HomeMy WebLinkAboutPD-12-91 TOWN OF NEWCASTLE
REPORT File # ( t , i
Res. #
f,. -,, DN: IND-REP.GPA
_ By-Law #
MEETING: General Purpose and Administration Committee
DATE: Monday, January 7, 1991
REPORT #: PD-12-91 FILE #: Pin 14 . 1
SUQECT: NEWCASTLE INDUSTRIAL POLICIES
PROPOSED OFFICIAL PLAN AND ZONING AMENDMENT
RECOMMENDATIONS:
It is respectfully recommended that the General Purpose and
Administration Committee recommend to Council the following:
1. THAT Report PD-12-91 be received;
2 . THAT staff be authorized to circulate Report PD-12-91 to the
appropriate agencies for comment;
3 . THAT staff be authorized to convene a Public Meeting under the
Planning Act for consideration of amendments to the Town of
Newcastle Official Plan and the Town of Newcastle Comprehensive
Zoning By-law 84-63 with respect to industrial policies .
) / c.
REPORT NO. : PD- -91 PAGE 2
1. INTRODUCTION
1 . 1 The Planning and Development Department is concerned about the
Town's ability to attract and maintain diverse industrial
development proposals . It is proposed that an examination of the
current Industrial policies in the Town's Official Plan be
undertaken.
During the past year various planning studies have identified
shortcomings with respect to the Town's industrial policies .
These studies include:
The Town of Newcastle Servicing Feasibility Study
South Courtice Areas .
Assessment of the unmet requirements for Industrial
land in the Newcastle Study area.
Bowmanville Waterfront Background Study.
1.2 In particular, the report regarding the "Assessment of the Unmet
Requirements for Industrial Land" stated that Prestige Industrial
(or Business Parks) uses are not clearly defined in the current
Official Plan. Although these uses can be accommodated within the
current industrial policies, the stringent controls typically
associated with the Prestige Industrial development are presently
lacking. In addition, this report noted the lack of specific
zoning categories and the identification of sites for Prestige
Industrial development may hinder the Town's ability to attract
this form of development.
1. 3 The Bowmanville Waterfront Study noted that the potential for the
future uses on the waterfront lands was linked to overcoming the
negative impacts of he adjacent industrial area. Should
industrial development be designated for prestige industrial
uses, it would be less disruptive to the residential and
commercial uses proposed for the Bowmanville Waterfront.
Moreover, there could be a linkage in the marketing of industrial
location with prime residential areas .
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REPORT NO. : PD-12-91 PAGE 3
But, if future industrial development is visually and
operationally low-grade, it would be detrimental to the future of
the waterfront.
2. SCOPE OF THIS REVIEW
The review of the Industrial policies will be part of the Town's
Official Plan Review scheduled to commence in 1991. Staff are of
the opinion that Industrial policies, because of their importance
to the Town's ability to attract industrial development, require
immediate attention and therefore suggest that, as an interim
measure, this aspect of the Town's Official Plan be considered.
The proposed updated Industrial policies will be an amendment to
the current Official Plan prior to the completion of the
comprehensive Official Plan Review. Policies with respect to
"Aggregate Extraction" and the Region's proposed "Business
Parks" policies will not be considered at this time. In
addition, at such time the Town has completed an "Economic
Development Strategy" the policies may need to be amended to
better reflect the Town's economic goals .
3. ISSUES IDENTIFIED THROUGH THE REVIEW
3 . 1 Classification of Industrial Land Uses
The present Official Plan Industrial policies only recognize two
broad land use categories, that being "Heavy" and "General"
Industrial . These two categories are not reflective of current
growth areas in the economy and not conducive to the promotion of
higher end users .
The current 'Heavy Industrial' policies recognize uses which by
virtue of their excessive noise, heat, glare and/or
transportation requirements are generally not complementary to
other urban land users . The type of uses envisioned for this
designation would include steel mills, sugar and fuel refineries
and port or harbour uses . This sector of the economy has and
will continue to have a much lower rate of growth relative to
other sectors of the economy. Traditional "Heavy Industrial"
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REPORT NO. : PD-12-91 PAGE 4
users have been forced to restructure and become more efficient
by closing some plants and modernizing other existing operations .
In light of this, it is considered appropriate by Staff to delete
the 'Heavy Industrial' land use district. Some uses normally
associated with this category would be permitted in the revised
'General Industrial' designation. A truly "Heavy Industrial" use
would require an amendment to the Plan.
The Town's Comprehensive Zoning By-law, while it contains
generally two types of industrial zones, the list of permitted
uses are similar except for provisions regarding outdoor storage.
Staff propose introducing three distinct industrial designations
in the Official Plan and three complimentary zoning categories in
the Comprehensive Zoning By-law. There is a need to introduce a
new land use district, the Prestige Industrial designation, as
well to restructure and rename the existing classifications to
designations to provide greater distinction between the uses.
The 'General' and 'Light' land use designations should provide
opportunity for the uses previously permitted. However, these
policies should attempt to differentiate the uses by locational
factors, nuisance, outside storage and other restrictions. The
Prestige Industrial land use designation is envisioned as
permitting commercial office space, limited retail commercial and
introduce other uses presently not permitted in a more upscale
environment.
3 .2 Development on Private Services
The current Town policies are silent with regards to development
of unserviced industrially designated lands . To date Staff have
relied on the policies of the Durham Regional Official Plan when
reviewing such proposals . The Town of Newcastle Official Plan
should contain provisions to assist in the processing of such
applications to develop unserviced industrially designated lands.
REPORT NO. : PD-12-91 PAGE 5
The lack of services in Courtice, particularly, is seen as
problematic . The high visibility land parcels, typically
developed with Prestige Industrial uses have continued to be
developed below their potential due to these servicing
constraints. This will be a detriment to the Town in the long
run. The introduction of industrial designations will assist in
identifying areas to be developed as Prestige Industrial and
hopefully maintain such land for its intended use. The Town will
have to consider the means by which to restrict or prevent lower-
profile industrial users from occupying high visibility sites
such as those areas adjacent to Highway 401.
3 . 3 Open Storage Areas
The current Official Plan provisions are silent with regard to
outside storage. The zoning by-law provisions presently provide
only limited restrictions in comparison to other municipalities.
As a result industrial users/developers who are unable or
unwilling to comply with the more stringent policies in other
municipalities within Durham Region along the Highway 401 have
expressed interest in the Town's industrially designated lands
due to its relaxed regulations. Staff suggest this area may not
always be the best use for high visibility industrial uses .
Having low-profile industrial uses in this location also poses as
a disincentive for higher end users concerned about the quality
of development that may neighbour their site in the future.
Staff believe that there should be some clear policies for
outside storage areas.
3 .4 Development Standards
The current policies provide little guidance to Staff when
reviewing and evaluating industrial proposals in terms of
development standards . At present road construction in
Industrial Areas is to be of a standard acceptable to Council but
not necessarily to urban standards . Few policies address on-
site development of entrances, parking areas, landscaping and the
architectural qualities of buildings . The updated policies
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REPORT NO. : PD-12-91 PAGE 6
should contain provisions regarding the development of land on
private services; development of roads at an urban cross section;
development of paved entrances and parking areas, enhanced
landscaping and a high standard of building design and materials .
3 .5 Obnoxious uses
The current policies are limited in dealing with the
establishment or enlargement of existing obnoxious uses . The
proposed policies should contain similar provisions to the
existing policies regarding undue adverse effect caused by
industrial uses . In addition, new provisions should be
introduced to deal with uses such as asphalt plants recycling
establishments, salvage yards, and used tire storage facilities .
3 .6 Property Maintenance Standards
Staff's review of existing industrial development in Newcastle
found that several industrial land owners have not been paying
too much attention to the ongoing property and building
maintenance. Undeveloped lots containing rubble, construction
materials, derelict motor vehicles, and unkept grounds with tall
grass and weeds are not uncommon at this time.
Developed sites often lack adequate landscaping, contain
cluttered open storage areas with little or no screening of
refuse containers and open storage areas. New Official Plan
policies cannot be made retroactive on existing development,
unless applications are made for expansion or redevelopment of
existing sites . However, the policies should attempt to address
these concerns in new developments .
3 . 7 Non-Industrial Uses
The current Town of Newcastle Official Plan policies do not
address the possibility of allowing retail or office commercial
uses in the Industrially designated area. "Business Parks" and
"Prestige Industrial" developments are becoming more common
throughout Greater Metropolitan Toronto Area. Consideration must
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REPORT NO. : PD-12-91 PAGE 7
therefore be given to the type and amount of non-industrial uses
to be permitted within Industrial Areas .
4. PROPOSED OFFICIAL PLAN AMENDMENT
The major changes proposed are as follows:
elimination of the "Heavy Industrial" classification
introduction of the "Light Industrial" and "Prestige
Industrial" classification
greater detail on the type of land uses permitted and
the locational criteria for those uses
criteria for outdoor storage
addition of limited commercial uses in some
designations
requirements for secondary plans for some industrial
areas
provisions regarding landscaping and architectural
treatment of buildings
provisions for dry industrial uses .
The proposed Industrial Policies are contained in Attachment #1 .
5. PROPOSED ZONING AMENDMENT
The proposed Zoning By-law Amendment would require a
restructuring of the current zones in the Town's Comprehensive
Zoning By-law in order to introduce a zone category to match each
proposed designation. At this point in time Staff have simply
identified the various uses currently permitted within the Town's
Zoning By-law and the possible zone category they would be most
compatible. The proposed list of uses to be permitted in the new
zones is contained in Attachment #2 . This would be further
detailed into a subsequent proposed by-law amendment.
6. CONCLUSION
6 . 1 The Town's ability to attract and maintain diverse industrial
development is limited, in part, by the existing Official Plan
and zoning policies . The Town's existing Official Plan policies
and zoning
REPORT NO. : PD-12-91 PAGE 8
by-law needs revision to, among other things, provide the
adequate opportunity with respect to higher-end industrial
developments . Staff have, therefore, prepared draft updated
Industrial Policies in response to this and the other concerns
noted in this report.
6 .2 At this time Staff request Committee and Council's approval to
proceed with the principles of an Official Plan Amendment and
Zoning By-law Amendment in order to undertake the changes deemed
necessary. Due to the importance of industrial development to
the Town, it is considered imperative that the current policies
be amended and updated at this time prior to a comprehensive
review of the Town of Newcastle Official Plan.
Respectfully submitted, Recommended for presentation
to the Committee
Franklin Wu, M.C. I .P. Lawrence . , Kotseff
Director of Planning Chief Adm n strative
and Development Officer
CP*DC*FW*df
17 December 1990
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DN:IND-POL.#1 Attachment No. l
DRAFT INDUSTRIAL POLICIES
1. OBJECTIVES
i) To accommodate a variety of economic development
opportunities;
ii) To provide serviced lands for industrial development in
strategic locations to meet the requirements of
industrial users and to minimize conflicts with other
major land uses; and
iii) To encourage the diversification and expansion of the
Town's employment base.
2. GENERAL POLICIES
2 . 1 The use of lands designated for industrial development, as
delineated on Schedule(s) shall generally be divided
into three types of land use designations:
General Industrial
Light Industrial
Prestige Industrial
2 . 2 Permitted uses shall be such that no undue adverse effects
may occur as the result of the emission of smoke, noise,
odours, or any other form of pollution.
2 . 3 Industrial development shall be fully serviced by municipal
water and sewage systems and all roads developed to an urban
cross section. However, limited development may take place
in the Industrial areas prior to the availability of
complete municipal services if the industry is of a dry
nature. In such cases an engineering report shall be
required indicating that there is an adequate supply of
potable water, the method to be used for adequate fire
protection, and that soil conditions shall permit the
installation of a waste disposal system which complies with
the standards of the Ministry of the Environment as amended
from time to time and as administered by the Medical Officer
of Health. In addition, an agreement shall be entered into
between the applicant and the Town, in which the applicant
agrees to connect to municipal services at such time as they
become available.
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Page 2 . .
2 .4 Industry of a dry nature shall be defined as one which does
not require water consumption in the production,
manufacturing, refining, or assembling operation on-site.
2 .5 No use shall be permitted which, from its nature, the
materials used, or the waste produced therein, is declared
to be a noxious trade, business or manufacture under the
Public Health Act or regulations .
2 . 6 Where there are existing residential uses in Industrial
designations, it is the intention of this Plan, that these
areas be redeveloped for industrial uses in the future. In
the interim, existing residential uses may be permitted to
continue as a non-conforming use. However, the interests of
industry shall be given priority over residential concerns
in the resolution of land use conflicts in the area.
2 . 7 The development or redevelopment of lands designated
Industrial which are adjacent to lands designated
Residential shall be designed to reduce potential land use
conflicts through limitations on permitted uses, building
siting and design, setbacks and buffer areas, controls on
noise and air pollution, vibrations, and the location of
garbage handling facilities, loading docks, open storage,
parking areas and exterior lighting.
2 .8 Industrial areas shall be designed to discourage the
penetration of industrial traffic into or through
residential areas . Truck traffic shall be encouraged to use
the appropriate collector and arterial road system.
2 . 9 Consideration shall be given to the provision of future
transit service in the design of industrial areas .
2 . 10 Any proposal to add or enlarge an Industrial designation
shall be evaluated in conjunction with the Durham Regional
Official Plan policies and on the basis of:
i) the impact on the surrounding land uses;
ii) the demand for industrial land as determined through a
study to be prepared by the applicant; and
Page 3 . .
iii) the adequacy of the transportation network, to
accommodate additional traffic volumes.
3. GENERAL INDUSTRIAL
3 . 1 The General Industrial land use designation is intended for
industrial and related activities such as : manufacturing,
assembling, processing, fabricating, refining, warehousing,
storage and repair and servicing operations . In addition,
accessory office uses will be permitted provided they are on
the same lot, related to and ancillary to the main
industrial use.
3 .2 Industrial areas shall be planned and developed in such a
manner so that the General Industrial designation not be
located adjacent to Residential or other non-compatible
uses.
3 . 3 Truck and/or transportation terminals shall generally be
located within the General Industrial designations adjacent
to arterial roads having immediate access to inter-regional
roadway facilities . However, it is the intent of Council
not to permit such facilities in high visibility sites
adjacent to Hwy. 401 or major entranceways to the urban
areas . In addition such uses shall have adequate screening
of parking and storage facilities.
3 . 4 General Industrial areas will be protected from non-
industrial uses, in particular office or retail uses, which
could adversely affect the long term viability of these
areas as industrial areas .
3 .5 Outside storage will be permitted provided it is properly
screened from public view and shall not exceed 40% of the
site area, is generally located at the rear of the property
and is not detrimental to the neighbouring uses or the
general area.
3 . 6 Recycling establishments for paper, glass, metal, plastic
oils and chemicals or similar materials, but excluding wood,
rubber and nuclear by products within wholly enclosed
buildings or structures are permitted in this district. In
addition, recycling establishments that include open storage
Page 4. .
or open-air operations may be permitted providing they are
restricted to areas where open storage is allowed and
providing they satisfy the following:
i) generally subject to the provisions of Section 3 .5; and
ii) subject to the provisions of the Environmental
Protection Act and/or Environmental Assessment Act.
3 . 7 Salvage yards, used tire storage facilities and composting
facilities are generally not permitted. However,
consideration of these facilities may be undertaken through
Official Plan Amendment application.
4. LIGHT INDUSTRIAL
4. 1 The Light Industrial land use designation shall be located
in areas that are sensitive to the range of industrial uses
permitted given their location adjacent to residential land
use or due to their high visibility along major arterial
roads and/or highways . The permitted uses in the Light
Industrial district shall include:
i) industrial uses contained within wholly enclosed
buildings including manufacturing, assembling,
processing, fabricating, repairing, research and
development, and warehousing;
ii) limited retailing of the goods manufactured or
assembled on the premises and shall not exceed 20% of
the total building floor area; and
iii) limited office space as accessory to uses permitted in
subsection 4 . 1(i) ;
4 .2 Limited outside storage shall be permitted as an exception,
subject to the inclusion of appropriate provisions in the
Secondary Plan where appropriate and the Comprehensive
Zoning By-law, and in accordance with the following:
i) outside storage area shall not exceed an area
equivalent to 25% of the total building floor
area;
Page 5. .
ii) the materials stored are finished products
produced on site;
iii) the stored materials shall not exceed a height of
3 . 0 metres; and
iv) the storage area shall be located primarily in the
rear of the lot and in the case of storage on the
side yard, solid fencing must be provided.
4 .3 In addition, certain retail uses may be permitted which are
limited in scale and directly provide services that are
compatible with and serve the main uses such as and similar
in kind to recreational and banquet facilities, branches of
financial institutions, commercial and technical schools,
and restaurants . These may be detailed further in a
Secondary Plan or in the Zoning By-law. .
5. PRESTIGE INDUSTRIAL
5 . 1 The Prestige Industrial land use designation is intended to
provide for the compatible development of office and
prestige industrial uses in buildings of a high
architectural standard. Industrial uses permitted include
light manufacturing, corporate offices, warehousing, data
processing facilities, research and development uses
provided the operations are within wholly enclosed buildings
or structures. Limited commercial activity may be permitted
in accordance with Sections 5 . 3, 5 .4 and 5. 5. In addition,
day nurseries and places of worship, fraternal
organizations, recreational facilities, parks and open space
uses are permitted.
5 .2 No outdoor storage is permitted in Prestige Industrial
Areas .
5.3 Office development will be limited in density to ensure that
the Prestige Industrial Districts do not achieve the same
intensity of office development permitted in Central Areas.
Office uses shall not exceed a maximum floorspace index of
1. 0. The total amount of office space shall be defined in a
secondary plan.
5 .4 Special Purpose Commercial uses which, because of the size
of lot required, the predominantly industrial character of
Page 6 . .
the building required, the specific nature of the commercial
use, or other similar reasons, are appropriate in an
industrial setting and would not contribute to the enhanced
viability of a designated Central Areas. Such uses may
include garden centres, home improvement centres, and auto
malls .
5 .4 In addition, certain retail uses may be defined in a
secondary plan which are limited in scale and directly
provide services that are compatible with and serve the main
uses may be permitted, such as, and similar in kind to
conference centres, hotels and motels, sports, recreational
and banquet facilities, branches of financial institutions,
restaurants, commercial schools and automobile service
stations . In addition, limited retail and service
commercial uses may be permitted provided they form part of
a larger complex and do not occupy more than 20% of the
gross floor area situated on the net site area.
6. IMPLEMENTATION
6 . 1 Secondary Plans may be prepared for the industrial areas
indicated on Map "C" in accordance with the applicable
provisions of the Durham Region Official Plan and The Town
of Newcastle Official Plan.
6 .2 Secondary Plans for any Industrial Area shall:
i) identify and designate a name to an industrial district
which is significant to the area and can provide a
strong identity to the district;
ii) define more precisely the boundaries of the industrial
area;
iii) address existing problems and land use conflicts;
iv) provide an efficient transportation network;
v) designate land use districts and densities; and
vi) provide policies consistent with the overall objectives
of the Town of Newcastle and the Region of Durham.
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Page 7 . .
6 . 3 The Zoning By-law shall provide detailed permitted uses and
may further divide the industrial designation into
categories based on the range of permitted uses, the amount
of open storage permitted, if any, and the potential impacts
on adjacent areas .
6.4 All industrial developments are subject to site plan
approval pursuant to the Planning Act and shall be developed
to the satisfaction of the Town. A high standard of
building design will be required. This shall include all
buildings to be developed with masonry exterior finish for a
minimum of 3 metres from the ground elevation. All
undeveloped lots will be graded and partially sodded to
provide a park like setting.
6 .5 Industrial areas shall be developed with proper landscaping
and well-designed buildings. In particular, landscaping and
screening shall be required in order to minimize any
detrimental effects associated with outdoor uses, open
storage areas and industrial uses emanating noise, light and
undesirable visual effects .
6 . 6 The number, location, spacing and design of vehicular access
points from the road system to industrial areas shall be
regulated and shall be subject to the approval of the
authorities having jurisdiction. In addition, access
driveways and internal driving aisles on industrial sites
shall generally be paved and accessible at all times and
shall be designed such that all vehicle movements are
accommodated off the public roads .
D > i ; ,�
DN:IND-POL. #2 Attachment No. 2
PROPOSED INDUSTRIAL ZONES AND PERMITTED USES
PROPOSED M1 M2 M3
ZONES General Light Prestige
USES
bank or financial X X
office
building supply
and/or home improve- g
ment outlet within a
wholly enclosed
structure
business or
professional office X X X
as accessory to
permitted use
eating establishment X X
eating establishment X X
take-out
equipment sales and X X
rental, light
equipment sales X
and rental, heavy
cartage or transport X
depot and yard
commercial or technical X X
school
dry light industry
within a wholly X X
enclosed building
assembly, manufacturing,
fabricating or processing X X X
plant within a wholly
enclosed building
print or publishing X X
establishment
Jl
Page 2 . .
M1 M2 M3
General Light Prestige
warehouse for the
storage of goods and
materials within a X X X
wholly enclosed
building or structure
tavern X X
adult entertainment
parlour within an X
eating establishment
or tavern
private club X X
transport service X X
establishment
cartage or transport X
depot and yard
feed mill or seed X
cleaning plant
farm implement and
equipment sales and X
service
bulk storage tanks X
and related uses
motor vehicle fuel bar X X X
motor vehicle body X X
shop
motor vehicle repair X X
garage
motor vehicle wash X X X
contractor's or
tradesman's workshop X
and yard
storage area for boats X
and trailers
Page 3. .
M1 M2 M3
General Light Prestige
precast concrete
products or
prefabricating wood X
products manufacturing
and fabricating plant
auction room X X
professional corporate X
offices
data processing facility X
research and development X
facility
day nurseries X X
places of worship X
garden centre X
retail warehouse X
automalls X
conference centres X
hotels and motels X X
sports, recreational and X X
banquet facilities
recycling establishments X