Inc. identified potential environmental concerns related to the site’s historical and surrounding uses. The property was historically used as a tree nursery between approximately 1927 and 2005. Additionally, a full-service oil change facility (Liberty Lube) and a Pioneer Gas Station are located about 30 metres northeast at 146 Liberty Street South. These facilities have operated since around 1993 a nd contain underground gasoline storage tanks. 7.6 The Phase One ESA concluded that, based on the information reviewed, no environmental concerns were identified on the subject site. The surrounding land uses and activities were not considered potential environmental concerns due to their distance from the site, the inferred hydrogeologic conditions, and the absence of evidence indicating any contaminant release to the subsurface. 7.7 Existing Stormwater Management and Erosion and Sediment Control on Site, ODAN/DETECH Consulting Engineers, July 2025 7.8 A letter was prepared by a qualified professional from ODAN/DETECH Group Inc. that provided confirmation that there are no proposed modifications to the site grading, parking lot, driveway entrance, loading area, or stormwater management system required to accommodate a supermarket use within the building on existing infrastructure capacity. 8. Public Notice and Submissions 8.1 Given the Canada Post strike, Public Notices were sent out by courier to residents within 120 metres of the subject lands, on October 21, 2025. Two public meeting signs were installed on the subject lands fronting Baseline Road and ramp to 401 westbound. Details of the proposed application were also posted on the Clarington Connect website. 8.2 At the time of writing this report, no public comments were received. 9. Departmental and Agency Comments 9.1 A list and summary of the agency and internal department comments received, at the time of writing this report, can be found in Attachment 3. Municipality of Clarington Page 8 Report PDS-061-25 10. Discussion 10.1 The applicant is proposing to amend the Official Plan and Zoning By-law to add a use permission to permit a supermarket on the subject site. 10.2 The proposed Official Plan Amendment and Zoning By-law Amendment for the proposed No Frills Supermarket are consistent with the 2024 Provincial Planning Statement and conform with the applicable policies of the Durham Region Official Plan. 10.3 An application for site plan approval has been submitted concurrently with the OPA and ZBA applications. 10.4 Planning Staff are of the opinion that permitting a supermarket within the Gateway Commercial designation does not detract from the intent of the restricted uses within this designation. The use is similar to what was previously permitted (a farm equipment and supply store) and the proposal would utilize an existing vacant building while responding to the evolving needs of the community. The site is already fully serviced, allowing for an efficient and sustainable reuse of existing infrastructure . A traffic Impact study was not required as the proposed use is largely a like-for-like replacement of the previous use, with no increase in building area or parking demand . 10.5 The supermarket will provide convenient access to essential goods for nearby residents, fostering walkability and reducing the need for longer trips. The location adjacent to the Highway 401 interchange would also support commuters. This not only enhances the quality of life for residents but also supports Clarington’s broader goals for economic development and community well-being. 10.6 Development of an underutilized property promotes local investment, job creation, and a more dynamic commercial environment. It is a compatible and beneficial addition to the surrounding area and achieves a more complete and resilient community. It supports the objectives for economic development and the rejuvenation of the existing commercial property. 11. Financial Considerations 11.1 Not Applicable. 12. Strategic Plan 12.1 The proposed development has been reviewed against the pillars of the Clarington Strategic Plan 2024-27. Clarington’s Strategic Plan prioritizes applications that support and implement the creation of growing, resilient, sustainable and complete communities and connecting residents through the design of safe, diverse, inclusive and vibrant communities. The proposal aligns with Clarington’s Strategic Plan. Municipality of Clarington Page 9 Report PDS-061-25 13. Climate Change 13.1 The environmental impacts resulting from the proposed infill development would be negligible and therefore did not necessitate the submission of an energy conservation / sustainability plan for the development. 14. Conclusion 14.1 It is respectfully recommended that public input be received and if no significant concerns are raised that Council approve the amendment to Clarington’s Official Plan and Zoning By-law 84-63 to permit a supermarket use at the subject site. If there are significant concerns raised, then it is recommended that this report be referred back to staff. Staff Contact: Shrija Vora, Planner II, (905) 623-3379 ext. 2436 or svora@clarington.net . Attachments: Attachment 1 – Official Plan Amendment Attachment 2 – Zoning By-law Amendment Attachment 3 – Department and Agency Comments Interested Parties: The following interested parties will be notified of Council's decision: Steven Kakaletris - Zelinka Priamo Ltd. Jonathan Rodger - Zelinka Priamo Ltd. Christina Kalogerakis Attachment 1 to Report PDS-061-25 Municipality of Clarington Purpose: To purpose of the amendment is to add a site specific exception in order to permit a supermarket use under the Gateway Commercial Centres designation applicable to the subject lands. Location: The subject lands are located at 91 and 95 Baseline Road West in Bowmanville and has a total area of 2.25 hectares with 125 metres of frontage along Baseline Road West.. Basis: This amendment is based on an application submitted by Peavey Management Inc. C/O Loblaw Companies Ltd. to permit a supermarket use within the existing vacant building. This application was supported by a Planning Justification Report and has been reviewed by public agencies and municipal staff. Actual Amendment: The Clarington Official Plan is hereby amended as follows: 1. Add site specific Commercial Exception 23.19.2., that “Notwithstanding Section 10.9.2, in addition to the permitted Gateway Commercial Centres uses, on the lands identified by Assessment Role Number 1817-020-120-04900 and municipally addressed as 91 and 95 Baseline Road West, a supermarket use shall be permitted.” Implementation: The provisions set forth in the Municipality of Clarington Official Plan, regarding the implementation of the Plan, shall apply in regard to this Amendment. Interpretation: The provisions set forth in the Municipality of Clarington Official Plan, regarding the implementation of the Plan, shall apply in regard to this Amendment. Attachment 2 to Municipality of Clarington Report PDS-061-25 Corporation of the Municipality of Clarington By-law Number 2025-______ being a By-law to amend By-law 84-63, the Comprehensive Zoning By-law for the Corporation of the Municipality of Clarington Whereas the Council of the Corporation of the Municipality of Clarington deems it advisable to amend By-law 84-63, as amended, of the Corporation of the Municipality of Clarington for ZBA2025-0019; Now Therefore Be It Resolved That, the Council of the Corporation of the Municipality of Clarington enacts as follows: 1. Section 20.4.13 Special Purpose Commercial Exceptions (C5-13) Zone is revised by deleting and replacing b. i) as follows: b. Permitted Non Residential Uses: i) In addition to the uses permitted in Section 20.1, the subject lands may also be used for a supermarket. 2. This By-law shall come into effect on the date of the passing hereof, subject to the provisions of Section 24(2) and 34 of the Planning Act. By-Law passed in open session this _____ day of ____________, 2025. __________________________ Adrian Foster, Mayor __________________________ June Gallagher, Municipal Clerk Attachment 3 to Report PDS-061-25 Attachment 2 – Agency and Department Comments The following agencies and internal departments were circulated for comments on the applications. Below is a chart showing the list of circulated parties and whether or not we have received comments to date. Department/Agency Comments Received Summary of Comment Durham Region Community Growth and Ec. Dev. Department The Region has no objection to the Official Plan and Zoning By-law Amendment. Durham Region Works Department Regional Works has no objection to the Official Plan and Zoning By-law Amendment. Comments related to the Site Plan will be addressed through Site Plan Amendment application. Durham Region Transit Department Durham Region Transit has no objection to the Official Plan and Zoning By-law Amendment. Canada Post Canada Post has no objection to the Official Plan and Zoning By-law Amendment. Enbridge Enbridge has no objection to the Official Plan and Zoning By-law Amendment. Central Lake Ontario Conservation Authority (CLOCA) CLOCA has no objection to the Official Plan and Zoning By-law Amendment. Comments will be addressed through Site Plan Amendment application. Clarington Fire & Emergency Services Division Clarington Fire & Emergency Services Division has no objection to the Official Plan and Zoning By-law Amendment. Clarington Engineering Development Division Clarington Development Engineering Division has no objection to the proposal. Comments will be addressed through Site Plan Amendment application. Clarington Building Division Clarington Building Division has no objection to the proposal. A permit application has been submitted and comments from the Building Division will be addressed through the permit application process.