HomeMy WebLinkAboutPD-13-92 THE CORPORATION OF THE TOWN OF NEWCASTLE
DN: OFF-PLN2 .GPA REPORT
Meeting: General Purpose and Administration Committee File # ; ' '`' },
Date; Monday, January 6, 1992 Res.
#Report#: 93 PD 13 File#: P-1n�32 By-Law
Subject: REVIEW OF THE TOWN OF NEWCASTLE OFFICIAL PLAN
Recommendations:
It is respectfully recommended that the General Purpose and
Administration Committee recommend to Council the following:
1. THAT Report PD-13-92 be received;
2 . THAT the Planning and Development Department be instructed to
undertake a comprehensive review of the land use policies
contained in Town of Newcastle Official Plan and that this task
be the top priority of the Planning Department;
3 . THAT applications for residential development in the urban
expansions areas added by Regional Council in its new Durham
Regional Official Plan on June 5, 1991 not be processed for the
period of the Official Plan Review;
4 . THAT the approach in handling other development applications
during the Official Plan preparation process as discussed in Item
6. 1 of Report PD-13-92 be APPROVED;
5. THAT the logo shown in Attachment 3 be utilized in all Official
Plan Review documents and that the slogan "Reflections of our
past; Visions of our Future" be utilized in Public Participation
efforts;
6. THAT a copy of this report be sent to the Region of Durham, the
Ministry of Municipal Affairs and the interested parties listed
in this report.
1. LEGISLATIVE REQUIREMENT FOR A REVIEW OF THE OFFICIAL PLAN
1. 1 Section 26 of the Planning Act, 1983 requires the Council of
every municipality that has adopted and approved an official
plan to hold a special meeting of Council, open to the
public, at least once every 5 years for the purposes of
determining the need for a revision of the official plan.
Such a Public Meeting was held by Town Council on September
16, 1991.
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REPORT NO. : PD-13-92 PAGE 2
1. 2 The Town of Newcastle Official Plan was approved by the
Minister of Municipal Affairs in part on July 4 , 1986 and
November 11, 1987 as Amendment No. 22 to the Official Plan
of the former Township of Darlington.
The Plan is primarily an amalgamation of Urban Area Plans
prepared several years before, as noted below:
Section 6 (Policies for the Courtice Major Urban Area)
Town Council Approval Sept. 10, 1979
Ministry of Housing Approval June 6, 1980
Section 7 (Policies for the Bowmanville Major Urban Area)
Town Council Approval July 13 , 1981
Ministry of Municipal Affairs Approval April 7, 1983
Section 8 (Policies for the Newcastle Village Small Urban
Area)
Town Council Approval March 29, 1982
Ministry of Municipal Affairs Approval April 13 , 1983
Section 9 (Policies regarding Hamlets) although new, was
premised on existing Hamlet Development Plans for six (6) of
the fourteen (14) hamlets: The actual schedules for land
use designations were essentially the same.
The Town of Newcastle Official Plan does not include any
policies or designations for the rural areas. It was
considered at the time that the Durham Regional Official
Plan was sufficiently detailed to address the concerns of
the rural areas.
2 . RATIONALE FOR A COMPREHENSIVE REVIEW OF THE TOWN'S OFFICIAL
PLAN
2 . 1 For the above referenced Public Meeting, the Planning Act
requires that sufficient background information be provided
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REPORT NO. : PD-13-92 PAGE 3
to give Council and the public a reasonable idea of whether
or not revisions to the Official Plan are necessary, and how
extensive a review should be undertaken.
2 . 2 For this purpose, Staff prepared an Introductory Discussion
Paper which provides an analysis of the need to review the
Town of Newcastle Official Plan. The Discussion Paper
presents several compelling reasons why the Town of
Newcastle should undertake a comprehensive review of its
Official Plan. In summary these are as follows: changes in
the policy context, increase in growth pressures, and
changes in societal needs and values. Copy of the
Discussion Paper has been provided to Members of Council
previously.
2 . 3 Changes in Policy Context
2 . 3 . 1 The. Town of Newcastle Official Plan must be brought into
conformity with the new Durham Regional Official Plan, as
approved by Regional Council on June 5, 1991. The new
Regional Plan, largely reflecting the position of Town
Council designates a substantial amount of new land in the
Town for residential and employment uses, as well as
increasing the amount of commercial floorspace allocated to
the Central Areas in the Town.
The new Regional Official Plan contains less detail and
provides more of a conceptual framework for the Regional
structure than the previous Plan. Area municipalities must
provide the necessary land use and policy details within
their own Official Plans to manage and control growth and
development. In particular, the Towns Official Plan should
provide policies and designations for the rural areas of the
municipality.
2 . 3 . 2 In recent years, the Provincial Government has released a
number of draft and approved Policy Statements pursuant to
Section 3 of the Planning Act, including statements
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REPORT NO. : PD-13-92 PAGE 4
regarding Land Use Planning for Housing, Wetlands and
Mineral Aggregates. The Town's Official Plan is required to
be reviewed to determine how the provisions of the
Provincial Policy Statements may be incorporated into the
Plan. In addition, the Provincial Government has also
declared provincial interest on land use planning issues
relating to the Lake Ontario waterfront and the Oak Ridges
Moraine. These issues must be addressed in the local
Official Plan.
2 . 4 Increase in Growth Pressures
Within the past five years, the Town has become the focus of
much of the growth of the Toronto-centred region, forcing
the municipality to deal with pressures not previously
experienced. This includes recent changes to infrastructure
initiated by the Provincial government, such as the
selection of a technically preferred route for Highway 407 .
The Town's Official Plan should be reviewed to enable the
Town to respond appropriately to these demands and growth
pressures.
2 .5 Changes in Societal Needs and Values
Significant shifts have occurred over the past decade in
societal values and needs, including a greater awareness of
environmental concerns, shopping and retail practices, and
an increased demand for smaller housing units. The Town's
Official Plan should be responsive to the needs and values
of the community, and therefore should be updated to reflect
these changing values and needs.
3. PUBLIC MEETING OF SEPTEMBER 16 1991
3 . 1 The Planning Act requires that notice of the meeting is to
be published in local newspapers at least once a week in two
separate weeks, such publication to be completed not later
than 30 days before the date of the meeting.
REPORT NO. : PD-13-92 PAGE 5
In this regard, notice of the September 16, 1991 Council
meeting was published in local newspapers as follows:
in the Oshawa Times, the Bowmanville Statesman, and the
Orono Weekly Times on August 7, 1991 and August 14,
1991;
in the Newcastle Independent on August 14, 1991
Notice of the Council meeting was also mailed on August 8,
1991 to a total of nineteen community and ratepayer
associations in the Town. These groups are indicated in the
list of interested parties at the end of this report.
3 . 2 At the meeting on September 16, 1991, nine submissions were
made to Council:
Elva Reed for S.A.G.A.
Kevin Tunney for Stolp Homes (Newcastle) Inc.
Kevin Tunney for Northbrook Developers Group
Ruth Hinckley for Wilmot Creek Homeowners Association
Ralph Bouwmeester for Fairo Development Management
Corp.
Mario Veltri for Veltri & Son Corp.
Bill Manson for Willian Tonno Construction Ltd.
Al Strike
Scott Kapuskinski for Credit Point Developments and
Anglo York Industries Ltd.
3 . 3 At the meeting, Council expressed a number of concerns and
adopted the following resolution:
"THAT Report PD-210-91 be received and referred back to the
Planning and Development Department for the preparation of a
subsequent report addressing the following issues:
Fiscal Plan
Industrial/Commercial balance
Transportation
Financing of major studies, ie. Headwater Areas Oak
Ridges Moraine
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REPORT NO. : PD-13-92 PAGE 6
Crombie Report/Kantor Report
Comments received from all delegations
Legal ramifications
Comparison of in-house staff versus consultant
preparing the work
Possibility of assistance from the development industry
for this project; and
THAT all those individuals appearing as delegations on this
matter be advised of Council 's decision. "
This report will address these concerns as well as providing
Council with the overview of the issues and the work program as
proposed.
4 . MATTERS REFERRED TO STAFF BY COUNCIL
4 . 1 Council requested that staff examine nine issues and report
back on these matters. These are addressed in the following
sections.
4 . 2 Fiscal Plan and Industrial/Commercial Balance
It is staff ' s understanding that Council wanted greater
consideration of the Town' s economic development prospects
and the possible means of ensuring more balanced growth.
The Official Plan Review process is largely to develop a
long range vision for future land uses in the Town. , The
Official Plan Review has included the "Management of Growth"
as an important issue. This would include the balance
between residential and commercial/industrial growth. It
has also identified "Sustainable Development" as a theme
area, which again explores the relationship between the
economic growth and sustainability of the natural eco-
systems which support our economy. In this regard, it was
staff ' s intent to ensure that the above-referenced issues
were considered in the review. This would include an
examination of the Town' s economic base and consideration of
an economic development strategy.
REPORT NO. : PD-13-92 PAGE 7
With regard to a Fiscal Plan for the municipality, this is,
in essence, the purpose of the annual budget process. To
prepare a longer term plan, this would require comprehensive
examination of the Town's fiscal position and the proposed
course of action under a variety of future assumptions,
including inflation, interest rates, assessment growth, etc.
Moreover, the fundamental elements are essentially
"political" decisions (eg. what level of tax increase is
acceptable, will any costs be debentured, etc. ) . Over the
long term, it would be very speculative to try to define a
Fiscal Plan with the context of the Official Plan review
exercise.
Staff would recommend, however, that as part of the planning
exercise for the Official Plan Review, the impact of growth
under a variety of future growth scenarios, be examined.
This impact assessment would be more generalized than what
may be considered a "Fiscal Plan" .
Moreover, at the end of the Official Plan Review exercise
and prior to the five year review of development charges, it
would be appropriate to update and revise the Development
Charges Study on the basis of capital requirements needed to
implement the new Plan.
In light of Council's intention to ensure that the economic
development matters receive a higher profile; be dealt with
expeditiously; and integrate land use planning with a
broader economic development strategy (such as marketing,
staffing, budgeting, etc. ) , staff is recommending that a
separate Economic Development Strategy Study be undertaken
by the Town.
The proposed Economic Development Strategy Study of the
subject of a separate report. (PD-14-92)
REPORT NO. : PD-13-92 PAGE 8
4 . 3 Crombie Report/Kanter Report
The Royal Commission on the Future of the Greater Toronto
Waterfront, headed by the Hon. David Crombie, completed its
work at the end of 1991 with the final report to be issued
in January 1992 . The Greater Toronto Area Greenlands
Strategy report entitled "Space for All" prepared by former
M.P.P. Ron Kanter is currently under review by the
provincial government and has led to several initiatives in
the Oak Ridges Moraine. Both of these items were referenced
in the "Introductory Discussion Paper" (pages 8,9) as one of
the reasons to undertake a comprehensive review of the
Town's Official Plan at this time.
4 .4 Comments Received from Delegations
Staff reviewed the comments received from delegations. Of
the nine delegations, two represented citizen groups and
supported the general need for the Official Plan Review.
One delegate appeared as a citizen concerned about the
balance of residential versus commercial/industrial growth.
Six delegations were made on behalf of development
interests opposed to staff's recommendation dealing with the
processing of development applications in the extended urban
boundary areas added by the new Durham Regional Official
Plan.
Staff have reviewed the submissions and comments on each are
contained in Attachment #1.
4.5 Legal Ramifications
In accordance with Council's direction, the Town's solicitor
was asked for a legal opinion on the proposed approach to
the handling of development applications. Two matters were
highlighted as a result of discussions:
REPORT NO. : PD-13-92 PAGE 9
i) The issue of growth management has become increasingly
important in light of the Development Charges Act.
Accordingly, the ability of the municipality to finance
growth should be carefully considered in the context of
preparing the Official Plan
ii) With regard to the proposed approach in handling
development applications, it was noted that it is
within Council's direction to determine whether the
Town Official Plan should be reviewed; how staff
resources should be allocated and whether consultants
should or should not be retained. However this does
not prejudice the right of any person to appeal to the
Ontario Municipal Board with respect to a particular
development application the priority system for
processing development applications. The Board's
consideration of the matter would depend not only on
general considerations relative to the Official Plan
review but on the site specific circumstances of the
application.
4 . 6 Comparison of in-house versus consultant costs
It is understood that Council's intention was to examine the
feasibility of streamlining the timeframe of the study by
utilizing consultants for the work. While it is very
difficult to estimate this cost without a precise terms of
reference (eg. work to be' done, number of public meetings,
number of meetings with staff and Council, etc. ) , staff
would estimate the cost to be in the order of between $ 3/4
to $ 1 million. By way of comparison, the Town's Waterfront
Study has a budget of $213 , 000 and the Bowmanville Main
Central area Study has a budget of $ 196, 000.
While cost is certainly one factor, there are several other
important considerations. Utilizing Town staff to co-
ordinate and do much of the work will ensure that there
REPORT NO. : PD-13-92 PAGE 10
is a continuity when the Plan is completed and must be
implemented. Secondly, consultants still absorb a lot of
staff time in terms of gathering and providing background
information, interpreting documents and policies, arranging
and attending meetings, etc. Indeed, much of the plan
preparation process is consulting with government agencies,
community groups and Council and so the actual completion of
the project is not so much a technical exercise but a
"process" . As a result, the time savings will be limited
primarily to the technical component of the work.
Staff',s approach to the Official Plan Review is that staff
should co-ordinate and undertake much of the work in the
Official Plan Review consultants should be used for two
purposes only:
i) Where specialized expertise is required which is not
currently available on staff;
Where certain work is required to be completed in a
shorter timeframe than could be undertaken by staff.
The two related studies commissioned to date reflect this.
The Newcastle Waterfront Study is being undertaken with the
use of areas of expertise as coastal engineering and
environmental sciences. The Bowmanville Main Central Area
Study is being undertaken in recognition of the need to make
some fundamental decisions about the Town's commercial
framework in short order to ensure that commercial
investment can proceed and do so in a manner which reflects
the high quality of urban design desired for the various
focal points of the Town.
4 . 7 Financing of Major Studies and Assistance from the
Development Industry
There are three sources for funding planning studies to be
REPORT NO. : PD-13-92 PAGE 11
utilized in the Official Plan Review: Town funds; provincial
grants and contributions from development interests.
In the past, the Town has accepted funds from development
interests for planning studies on an unconditional basis;
that is the study was conducted at arm's length with "no
strings attached" . Funds are required to be deposited
with the Town in advance. These arrangements have been
undertaken where there is a mutually beneficial reason to
expedite the planning process (ie.economic development) .
This has been a voluntary arrangement. It is considered to
be more beneficial than a process in which development
interests prepare their own plan to which Town staff must
subsequently react.
One representative at the Public Meeting indicated that the
development industry would be willing to contribute for the
processing of development applications in the expansion
areas. In regard to Council's resolution of September 16,
1991, staff has not attempted to solicit funding for
planning studies. Moreover, staff would not recommend that
Council entertain this type of financial arrangement for
residential development purposes, at least at this time,
since there is no land supply problem for housing.
Staff has, however, recommended that funding from the
private sector be utilized for studies essential to economic
development, in particular the Main Central Areas and
Employment Areas. In this regard, one development group did
approach staff to indicate that they would fund a study to
prepare a plan for the Courtice Industrial Area.
5. WORK PROGRAM
It is proposed that the preparation of a new Official Plan
for the Town of Newcastle will be guided by the following
themes:
REPORT NO. : PD-13-92 PAGE 12
Management of Growth - The plan preparation process
will address public attitudes related to growth in the
Town, the balance between residential and
commercial/industrial growth and the mechanisms to
ensure orderly and controlled growth in the future.
Sustainable Development - The Official Plan Review
process will need to examine how the Town's economy can
prosper and grow in a manner in which the use of land
and resources can sustain society for the long term.
Quality of Life - Under this theme, the plan
preparation process will address the ways the quality
of life of Newcastle residents can be maintained and
improved.
The Official Plan Review process requires a substantial
commitment on the part of every member of the Planning
Department. A draft Work Program has been prepared, not only
to provide coordination for the efforts of individual Staff
members, but as well to ensure that the work undertaken
reflects the underlying themes of the Review process.
The draft Work Program is presented in Attachment No. 2 .
The work is to be undertaken in five phases, as follows:
Phase 1 Background Research
Phase 2 Issues, Options and Implications
Phase 3 Policy Framework
Phase 4 Draft Official Plan
Phase 5 Recommended Official Plan
The goal is to place a recommended Official Plan before
Council early in 1994.
Meaningful public participation will be an integral
component of each phase of the Official Plan review process.
REPORT NO. : PD-13-92 PAGE 13
Both traditional and more innovative methods will be used to
inform the public of the Review, to solicit their input, and
to stimulate their interest and participation.
6. PROCESSING OF DEVELOPMENT APPLICATIONS
6. 1 The preparation of a new Official Plan can be considered as
the most important task ever undertaken by the Town. It
requires . a concentrated effort of staff and Council in order
to accomplish the task on a timely basis. Since it will be
done internally, the limited staff resources will need to be
reallocated. It is my intention to involve all planning
staff in some aspect of the Official Plan preparation.
For the Strategic Branch, there will be virtually no
opportunity to take on additional tasks other than those
already committed. Even so, existing projects and
responding to and monitoring senior government initiatives
(eg. Waterfront, Oak Ridges Moraine, Highway 407, etc. ) 'will
consume a good portion of staff time. For the Development
Review Branch, planners who normally process and review
development applications will be assigned to devote half of
their time to the Official Plan preparation process.
As a consequence there will be inevitable delay resulting in
longer processing time to review .development applications.
In this regard, it is proposed that development applications
will be dealt with in the following manner:
i) Development Applications in Urban Areas with no
Official Plan Amendment
All development applications (rezoning, site plan,
plans of subdivision, etc. ) not requiring an amendment
to the Town of Newcastle Official Plan will continue to
be processed in the usual manner.
REPORT NO. : PD-13-92 PAGE 14
ii) Development Applications in Urban Areas Requiring an
Official Plan Amendment
Development applications within the existing urban area
boundaries which require an amendment to the Town of
Newcastle Official Plan will continue to be processed.
If the proposed amendment is minor in nature and would
not prejudice the Official Plan Review process, staff
will bring forward a recommendation. If however, the
application is considered to have implications on the
preparation of the new Official Plan and would
prejudice the review, staff will not bring forward a
recommendation.
Development Applications in Urban Expansion Areas
Development applications for areas recently added as
urban expansion area in the new Durham Region Official
Plan will not be processed during the period of the
review. This means that the applications will not be
circulated or reviewed. In all cases, however, the
applications would be considered as input into the
Official Plan preparation process. The rationale for
this approach is discussed in more detail in Paragraph
6. 2 of this Report. Although it may appear that there
will be no processing of any official plan amendment
application for the new urban expansion areas,
effectively these applications will be addressed and
dealt with through the comprehensive review of the Town
Official Plan.
iv) Development Application in Planning Study Areas
Development applications in lands currently subject to
a planning study, being the Bowmanville Waterfront and
the Bowmanville Main Central Area, may be considered
only after completion of the study and will be dealt
with concurrently with the adoption of appropriate
amendments to the existing Town of Newcastle Official
Plan.
REPORT NO. : PD-13-92 PAGE 15
v) Development Application in Rural Areas
Development applications in the rural areas and hamlets
would continue to be processed with the exception of
applications for the expansion of hamlets and
residential proposals in the Oak Ridges Moraine.
vi) Commerical/Industrial Applications
Any application for commercial or industrial uses
within the existing urban limits and the existing
Courtice Industrial Area will receive top priority for
processing. Commercial or industrial applications in
other areas will be considered on the basis of their
merits.
6. 2 Rationale for Not Dealing with Applications Involving
Expansion Area Lands
6.2 . 1 The new Durham Region Official Plan designates approximately
an additional 3500 acres of residential lands and 1700 acres
of employment area lands. Over the past few years a number
of applications have been submitted to amend the Town of
Newcastle Official Plan. Related subdivision and rezoning
applications have also been filed. There are currently 22
applications. It is anticipated that more applications will
be forthcoming.
A number of these proponents have approached staff with
regard to the processing of their applications. several
wish to prepare Neighbourhood Development Plans to
facilitate consideration of their proposal and reiterated
this position at the Public Meeting.
The preparation of the Town's Official Plan is of such
paramount importance that it should be the top priority of
the Department. Aside from the lack of staff resources to
deal with these applications, there are other compelling
reasons that these applications not be processed during the
Official Plan preparation. These are:
REPORT NO. : PD-13-92 PAGE 16
i) It is not possible to evaluate the merits of a
development application in the absence of policies and
designations in the Town of Newcastle Official Plan.
The new Durham Region Official Plan is a broad policy
document providing an urban structure plan for the
Region. Land use categories are broad and will contain
a variety of land uses. For example, within Living
Areas, the local plan can designate Community and Local
Central Areas, Special Purpose Commercial Areas, parks,
schools and other more specific land uses. Each urban
area has a population target but there are no details
regarding neighbourhood population targets, densities,
housing types, collector road systems, etc.
It is staff's opinion that it is not possible to
evaluate the merits of a specific development
application until such time as the new Town of
Newcastle Official Plan has been prepared. There is a
considerable level of detail needed, as would be
provided in the Official Plan, prior to dealing with
individual development applications.
ii) There is no short term or medium term land supply
requirements for new residential land.
As of December 1, 1991, draft approved and registered
lots and blocks in plans of subdivision and approved
rezoning applications for multiple dwellings constitute
over 7200 residential dwellings (a potential population
of over 21, 000 persons) . Sixty percent of this future
growth is located in the Bowmanville Urban Area.
Assuming a strong housing market with a continuation of
similar growth patterns as the recent past, this
represents a seven (7) year supply of housing stock.
REPORT NO. : PD-13-92 PAGE 17
If the recession were to continue and/or these growth
levels were unaffordable to the municipality as a
result of the new Development Charges , this could
represent a ten (10) year supply of residential
dwellings.
A further 5, 000 units within the current urban limits
are currently under review. In addition there are
vacant lands within the urban area for which no
subdivision or site plan application has been
submitted.
Under optimistic conditions, and assuming that the Town
could afford such a level of growth, there is an
estimated potential 12 year supply of housing
represented by existing applications within the current
urban limits. In staff's opinion, there is no
justification to prejudice the Official Plan Review
process by considering development applications on
lands outside the existing designated urban area
boundary.
iii) Delaying consideration of development applications in
the new expansion areas will ensure that the existing
designated urban lands are developed in a proper
fashion.
The consideration of any development applications in
the expansion areas at this time will lead to a
scattered development pattern, possibly with some
"leapfrogging" . At the very least, it will require new
municipal infrastructure.
Consequently, consideration of expansion area lands at
this time does not allow for the orderly, compact
development of urban areas, will lead to premature
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REPORT NO. : PD-13-92 PAGE 18
impacts on the agricultural community and natural
environment and strains municipal financial resources
to provide services to scattered subdivisions
throughout the Town.
Delaying processing and/or approval of this type of
applications will allow the existing urban communities
to develop in more compact urban form and facilitate
the orderly introduction and efficient use of
infrastructure and services such as school, park, fire
stations etc. in the community.
iv) The Development Charges Study is premised on
development within the existing urban area boundaries.
In the preparation of the Development Charge Study,
growth forecasts and anticipated capital works do not
take into account of additional urban lands beyond the
current urban area boundaries. In fact, since the
writing of Report PD-210-91, the 10 Year Capital Works
Forecast has been reduced in light of concerns by both
the municipality and the development industry to meet
their share of the costs.
In view of the constraints placed upon the municipality
through the Development Charges Act, approval of any
subdivision in the expansion areas will either
individually or cumulatively have a significant
financial impact on the Town.
6. 2 . 2 Based on the rationale advanced in the preceding paragraphs,
it is staff's opinion that development applications on those
new urban expansion area are premature. These applications
are piecemeal and may have a significant negative impact on
the future planning and/or fiscal resources of the
municipality if considered prior to the completion of the
REPORT NO. : PD-13-92 PAGE 19
Official Plan Review. Specifically, they could very well
prejudice the outcome of the preparation of the Town
Official Plan.
In addition, it is "noted that the Ministry of Agriculture
has provided comments to staff that it considers
applications in the expansion areas premature until the
Province has completed its review of the Durham Regional
Official Plan.
In the remote chance that an applicant contests the Town's
refusal to deal with their applications during the Official
Plan preparation exercise, Planning Staff is confident that
the rationale stated previously can withstand the scrutiny
by the Ministry of Municipal Affairs and the Ontario
Municipal Board. The Town's solicitor has confirmed that
this type of action may arise and that the Board's
consideration of the matter would depend not only on the
general considerations relative to the Official Plan Review
but on the site specific circumstances of the application.
6. 2. 3 The approach suggested by staff in the handling of
development applications discussed above is considered to be
both reasonable and necessary to ensure that limited staff
resources can be directly to the top priority of conducting
the comprehensive review of the Town Official Plan.
Development applications will continue to be processed under
the current policies of the Town of Newcastle Official Plan.
However, the long term vision in securing the public
interest through the Official Plan exercise must come first.
In this regard, staff request the full support of Council in
endorsing the approach proposed herein.
7 . CONCLUSIONS
The Town is required to review its Official Plan to respond
to the recently approved Regional Official Plan and the
provincial Policy Statements and declarations of public
interest.
REPORT NO. : PD-13-92 PAGE 20
It is Staff's opinion, however, that a more substantive
review of the Plan's basic goals is required to deal with
the growth pressures being experienced by the Town and to
reflect changes in society's needs and values. A
comprehensive review of the Official Plan would be the most
effective mechanism for the Town to deal with the large
number and the scope of the issues currently facing the
municipality and be able to provide policies and direction
to guide the municipality to manage growth into the next
century.
Respectfully submitted,
Franklin Wu, M.C. I.P.
Director of Planning
and Development
FW*DJC*df
Attachment #1 -
Attachment #2 -
Attachment #3 -
20 December 1991
Recommended for presentation
to the Committee
Lawrenc
Chief A
Officer
. Kotseff
iistrative
Verbal Submissions
- Public Meeting on September 16, 1991
Proposed Work Program
- Revised January 1992
Proposed Logo & Slogan
REPORT NO. : PD-13-92 PAGE 21
INTERESTED PARTIES TO BE NOTIFIED OF COUNCIL'S AND COMMITTEE'S
DECISION:
Ms. Niva Rowan
Save the Oak Ridges Moraine
R.R. #1 Mrs. Pam Callus
Newtonville, Ontario Courtice and Area Community
LOA 1JO Association
Box 253
Ms. Wendy Bootham
No Ganaraska Dump Committee
R.R. #1
Kendal, Ontario
LOA 1EO
Mr. George Webster
Bowmanville BIA
Rickaby's Ltd.
27 King Street West
Bowmanville, Ontario
L1C 1A3
Mr. Rob Griffin
Newcastle Village BIA
Newcastle Laundromat
54 King Street East
Newcastle, Ontario
L1B 1H3
Ms. Yvonne Maitland
Orono BIA
The Apple Blossom Shop
Main Street
Orono, Ontario
LOB 1MO
Ms. Phyllis Dewell
L.A.C.A.C.
Box 255
Bowmanville, Ontario
L1C 3L1
Mr. Ron Locke
Durham Central Agricultural
Society
R.R. #2
Newcastle, Ontario
LOA 1HO
Mr. Dan Spence, Chairman
Courtice for Clean Air
3339 Courtice Road
Courtice, Ontario
L1E 2L7
Bowmanville, Ontario
L1C 3L1
Mr. Victor Humphreys, President
Pebblestone area Residents
Association
5 Kresia Lane
Courtice, Ontario
L1E 2G8
Mr. Gordon White, President
Port Darlington Community
Association
Group 2 , Box 21
R.R. #2
Bowmanville, Ontario
L1C 3K3
Mr. Normund Bezins, President
Committee of Clarke Constituents
Box 20028
Newcastle, Ontario
L1B 1M3
C.B. MacDonald
Port Darlington Harbour Company
Tenants Association
R.R. #4
Bowmanville, Ontario
L1C 3K5
Ms. Katherine Guselle,
Chairperson
Save the Ganaraska Again
R.R. #1
Orono, Ontario
LOB 1MO
Mr. Lou Stavrakos, President
Tyrone Ratepayers Association
R.R. #5
Bowmanville, Ontario
L1C -3K6
Ms. Irene Kock, Executive
Director
Durham Nuclear Awareness
Box 2143
Oshawa, Ontario.
L1H 7V4
John Veldhuis
Garbage of Ontario
Committee
Box 16, 3 Division
Hampton, Ontario
LOB 1J0
Diminished
Mr. Ralph Bouwmeester
Fairo Development Management
Corp.
30 Wertheim Court (Commerce
Gardens)
Suite 9
Richmond Hill, Ontario.
L4B 1B9
Mr. Mario Veltri
Street 68 King Street East
Bowmanville, Ontario.
L1C 3X2
Ms. Helen MacDonald
Port Granby-Newcastle
Environment Committee
R.R. #1
Newtonville, Ontario
LOA 1J0
Mr. Neil Allin
Durham Region Federation
of Agriculture
R.R. #1
Orono, Ontario
LOB 1J0
Mr. Kevin Tunney
Tunney Planning Inc.
340 Byron Street South, Suite
200
Whitby, Ontario.
L1N 4P8
Mr. Al Strike
38 King Street West
Bowmanville, Ontario.
L1C 1R2
Mr. Scott Kapuscinski
G.M. Sernas & Associates
110 Scotia Court, Unit 41
Whitby, Ontario.
L1N 8Y7
Mrs. Ruth Hinkley
Government Liaison
Wilmot Creek Homeowners
Association
1 Wheelhouse Drive, Unit 5
Newcastle, Ontario.
L1B 1B9
Mr. Bill Manson
W.D.M. Consultants
20 Clematis Road
Willowdale, Ontario.
M2J 4X2
Isabel Mitchell
Thomson Rodgers
Barristers and Solicitors
390 Bay Street, Suite 3100
Toronto, Ontario.
M5H 1W2
DN:TNOP.CHT
ATTACHMENT #1
VERBAL SUBMISSIONS ON THE NEED TO REVIEW
THE TOWN OF NEWCASTLE OFFICIAL PLAN
PUBLIC MEETING - SEPTEMBER 16, 1991
SUBMISSION SUMMARY OF SUBMISSION STAFF COMMENT
1. Elva Reid for New Official Plan should be Staff concur. Many of these
Save the Ganaraska (S.A.G.A.) comprehensive and cover rural areas. concerns are contained within
the Introductory Discussion
Support eco-system approach to Work Program.
planning.
Cumulative effects of development The protection of the headwaters
f approvals should be examined. will be part of the Provincial
�g } Study on the Oak Ridges Moraine.
>t� Strategies to rotect Headwaters of Staff will rely on this study for
j Ganaraska Rive. much of the base information and
�� direction.
4� Concern for Regional Node at Kirby/
Oshawa Ski Club.
2. Kevin Tunney for Stolp Homes lands in South Courtice Staff maintain that it is
Stolp Homes (Newcastle) Inc. are fully serviceable, the applicants inappropriate to deal with the
have prepared neighbourhood plan and expansion area lands at this time
applications have been before Town for the reasons advanced in
for three years. Section 6 of Report PD-13-92.
CJ
Merit different consideration from
other expansion areas.
ATTACHMENT #1 (cont'd) . .
VERBAL SUBMISSIONS ON THE NEED TO REVIEW
THE TOWN OF NEWCASTLE OFFICIAL PLAN
PUBLIC MEETING - SEPTEMBER 16, 1991
SUBMISSION SUMMARY OF SUBMISSION STAFF COMMENT
3. Kevin Tunney Developers group in North Bowmanville See Number 2 above
Northbrook Developers Group in 1989 with a neighbourhood plan.
Group has contributed $ 385,000 to
oversize sewers for these lands.
Council should give priority to
these lands.
4. Ruth Hinkley for Support need for comprhensive review Staff concur.
Wilmot Creek Homeowners of Official Plan.
Association
The Official Plan should reflect
diversity in Town.
Of interest to their Association is: These issues will be
�y inclusion of rural area designations part of the Official
1-,, for Wilmot Creek Community, growth Plan Review.
pressures, transportation, changing
age structure of population, and
sensitive implementation of Provincial
policies.
ATTACHMENT #1 (cont'd).. .
VERBAL SUBMISSIONS ON THE NEED TO REVIEW
THE TOWN OF NEWCASTLE OFFICIAL PLAN
PUBLIC MEETING - SEPTEMBER 16, 1991
SUBMISSION SUMMARY OF SUBMISSION STAFF COMMENT
5. Ralph Bouwmeester for Agrees with need of Official Plan See Number 2 above
Fairo Development Management review but does not agree with need
Corp. to halt development applications in
expansion areas.
6. Mario Veltri for Purchased lands in North Bowmanville See Number 2 above
Veltri & Sons Corp. six years ago (Part of Northbrook
Developers Group) .
Disagrees with halting development
*- applications in expansion areas.
7. Bill Manson for Pleased that applications in See Number 2 above.
William Tonno Construction existing areas will be processed.
Ltd.
Council should consider engaging one
' or two staff members or a consultant
to deal with applications in the
rT,\ expansion areas.
He believes the development industry
would help cover the costs.
ATTACHMENT #1 (cont'd) . .
VERBAL SUBMISSIONS ON THE NEED TO REVIEW
THE TOWN OF NEWCASTLE OFFICIAL PLAN
PUBLIC MEETING - SEPTEMBER 16, 1991
SUBMISSION SUMMARY OF SUBMISSION STAFF CON24ENT
8. Al Strike The Official Plan should review the One of the issues
Fairo Development Management balance of industrial/commercial highlighted by staff
Corp. assessment. was the "management
of growth". It is
Fiscal responsibility should be under this heading.
addressed (ie. how much will the capital Staff has further
.� i works cost) . elaborated issue
through the proposed
Some municipalities have policies to Economic Development
to declare residential development Strategy Study.
premature if industrial/commercial
assessment is not high enough.
9. Scott Kapuskinski for The two developers in north-east See Number 2 above
Credit Point Developments Inc. Bowmanville expansion area should be
and Anglo York Industries Ltd. be considered in the context of a
neighbourhood plan prepared for this
area.
C�
Cr�<
11! u'n`i!"L
NEWCASTLE
OFFICIAL PLAN REVIEW
PROPOSED
WORK PROGRAM
REVISED
January 1992
Attachment # 2 to Report PD-13-92
Department of Planning and Development
TABLE OF CONTENTS PAGE
1. Introduction 1
2. Overview of Work Program 2
3. Public Input into the Plan Preparation Process 4
4. Organization for Preparing the Plan
5. Related Studies
6. A Schedule for Preparing the Plan
_ 265
C
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1. INTRODUCTION
The Official Plan is to provide the guiding framework to articulate the type of
community the Town of Newcastle wishes to become over the coming decades.
The challenge is to reflect the dynamism and the changing nature of the Town while
at the same time reinforcing the Town's unique strengths and character.
As the Town of Newcastle prepares for the next century, rapid growth, threats to the
environment and changing public attitudes lead to three main themes which will
provide focus to the preparation of a new Official Plan for the Town of Newcastle.
These are:
1. Management of Growth
2. Sustainable Development
3. Quality of Life
Management of Growth
In the last five years, the Town of Newcastle has become fully enveloped in the
growth of the Greater Toronto Area, experiencing pressures previously not known in
the Town. Growth provides a serious challenge for the municipality. It strains not
only the ability of the municipality to finance such expansions to the municipal
infrastructure but it also stretches the existing social and cultural fabric of the Town.
The plan preparation process will need to deal with questions of public attitudes to
growth; the desirable rate and type of growth; the staging and financing of public
infrastructure, including the social, cultural and institutional services; and monitoring
mechanisms for the development process.
Sustainable Development
The term "sustainable development" has become widely accepted as a philosophical
concept yet remains a pragmatic puzzle in terms of implementation. It is a concept
to deal with the relationship between economic activity and our natural environment.
As we realize the limitation of planet earth, planning for the future needs to focus on
the use of land and resources which can sustain our society for the long term. A
new Official Plan will need to incorporate an ecosystem basis of planning as
advocated by the Royal Commission on the Greater Toronto Waterfront. It will need
to examine how our communities can grow with regard for the products of growth:
this includes issues of air and water quality, waste and energy consumption.
Quality of Life
The Town of Newcastle, with its variety of communities, is viewed by many as a
desirable place to live. Under this theme, the plan preparation process will address
the ways of maintaining and improving the quality of life. In preparing the plan,
consideration will be given to our cultural and built heritage; the creation of vibrant
downtowns and people places; the building of desirable, neighbourly residential
areas; the provision of parks, green spaces and recreation facilities; the provision of
affordable housing; and the means of ensuring a healthy and safe community.
- 7 1 ? 66
2. AN OVERVIEW OF THE WORK PROGRAM
Preparing a work program for a task of this magnitude is difficult. There are
interdependencies with other studies and a broad public and agency consultation process.
The goal is to place a recommended Official Plan before Council by the spring of 1994.
The work to be undertaken categorized into five stages.
PHASE 1
BACKGROUND RESEARCH
The initial phase of the study will involve the collection and analysis of data on various
topical areas relevant to the preparation of the Official Plan. This will primarily be
consolidated from existing sources but in this stage, the information gaps will be identified
where further original research is required. Additional specific studies may be
commissioned to provide the information required. As a result of this work, a
comprehensive Background Report will be prepared summarizing incorporating an analysis
of the data and the primary issues affecting the preparation of a new official plan will be
identified.
The following topical areas will be addressed in this phase:
Cultural/Historical Environment
Natural Environment
Land Use and Human Settlement
Economic Base: Forecasts and Activities
Agriculture and Forestry
Mineral Aggregates
Commercial
Industrial
Tourism
Housing
Parks, Recreation and Institutional
Transportation
In order to ensure that public involvement at the start of the process, it will be very
important in the early stages to incorporate various non-traditional methods to solicit public
input. This is detailed further in the Public Participation section.
PHASE 2
ISSUES, OPTIONS AND IMPLICATIONS
In order to stimulate public discussion, a series of discussion papers will be released for
public review on the major issues identified in the foregoing phase. These discussion
papers will analyze emerging issues; summarize the background information; review relevant
Provincial policies and the approved Durham Regional Official Plan; and identify various
options possible in the drafting of a new official plan.
2
Discussion Papers would likely include the following topics:
Impacts of Growth
Managing Growth
Employment and Industrial Policies
Downtowns and Commercial Policies
Neighbourhoods
Developing Sustainability in Community Design
Parks and Greenlands
Heritage and Urban Design
Oak Ridges Moraine
Agriculture
Rural Settlements
Transportation
The Waterfront
PHASE 3
POLICY FRAMEWORK
A general policy framework will be prepared with recommended direction and set of
principles endorsed by Council. This would not include any site specific consideration of
properties but would establish the context for the draft Official Plan document.
This would include the preparation of an urban and rural growth strategy. A decision about
the structure of the new Official Plan would be made at this stage.
PHASE 4
DRAFT OFFICIAL PLAN
A draft document will be prepared to implement a proposed policy framework which will
include the spatial identification of all land use components as well as written policy.
A series of public open houses will be conducted throughout the Town in order to present
the proposed new Official Plan.
PHASE 5
RECOMMENDED OFFICIAL PLAN
Building upon the findings of the earlier stages and the comments received through the
discussion of the draft Official Plan, a new Official Plan document will be prepared for staff
recommendation to Council for adoption.
Formal written objections to the Plan will be received. Site specific reports will be prepared
and presented to Committee with recommendations to either change the plan, refer the
matter to the Ontario Municipal Board or defer for further consideration.
3
1268
3. PUBLIC INPUT INTO THE PLAN PREPARATION PROCESS
GENERAL
Media Strategy
Throughout the Official Plan preparation, a series of press releases or even a quarterly
column could be placed in local newspapers to generate interest of local residents. Certain
topics could be addressed such as the following:
What is an Official Plan and How does it Affect You?
Urban Growth: What are the options?
Rural Growth: Resource Management and Urban Pressures
Housing Policy: What is Intensification?
Heritage: Why Preserve It?
The Environment and Land Use Planning
Growth and our Economic Base
Community and Interest Groups
Various community and interest groups will be consulted and invited to participate
throughout the process. This could take many forms including submission of briefs,
participation in focus groups, assistance in collecting information (eg. naturalist groups) or
reviews of discussion papers.
PHASE 1 - BACKGROUND RESEARCH
1. Public Meeting on Need to Review Official Plan (Sept.16,1991)
2. Public Attitudes Survey
3. Meetings with identified interest groups
4. Public Information Centres/Workshops on Phase 1 Report
5. Public Meeting on Phase 1 Report
PHASE 2 - ISSUES, OPTIONS AND IMPLICATIONS
1. Meetings with identified interest groups and organizations
3. Public Information Centres/ Workshops on various Discussion Papers. There could
be a forum at one point in the process exploring the three themes of the Official Plan
Review.
4. Focus Groups to review various Discussion Papers
4
{ � 69
PHASE 3 - POLICY FRAMEWORK
1. Public Information Centres throughout the community to convey the general
principles and strategy which would serve as a framework for the Official Plan.
PHASE 4 - DRAFT OFFICIAL PLAN
1. Public Information Centre/Workshops in various parts of the community
2. Meetings with identified interest groups
3. Public Meeting on Draft Official Plan
4. Submissions to GPA on Draft Official Plan
PHASE 5 - RECOMMENDED OFFICIAL PLAN
1. Public Information Centre/Workshops in various parts of the community
2. Public Meeting on Recommended Official Plan
61
_ ,f t 270
4. ORGANIZATION FOR PREPARING THE PLAN
The preparation of a new Official Plan,in a process which take several years, requires a
clearly defined organizational structure specifically to deal with this task. It will also require
the commitment of considerable staff resources, many persons solely dedicated to the
preparation of a new plan. The following organizational framework will utilized and
committed to this task.
STEERING COMMITTEE
Comprised of senior planning staff, this committee would oversee the entire study process,
in particular to assign staff resources, monitor the work plan schedule, review and evaluate
policy options and edit final drafts of all documents.
PUBLIC CONSULTATION/COMMUNICATIONS WORKING GROUP
A group of planning staff would have specific responsibility to design and implement the
various aspects of public participation, including surveys, newsletters and public information
centres.
TECHNICAL ADVISORY COMMITTEE
To co-ordinate data collection efforts and provide timely review by government agencies at
critical points in the plan preparation process, a technical advisory committee would be
established. This would include key representatives from the Town and Regional
Departments, the conservation authorities, school boards and provincial ministries.
0
-- _ 1 2 % f
5. RELATED STUDIES
A number of studies have been undertaken or are currently underway which will serve a
important components in the preparation of the new Official Plan.
Municipal Housing Statement
In response to the provincial policy statement on Land Use Planning for Housing, the
Town in nearing completing of its first Municipal Housing Statement Study. The Study by
examines the supply and demand requirements for housing, examines opportunities for
residential intensification and includes an assisted housing survey. A recommended
housing strategy and monitoring system will be considered by Council as a result of this
study.
Recreation/Leisure Services Master Plan
Under the direction of the community Services Department, a master plan for recreation
and leisure services will be completed in the fall of 1991. In addition to specific
recommendations about leisure services delivery and administration, this document identifies
a conceptual vision for parks and greenlands in the Town of Newcastle which needs to be
reflected in the Official Plan.
Community Improvement Policies Study
The existing Official Plan does not have approved community improvement policies as
defined under Section of the Planning Act. Previous policies considered by the Town were
judged to be inadequately research and deferred by the Ministry of Municipal Affairs.
Through 1991, Town staff have undertaken a comprehensive study of deficiencies of various
types of infrastructure with the view to identifying and prioritizing community improvement
areas. Community improvement policies will be incorporated into the existing official plan
and ultimately into the new official plan when completed.
Newcastle Waterfront Study
The Town is completing a study of the waterfront of Bowmanville with the view to
incorporating these lands into the urban area for development and redevelopment purposes.
A broader study of the entire Newcastle Waterfront has just commenced. This will form a
component of the Official Plan Review. This study will build on the principles promoted by
the Royal Commission on the Future of the Greater Toronto Waterfront. In particular, it will
establish an ecosystem basis to the planning of the waterfront.
Bowmanville Main Central Area Study
The Bowmanville Main Central Area is experiencing significant development pressure with a
number of major proposals before Council. Due to the complexity and importance of the
Bowmanville Main Central Area as the civic and cultural focus for the Town, a separate
study has been commissioned for this component. The CAUSE Event in September 1991
was a start to this process.
7
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Commercial Hierarchy Study
Building on work undertaken through the Bowmanville Main Central Area Study, this study
would define a realistic and desirable commercial hierarchy for all areas of the Town in light
of changing retailing trends and consumer behaviour. It would develop land use planning
recommendations pertaining to the development and maintenance of the optimum
commercial hierarchy.
Economic Development Strategy Study
An issue of major concern to the Town is the ability of the municipality to attract and
encourage new sources of employment. In the midst of changing economic conditions, the
Town must ensure that it as the planning policy framework and the an action plan to
enhance its competitiveness as a place for business. Staff are recommending that Council
take the opportunity to focus its economic development efforts through the preparation of
such a document. The Official Plan Review would build on the work undertaken in this
Study.
Oak Ridges Moraine Study
The Ministry of Natural Resources is co-ordinating a provincial study of the Oak Ridges
Moraine to develop a long term strategy to ensure that the significance and sensitivity of the
Moraine is protected. The study involves three main tasks: the identification of key features
and functions of the Moraine, the identification of regional trail systems and green corridors,
and the cumulative impact of various types of development activity. The Moraine is a very
significant feature in the Town and the results of this study will be important to the
preparation of a new Official Plan for the Town.
0
-, 1 ? 7 S
5. A SCHEDULE FOR PREPARING THE PLAN
In a task of this magnitude, it is difficult to accurately detail the schedule for various
components of the plan preparation process. The greatest unknown is the time required for
the consultation and review process with the public, public agencies and private
landowners. Nevertheless, the broad outline of a schedule is necessary with each
component to be detailed by staff at the time each phase commences.
OFFICIAL PLAN PREPARATION SCHEDULE
P1
__ ` _
? 74
1991
1992
1993
1994
S O N D
J F M A M J J A S O N D
J F M A M J J A S O N D
JFMAM
Phase 1
Background Research
Phase 2
Issues, Options and Implications
Phase 3
Policy Framework
Phase 4
Draft Official Plan
Phase 5
Recommended Official Plan
Public Meeting Anformation Ctr.
P1
__ ` _
? 74
Attachment #3 to Report PD-13-92
PROPOSED LOGO
F
NEWCASTLE
OFFICIAL PLAN REVIEW
PROPOSED SLOGAN FOR PUBLIC PARTICIPATION
o f o lections visions or
r past//////////�ur future