HomeMy WebLinkAboutPD-153-93 THE CORPORATION OF THE MUNICIPALITY OF CLARINGTON
DN: WTRFRONT. GPA REPORT
PUBLIC MEETING
Meeting General Purpose and Administration Committee File Ir'
Date Monday, November 15, 1993 Res 7
PD-153-93 PLN 15. 3 By Law ,#
Report 11 File h'
Njbject MUNICIPALITY OF CLARINGTON WATERFRONT STUDY
PHASE 3 REPORT: RECOMMENDED LAND USE STRATEGY
FILE: PLN. 15.3
It is respectfully recommended that the General Purpose and
Administration Committee recommend to Council the following:
1. THAT Report PD-153-93 be received;
2 . THAT the 'Recommended Land Use Strategy' Report, being the Phase 3
Report of the Municipality of Clarington Waterfront Study, be
received for information and referred back to Staff to bring
forward an amendment to the Official Plan; and
3 . THAT the Waterfront Trail and Greenway Concept be endorsed in
principle and that Staff report back on an interim and ultimate
alignment for the Waterfront Trail; and
4 . THAT all delegations and interested parties indicated in this
report be advised of Council's decision.
1. BACKGROUND:
1. 1 The Municipality of Clarington Waterfront Study was initiated as
part of the Official Plan Review to provide a long-term strategic
plan for the enhancement, preservation and development of the Lake
Ontario Waterfront. The Study is being undertaken in four phases.
The Phases I and II Report, entitled 'Background Information and
Options' , was received by Committee on October 5, 1992 . The Phase
III Report being considered by Committee today presents the
Recommended Land Use Strategy for the Clarington Waterfront. Phase
IV will involve the preparation of a Secondary Plan for the Port of
Newcastle.
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REPORT NO. : PD-153-93 PAGE 2
1. 2 The Technical Advisory Committee for the Waterfront Study reviewed
the Draft Phase 3 Report at meetings on September 9, 1993 and
September 23 , 1993 . Most of the agencies represented on the
Committee have submitted their comments on the Phase 3 Report;
these comments have been incorporated into the final Phase 3
report. However, a number of agencies, including the Ministry of
Natural Resources, the Ministry of Municipal Affairs and the
Regeneration Trust, have not as of yet provided their comments. It
is our understanding that these comments will be forwarded at a
later date.
1. 3 Public Open Houses for Phase 3 of the Waterfront Study were held on
September 28 (Newcastle Village) , September 29 (Bowmanville) , and
September 30, 1993 (Courtice) ; a total of 72 people attended. A
summary of the comments received from the public forms Attachment
No. 1 to this Report. Where possible, these comments have been
incorporated into the final Phase 3 Report.
1.4 This Staff Report summarizes the main points of the Recommended
Land Use Strategy for the Lake Ontario Waterfront, with particular
emphasis on the Lake Ontario Greenway and Trail. The Report Is
recommendations relative to specific areas along the Waterfront are
also summarized.
2 . PHASE 3 REPORT: RECOMMENDED LAND USE STRATEGY
2 . 1 Overview
2 . 1. 1 In the 'Background Information and Options Report' , a number
of land use options were identified for each Discussion Area
along the Waterfront. The Recommended Land Use Strategy as
presented in the Phase 3 Report was determined by evaluating
these land use options against public comments and a number of
criteria, including provincial, regional and local objectives
for the Waterfront. Options that were determined to be
supportive of the evaluation criteria comprise the Recommended
Land Use Strategy. . . . 3
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REPORT NO. : PD-153-93 PAGE 3
2 . 1. 2 The Recommended Land Use Strategy is presented by Figure 1 of
the Phase 3 Report, with the Recommended Policy Directions
being presented in Section 5. The recommended planning
framework for the Waterfront focuses on the enhancement and
conservation of the Waterfront, particularly in its natural
form, for access to and enjoyment by the public for passive
activities.
2 . 1. 3 The Strategy recognizes Darlington Provincial Park as the
major recreational facility within the Waterfront, and also
provides for the creation of a regional waterfront trail, with
connections northward to local trails. The Strategy focuses
tourism-related activities in the areas of Port Darlington and
the Port of Newcastle through the enhancement of existing
activities and the addition of new facilities.
2 . 1. 4 Major industrial activities in the Waterfront Study Area are
recognized, including the Darlington Nuclear Generating
Station, the St. Marys Cement Plant and Quarry, and facilities
associated with both. Opportunity is also provided for
additional industrial development in areas with significant
locational attributes, most notably along Highway 401.
2 . 1.5 The Strategy recognizes the high quality agricultural land
which predominates in the area east of Bond Head, and
recommends that agricultural activities be protected and
maintained over the long term in this area. The Strategy
designates the lands south of Lakeshore Road as 'Waterfront
Open Space' .
2 .2 Waterfront Greenway Network
2 . 2 . 1 The provincial government has directed lakeshore
municipalities within the Greater Toronto Bioregion to
accommodate a waterfront trail and a "greenway" parallel to
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REPORT NO. : PD-153-93 PAGE 4
the Lake Ontario waterfront. In this regard, the Recommended
Waterfront Strategy identifies a Waterfront Greenway for
Clarington by designating all lands on and directly adjacent
to the Lake Ontario shoreline, with the exception of the
Darlington Nuclear Generating Station, the St. Marys Cement
operation, and the Port Granby Waste Management Site, as
'Waterfront Open Space' .
2 . 2 . 2 . The Recommended Strategy also designates valleylands and other
biophysically important open space areas adjacent to the
Waterfront Open Space' as 'Open Space' or 'Special Open
Space' . These Open Space areas, together with the Waterfront
Open Space, comprise a Greenway System that is intended to
protect and enhance the natural environment, and provide for
public access to the Waterfront.
2 . 2 . 3 The Phase 3 Report also identifies a network of trails and
focal points within the Lake Ontario Greenway. The trail
system that is proposed along the Clarington Waterfront
includes the interregional Waterfront Trail and local (Town)
trails. These trails will be located on both public and
private property, within and outside road right-of-ways, and
will accommodate pedestrians and cyclists.
2 . 2 . 4 The Waterfront Trail will be discussed in greater detail by a
Staff Report to be considered by Committee at a later date.
2 . 3 Specific Areas of Interest
2 . 3 . 1 St. Marys Cement
2. 3 . 1.1 The Strategy recommends the following land use designations
for the lands associated with the St. Marys operation:
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REPORT NO. : PD-153-93 PAGE 5
• 'Extractive Industrial' to accommodate the current
industrial operations with provisions for expansion of
the quarry operations and related industries and
facilities;
• 'General Industrial' for the lands south of the C.N. line
outside the extraction license area, and the Bowmanville
Dock and Marine Terminal;
• 'Special Policy Area A' for the lands between Waverly
Road and the West Beach Road, and includes the West Side
Marsh and the lands between this marsh and Bowmanville
Marsh, as well as that portion of the Cove Road community
outside the shoreline hazard setback zone;
• Open Space for the floodplains of West Side Creek and
Darlington Creek, north of the limits of the active
quarry area and Special Policy Area A.
2 . 3 . 1. 2 The western portion of the lands subject to Special Policy
Area A contain West Side Marsh (a provincially significant
wetland) and are subject to an existing aggregate extraction
license held by St. Marys. The Phase 3 Report recognizes that
the Wetlands Policy Statement cannot be applied retroactively
to lands under license in accordance with the Aggregate
Resources Act. The Report states that, unless St. Marys
decides to change their filed and approved operation plan, the
likelihood of stopping extraction within the Marsh is slim.
2. 3 . 1. 3 The Phase 3 Report notes that, under the provisions of the
Mineral Aggregate Resources Policy Statement, the Municipality
could establish an interim policy in the Official Plan that
acknowledges the provincially significant nature of West Side
Marsh without compromising St. Marys' future ability to
execute the terms of its extraction license. This would
permit the Municipality to control interim uses in the
licensed extraction area.
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REPORT NO. : PD-153-93 PAGE 6
2 . 3 . 1. 4 The Report also notes that negotiations among the various
parties may yield a compromise to the complete elimination of
the Marsh, and recommends that the Municipality continue to
seek a solution that would lead to the retention of all or
part of the Marsh.
2 . 3 . 1. 5 The lands within Special Policy Area A primarily between West
Side and Bowmanville Marshes are not within the extraction
license limit. The Report indicates that comprehensive
planning should occur for this area to determine the
appropriate land uses that would be compatible with the
surrounding land uses. As well, policies should be
established to reduce the impacts of extraction and enhance
the buffering to the Cedar Crest Beach and Cove Road
communities, and to strictly control the type, appearance, and
buffering of uses and activities to ensure that visual and
noise impacts are not transmitted to the Bowmanville Marsh and
Port Darlington Secondary Plan areas.
2 . 3 . 1. 6 Special Policy Area A also recognizes that the lands north of
Cove Road are not located within the shoreline hazard zone,
and suggests that new residential development may be
appropriate for this area. It is also noted that, although
these lands are located within the Bowmanville Urban Area,
this area would not be easily serviced with municipal sewer
and water services and by an efficient road network.
2 . 3 . 2 Cedar Crest Beach and Cove Road Neighbourhoods
2 . 3 . 2 . 1 The Recommended Waterfront Strategy presents the following
land use designations for the Cedar Crest Beach and Cove Road
Neighbourhoods:
• 'Waterfront Open Space' along the shoreline;
• 'Special Policy Area B' for the existing residential
communities.
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REPORT NO. : PD-153-93 PAGE 7
2 . 3 . 2 . 2 Much of the Cedar Crest Beach neighbourhood and lakeside
portions of the Cove Road neighbourhood are positioned within
the recommended shoreline hazard setback zone. The long term
strategy for this portion of Special Policy Area B is to have
it designated Waterfront Open Space, and the Phase 3 Report
recommends that the Municipality eventually acquire the land.
Existing residential uses would be permitted; however, further
residential development or expansions of the footprint of
existing buildings would not be permitted, except for
infilling on existing lots if not acquired by the
Municipality.
2 . 3 . 3 Port Darlington
2 . 3 . 3 . 1 The lands subject to the Port Darlington Secondary Plan are
designated 'Special Study Area 1' by the Recommended
Waterfront Strategy. The specific policies for this area will
be articulated through the Secondary Plan for Port Darlington.
2 . 3 . 3 . 2 The Recommended Strategy indicates 'Waterfront Open Space'
along the shoreline at Port Darlington. The development of a
combined parks and tourism focal node is recommended to
provide a physical link to the Waterfront Trail and the
residential area. A proposed community park, and a proposed
hotel/marina complex are also identified as part of the
Waterfront Open Space.
2 . 3 . 3 . 3 Bowmanville Creek and the associated floodplain lands are
designated 'Open Space' by the Recommended Strategy. The
development of a park focal node in association with the
Conservation Area and the Port Darlington Marina is
recommended.
2 . 3 . 4 Wilmot Creek Community
2 . 3 . 4 . 1 The Phase 3 Report indicates that the long term maintenance of
the Wilmot Creek Community as a private community with no
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REPORT NO. : PD-153-93 PAGE 8
public access to the shoreline is not supported by the
Recommended Waterfront Strategy. Therefore, the fundamental
issue with respect to this Community is the establishment of
a planning framework to encourage the long term redevelopment
of the area to a form consistent with its location within a
designated urban area and with provincial and municipal
objectives for the Waterfront.
2 . 3 . 4 . 2 The Community has been designated Special Study Area 2 (Urban
Residential) by the Recommended Waterfront Strategy. The
development of additional modular homes, a recreation centre,
and a retirement nursing home would be permitted. However, a
Secondary Plan is required to address such issues as
compatibility and linkages with surrounding land uses, and the
implementation and phasing of municipal services. Long term
redevelopment of this area on a comprehensive basis will be
constrained by the staggered leasing of the lots, along with
the common interest in the shoreline and other open space
amenity areas held by the residents.
2 . 3 .4 . 3 The Recommended Strategy also designates the lands along the
shoreline as 'Waterfront Open Space' . This designation is
intended to accommodate the Waterfront Trail.
2 . 3 . 5 Port of Newcastle
2 . 3 . 5. 1 The Recommended Strategy designates the shoreline area at the
Port of Newcastle as 'Waterfront Open Space' . These lands are
intended as a Town Park to accommodate the Waterfront Trail,
and may also act as a focal node for recreation and tourism.
2 . 3 . 5. 2 Other recommended land use designations include 'Prestige
Industrial' for the industrial area adjacent to Highway 401,
'General Industrial' for the industrial lands in the vicinity
of the C.N. rail line, 'Urban Residential' for the lands
subject of the development proposal by Bramalea Limited
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REPORT NO. : PD-153-93 PAGE 9
(subdivision file 18T-91004) , and 'Open Space' for the valley
lands associated with Graham! Foster and Wilmot Creeks.
2 . 3 .5. 3 The Port of Newcastle area is the subject of Phase IV of the
Waterfront Study which involves the preparation of a Secondary
Plan. Therefore, the land use designations for this area will
be evaluated and detailed further in the Secondary Plan.
2 . 3 . 6 Bond Head Community
2 . 3 . 6. 1 The Recommended Waterfront Strategy designates the community
of Bond Head as a 'Residential Cluster' , which is consistent
with existing Official Plan policy. The Strategy also
recognizes the unique cultural landscape of the community and
further recommends that Bond Head be designated as a Heritage
Conservation District, pursuant to the Ontario Heritage Act.
Such a designation would permit sites, structures or features
within the community to be conserved or restored.
2 . 3 . 6. 2 Most of the homes on the south side of Boulton Street lie
within the Shoreline Hazard Setback. The Recommended Strategy
designates the lands along the shoreline, including the
existing homes, as 'Waterfront Open Space' . Existing
residential uses would be recognized as permitted, with
renovations and maintenance as required. Further residential
development and the expansion of existing homes, would not be
permitted.
2 . 3 . 7 Bond Head to Port Granby
2 . 3 .7 . 1 The Recommended Waterfront Strategy presents the following
land use designations for the lands between Bond Head and Port
Granby:
• 'Agricultural Reserve' for the lands north of Lakeshore
Road;
• 'Waterfront Open Space' for the lands south of Lakeshore
Road;
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REPORT NO. : PD-153-93 PAGE 10
• 'Open Space' for the valleys and floodplains of
Newtonville Creek and Port Granby Creek.
2 . 3 . 7 . 2 The 'Agricultural Reserve' designation reflects the current
and proposed long term use of the area east of Bond Head for
agriculture. This designation also accommodates the existing
residences in the area.
2 . 3 .7 . 3 The 'Waterfront Open Space' south of Lakeshore Road will form
an integral component of the Waterfront Greenway. For the
most part, these lands are used for agriculture, with some
rural and farm residential uses. The designation of these
lands as Waterfront Open Space will permit the continued use
of the lands for agriculture. The Report identifies possible
parks and tourism focal nodes at Bouchette Point and/or Port
Granby to allow for recreation and tourism uses related to the
Waterfront Trail and the shoreline.
2 . 3 .7 . 4 The Report also notes that many of the existing residences and
accessory structures are located where the shorebluff is
unstable and receding. The Waterfront Open Space designation
would recognize existing residences as permitted uses, with
renovations and maintenance as required. However, further
residential development through consents or plans of
subdivision, or the expansion of existing buildings, would not
be permitted. The Report also indicates that shoreline
stabilization by individual landowners would be permitted, but
recommends that the Municipality not participate.
2 . 3 . 7 . 5 The Waterfront Open Space designation also provides for the
protection and enhancement of the shoreline bluffs, which in
many parts of this stretch of shoreline are relatively high
and unstable and receding at a significant rate. Of
particular note is the Bond Head Bluffs ANSI (Area of Natural
and Scientific Interest) . The height and instability of the
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REPORT NO. : PD-153-93 PAGE 11
bluffs are a major deterrent to the public's use of and access
to the Waterfront. As such, the Waterfront Trail is not
proposed to be located immediately along the shoreline in this
area in recognition of not only public safety concerns, but
also the cost of constructing and maintaining a trail over
numerous eroding ravines.
2 . 3 . 8 Port Granby Waste Management Area
2 . 3 .8 . 1 The Recommended Waterfront Strategy designates the Port Granby
Waste Management Site as 'Special Policy Area C' . This
designation reflects the current sterilization of the lands
and the uncertainty regarding the timing of decommissioning.
It also recognizes the potential for a passive after-use once
the site has been decommissioned.
2 . 3 .8. 2 The Report indicates that the Official Plan should incorporate
policies to acknowledge the Waste Management Site, and to
permit uses on the site consistent with the Waterfront Open
Space designation once the facility has been relocated and the
site decommissioned. The Report also recommends that,
although access along the beach is possible, pedestrians
should not be permitted to traverse this section of the
shoreline until the site is decommissioned.
3 . STAFF COMMENTS:
3 . 1 The Phase 3 Report represents the Recommended Land Use Strategy for
the Clarington Waterfront and will form the basis of policies in
the new Municipal Official Plan. However, as a condition of a
grant from the Ministry of Municipal Affairs, policies must be
incorporated into the existing Official Plan by January 31, 1994 .
These policies would be strategic in nature and would not include
specific land use designations. It is anticipated that the Public
Meeting to consider the Official Plan Amendment will be held in
January 1994 . Public Notice of the Public Meeting will be provided
pursuant to the requirements of the Planning Act.
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REPORT NO. : PD-153-93 PAGE 12
3 . 2 Comments received from residents in the Public Meeting process
today will be considered in the formulation of the Amendment
to the existing Official Plan and in the more comprehensive
policies to be prepared for the new Clarington Official Plan.
3 . 3 Phase IV of the Waterfront Study involves the preparation of
a Secondary Plan for the Port of Newcastle. A Public
Information Centre is expected to be held in early December in
Newcastle Village with respect to the recommended Secondary
Plan. A Public Meeting is expected to be held in Spring 1994
to consider an Official Plan Amendment to incorporate the
Secondary Plan into the Municipality's Official Plan.
Respectfully submitted, Recommended for presentation
to the Committee
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(r
Franklin Wu, M.C. I.P. Ma a Marano
Director of Planning Acting Chief Administrative
and Development Officer
JAS*FWjip
*Attach
9 November 1993
Interested parties to be notified of Council and Committee's decision:
Waterfront Regeneration Trust Dr. Mofeed Michael
207 Queen's Quay West, Suite 580 Commissioner of Planning
Toronto, Ontario Regional Municipality of Durham
M5J 1A7 Box 623
1615 Dundas Street East
Ms. Ruth Melady 4th Floor
Ministry of Municipal Affairs Lang Tower, West Building
Central Region Office Whitby, Ontario
47 Sheppard Avenue East L1N 6A3
Suite 207
Willowdale, Ontario Clarington Waterfront Study
M2N 2Z8 Mailing List
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Attachment No. 1
COMMENTS RECEIVED AT THE PHASE 3
PUBLIC INFORMATION SESSIONS
MUNICIPALITY OF CLARINGTON WATERFRONT STUDY
General
• public access to the shoreline and nature trails for all citizens
should take precedence over the wishes of a few vocal minorities
(ie. Wilmot Creek)
• objects to the proposed public acquisition of homes along the
waterfront and the proposed restrictions on building permits for
homes in the Waterfront Open Space
• cost of acquiring waterfront properties will increase the municipal
tax burden
• the Port Darlington Secondary Plan should be approved by Council
• the vacant municipal lot on Cedar Crest Beach Road should be
developed as a focal point for sight-sightseeing and picnicking
• wants Waterfront Study to include a scan of the lake bottom along
the Clarington shoreline (for a distance of 2-3 miles into Lake
Ontario) to identify possible 'Marine Heritage Sites' and provide
for their protection
• the waterfront should be preserved to provide a place for people to
relax and relate to the beauty of nature; the waterfront must be
preserved for future generations
• no residential development should be permitted along the waterfront
within 30 miles of the Darlington Nuclear Station
• concerned that agricultural lands along the waterfront are being
redesignated for other uses
• objected to development restrictions for the Cove Road Community
Waterfront Trail
• supports the development of a "green-trail" along the berm at the
southern edge of West Side Creek Marsh
• Lakeshore Road should not be used for the Waterfront Trail
• objects to the identification of the Waterfront Trail along the
shoreline in Wilmot Creek
• objects to the identification of the Waterfront Trail through the
agricultural lands east of Bond Head
• bridge for the Waterfront Trail should not be across the mouth of
Graham Creek if it impedes upstream movement of boats
West Side Creek Marsh
• the uncertainty related to the fate of West Side Beach Marsh and
Cedar Crest Beach Road discourages the proper maintenance of
properties
• the extraction permit held by St. Marys Cement for West Side Marsh
should be revoked and the Marsh preserved
• West Side Creek Marsh should be protected; an evaluation of plant,
fish and wildlife species should be undertaken to determine the
importance of the Marsh
• the routing of the Waterfront Trail should be held in abeyance
until the Regeneration Trust has complied with the Town's request
to resolve issues related to St. Marys Cement
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