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HomeMy WebLinkAboutPSD-022-04 v Clw:mglOn REPORT PLANNING SERVICES Meeting: GENERAL PURPOSE AND ADMINISTRATION COMMITTEE Date: Monday, February 23, 2004 FI}I, :l:XGf'Ior- 0...10-0"1- By-law # Report #: PSD-022-04 FILE #: PLN 31.5.5 Subject: BROOKHILL NEIGHBOURHOOD DESIGN PLAN Recommendations: It is respectfully recommended that the General Purpose and Administration Committee recommend to Council the following: 1. THAT Report PSD-022-04 be received; 2. THAT staff be authorized to prepare a Secondary Plan for Brookhill Neighbourhoodand request proposals from consultants and report back to Council when considered appropriate; 3. THAT a new urbanist approach be investigated for the design of the Brookhill Neighbourhood; 4. THAT the Brookhill Neighbourhood Secondary Plan Study Area incorporate all the lands identified on Attachment 1 including lands designated as Future Urban Residential; and 5. THAT no additional Neighbourhood Design Planning Studies commence in 2004. Submitted by: D vid . Crome, M.C.I.P., R.P.P. Director of Planning Services R~~~ {/~ Liv Fr Kin Wu, F[),j Chief Administrative Officer CS/HB/CP/DJC/df 18 February 2004 CORPORATION OF THE MUNICIPALITY OF CLARINGTON 40 TEMPERANCE STREET, BOWMANVILLE, ONTARIO L 1 C 3A6 T (905)623-3379 F (905)623-0830 0., \ J-' .---. REPORT NO.: PSD-022-04 PAGE 2 1.0 BACKGROUND 1.1 The Brookhill Neighbourhood, as identified in the Clarington Official Plan, is generally located north of King Street/Durham Region Highway No.2, west of the Bowmanville Creek, south of the future Longworth Avenue extension, and east of the west limits of the Bowmanville urban area boundary (Attachment 1). The neighbourhood abuts the north limits of the West Bowmanville Main Central Area and Highway Commercial Area west of Green Road. 1.2 In October 2002, Aquafor Beech was awarded the contract for conducting the Brookhill Subwatershed Study. Preparation of a subwatershed study as a precursor to development by plan of subdivision is a requirement of the Clarington Official Plan. The purpose of the study is to establish a framework for stormwater management, identify natural features to be protected and suggest mitigative measures where impacts to natural features are predicted. This study is coordinated by Staff but paid for by three large landowners within the study area. In November 2003 the first phase of the study was completed and presented at a public information centre. 1.3 Phase 1 of the study identifies the existing environmental conditions, evaluates the natural features and functions and develops constraint mapping identifying developable lands, non-developable lands, and lands requiring environmental mitigation before development can occur. Phase 2 of the study evaluates alternative subwatershed management strategies. A recommended subwatershed plan will be proposed in Phase 3 and in the last phase (Phase 4) an implementation plan will be developed. Phase 2 is currently underway and it is anticipated that the study will be completed in early summer 2004. 1.4 The Neighbourhood Design Plan process is scheduled to commence in 2004 with the completion of the sub-watershed study. The purpose of this report is to: a) Recommend that a secondary plan be undertaken for the Brookhill Neighbourhood Study Area; b) Modify the current approach to neighbourhood planning for the Brookhill Neighbourhood by having the Municipality undertake the lead role; c) Recommend that the neighbourhood boundaries be extended for the Brookhill Neighbourhood Planning process in recognition of the watershed study boundary, cost-efficiencies in the planning process and in preparation for the Official Plan update; d) Recommend that the Brookhill Neighbourhood be planned utilizing the principles of new urbanism; OJ..; REPORT NO.: PSD-022-04 PAGE 3 e) Recommend that no additional neighbourhood planning exercises commence in 2004. 2.0 NEW URBANISM 2.1 What is New Urbanism? New urbanism is a response to the patterns of sprawl that have developed in the post war period. Using different names such as "traditional neighbourhood development", "transit-oriented development" and "Neo-traditional planning", new urbanism is an attempt to restore the traditional urban elements to the planning of neighbourhoods. The Congress on New Urbanism adopted a Charter which is contained in Attachment 2 to this Report. New urbanism can be applied at a variety of scales from a regional or municipal wide approach, down to a neighbourhood, street or building level. The principles as they relate to neighbourhoods, streets, and buildings can be appropriate for the overall development of the Neighbourhood Design Plan for the Brookhill Neighbourhood. The following key elements of New Urbanism will be examined through the Neighbourhood Design process for their applicability: Traditional Neighbourhood Structure . Discernable centre and edge for the neighbourhood; . Public buildings and space at centre; . Importance of quality public realm including smaller parks as community focal points; and . Contains a range of uses and densities within 5-minute walk. Connectivity . Interconnected street grid network which disperses traffic and makes walking safe and easy; . A hierarchy of narrow streets, boulevards, and alleys; . High quality pedestrian network and public realm makes walking pleasurable; and . Integrated use of open system and trail networks. Mixed-Use & Diversity . A mix of homes, apartments, shops and offices, within neighbourhoods, within blocks, and within buildings, which encourages a diversity of people of various ages and incomes. . A range of housing types and sizes providing for a variety of prices. OJ I REPORT NO.: PSD-022-04 PAGE 4 Quality Architecture & Urban Design . Emphasis on beauty, human comfort, and creating a sense of place; Special placement of civic uses and sites within community. Human scale architecture and beautiful surroundings; . Creation of a community identity including gateway treatments; and . Parking lots and garage doors rarely front the street. Smart Transportation . A network to connect neighbourhoods; and . Transit supportive land uses and building design. Sustainability . Minimal environmental impact of development and its operations; . Eco-friendly technologies, respect for ecology and value of natural systems; and . Energy efficiency. 2.2 Where is New Urbanism beinq applied today? New urbanism is still relatively new but has attracted a lot of attention in recent years. A recent report identified nearly 500 neighbourhood scale projects that had been completed, under construction or in the planning stage in the United States. About half of the new urbanist projects in the United States are Greenfield projects and the rest are infill projects. More important, it is becoming less of a distinct category but is influencing a lot of development with hybrid models ma~ing some elements less distinguishable as a category. In Canada, new urbanism is also growing. There have been new urbanist projects across the country, most notably in British Columbia, Alberta and Ontario. Both Markham and Oakville have adopted new urbanism as their fundamental approach to planning new communities. Markham now has six new urbanist neighbourhoods planned and developing. 2.3 Why use a New-Urbanist approach for Brookhill Neiqbhourhood? Brookhill will be one of the most significant development areas in the Municipality over the next twenty years. Brookhill is located on the north limits of the West Main Central Area and will be the site of the new Bowmanville High School. In many ways, it is separated from other parts of Bowmanville by the Bowmanville Creek. There is the opportunity here to create a significantly distinct place, something different from the traditional suburban residential patterns of the last 15 years. OJ0 REPORT NO.: PSD-022-04 PAGE 5 The emerging West Main Central Area provides the opportunity for close ties to a strong commercial town centre, recreational facilities and a transit hub. Making the connections between residential community like Brookhill and the West Main Central Area will be important to implementing a smart growth policy. The benefits of implementing a New Urbanism approach for development goes beyond creating an aesthetically pleasing environment and a neighbourhood with a unique character. Implementing the elements of new urbanism can provide economic, social and environmental benefits. A key principle of New Urbanism is obtaining a mix in the form and type of development within a neighbourhood, providing a variety of housing types and housing prices. The economy of land use inherent with a new urbanism approach can result in better-utilized infrastructure and more efficient public transit system leading many to advocate new urbanism as a "smart growth" alternative to sprawl. 2.4 Issues to be Addressed Some new urbanist ideas have met resistance from various sectors and there are issues that would need to be addressed in the context of the study. In particular, over the years, Engineering Services staff have expressed reservations regarding some elements of the new urbanist approach, specifically the use of rear lanes and the reduction of road widths, both in terms of right-of-ways and the paved area. In exploring a new urbanist approach at this time, the Municipality can learn from the experiences of other Municipalities and address issues related to road design and servicing alternatives. 3.0 NEIGHBOURHOOD DESIGN PLAN PROCESS 3.1 The Clarington Official Plan provides that secondary plans are not required for any residential neighbourhood unless specified by Council. Given that Planning staff is recommending a departure from the traditional approach to neighbourhood design, specifically that a new urbanist approach be explored for the Brookhill Neighbourhood, it is recommended that the neighbourhood planning approach include the preparation of a secondary plan. 3.2 The Clarington Official Plan provides that "prior to the consideration and approval of a plan of subdivision, the Municipality shall generally require the preparation of a neighbourhood design plan to the satisfaction of the Municipality in consultation with other agencies." A neighbourhood design plan provides a general development plan of an entire neighbourhood and includes road alignments, sidewalks, trails, and transit, lotting pattern, school, park, open space system and stormwater management facilities. OJ!' REPORT NO.: PSD-022-04 PAGE 6 3.3 The difference between a Secondary Plan and a Neighbourhood Design Plan is that the former is adopted as a policy document under the Planning Act. A Neighbourhood Design Plan focuses on design and servicing issues for the area and does not have any statutory authority. 3.4 Best practices from other municipalities indicate that generally neighbourhood design plans andlor secondary plans are undertaken through a municipally-led process. In many cases, the development interests fund at least a portion of the planning studies. 3.5 It is recommended that the Municipality commence the preparation of a Secondary Plan for Brookhill Neighbourhood which incoroporates the necessary elements of the Neighbourhood Design Plan process as outlined in the Official Plan. A draft scope of work is contained in Attachment 3 and will be utilized to prepare a Request for Proposals. All studies, reports or plans prepared by landowners within a neighbourhood will continue to form part of the background information, In addition, all major landowners would be stakeholders and full participants throughout the study process. 4.0 EXPANSION OF THE BROOKHILL NEIGHBOURHOOD PLANNING STUDY AREA 4.1 Brookhill Neighbourhood as defined in the Official Plan extends generally north of the Bowmanville West Main Central Area to Longworth Avenue. (see Attachment 1) 4.2 Additional lands are proposed to be included in the Study Area to make the planning process cost-effective and to co-ordinate with the sub-watershed planning process. The additional lands proposed to be included are: a) the portion of Knox Neighbourhood north of Longworth Avenue between Regional Road 57 and the Bowmanville Creek b) the Future Urban Development lands between the future Longworth Avenue extension and Nash Road, west of Regional Road 57. These lands would be considered for redesignation in the context of the pending review of the Clarington Official Plan. 4.3 The expanded Brookhill Neighbourhood Study Area would comprise 300 ha (750 acres). The north-west corner of the Study Area includes a portion of the Maple Woods Wetland Complex which has recently been identified by the Ministry of Natural Resources as provincially significant. 6!tu REPORT NO.: PSD-022-04 PAGE 7 5.0 OTHER NEIGHBOURHOOD DESIGN PLANS 5.1 The preparation of Neighbourhood Design Plans is a requirement prior to the consideration of any plan of subdivision. In 2003, the Foster East Neighbourhood Design Plan was completed, allowing for the approval of two plans of subdivision in Newcastle Village. The Brookhill Neighbourhood Planning process commenced with the initiation of a subwatershed plan in 2003 and this report deals with the next step in the preparation of a neighbourhood plan. There are landowners in both Bowmanville and Courtice who wish to commence neighbourhood planning studies. The commencement of any additional neighbourhood planning studies will negatively impact staffs ability to complete Council's priority objectives - a new Zoning By-law and the review of the Clarington Official Plan. 5.2 The primary municipal concern with the timing of new neighbourhood planning studies would be to ensure an adequate supply of housing. The Official Plan requires a minimum 3 year supply of approved development lots. The following chari illustrates the draft approved and the registered un-built lots available as of July 1, 2003, within the urban areas of Courtice, Bowmanville and Newcastle Village, excluding Wi/mot Creek Retirement Community. Courtice Bowmanville Newcastle Village Total 1892 3757 1249 6898 71 275 39 385 1963 4032 1288 7583 Since this date, additional supply of 665 new units has been added to Newcastle Village through the approval of plans of subdivision by Foster Creek Developments and Syvan Developments (the former Kiradaar site). Based on recent development activity, the existing lot inventory would provide for a 9 - 12 year supply of new residential units. Therefore the supply of available lots is still well in excess of the 3 years required to be maintained by the Clarington Official Plan. 6 " -+ . . REPORT NO.: PSD-022-04 PAGE 8 5.3 It is recommended that based on the existing inventory of lots and the commitment of staff to other priorities, no additional neighbourhood planning studies, including the prerequisite subwatershed studies commence in 2004 and possibly 2005. 6.0 FUNDING THE NEIGHBOURHOOD PLANNING STUDY 6.1 The Clarington Official Plan provides for Neighbourhood Design Plans to generally be prepared by development propoenents within a Neighbourhood, The practice has been that the major landowners collaborate or in some cases one major landowner undertakes the entire exercise in the interests of expediting consideration of their particular plan of subdivision. The consultant is selected and retained by the developer or development group and the participating development interests pay 100% of the costs. 6.2 This report is recommending that the Municipality lead the planning process for this Neighbourhood but it is recognized that there are financial limitations on the Municipality to undertake this work. If Council authorizes the neighbourhood planning approach outlined in this report, staff will contact the major development interests with respect to joint funding of the Neighbourhood Planning Study. Since development cannot proceed without the preparation of a Neighbourhood Design Plan, it is anticipated that the development interests would support and fund such a Study. Staff will report back on the funding arrangements. 7.0 CONCLUSION 7.1 The Brookhill Subwatershed Study is expected to be completed in the second quarter of 2004, and at least three of the landowners within the study area have expressed an interest in proceeding with applications for plan of subdivision. As a result it is recommended that: · the Municipality undertake the preparation of a secondary plan and neighbourhood design plan for Brookhill Neighbourhood. · New Urbanism be explored as the design philosophy for the Brookhill Neighbourhood. · the Secondary Plan Study be municipally-led with funding from both the Municipality and development interest within the Neighbourhood. · the Brookhill Neighbourhood Study Area be expanded in accordance with Attachment 1 to this Report If Council approves the initiation of this Study, staff will be seeking funding commitments from the development interests in the area and developing a request for proposals. Staff will report back when appropriate to keep Council informed of the progress. 6 Ii 't L REPORT NO.: PSD-022-04 PAGE 9 7.2 Given the existing inventory of draft approved lots and the commitment of staff to other priorities, it is recommended that no additional neighbourhood planning studies, including the prerequisite subwatershed study, be initiated in 2004 until the completion of the new Zoning By-law. Attachments: Attachment 1 - Brookhill Neighbourhood Study Area Attachment 2 - Character of the New Urbanism Attachment 3 - General Scope of Work for Brookhill Neighbourhood Secondary Plan 6it,) ATTACHMENT 1 ~,,><N)S~ ROAD ~ ~ \ ~ ;/ )( I~ ..x )< ..x I^ ,)II ,;<,. ~ x'=: ;: r:2 ~______ ~ >< IX Bowmanville .x ..x ~ Creek >< .x ..x II f-- ~~ ~ ~ ~trmr r" ~x ~ V~I=~J~ ..x X><..x ~ ..x Longworth Avenue ~\ j \J v-:::: ~ ~ Extension ~ ~ >< ~(" ~ 2:.. % [;0%V/ - // fl V' ~ / l/ ~ 'tiilffii~a: V/~W 'i 'l'/~ ~ ~ 4 ..li 0;~ YL ~:> ~&J .~~ -~ I West Main lV ~ '/'i"fi /1/, = ~ Cent!: Area '~ ~ r:- ~r-'~Jrl -' - ~_~~ ~I ~ i, - nt I '~"",-:'a\llliit== I.~ I ~ ')b ~ ~I'V/ =~l\E -1RINCE WIWAM)~ r- I' . ~' < ]]I TI II r-- f-- RU Irni D Brookhill Neighbourhood Study Area ~ Current Brookhill Neighbourhood Area ~ Additional Lands to be Included Within the Study Area O'rt ATTACHMENT 2 CHARTER OF THE NEW URBANISM THE CONGRESS FOR THE NEW URBANISM views disinvestment in central cities, the spread of placeless sprawl, increasing separation by race and income, environmental deterioration, loss of agricultural lands and wilderness, and the erosion of society's built heritage as one interrelated community-building challenge. WE STAND for the restoration of existing urban centers and towns within coherent metropolitan regions, the reconfiguration of sprawling suburbs into communities of real neighborhoods and diverse districts, the conservation of natural environments, and the preservation of our built legacy. WE RECOGNIZE that physical solutions by themselves will not solve social and economic problems, but neither can economic vitality, community stability, and environmental health be sustained without a coherent and supportive physical framework. WE ADVOCATE the restructuring of public policy and development practices to support the following principles: neighborhoods should be diverse in use and population; communities should be designed for the pedestrian and transit as well as the car; cities and towns should be shaped by physically defined and universally accessible public spaces and community institutions; urban places should be framed by architecture and landscape design that celebrate local history, climate, ecology, and building practice. WE REPRESENT a broad-based citizenry, composed of public and private sector leaders, community activists, and multidisciplinary professionals. We are committed to reestablishing the relationship between the art of building and the making of community, through citizen-based participatory planning and design. WE DEDICATE ourselves to reclaiming our homes, blocks, streets, parks, neighborhoods, districts, towns, cities, regions, and environment. We assert the following principles to guide public policy, development practice, urban planning, and design: tJ "-t J The region: Metropolis, city, and town 1. Metropolitan regions are finite places with geographic boundaries derived from topography, watesheds, coastlines, farmlands, regional parks, and river basins. The metropolis is made of multiple centers that are cities, towns, and villages, each with its own identifiable center and edges. 2. The metropolitan region is a fundamental economic unit of the contemporary world. Governmental cooperation, public policy, physical planning, and economic strategies must reflect this new reality. 3. The metropolis has a necessary and fragile relationship to its agrarian hinterland and natural landscapes, The relationship is environmental, economic, and cultural. Farmland and nature are as important to the metropolis as the garden is to the house. 4. Development patterns should not blur or eradicate the edges of the metropolis. Infill development within existing urban areas conserves environmental resources, economic investment, and social fabric, while reclaiming marginal and abandoned areas. Metropolitan regions should develop strategies to encourage such infill development over peripheral expansion. 5. Where appropriate, new development contiguous to urban boundaries should be organized as neighborhoods and districts, and be integrated with the existing urban pattern. Non contiguous development should be organized as towns and villages with their own urban edges, and planned for a jobs/housing balance, not as bedroom suburbs. 6. The development and redevelopment of towns and cities should respect historical patterns, precedents, and boundaries. 7. Cities and towns should bring into proximity a broad spectrum of public and private uses to support a regional economy that benefits people of all incomes. Affordable housing should be distributed throughout the region to match job opportunities and to avoid concentrations of poverty. 8. The physical organization of the region should be supported by a framework of transportation alternatives. Transit, pedestrian, and bicycle systems should maximize access and mobility throughout the region while reducing dependence upon the automobile. 9. Revenues and resources can be shared more cooperatively among the municipalities and centers within regions to avoid destructive competition for tax base and to promote rational coordination of transportation, recreation, public services, housing, and community institutions. u" ~ . The neighborhood. the district, and the corridor. l.The neighborhood, the district, and the corridor are the essential elements of development and redevelopment in the metropolis. They form identifiable areas that encourage citizens to take responsibility for their maintenance and evolution. 2. Neighborhoods should be compact. pedestrian friendly, and mixed-use, Districts generally emphasize a special single use. and should follow the principles of neighborhood design when possible. Corridors are regional connectors of neighborhoods and districts; they range from boulevards and rail lines to rivers and parkways. 3. Many activities of daily living should occur within walking distance. allowing independence to those who do not drive, especially the elderly and the young. interconnected networks of streets should be designed to encourage walking, reduce the number and length of automobile trips, and conserve energy. 4. Within neighborhoods. a broad range: of housing types and price levels can bring people of diverse ages, races, and incomes into daily interaction, strengthening the personal and civic bonds essential to an authentic community. 5. Transit corridors, when properly planned and coordinated, can help organize metropolitan structure and revitalize urban centers. In contrast, highway corridors should not displace investment from existing centers. 6. Appropriate building densities and land uses should be within walking distance of transit stops, permitting public transit to become a viable alternative to the automobile. 7. Concentrations of civic, institutional, and commercial activity should be: embedded in neighborhoods and districts, not isolated in remote, single-use complexes. Schools should be sized and located to enable children to walk or bicycle to them. 8. The economic health and harmonious evolution of neighborhoods, districts, and corridors call be improved through graphic urban design codes that serve as predictable guides for change. 9. A range of parks, from tot-lots and village greens to ballfields and community gardens, should be distributed within neighborhoods. Conservation areas and open lands should be used to define and connect different neighborhoods and districts. . 'i , U I-T I . The block, the street, and the building. 1. A primary task of all urban architecture and landscape design is the physical definition of streets and public spaces as places of shared use. 2. Individual architectural projects should be seamlessly linked to their surroundings. This issue transcends style. 3. The revitalization of urban places depends on safety and security The design of streets and buildings should reinforce safe environments, but not at the expense of accessibility and openness. 4. In the contemporary metropolis, development must adequately accommodate automobiles. It should do so in ways that respect the pedestrian and the form of public space. 5. Streets and squares should be safe, comfortable, and interesting to the pedestrian. Properly configured, they encourage: walking and enable neighbors to know each other and protect their communities. 6. Architecture and landscape: design should grow from local climate, topography, history, and building practice. 7. Civic buildings and public gathering places require important sites to reinforce community identity and the culture of democracy. They deserve distinctive form, because their role is different from that of other buildings and places that constitute the fabric of the city. 8. All buildings should provide their inhabitants with a clear sense location, weather and time. Natural methods of hearing and cooling can be more resource- efficient than mechanical systems. 9, Preservation and renewal of historic buildings, districts, and landscapes affirm the continuity and evolution of urban society. For information: Congress for the New Urbanism; 5 Third Street, Suite 500A. San Francisco, CA 94103 Phone: 415 495-2255 Fax: 415495-1731. (; ~'-~ ;~\ . ATTACHMENT 3 . GENERAL SCOPE OF WORK FOR BROOKHILL NEIGHBOURHOOD SECONDARY PLAN Background Review a. review and analysis of background information, studies, servicing requirements b. meetings with key stakeholders Review of New Urbanism Principles c. Presentation to Council and staff on new urbanism principles and practices d. Tour and discussion with municipal officials with new urbanist communities in the GTA e. Implications of alternative development standards for engineering design in new urbanist communities Concept Design f. A Stakeholders Working Group will be formed; g. Neighbourhood Design Charette undertaken to develop options and a preferred concept plan for the Brookhill Neighbourhood Study Area. Preparation of Secondary Plan h. Prepare draft of secondary plan Preparation of Supporting Implementing Documents i. Prepare urban design guidelines for the neighbourhood j. Prepare general zoning requirements k. Prepare conceptual servicing plan I. Prepare conceptual open space and parks plan m. Prepare a phasing and implementation plan o ~T /