HomeMy WebLinkAboutPD-59-91 1 FIL-. CORPOHATION OF TFlE TOWN OF NEWCASTI-E
REPORT DN:DROP.GPA
Meeting General Purpose and Administration Committee File 11
Date Monday, March 18, 1991 lies Y --
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TOWN OF NEWCASTLE COMMENTS
RE: RECOMMENDED CHANGES TO THE DURHAM REGIONAL OFFICIAL PLAN
Note: Please bring copy of proposed Durham Region Official
Plan circulated earlier
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It is respectfully recommended that the General Purpose and
Administration Committee recommend to Council the following:
1 . THAT Report PD-59-91 be received;
2 . THAT Report PD-59-91 and the comments contained therein be
forwarded to the Region of Durham as the Town of Newcastle's
comments on the proposed Durham Regional Official Plan.
1. INTRODUCTION
1 . 1 Commissioner's Report 91-P-1 presents the "Recommended
Changes to the Durham Regional Official Plan" . The Report
was prepared as the result of the review of the "Draft
Changes " Report (Commissioner's Report 90-1) , and was
presented to Regional Planning Committee on January 26,
1991. The Report was tabled by the Committee to permit
submissions to be made by area municipal Councils and other
interested parties .
1 .2 We understand an Addendum Report to Report 91-P-1 is
scheduled to be presented to Regional Planning Committee on
March 26, 1991. On April 9, 1991, the Committee will begin
its consideration of the Recommended Changes to the Regional
Official Plan.
1. 3 The comments contained in this report focus on how the
"Recommended Changes " compare to the "Draft Changes" and
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REPORT NO. : PD-59-91 PAGE 2
the Town's submission on the same. Town staff have met with
Regional staff to review the Plan and discuss more technical
aspects of the Plan. Consequently, the issues raised in
this report are restricted to the more significant aspects
of the Regional Plan. Furthermore, the premise of this
report is based on Council's previous position and the
comments contained herein are focused on the new elements of
the latest Plan.
1 .4 The Public Works Department and Community Services
Department have reviewed the recommended Regional Plan and
their comments have been incorporated into this report.
1 .5 Although it's not a requirement of the Planning Act, Notices
of this meeting were sent to all parties who indicated an
interest or have made submissions to the Durham Region
Official Plan Review. Due to time constraints, parties were
also informed by telephone.
2. SUMMARY OF THE REGION RECOMMENDED PLAN
2 . 1 The recommended Durham Regional Official Plan, contained in
Commissioner's Report 91-P-1, is significantly different
from the draft document presented over a year ago. Although
it is a somewhat streamlined document, it contains many new
policies and changes that must be addressed in this report.
In general, Regional Planning staff made considerable effort
to reduce the level of detail in the Official Plan.
The proposed Regional Plan is much more a document of
general goals and principles with less detailed policies to
govern specific development concerns . Such features as
Central Areas are shown conceptually. Land Use categories
are very broad (ie. Living Areas) and must be further
delineated in the Local Official Plan. The Local Official
Plan must provide details with regard to such matters as the
allocation of population to neighbourhoods, densities,
REPORT NO. : PD-59-91 PAGE 3
tenure and affordability of housing and urban design
guidelines
2 .2 The proposed Regional Plan contains an introductory section
outlining the six overall goals of the Plan:
to manage growth in an orderly fashion
to preserve and enhance the natural environment
to develop the Region to its fullest potential
to establish a wide range of housing opportunities
to create an improved urban environment
to provide for a variety of cultural, health and
community services
The above goals are to be achieved through the following ten
directions :
distinct urban areas
efficient utilization of land
protecting the natural environment
development without adverse cumulative effects
balancing population growth with growth in employment
increased mixture of housing
people-oriented urban areas
protecting agricultural lands
stewardship of land
improving transportation linkages
fiscally responsible manner of development
2 . 3 The proposed Regional Plan continues to be a "structure
plan" in that it is not related to any particular time
horizon. The Plan proposes to designate substantial new
areas for urbanization. The Plan, in reference to the
Region's population forecast, designates enough land at
increasing densities to accommodate population growth for
the long term.
I
The Regional Plan would include approximately 16,500 acres
of additional lands for urban development, the portion
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REPORT NO. : PD-59-91 PAGE 4
located in Newcastle as follows:
Urban Expansion Areas (in acres)
Living Employment
Areas Areas Total
Newcastle 3,200 1,700 4,900
All Lakeshore
Municipalities 10,200 6,300 16,500
It is a major objective of the Regional Plan to encourage
growth in the eastern flank of the Region, thus leading to
the designation of these lands .
2 .4 The staff recommended Regional Plan generally maintains the
structure presented previously. The Whitby-Oshawa-Courtice
Urban Area is to be "the focal point of the Region" ,
containing more than half of the total population (555,000) .
The Pickering/Ajax urban area is the western anchor of the
Region with a target population of 300,000 persons (31%) .
Bowmanville/Newcastle Village is the eastern anchor of the
Region with a target population of 122,000 ( 12%) . Growth in
the northern municipalities is limited by servicing
constraints .
Across the southern tier municipalities, the Regional Plan
would increase the population target by 16% more than the
Draft Plan proposed a year ago. The changes in the
population figures are as follows:
REPORT NO. : PD-59-91 PAGE 5
Urban Population Targets
Existing Draft Recommended
Official Plan 90-1 91-P-1
Pickering 190,500 190,000 180,000
Ajax 115,800 115,000 120,000
Subtotal . . 306,300 305,000 300,000
Whitby 120,000 165,000 160,000
Oshawa 241,200 260,000 340,000
Courtice 20,000 30,000 55,000
Subtotal. . 361,200 455,000 555,000
Bowmanville 42,500 65,000 95,000
Newcastle Vlg. 8,500 15,000 27,000
Subtotal. . 51,000 80,000 122,000
Total: 718,500 840,000 977,000
2 .5 It is significant to note that the Regional Plan links
Bowmanville and Newcastle Village via Wilmot Creek
development as a larger urban area. This appears to be an
attempt by the REgion to merge Newcastle Village and
Bowmanville as one urban area in the future.
2 .6 The recommended Regional Plan increases the target
population of the Whitby-Oshawa-Courtice complex by 100,000
over the draft Regional Plan. It totals 555,000 of which
Courtice would comprise 10% (55,000) . It is also noted that
there are significant special study areas for consideration
of future expansion as follows:
North of Brooklin in Whitby
East of Columbus in Oshawa
North of Courtice in Newcastle
East of Courtice in Newcastle
REPORT NO. : PD-59-91 PAGE 6
3. GENERAL COhMNTS
3.1 Level of Detail
As noted earlier, the Regional Plan has been streamlined
into a broader policy document. The more generalized nature
of the Regional Plan is supported. It prepares the way for
the introduction of two-tier planning. In general, it will
require the Town to move expeditiously to review its
Official Plan to ensure that the necessary level of detail
can be incorporated to "flush out" the broad principles.
Until that is done, the broad principles and policies could
be subject to a wide variation of interpretation.
3.2 Regional Structure
3 .2 . 1 The Regional Plan proposes to counter the problem of urban
sprawl, environmental degradation and the loss of
agricultural land by compact urban form and significant
increases in density over current development practices .
The Regional Plan designates enough lands to accommodate
over 1 million persons in Durham Region. It is noted that
the Region's population forecast projects only 870,000
persons in the next 30 years. The long term planning for
urbanization in Durham is helpful for anticipating the
servicing requirements .
3 .2 .2 The Town concurs with the broad Regional structure proposed
by the Regional Plan, specifically:
development of Whitby-Oshawa-Courtice as the central
focus of the Region;
development of Bowmanville and Newcastle Village as the
eastern anchor of the Region;
development of Bowmanville as the major urban centre in
the Town of Newcastle; and
protection of substantial greenland areas as urban
separators between Ajax and Whitby and between Courtice
and Bowmanville.
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REPORT NO. : PD-59-91 PAGE 7
4. SPECIFIC COMMENTS
4.1 Living Areas
4 . 1. 1 The recommended Regional Plan not only incorporates the
residential expansion areas for Courtice, Bowmanville and
Newcastle Village as requested by Town Council, it actually
added more lands and allocated more population to the Town.
The Town has no difficulty with this additional population
being allocated.
Council Recommended
Position Plan
Bowmanville 75,000 95,000
Courtice 40,000 55,000
Newcastle Village 15,000 27,000
4 . 1. 2 The inclusion of the Wilmot Creek Retirement Community
within the urban areas of Bowmanville and Newcastle Village
is a logical progression which will enable
the future planning, development and redevelopment to be
considered properly in an integrated urban context.
4 . 1. 3 The recommended Regional Plan does not incorporate Council's
request to recognize Orono as a Small Urban Area. Policy
13 . 3. 11 recognizes Orono as the largest hamlet in the Region
and states that Regional Council shall undertake a study
regarding the feasibility of expanding the hamlet and
extending water services . Staff feel strongly that this
policy is a total disregard of the Town's previous request
the have Orono designated as a small urban area. The
current Official Plan talks of studying Orono for the last
14 years and the proposed Official Plan has done little to
improve the status of Orono. All the valid reasons for
designating Orono as a small urban area were
previously advanced to the Region. Should the Region
decline the Town's request again,
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REPORT NO. : PD-59-91 PAGE 8
it should at least give a specific commitment in the Plan
with regard to the provision of sanitary sewer and water
supply services to Orono.
4.2 Central Areas
4 .2 . 1 Four levels of Central Areas are identified, however, only
Main Central Areas and Sub-Central Areas are conceptually
designated on the schedules . Community Central Areas and
Local Central Areas are to be identified in local Official
Plans . The maximum retail and personal service floorspace
for Community Central Areas is 20,000 sq.m. (215,300 sq. ft. )
and for Local Central Areas is 10,000 sq.m. ( 107 ,600
sq. ft. ) . The Regional Plan specifically identifies
floorspace limits for Main Central Areas and Sub-Central
Areas .
4 .2 . 2 A comparison of the retail and personal floorspace
allocations for Central Areas in Newcastle is shown below:
Draft Plan Recommended Plan
(Sq.M. ) (Sq.M. )
Courtice MCA/SCA 28,000 40,000
Courtice/Townline - 20,000*
Bowmanville MCA 60,000 200,000
Bowmanville CCA 20,000 -
Newcastle V1g.MCA 20,000 40,000
Total. . 128,000 300,000
( 1,378,000 sq. ft. ) (3,230,000 sq. ft. )
* Courtice West Highway #2 Corridor Area - part of total
Sub-Central Area of 40, 000 sq.m. shared with Oshawa
4 .2 . 3 The recommended Regional Plan establishes four "regional"
level Central Areas with the principal centre being centred
on Downtown Oshawa. The four centres are as follows :
REPORT NO. PD-59-91 PAGE 9
Oshawa (Downtown) 600,000 sq.m.
Pickering 300,000 sq.m.
Oshawa (Simcoe/Winchester Rd. ) 200,000 sq.m.
Bowmanville 200,000 sq.m.
The principle of recognition of Bowmanville as a regional
level Central Area reinforces the proposed regional
structure and is supported. However, Town Council
requested an allocation of 3 million square feet (278,700
sq.m. ) of floorspace in its consideration of the Draft
Regional Plan on November 12 , 1990 must be reiterated.
4 .2 .4 The Central Area in Courtice at Trulls Road/Highway #2 has
been reclassified as a Sub-Central Area. This is contrary
to Town Council 's position. We feel the area should be
designated as a Main Central Area, as originally proposed in
the Draft Changes . The Main Central Area designation will
enhance its role as the focal point of the Courtice Major
Urban Area as it grows beyond the current
planning period. In addition, a further 10,000 sq.m. of
retail space should be allocated to this Central Area.
4 .2 .5 The Town supports the designation of a Sub-Central Area at
Highway #2 and Townline Road. This would permit the types
of uses envisaged in the Highway #2 Corridor Study for the
Courtice West Neighbourhood.
4 .2 . 6 The Town of Newcastle is better served than the previous
allocation of commercial floorspace (8 . 9 sq. feet per
capita) . Comparison of the Town's per capita allocation is
shown below:
Newcastle 16 .2
Ajax 17 .9
Whitby 20 .2
Pickering 23 . 9
(For the purpose of the above, the Town's rural population
was included) . ;_}
REPORT NO. : PD-59-91 PAGE 10
4 .2 . 7 It is a concern that Policy 9 . 3 .5 requires that prior to
passing any Zoning By-law for development in a Central Area,
a retail impact analysis must be submitted to justify the
additional retail and/or personal service floorspace. This
policy is ambiguous and appears to indicate that every
expansion to a commercial use requires a retail impact
study. It is suggested that it be clarified as follows:
i) retail impact studies are required only for development
proposals greater than 1,400 sq.m. ;
ii) Retail impact studies should be independent and
undertaken by the municipality at the developer's
expense.
4.3 Employment Areas
4 . 3 . 1 The recommended plan has accommodated the request by the
Town for additional employment area lands (approximately
1700 acres) . This was premised on the work by C.N. Watson
and Associates in the study entitled "Assessment of the
Unmet Requirement for Industrial Land in the Newcastle Study
Area" . The need was ultimately quantified on the basis of
providing a sound economic base for the residents
anticipated to live in the Town.
Consequently, the Town supports the designation of new
Employment Areas as contained in Commissioner's Report 91-
P-1 .
4.4 Rural Settlements
4 .4 . 1 The Town reiterates its previous concurrence with the
Regional Plan's position of establishing hamlets as the
predominant location for rural settlement. Estate
residential developments are also recognized as a component
of rural residential development, and the criteria to be
addressed in the evaluation of such applications has been
strengthened.
REPORT NO. : PD-59-91 PAGE 11
4 .4 .2 A new policy is introduced to require preparation of a
Hamlet Settlement Capacity Study prior to land uses and
hamlet boundaries being delineated in the local Official
Plan. This study, which would be undertaken by the local
municipality, would investigate hydrogeological and soil
conditions in the hamlet, and the impact of new growth on
existing development. Although the Town does not disagree
with the need to undertake such a study, it is recommended
that the requirements of the study should not be so onerous
as to unnecessarily hinder hamlet development. As well, the
Town is concerned with the financial burden these studies
place on the municipality ($15-$30,000 per hamlet) . For
Newcastle, with 14 hamlets, this represents very significant
cost. It is therefore the Town's submission that settlement
capacity studies primarily deal with servicing issue and
therefore should be the responsibility of the Region.
4 .4 . 3 The Town supports the Regional Plan policy which indicates
that the Region will investigate the feasibility of
providing municipal water to selected hamlets . However, the
Plan should either specify the hamlets being considered or
provide a framework within which such hamlets would be
identified. Specifically, the policies regarding the known
servicing problems in Hampton and Orono should be retained,
with specific reference to the action to be undertaken to
resolve these problem areas .
4.5 Agricultural Areas
4 . 5 . 1 The Town supports the policies of the Regional Plan which
act to preserve agricultural areas and discourage the
fragmentation of the land base. The Plan would no longer
permit the severance of inter-family lots . As well, the
severance of a surplus dwelling would only be permitted when
abutting farms have been consolidated.
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REPORT NO. : PD-59-91 PAGE 12
4 .5 .2 With respect to retirement lot, the Town Council will
confirm its previous position that retirement lots be
eliminated as a permitted use in the rural area.
4.6 Major Open Space
4 . 6 . 1 The Major Open Space designation consists of three
components:
Waterfront lands
Valleylands and Urban Separator areas
Oak Ridges Moraine
The boundaries of the Oak Ridges Moraine designation have
been adjusted and now incorporate a larger area.
4 . 6 . 2 It is a policy of the Plan not to permit "the intrusion of
expanding urban areas into the major open space system" . It
is assumed that this does not preclude future expansions of
the urban area but is related to the protection of
significant natural features . This policy objective should
be enhanced by a specific list of measures to be considered
including setbacks from creeks, setback from the top of bank
and protection of forest edges and hedgerows .
4 . 6 .3 The Recommended Changes provide for Regional Council to
prepare a study of both the Oak Ridges Moraine and the Lake
Ontario Waterfront, in co-operation with the respective area
municipal Council . The Oak Ridges Moraine Study would
examine the ecological significance of the Moraine,
compatible land uses, and various measures to protect the
Moraine, including the establishment of a Provincial Park.
The Waterfront Study would identify opportunities for
recreational activities and public access, and the
conservation of wetlands .
It is recognized that there is the need for regional or
provincial studies on these significant natural features.
REPORT NO. : PD-59-91 PAGE 13
The policies of the Regional Official Plan should not,
however, preclude an area municipality from proceeding with
its own studies of the Oak Ridges Moraine and the Lake
Ontario waterfront.
4 . 6 .4 The Plan states that aggregate resource extraction
activities will not be permitted to alter the main landscape
features and the ecological functions of the Major Open
Space system.
While the Town concurs with this objective in principle, it
is questioned as to how realistic this is given the nature
of aggregate extraction activities. This policy should be
clarified to indicate how extraction could occur and under
what circumstances while the "main landscape features" and
their "vital ecological functions" are not altered.
As with many planning issues, there is a need to balance
competing objectives for the same resource. The protection
of the Oak Ridges Moraine and the needs of the aggregate
industry will likely be one of the more significant issues
to be faced by the Town over the next twenty-five years.
The Town asks the Region to clarify its position on the
potential conflicting statements between allowing aggregate
resource extraction and the preservation of the Oak Ridges
Moraine.
4.7 AGGREGATE RESOURCE EXTRACTION AREAS
4 . 7 . 1 The Recommended Changes continue to protect lands with a
high potential for mineral aggregate extraction from
incompatible land uses, although a greater emphasis is
placed on achieving a balance between aggregate extraction
and the protection of the natural environment. The
indiscriminate exploitation of aggregate resources is to be
prevented.
REPORT NO. : PD-59-91 PAGE 14
4 . 7 . 2 The Town supports provisions whereby Regional Council shall
protect significant parts of the Regional landscape from
destruction by aggregate resource extraction activities.
4 . 7 . 3 The Town supports the concept of developing overall
rehabilitation programs in addition to site-by-site
rehabilitation programs .
4 . 7 .4 The Recommended Regional Plan outlines criteria to be
considered in the evaluation of applications to establish an
aggregate extraction operation. The criteria include a
hydrogeological impact analysis, and an assessment of
potential negative impacts such as noise, impact on area
residents, and damage to the natural environment.
In addition to the criteria detailed in Section 20. 3. 9, a
market study should be required to address the need for the
additional aggregate resource extraction as part of the
evaluation of new pits or the expansion of existing pits .
In addition, the issue of haulage routes must be addressed
by the proponent to the satisfaction of the area
municipality.
4.8 REGIONAL NODES
4 . 8 . 1 The Regional Plan recognizes the desirability of creating
regional scale nodes of major activities, such as centres of
tourist activity, higher-order services and specialized
recreational facilities in appropriate locations in the
Region. The Plan further suggest such nodes shall intensify
and attract other compatible uses .
4 . 8 .2 Two nodes are identified in Newcastle: Mosport Park and
Kirby Ski Area. The town does not agree that both of these
sites located in the Oak Ridges Moraine, be permitted to
intensify without proper planning justification and studies.
REPORT NO. : PD-59-91 PAGE 15
Section 15 . 3 .2 should be amended to state that only existing
uses would be permitted until such time as an area municipal
official plan reviews these areas in greater detail .
4.9 SPECIAL STUDY AREAS
4 . 9 . 1 Three Special Study Areas are identified in the Town of
Newcastle.
Special Study Area 5 - North of Courtice
Special Study Area 6 - East of Courtice
Special Study Area 7 - West of Newcastle Village
4 . 9 .2 Special Study Area 5 is conceptually shown to cover the
lands adjacent to the City of Oshawa and north of Courtice
from the current urban limit to Concession 6 . Staff
questions the rationale for the inclusion of these lands .
There is already enough land within the urban areas to
accommodate the forecasted population well beyond the thirty
year period. The recognition of a Special Study Area of
this size leads to land speculation, poor stewardship of
land and places the burden of another study on the
municipality. The designation of Special Study Area 5 is
not necessary nor was it previously requested by the Town.
This matter is further elaborated in Section 6 of this
report.
4 . 9 . 3 Special Study Area 6 is twice the size of the Special Study
Area requested by Council on November 12, 1990
(approximately 700 acres) . It extends between Courtice Road
and Hancock Road in Concessions 1 and 2 .
4 .9 .4 Special Study Area 7 is in accordance with Council's
Position of November 12, 1990 .
REPORT NO. : PD-59-91 PAGE 16
4 . 9 .5 The Town is in the midst of a major study of its waterfront
in Bowmanville. The draft Secondary Plan has proposed a
substantial residential area with various commercial and
recreational uses . This is a genuine Special Study Area.
In accordance with Council's submission of November 12,
1990, the Bowmanville Waterfront should be recognized in the
Regional Plan.
4.10 SPECIAL POLICY AREAS
4 . 10. 1 Special Policy Areas recognize areas with unique
characteristics which do not fit into the broader land use
designations . Two areas have been identified in Newcastle.
4.10.2 St. Marys Cement Lands
The Regional Plan proposes to recognize a portion of the St.
Marys Cement land for aggregate extraction and designates
the existing and proposed waterlot as a Special Policy Area.
The Plan recognizes aggregate extraction and ancillary uses,
accessory industrial uses and a commercial docking facility.
The recognition of the St. Marys Cement Co. lands as a
Special Policy Area is appropriate including the existing
dock facilities . Although conceptual, the Map appears to
indicate the waterlot expansion proposed by St. Marys Cement
Company. This application is under review under the terms
of reference for the Newcastle Waterfront Study and any
further designation should await the conclusion of the
Study. Moreover, staff question the validity of a land use
designation on water.
West Side Marsh, currently held under extraction license by
St. Marys Cement, has not been included in the Special
Policy Area. It remains in the 'Waterfront' designation,
with an indication of environmental sensitivity.
REPORT NO. : PD-59-91 PAGE 17
The West Side Marsh is a Class II (Provincially Significant)
wetland as defined by the Wetlands Policy Statement. The
Royal Commission on the Future of the Toronto Waterfront
(the Crombie Commission) has identified the preservation of
the Marsh as a desirable objective. This has been supported
by Town Council before the Crombie Commission. The proposed
designation in the Regional Plan is appropriate.
4. 10.3 Port Granby Nuclear Waste Management Facility
The low level radioactive waste site at Port Granby is also
designated as a Special Policy Area. Regional Council is to
encourage the Atomic Energy Control Board to expedite the
removal of the waste and to render the area safe. The uses
of the land will be determined in the course of preparing a
waterfront plan. The proposed designation and associated
policies are appropriate.
4. 11 Transportation
4 . 11. 1 The Town concurs with policies in the Regional Plan which
support continued expansion of GO Transit service, in
particular the extension of GO Rail service to Bowmanville.
Schedule A5 identifies a GO Rail line along the C.P. Rail to
Bowmanville, with a GO Station site located at Regional Road
57 .
4 . 11.2 The Town welcomes the increased emphasis that the Regional
Plan places on streetscape design along major roads in the
Region. Of particular note is the requirement for Regional
Council to initiate a study, in co-operation with area
municipalities and the Province, to determine an appropriate
regional framework for Highway 2, including such matters as
architectural and sign control, and streetscape
beautification. The Plan would also require Regional
Council to initiate a streetscape improvement program along
Regional Roads . However, the Town suggests that it is not
appropriate for the Regional Plan to address streetscape
REPORT NO. : PD-59-91 PAGE 18
improvement programs without the consultation and co-
operation of area municipalities . These matters are clearly
the responsibility of the area municipality.
4 . 11. 3 Map B of the Regional Plan details the Transportation System
for the Region. Of particular significance to the Town are
the following changes:
St. Marys Cement Marine Terminal is recognized as
a "Harbour Area" ;
the extension of Adelaide Avenue as a Type 'B'
Arterial from Townline Road to Regional Road 34;
the realignment of Bloor Street as a Type 'A'
Arterial to connect with Baseline Road, and
ultimately with Highway 2 west of the
Clarke/Darlington Townline;
the extension of Townline Road as a Type 'B'
Arterial southward into the Courtice Industrial
Park and then eastward to connect with Regional
Road 34;
the redesignation of Nash Road as a Type 'A'
Arterial between Regional Road 34 and Highway
35/115;
the designation of Green Road as a Type 'B'
Arterial between Nash Road and Baseline Road;
the designation of a Type 'B' Arterial (Longworth
Drive) between Green Road and Bennett Road;
the designation of Bennett Road as a Type 'A'
Arterial Road between Highway 401 and Regional
Road 20;
the designation of Bennett Road as a Type 'B'
Arterial between Baseline Road and Nash Road.
One objective of the transportation system is to provide
relief for Highway No. 2 as the "Main Street" of the Town by
designating Nash Road and Bloor/Baseline Road as Type 'A'
L f}
REPORT NO. : PD-59-91 PAGE 19
arterials . This concept is endorsed and addresses a concern
raised by Council in its November 12, 1990 submission.
4 . 11 .4 A number of other revisions to the transportation network
requested by Council do not meet Regional criteria for
Arterial Roads and therefore were not reflected on Map B.
In discussion with Regional staff, it has been determined
that the Town's objectives could be accommodated as Type 'C'
arterial roads contained in the local official plan.
4 . 11 .5 Map B does not designate any new interchanges on Highway 401
in the Town of Newcastle, that differ from the Draft Plan.
The Town requests that the existing interchange at Holt Road
be indicated.
In addition, staff note that an interchange at Lamb's Road
is indicated. The discussion of the interchanges at Bennett
Road and Lambs Road will be deferred for consideration in a
separate report at a future meeting of Committee.
4 . 11.6 As noted in the previous submission, the Town of Newcastle
does not support the delineation of a route for Highway 407
prior to the completion of the route alignment study and
Environment Assessment review process . The Town has
indicated to the Ministry of Transportation its support in
principle for either the South or South-Central alignment.
4 . 11. 7 The Town of Newcastle reiterates its request that the
Newcastle Freeway Link (401 to 407) be conceptually shown on
Map A5 and Map B.
4.12 OTHER MATTERS
4. 12.1 Waste Disposal/Waste Management Sites
The policies regarding waste disposal sites have been
eliminated from the Plan and no sites are identified on the
Plan schedules . (There is, however, the incorporation of
J 3
REPORT NO. : PD-59-91 PAGE 20
the three Metro landfill sites in Pickering under Schedule 8
"Exceptions incorporated into the 1976 Official Plan) . As
such, all landfill sites must proceed by site specific
amendment to the Plan.
The term 'utilities ' should be defined and should include
waste management sites . Policies should be included which
outline the criteria to be addressed in the review of
applications for the establishment of any expansions to
waste disposal sites. Criteria should include an assessment
of hydrogeological conditions, noise and dust impacts, haul
routes and the impact on the road network, the impact on
area residents, the economic impact of the proposal, and
other matters deemed appropriate by Regional or area
Municipal Council.
4.12.2 Environment
The recommended policies incorporate values which place a
greater emphasis on the protection of the natural
environment. The Region's natural environment and its
features, such as the Oak Ridges Moraine and the waterfront
are to be given paramount consideration in light of their
ecological functions and scientific and educational values.
While the thrust of the environmental policies is very much
supported, we are concerned that it provides few measurable
objectives and is reactionary in nature. With regard to the
latter, the policies address the "assessment of cumulative
impacts on the environment" and "the need for mitigating
measures" in the consideration of development applications .
In this sense, the environment is still viewed only as a
"constraint" on development. There is, however, no mention
of developing a Regional greenlands strategy for the
identification and long term preservation of environmentally
significant features .
REPORT NO. : PD-59-91 PAGE 21
4.12.3 Studies to be Undertaken by the Region
The Regional Plan identifies a number of studies to be
undertaken by the Region (eg. Waterfront Study, Special
Study Area Studies, etc . ) . There should be a general clause
under the Interpretation Section which clearly enables the
area municipality, in the absence of a Regional initiative,
to undertake such studies as required.
5. SPECIFIC COMMENTS ON MAPS
5 . 1 The Maps have been reviewed and specific comments are
provided in this section. Attachment Numbers 1, 2 and 3
compare the changes to Map A5 requested by Council at its
November 12, 1990 meeting and those changes made by the
proposed Region Plan.
5 .2 summarized below are those areas of changes requested by the
Town Council that were not reflected in the proposed
Regional Plan.
Map A
a) Delete Special Study Area 5 .
b) Change Sub-Central Area at Highway #2/Trulls Road to
Main Central Area.
c) Retain existing residential designated lands in North
Courtice.
d) Add Special Study Area on the Bowmanville Waterfront.
e) Reduce size of Special Policy Area 'D' in relation to
proposed expansion of St. Marys Cement Company marine
terminal.
f) Adjust urban area boundary for the west side of
Bowmanville south of the C.P.R. tracks to correspond to
the Living Area (generally east of Green Road) .
g) Recognize Orono as a Small Urban Area.
6
REPORT NO. : PD-59-91 PAGE 22
Map B
a) Recognize Holt Road Interchange
b) Recognize only conceptual alignments for Highway 407
through Newcastle
c) Include a conceptual alignment for the Newcastle
Freeway Link (401 to 407)
5 . 3 The Town hereby, once again, request the Region to
incorporate the above changes to the maps .
6. NORTH COURTICE
6 . 1 At its meeting of February 25, 1991, Council approved the
following resolution:
"THAT the matter of inclusion of Lots 30, 31 and Part
of Lot 32, Concession 3, located north of the Courtice
Urban Area as Residential or as a Special Study Area in
the Regional Official Plan be referred to staff for the
preparation of a report to be considered by the General
Purpose and Administration committee in March 1991" .
6 .2 For Council 's information, there have been many submissions
to extend the Courtice Urban Area to the north and north-
east. The submissions are listed in Attachment #4 to this
report.
6 . 3 The most fundamental issue with the designation of
additional residential lands as requested by certain
landowners is the question of the need for more
residential lands . The Regional Plan as currently proposed
designate sufficient residential lands to accommodate
200,000 persons . At the same time, the Regional population
forecast projects a year 2021 population of only 142,000.
This provides a surplus capacity of 58,000 persons to be
accommodated beyond 30 years .
� ,
REPORT NO. : PD-59-91 PAGE 23
On this basis alone, there is no need to designate any
additional lands for residential development at this time.
This matter can always be reconsidered during the next
review of the Durham Regional Official Plan.
6 .4 The environmental sensitivity of the lands north of Courtice
has been well-documented. The particular area in question,
Lots 30-32, contains portions of the Farewell Creek Valley
System and the Courtice Woods . This is part of an important
ecosystem which includes an "extensive and diverse forest
set on a zone of high water table" . Containing significant
forest wildlife and terrain components, the area is
classified as highly sensitive. The highly sensitive areas
are shown on the Regional Plan Maps of the submissions
(Attachment #4) . The Town should reiterate its previous
position not to allow urban expansion in this area and to
continue to support the objective of the proposed Regional
Plan in the protection of environmentally sensitive area.
6 .5 The legal counsel for Tonno Construction Ltd. has raised the
specific question of the OHAP Agreements as they apply to 53
acres of land located in Lot 32, Concession 3, formerly
under the ownership of Duffins Creek Estates Limited and
Goldfan Holdings Ltd. The argument raised is that since the
Region and the Town benefited by means of an OHAP Agreement
with the Province for the construction of services in
Courtice, it has either a legal or a moral obligation to
designate these lands "residential" . Staff have no comment
on the legality of this matter except to advise Council that
the issues in front of Council are planning matters, not
legal debates. Moreover, if the property owners have any
problem with the OHAP Agreement, they should address the
issues with the Region.
6 . 6 In summary, the northerly extension to the Courtice Urban
Area is not necessary at the present time on the basis of
REPORT NO. : PD-59-91 PAGE 24
population growth requirements . In addition, the specific
lands in Lots 30 to 32 contain environmentally sensitive
features including a portion of a major forest system should
be preserved. This position is consistent with Council's
recommendations made at its meeting of November 12, 1990.
7. CONCLUSION
The recommended Durham Regional Official Plan as contained
in Commissioner's Report 91-P-1, have incorporated most of
the changes recommended by Town Council previously. The
comments contained in this report could be substantially
shorter in length if not for the many changes made to this
latest release. The comments contained herein are either
reiteration of previous Council 's policies or comments on
new policies or new map changes . Staff respectfully
recommend Council to endorse the content of this report as
representing the Town of Newcastle comment on the proposed
Regional Official Plan.
Respectfully submitted, Recommended for presentation
to the Committee
Franklin Wu, M.C. I .P. Law±ence Kotseff
Director of Planning Chief A 'nistrative
and Development Officer
JAS*DC*FW*df
*Attach
14 March 1991
ATTACHMENT lA
CHANGES TO MAP A5-COURTICE MAJOR URBAN AREA
Council Request Recommended Plan
Retention of Living Area Major Open Space designation
designation in Courtice North in Courtice North
Designation of new Living As requested
Area and Employment Area south
of the existing Urban Area
Designation of Special Study Designated as Special Study
Area between Courtice Road Area 6; Special Study Area
and Hancock Road south of extended north to Black Creek
Bloor Street
Designation of triangular Included in Special Study
parcel between Highway 2 Area 6
and Black Creek as Living
Living Area
Designation of small parcel As requested
of land at north-east corner
of Courtice Industrial Park
as Employment Area
Retention of Special Study Designated as Employment Area
Area 11
Designation of a Main Central Designated as a Sub-Central
Area at Trulls Road and Area
Highway 2
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ATTACHMENT 2A
CHANGES TO MAP A5 - BOWMANVILLE MAJOR URBAN AREA
Council's Request Recommended Plan
Designation of Living Area Designated as Living Area
L6 and Major Open Space
Designation of lands west of As requested
Bowmanville Creek to Lot 17
as Living Area
Designation of a small strip As requested but Urban Area
of land west of urban area, boundary fixed at Lot 17
south of CPR to Green Road as
Living Area
Designation of lands east of As requested
Soper Creek north of Highway
2 as Living Area
Designation of new Employment As requested
Area adjacent to East
Bowmanville Industrial Park
Designation of Special Study Designated as Waterfront
Area on Bowmanville Waterfront Major Open Space
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ATTACHMENT 3A
CHANGES TO MAP 5 - NEWCASTLE VILLAGE & ORONO
Council's Request Recommended Plan
Designation of Living Area L9 As requested
north of the Urban Area
Designation of lands west of As requested
the Urban Area to Wilmot Creek
as Living Area
Retention of Special Study Designated as Special
Area 13 Study Area 7
Designation of Orono as Remains designated as
Small Urban Area, with a Hamlet; no Employment
Employment Area east of Area designated
Highway 35/115
I
I
."
Attachment No. 313
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MAIN CENTRAL AREA -"
RECOMMENDED EXPANSION AREAS FOR NEWCASTLE VILLAGE & ORONO
NEWCASTLE TOWN COUNCIL: NOVEMBER 12 1990
I li
ATTACHMENT #4
SUBMISSIONS RECEIVED FOR THE
DESIGNATION OF ADDITIONAL LANDS
IN NORTH COURTICE
SUB NAME DESCRIPTION OF SUBMISSION
139 Robert A. Writing on behalf of Walter and
Martindale (The Mimi Kranzl, owners of a 25-acre
Greer Galloway parcel on the east side of Trulls
Group) Road, south of Pebblestone Road.
Requesting that the property be
included in the Courtice Urban
Area.
142 Mark A. Foley Requesting that their 54 .2 acre
(Kingsberry property at the southeast corner
Properties) of Pebblestone Road and Trulls
Road on part Lot 30, Concession
3, former Darlington Township, be
included within the Courtice Urban Area.
165 Walter and Mimi Requesting that their 25.2 acre
Kranzl property in part Lot 30, Concession
3, former Darlington Township, be
incorporated into Courtice Urban Area.
175 Walter Borysiak Requesting that his property in part
Lot 29, Concession 3, former Darlington
Township, be included in Courtice Urban
Area and designated Living Area.
176 Peter Nowosad Requesting his property located in
Lot 29, Concession 3, former
Darlington Township be included
within the Courtice Urban Area.
186 Ivan Kachnij Requesting his property in Lot 29,
Concession 3, former Township of
Darlington, be included in Courtice
Urban Area.
190 John Kennedy Requesting on behalf of the Foley
(Marshall, Group and Mr. W. Kranzl that the
Macklin, Courtice Urban Area be expanded to
Monaghan) include lands bounded by Tooley's
Road, Courtice Road and Pebblestone
Road.
� 6
PAGE 2
204 Z .T. Salmers Writing on behalf of joint-owners
(Salmers, Strike of property in Lot 24, Concession
& Furlong) 3, former Darlington Township,
requesting that their lands be
included as part of the review and
given consideration to be within the
urban area.
290 Myron Lytwyn Requesting that their property,
located on the south side of
Pebblestone Road in Lot 29,
Concession 3, former Darlington
Township, be included within the
Courtice Urban Area.
301 Ksenia Telegin Writing to ask that property on
Lot 29, Concession 3, be included
with the land that is being proposed
for inclusion in the Courtice Urban
Area.
330 Ronald F. Worboy Requesting on behalf of Mr. and Mrs.
(Worboy, MacLean) Erhard Witske that their property
located on part Lot 31, Concession
3, former Darlington Township, be
designated as Living Area as an
extension to existing and proposed
residential developments .
337 Z .T. Salmers Requesting on behalf of owners of
(Salmers, Strike property in part of Lot 24,
& Furlong) Concession 3, former Township of
Darlington, estate residential
development. The property is third
rate agricultural and, if services
are available, lands could be developed
as urban residential.
396 Shan Jain Requesting on behalf of 770340
Ontario Limited and Akal Properties
Ltd. , owners of a 145 . 3 acre property
on part Lots 33 and 34, Concession 3,
a Living Area designation as part of
the Courtice Urban Area. Lands are
ready to be developed and should be
included in urban boundary. Reasons
are: lands abut existing boundary,
are flat and can be serviced, not
environmentally sensitive, have concept
for mix of housing types .
PAGE 3
397 Shan Jain Requesting on behalf of Ray Abbott
and Eyman Estates, owners of 103
acres, part Lot 26, Concession 3,
inclusion as Living Area within the
Courtice Urban Area. Lands are
ready to be developed. Reasons are:
lands abut existing urban area, are
not environmentally sensitive, are
flat and can be serviced, concept for
mix of housing types .
398 Steve Devecseri Requesting in a petition signed by
numerous individuals that part Lots 29,
30,31 and 32, Concession 3, be included
in Living Area designation as part of
Courtice Urban Area.
1 y
`- 'PESBLESTONE, (RD.' ,,*-
} 290
46
176
..
A 75
1 2 V +� -
. �. 301
of C.z L r�
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OSHAWA I�
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34
NEWCAST E Submissions:
I - LOCATION
E 14 Courtice urban Area
(North Part)
J KEY MAP
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16 �' 9 Submissions:
4
NEWCAST E
LOCATION Courtice Urban Area
14 4
2 (North Part)
401 KEY MAP
t�