HomeMy WebLinkAboutPD-96-91 THE CORPORATION OF THE TOWN OF NEWCASTLE
DN:MAIN-CEN.GPA REPORT
Meeting: General Purpose and Administration Committee File # vmg Z 8c)
Date: Monday, April 22, 1991 Res. #
By-Law#
Report#: PD-96-91 File #: PLN 12 . 9
Subject: SECONDARY PLAN STUDY FOR THE BO ILLS MAIN CENTRAL AREA
Recommendations:
It is respectfully recommended that the General Purpose and
Administration Committee recommend to Council the following:
1. THAT Report PD-96-91 be received;
2 . THAT the Town of Newcastle undertake a Secondary Plan Study for the
Bowmanville Main Central Area subject to a financial contribution
being received from development interests within the Study Area;
3 . THAT Staff be authorized to issue a Request for Proposals for the
preparation of the Secondary Plan Study in accordance with the
attached Terms of Reference, and to select the consultant and to
report back from time to time with respect to the progress of the
Study.
1. BACKGROUND
1. 1 As Committee is aware, the Planning Department will be commencing
the review of the Town of Newcastle Official Plan later this year.
This review has been largely necessitated by the proposed changes
to the Durham Regional Official Plan. It is expected that the
Review of the Town's Plan will take at least two years to complete.
1 .2 Of particular significance to the Town is the major changes the
Proposed Regional Plan proposes for the Bowmanville Main Central
Area. The Plan proposes to allocate 200,000 sq.m. (2, 153,000
sq. f t. ) of retail and personal service f loorspace to the Main
Central Area, which represents a significant increase over the
46 ,500 sq.m. (500,000 sq. ft. ) allocated to the Main Central Area
by the existing Official Plan. As well, the location of the
Bowmanville Main Central Area is conceptually shown in the Proposed
Regional Plan. The increase in the commercial floorspace
C
REPORT NO. : PD-96-91 PAGE 2
allocation, together with the reduced level of detail in the
Regional Official Plan, places the onus on the Town to provide the
appropriate policy framework within the Town's Official Plan to
guide development in the Main Central Area.
1 . 3 On February 6, 1991, Regional Council approved Amendment No. 40 to
the Town of Newcastle Official Plan. This Amendment extended the
boundaries of the Bowmanville Main Central Area westward to
incorporate a substantial amount of undeveloped land. The Amendment
also approved the application submitted by Markborough Properties
for a 21,300 sq.m. (230,000 sq.ft. ) shopping centre. Most of the
other lands in the area covered by the Amendment were designated
Special Study Area.
1 .4 Amendment No. 40 also specifies that an Urban Design Plan be
prepared prior to the zoning of any lands within the subject area,
and that the lands designated as Special Study Area require further
study prior to the approval of development applications .
1 .5 It is further noted that the solicitor for the Bowmanville Mall has
requested the Ministry of Municipal Affairs to refer Amendment No.
40 to the Town's Official Plan and the related Amendment to the
Durham Regional Official Plan, to a hearing before the Ontario
Municipal Board. The position of the Bowmanville Mall, as indicated
in the letter to the Ministry, is that the addition of the new
lands to the Main Central Area would have the effect of creating
a satellite to the existing Central Area which will have a serious
impact on the current economic viability and revitalization of the
existing central business district. The letter also states that the
development of the Markborough site as a shopping centre is
premature until the future of the area is determined by the
necessary studies .
1. 6 All of the factors discussed above have persuaded Staff that the
Planning Study for the Bowmanville Main Central Area should proceed
independently of the Town's review of its Official Plan.
REPORT NO. : PD-96-91 PAGE 3
2 . SECONDARY PLAN FOR THE BOWMANVILLE MAIN CENTRAL AREA
2 . 1 The purpose of the Secondary Plan Study for the Bowmanville Main
Central Area would be to develop a long term development strategy
for the area, and an Urban Design Plan and detailed guidelines to
facilitate the implementation of the development strategy. The
Study would also have a number of specific objectives, including
the development of the Main Central Area as the civic focus
and the major commercial centre in the Town;
establishing the means for integrating a broad range of
commercial, institutional, office, community, recreational and
residential activities which complement each other and the
role of the Main Central Area;
the development of a methodology which would identify and
monitor the impact of new commercial developments in the Main
Central Area on existing commercial uses to ensure that these
areas do not experience an undue economic decline.
2 .2 Staff propose that the Study Area for the Secondary Plan Study of
the Bowmanville Main Central Area generally encompass all of the
lands delineated as the Bowmanville Main Central Area by the Town's
Official Plan, as amended by Amendment No. 40, as well as those
lands on the north side of Highway No. 2 in Concession 1 between
Regional Road 57 and Green Road (See Attachment No. l) . Staff also
propose that the Study Area be divided into two smaller Study
Areas, as shown, in recognition of the differing issues to be
addressed in these areas .
2 . 3 Given the amount of work required to complete the Secondary Plan
Study for the entire Main Central Area, Staff propose that the
Study be jointly undertaken by a consultant and the Planning
Department. The particular responsibilities of the Consultant as
proposed by Staff are outlined by the draft Terms of Reference
attached to this Report (Attachment No. 2) . Specifically, the
Consultant would be responsible for Phase 1 (Overview and Land Use
REPORT NO. : PD-96-91 PAGE 4
Options) for the entire Study Area, and Phase 2 (Recommended
Secondary Plan) and Phase 3 (Urban Design Plan) for Study Area 1.
The Planning Department would be responsible for Phases 2 and 3 for
Study Area 2 .
3 . STUDY FUNDING
3 . 1 A number of commercial proposals have been submitted for the lands
between Regional Road 57 and Green Road. Staff have advised the
applicants that the Town will not be able to process their
applications pending the completion of the Secondary Plan Study for
the Main Central Area.
3 .2 The applicants, specifically Delbert Developments, Willsonia
Industries, West Bowmanville Developments, Cosmart Marketing and
Baseline Holdings, have expressed an interest in funding the
consultant's portion of the Secondary Plan Study for the Main
Central Area in order to expedite the study process. However, the
Consultant will be retained by and will work under the direction
of the Town. Input from the developers could be provided under
strict guidelines to be detailed in the Terms of Reference.
3 . 3 Staff have advised the developers group that 50% of the funding for
the consultant must be provided to the Town prior to the Town
retaining the Consultant, with the remaining 50% to be provided
prior to the commencement of Phase 2 (Recommended Secondary Plan) .
The landowners will be submitting Letters of Undertaking to the
Town agreeing to the cost sharing of the Study.
3 .4 Staff note that, given the wide range of issues to be addressed by
the Secondary Plan Study, the Town will benefit from the expertise
that the consultant will be able to provide.
i
i
.1 '
REPORT NO. : PD-96-91 PAGE 5
Respectfully submitted, Recommended for presentation
to the Committee
Franklin Wu, M.C. I .P. Lawrence (E Kotseff
Director of Planning Chief Admi istrative
and Development Officer
JAS*DC*FW*df
*Attach
12 April 1991
r �-�
Attachment No. 1
f91. uEADOMVIC`M ,.'�
Ol WCREST KV r /
J
J.{CK l PoWRH ST `NOTOK CT
Rqb +�1 CT
� TNINO T< ��.4' 4AC0
PI K � TILLEY K S
CT !
Cpl
EDSALL
•
Y �W
/ G W
\ R[NOEP KE A N j
AVE SAUMOFAS AV
ANV LC
R0. T
\ ET NCRRI4AN5 ] � 1
STEVEN-RO. ST CONCESSION ST, L -- V-
_.V
;` } �� ^^111188886666tltltltllYYYUIII � �
LOVEAS �r, s
HIGHWAY_N�2 �,�
AItKANIEA ] � '
Study fi
A
(\
Area �c P O/TEE, `Ot. � _ Study '
rea 1 �� s. ��
HES CA
COLE .
I
CRESCENT i� CT. rea 2 "A d C
y o4 CRT.
KWa u E. MIGHWA N• 2
LAWRENCE L
OOREEN f \ O�t L
a 2 J� t PPNCE >1 ORES
.0 NNE T �`�T I �a JNIE T OEERPARK CT FL]T
AVE. y
V G Gi L
Noses oa.
ST
rtHWY ON
FFEM�ONO O o
Z 6•S � � CP¢
DR. ST. vNSCWX CAE SOPE - ff
PAPo(WAY AVE G/EA Y
D a D
111 9 KWAY ORES. g
�\ ty - 9T
OANLINE R z
—1]17/ R JOf�W—.S)iCIOT�T AV�� �
FN OAD W
gg BASCL E
II HIGHWAY N. 40I 11
ll NOAO _` 1
/ AKE
SpErc� ,
Sum' iU A`" R41p
� II
B.F. 1
RoAO _3.
ACH A
\ 64
WAT,p O.A.%
_ LAKE ONTARIO
D�
BOWMANVILLE MAIN
CENTRAL AREA STUDY
Attachment No. 2
DRAFT
BOWMANVILLE MAIN CENTRAL AREA STUDY
TERMS OF REFERENCE
I. , Background
The Bowmanville Main Central Area is centred on Highway 2 (King
Street) and is 3 .2 km in length. Proposed changes to the Durham
Regional Official Plan promote the development of the Bowmanville
Main Central Area as a Regional Level commercial centre, with
200,000 sq.m. of gross retail and personal service floorspace.
Section 9 (Central Areas) of the Draft Durham Regional Official
Plan forms Attachment No. 1 to these Terms of Reference.
A CAUSE Study for the historic downtown Area has been approved and
will serve as input to the Secondary Plan Study.
The Secondary Plan Study of the Bowmanville Main Central Area will
be jointly undertaken by the Consultant and the Town of Newcastle
Planning Department. The particular responsibilities of the
Consultant are specified within these Terms of Reference.
II. Study Purpose
1. To develop a long term development strategy for the Main
Central Area with regard to Section 9 . 3 .4 of the Proposed
Durham Regional Official Plan.
2 . To develop an Urban Design Plan and detailed guidelines to
facilitate the implementation of the development strategy.
III. Study Objectives
1 . To formulate a Secondary Plan which facilitates the
development of the Bowmanville Main Central Area as the civic
focus and the major commercial centre in the Town of
Newcastle.
2 . To establish the means for integrating a broad range of
commercial, institutional, office, community, recreational and
residential activities which complement each other and the
role of the Main Central Area.
3 . To determine the means for preserving and enhancing
historically and architecturally significant structures and
areas in the Main Central Area, with particular regard to the
integration of new developments .
C= t �
PAGE 2
4 . To distribute the commercial floorspace allocated to the Main
Central Area to allow a full range of retail, personal service
and office uses to be provided, in particular the
establishment of significant office employment.
5. To develop a Secondary Plan which would accommodate a
significant public sector presence in the Main Central Area
through the creation of long term municipal and other
government facilities .
6 . To provide for the development of a variety of housing types
that complement and give support to other land uses in the
Main Central Area.
7 . To review the requirements for pedestrian, vehicular and
transit systems .
8 . To formulate plans for the development of an urban park and
open space system to serve the residents of the Main Central
Area and which integrates with other components of the park
and open space system serving the community, in accordance
with the Town of Newcastle Recreation/ Leisure Master Plan
( 1991) .
9 . To develop a methodology which would identify and monitor the
impact of new commercial developments in the Main Central Area
on existing commercial uses to ensure that these areas do not
experience an undue economic decline.
IV. Study Area
The Study Area shall generally encompass the lands delineated as
the Bowmanville Main Central Area by the Town of Newcastle Official
Plan, as well as those lands on the north side of Highway No. 2 in
Concession 1 between Regional Road 57 and Green Road. The
boundaries of the Study Area may be further refined upon completion
of Phase 1 (Overview/Data Collection) of the Study.
For the purposes of the Secondary Plan Study, the Main Central Area
Study Area has been divided into Study Area 1 and Study Area 2 (see
Attachment No. 2 hereto) .
Study Area 1 is comprised of an undeveloped area with a 270,000
sq.m. retail commercial project approved through Amendment No. 40
to the Town of Newcastle Official Plan (Attachment No. 3 hereto) .
Most of the remaining lands within Study Area 1 are designated by
the Amendment as a Special Study Area.
Study Area 2 generally encompasses the existing developed portion
of the Main Central Area, including the historic downtown, the
Bowmanville Mall and strip commercial development.
PAGE 3
V. Study Process
The Consultant will be responsible for Phase 1 for the entire Study
Area.
Phase 1 - Overview and Land Use Options
Phase 1 will involve the collection of background information
relevant to the Study, and the identification of issues to be
addressed by the Study. As well, the general principles for the
future development of the Main Central Area shall be established
and various Land Use Options prepared.
The work undertaken in this Phase shall include the following
components:
1. Land Use and Natural Features
a) provide detailed mapping of existing land use and land
ownership
b) identify and assess the potential for the
intensification of commercial uses
c) identify significant natural features and issues,
including hazard lands and significant landforms
d) prepare a comprehensive assessment of development
constraints related to land use and urban form, including
existing and potential land use conflicts
e) review existing Official Plan policies and the policies
of relevant agencies such as the Town of Newcastle Public
Works Department, the Region of Durham Works Department
and the Conservation Authority to determine the
implications for future development patterns
f) review studies relevant to development in the Main
Central Area
g) identify and assess various measures to integrate the
various land uses and minimize land use conflicts in the
Study Area
h) assess the ability to meet the Provincial affordable
housing targets within the Main Central Area
i) provide an urban design analysis of existing streetscapes
in the Study Area
j ) identify the streetscape and heritage elements to be
incorporated into the planning and development of the
Study Area
PAGE 4
2. Market Component
a) identify the Trade Area of the Bowmanville Main Central
Area on the basis of the Town's Commercial Inventory and
the Proposed Changes to the Durham Regional Official Plan
b) identify market characteristics of the Trade Area
including anticipated growth
c) identify the appropriate role for the historic downtown
and other distinct parts of the Bowmanville Main Central
Area
d) identify the means of monitoring and staging commercial
growth in the Study Area so as not to create the undue
economic decline of existing businesses
3. Transportation
a) identify and assess any existing deficiencies in the
transportation network within and serving the Study Area
b) assess the requirements of the transportation network
within and serving the Study Area using a 'built-out'
scenario of the proposed urban structure of the Durham
Regional Official Plan
c) identify and assess options for the transportation
network in the Study Area, with reference to the proposed
urban structure in the Durham Regional Official Plan,
including but not limited to additional collector and
arterial rods, intersection improvements and a one way
street system
c) identify existing deficiencies with respect to on-street
and off-street parking, examine options for the provision
of additional public parking, and make recommendations
to finance improvements for off-street parking
d) detail traffic and parking improvements relative to
specific development applications
e) identify and assess existing and future pedestrian,
bicycle and vehicular connections to ensure safe and
convenient linkages within and leading to the Study Area
f) assess opportunities for public transit and requirements
to incorporate into the transportation network
PAGE 5
4. Open Space/Recreation
a) review the existing deficiencies in open space and
recreational facilities relative to existing and
projected future populations in the Study Area
b) detail the park and open space network for the Study
Area, as identified in the Recreation/Leisure Services
Master Plan ( 1991) , including:
opportunities for the provision of additional
parkland and recreational facilities,
existing and potential linkages with valleylands,
parks and Conservation Areas
civic park development opportunities and any
necessary acquisition program
5. Government Facilities
a) identify provincial, regional and municipal government
facilities and lands within the Study Area
b) review the short term and long term growth plans of
various government organizations within the Study Area,
including but not limited to the Town of Newcastle
Administartion, the Town of Newcastle Library Board, the
Town of Newcastle Fire Department, the Durham Regional
Police Department and the Bowmanville Museum
c) assess the type, size and location of new government
facilities needed to service the Town of Newcastle which
should be located within the Study Area
6 . Municipal Servicing
a) identify the capacity existing in municipal sanitary
sewer, storm sewer and water systems available to service
development within the Study Area
b) identify any constraints on residential or commercial
intensification within the Study Area
c) assess each land use option in terms of the capital
improvements to the municipal servicing systems required
� C -
PAGE 6
The Consultant will be responsible for Phases 2 and 3 for Study
Area 1 .
Phase 2 - Recommended Secondary Plan for Study Area 1
Phase 2 will involve the preparation of a Recommended Secondary
Plan for Study Area 1 appropriate for adoption as part of the Town
of Newcastle Official Plan. As a minimum, the Secondary Plan will
be comprised of the following elements:
a statement of goals and objectives
a Land Use Plan indicating recommended land use
designations
detailed policies to support each of the land use
designations
policies to guide the preparation of an Urban Design Plan
Phase 3 - Urban Design Plan for Study Area 1
1 . Work on the Urban Design Plan will proceed concurrently with
the Secondary Plan Study. The Urban Design Plan will be
presented to Town Council for approval at the same time as the
Secondary Plan.
2 . The Urban Design Plan is intended to supplement and implement
the Land Use Plan. It is not to be incorporated into the Town
of Newcastle Official Plan, but rather is to be adopted as a
guideline by Council.
3 . The Urban Design Plan shall generally address the issues
outlined below. These issues may be further refined upon
completion of the Land Use Component of the Study. As well,
additional issues as follows, may be identified for study
within the individual Design Precincts:
Building Massing, including bulk/height limitations
and building setbacks
Street facades
Pedestrian linkages between nodal points
Locational Criteria for service entrances
Use of arcades, awnings and canopies
Landscaping
Signage
PAGE 7
Street furniture such as seating, trash receptacles,
streetlighting, bus shelters and bicycle racks, with
detailed hardware specifications to be provided for
each.
VI. Public Participation
1 . Substantial and meaningful public involvement and consultation
will be sought at each stage of the study process.
2 . A CAUSE Study Weekend for the Main Central Area has been
approved for September 26 - 30, 1991. The Consultant will be
required to attend and possibly participate.
3 . Groups with a particular interest in the Main Central Area
must be identified.
4 . The most effective mechanisms for providing information to the
public and securing public input must be identified prior to
the commencement of the Land Use Component of the Study.
Suggested mechanisms include:
the placement of a Public Notice in local
newspapers, as well as postings in community
facilities, at the beginning of each stage of the
Study requesting submissions from the public
Public Open Houses/Workshops
newsletters to be published with each phase of the
study for distribution to businesses within the Main
Central Area, interest groups and to hand-out at
Public Open Houses
interviews with special interest groups, major
landowners, and members of the development industry
in Phase 1 and at the end of Phase 2 .
VII. Consultation Process
During the course of the preparation of the study, the requirements
and policies of all affected public or regulatory agencies shall
be considered.
VIII.Meetings
The consultant will be required to attend meetings, including but
not limited to:
PAGE 8
1. Meetings with the Town of Newcastle Planning Staff as
required;
2 . Consultation with the public and interest groups, including
Public Open Houses .
IX. Deliverables
The Consultant shall prepare the following documents through the
study process:
Newsletters and Pamphlets for the Public
Participation Process
Background and Options
Report Draft 20
Final 75
Recommended Secondary
Plan for Study Area 1 First Draft 20
Circulation Draft 40
Final 75
Summary of Recommended
Secondary Plan for Study Area 1
(Newsletter or Poster Format) 250
All newsletters and reports shall be printed on paper made with
recycled materials .
Appropriate visual displays which illustrate the various reports
will be prepared for the public participation process .
A base map of the entire Study Area shall also be digitized from
existing Ontario Base Maps ( 1:2000) and cadastral mapping.
All original text, maps, plates, data, reports and other materials
or information collected or prepared by the Consultant shall be
considered municipal property and will be turned over to the Town
at the conclusion of the Study.
All data files used and developed through the study process will
be provided to the Town on a floppy computer disk (3.5 inch
format) . In addition, all reports will be provided on a floppy
computer disk (3 .5 inch format) in Wordperfect 5. 0.
i
i
II
0 r' j
I
i
PAGE 9
X. Study Direction
The work of the consultant will be directed by the Town of
Newcastle Planning and Development Department. The consultant will
be required to meet regularly with Town Staff to review the Study's
progress and to seek direction from Staff.
XI. Contract for Services
The Consultant shall prepare a written contract containing the
following:
a detailed description of the Consultant's suggested
approach to the Study as outlined in these Terms of
Reference and the requirements for any municipal staff
resources
a specific timetable/work plan for the various phases of
the Study and a deadline for commencement, the submission
of any reports and completion of the Study process and
final report
the name(s) of the principal(s) of the firm who will be
coordinating and presenting the Study and the Staff who
will specifically be assigned to the Study
cost estimates with upset costs for the Study, including
such matters as the cost of meetings, mileage,
secretarial, telephone, fax, computer and printing costs .
The Consultant will furnish an itemized estimate of the
costs of each component and phase of the Study process .
Any per diem rates and meeting rates for additional work
not specifically covered in these terms shall also be
provided
a schedule of hourly rates and an estimate of the number
of days that each member would spend on the study and a
sum total of this time
The Consultant is encouraged to make separate constructive comments
and suggestions regarding the Terms of Reference and the approach
to the Study which in his/her opinion, would improve performance
in carrying out the assignment. Such comments shall not be made
conditional to the acceptance of the assignment.
Upon approval of funding for this Study, the contract will be
executed by the Town.
PAGE 10
XII.Timing
The Study is expected to commence on or around June 15, 1991 . It
is expected that the Study will be completed within 12 months from
commencement.
XIII.Cost Overrun
All costs incurred by the Consultant in preparation of the Study
and not specifically provided for in the Consultant's proposal and
authorization letter will not be the responsibility of the Town of
Newcastle.
Attachments
1. Section 9 of the Proposed Durham Regional Official Plan
2 . Map of the Study Area
3 . Amendment No. 40 to the Town of Newcastle Official Plan