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HomeMy WebLinkAboutPD-33-92 THE CORPORATION OF THE TOWN OF NEWCASTLE DN: STAT-NEW.GPA REPORT Meeting: General Purpose and Administration Committee File# Date: Monday, January 20, 1992 Res. # By-Law# Report#:__PD__3_3__9_2__ File#: ----Plh� 15. 3 Subject: STATUS REPORT NEWCASTLE WATERFRONT STUDY Recommendations: It is respectfully recommended that the General Purpose and Administration Committee recommend to Council the following: 1. THAT Report PD-33-92 be received; 2. THAT a member of Council be appointed to sit on the Technical Advisory Committee for the Newcastle Waterfront Study. 1. BACKGROUND 1. 1 On June 24 , 1991, Council authorized Staff to retain the services of Bird and Hale Limited in association with sub-consultants, Walker Wright Young Associates Limited, Mar-land Engineering Limited and Read Voorhees and Associates Limited for the preparation of a long-term strategic plan for the preservation, enhancement and development of the Newcastle Waterfront. The terms of reference of the study are consistent with the recommendations of the Royal Commission on the Future of the Toronto Waterfront, the Greater Toronto Area Greenlands Strategy and the needs of the Town of Newcastle. The study will be prepared on the basis of the ecosystem approach to managing the waterfront and will include an action plan which identifies short and long term initiatives to resolve current land use conflicts, the extent and nature of public access, the roles of public and private sector including identification of priority areas for public acquisition and watershed initiatives required to resolve areas of environmental concerns. �7 REPORT NO. : PD-33-92 PAGE 2 The study was initiated in July 1991 and anticipated to be complete by the end of 1992 . 1. 2 The Study area comprises all those lands on the Lake Ontario waterfront south of Highway 401 in the Town of Newcastle. 1. 3 The Town of Newcastle was awarded $50, 000. 00 from the Ministry of Municipal Affairs under the Community Planning Grant Program and the Ministry of Tourism and Recreation also granted the Town $50, 000. 00 under the Community Waterfront Program. In addition $35, 000. 00 was allocated in the 1991 Budget and the balance of $78, 432 . 00 was allocated under the OHAP Reserve Fund. The total cost of the study is $213 , 432 . 00. 1. 4 A Technical Advisory Committee has been formed, to provide direction to the consulting team and ensure the full participation of all affected agencies. The Committee consists of representatives from the following departments and agencies: Town of Newcastle Department of Planning and Economic Development Town of Newcastle Department of Public Works Town of Newcastle Department of Community Services Region of Durham Planning Department Region of Durham Works Department Region of Durham Economic Development Department Central Lake Ontario Conservation Authority Ganaraska Region Conservation Authority Ministry of Municipal Affairs Ministry of Tourism and Recreation Ministry of Natural Resources Ministry of the Environment Ministry of Culture and Communication Ministry of Agriculture and Food Federal Department of Fisheries and Oceans REPORT NO. : PD-33-92 PAGE 3 A representative of the Royal Commission on the Future of the Waterfront has also participated as a member of the Committee. However, the Commission will dissolve at the submission of its final report, to be completed by the end of January. The first Technical Advisory Committee Meeting was held on October 3 , 1991, to introduce the study to the members of the Committee. 2. THE STUDY PROCESS 2 . 1 The Town of Newcastle Waterfront Study is viewed as a component part to the Official Plan Review. There are four phases in the study process. Phase 1 - Data collection and analysis. Phase 2 - Formulation and review of options for the future of the waterfront. Phase 3 - The preparation of a recommended waterfront strategy and land use plan. Phase 4 - The preparation of a detailed waterfront development plan for Newcastle Village. 2 .2 The consultants are in the process of completing the first phase. As part of the data collection process the consultants have met with federal and provincial government departments and agencies, major landowners, a variety of citizens and interest groups. Upon the completion of data analysis a number of development options will be considered. 2 . 3 At the completion of Phase 2 , a Draft Background and Options Report will be prepared and will be available for review by the Technical Advisory Committee. The draft report will then be presented to the members of the public at a Workshop tentatively scheduled in mid-March. This will be the first of a series of workshops to be conducted throughout the study process to inform the public as well as to allow for further input. REPORT NO. : PD-33-92 PAGE 4 2 .4 The Town of Newcastle Waterfront Study is funded in part by the Ministry of Tourism and Recreation. It is a policy of the Ministry of Tourism and Recreation to encourage the involvement of a member Council in the Study Process. Given that the Technical Advisory Committee was formed in the midst of the election, staff deferred bringing this matter forward until the new Council was formed. Staff respectfully recommend .that a member of Council be appointed to act in this capacity. 3. SUMMARY 3 . 1 The study is proceeding on schedule. Staff will endeavour to ensure that Committee and Council are informed of the progress of this study. Respectfully submitted, Recommended for presentation to the Committee Franklin Wu, M.C. I.P. Lawrenc E. Kotseff Director of Planning Chief d inistrative and Development Office CS*DC*FW*df 9 January 1992 Attachment: Extract of Proposal - Town of Newcastle Waterfront Study Proposal For <; 2irk)3ii#Y .Y {�\ � M{fi:0 ..�.•.{•k•.{r:'• (� ''::f{Jii:?:iYS:}::}; ii:: :i:fjY':'':..•.'. �{.....�{.'Y:'•'.'•;�{•!I..':.�::'.:..•:..:::. ii':�'•�'�':�'••':'•.•':'••''�':•''.•%:''•'•ffiiiiifiirf:i::. iYrltYYi''}:•• :.1}}: •i:i{ ' .,v,:ir' K%if:t%fAv.^.'i:kSt> Nh,. 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INTRODUCTION 1.1 Background I The Royal Commission on the Future of the Toronto Waterfront (RCFTW - Crombie Commission) defines an ecosystem approach to planning "as one that takes into account all the components of the ecosystem - - air, land, water, and living organisms, including humans -- and the interactions between them" (p.25; "Environment and Health") . Moreover, as indicated by Kanter (1990b) , it is necessary to recognize that " . . .humans and their habitat (i.e. , the built environment) are an integral part of the ecosystem. . ." By acknowledging that there are interrelationships among economics, development, and ecology, environmental concern becomes, not a constraint to development, but a fundamental component of development (RCFTW) . By considering these interactions, we will formulate a framework for environmentally friendly/user friendly land use planning. The concept of evaluating all components of the environment', to ascertain the highest and best use of the resources of an area, is not new. The 'ecosystem approach' to land use planning was introduced in 1969 , by Dr. Ian McHarg (Design with Nature, 1969) . The revolutionary concept of 'designing with nature' advocated by McHarg initially was considered too extreme and consequently was not widely embraced by the planning community. At that time, economic growth was given priority and the so-called 'bountiful' natural resources and their significance to the well-being of society did not form a significant component of the development equation. Regardless, during the last two decades, academics and government researchers throughout North America and Great Britain continued to draft variations of 'design with nature' , including ' Environment must be broadly interpreted, to embrace both the natural and built components, and the features and activities that impact on these, as defined in the Ontario Environmental Assessment Act. 1 9 9 41 environmental planning theory, island biogeography theory, ecological planning theory, and the Abiotic, Biotic and Cultural (ABC) resource. survey method. This integration, and interactive evaluation of the environment is the basis on which Bird and Hale Limited undertakes development capability and environmental evaluation studies for communities and parcels of land. The environmental assessment legislation and policies introduced throughout Canada in the late 1970's and the 1980's (e.g. , the Ontario Environmental Assessment Act; the Federal Environmental Advisory Review Process) are efforts to implement this integration into a planning and decision-making framework for large scale projects. . With the advent of the 'greening' movement and the recognition by government bodies and private groups alike that changes must occur in the manner in which we plan and develop, it is imperative that we consider " . . .the logical relationships between human society (social systems) and the natural environment (ecological systems) . . . " (Eagles, 1984) ;. that is, to embrace an ecosystem approach to land use planning. Thus, the 'new' component engendered by the ecosystem approach is the systematic application of designing with nature to the framework of municipal planning. The Town of Newcastle is well suited in terms of time and location to apply the ecosystem approach to planning. In this regard, it is our understanding that the Town Council 'has endorsed support for the objectives and plans of the RCFTW and the Office of the Greater Toronto Area (GTA) . The Town of Newcastle is embarking on an Official Plan review. This Waterfront Study will provide crucial input into that process and will provide policies and direction that recognize the inter-dependence of all components of the environment. Newcastle currently is experiencing, and will continue to experience, development pressure as a function of its proximity to the ever expanding urban envelope of the GTA. Residential development ' proposals, such as for the Village of 2 5 99 4 Newcastle and the Wilmot Creek Retirement Community, require careful integration with the natural environment and established communities, to maintain an environmentally friendly/user friendly area. As well , as indicated in Reid (1990; RCFTW, "A .Green Strategy for the Greater Toronto Waterfront") , "expansion of the Darlington Nuclear Generating Station or of the St. Mary's Cement quarry [and docking facility] may further curtail public access to the shore" . These are examples of industrial and commercial developments that must be linked appropriately with other components of the planning framework. Added to these F considerations, the Town of Newcastle supports natural heritage features that require specific attention. The following critical areas along the Newcastle shoreline are listed by Crombie (1990) : McLaughlin Bay, West Side Beach Marsh, Wilmot Creek mouth (Newcastle Marsh) , and Bond Head Bluffs, along with various watercourses such as Bowmanville/Soper Creek, Wilmot Creek and Graham Creek, and associated lakeshore wetlands. An additional element that must be integrated in this ecosystem planning project is the provincially mandated shoreline greenway. This greenway, as released on April 15, 1991 in "The Waterfront Trail - First Steps from Concept to Reality" has as its basic guiding principles: "a lakeshore trail for pedestrians and cyclists; recreational green space, for people to use and enjoy; and, natural areas, for conservation and wildlife ecosystems". The general locations of the interim and optimum trail routes through the Town of Newcastle . are shown on the accompanying map (Figure 1) . Within the Town of Newcastle, this results in a 31 km long corridor that frequently is in excess of 100 m wide. 3 This Waterfront Study, therefore, is timely in terms of development proposals and applications, planning pressures and the Official Plan review, and environmental concerns within the Town of Newcastle. It will provide direction and policies that will form a foundation for entrenchment of an ecosystem approach to planning, within the Town of Newcastle Official Plan. it will permit the municipality to embrace a proactive rather than reactive position, and ensure that planning for the natural and built environments complement each other. 1. 2 General Approach and Scope This project, as outlined in the Terms of Reference, is divided into four phases. It is recognized that Phases 1 to 3 will lead to the formulation of a Waterfront Strategy and Land Use Plan for the entire shoreline of the Town of Newcastle, while Phase 4 is a refinement of Phases 1 to 3 for the Newcastle Village area. As such, the appropriate components of 'Phase 4' will be undertaken concurrent with the broader-based work of Phases 1 to 3. The work program as outlined in this proposal reflects those phases. In Phase 1, the Town of Newcastle Waterfront Study would entail the evaluation of existing and the acquisition of additional information. Each specialist will review the applicable existing baseline data to identify pertinent information, and information gaps. Each specialist then will augment the existing information with newly acquired data to provide a sufficient data base for the formulation and evaluation of land `use plan alternatives, to be undertaken in Phase 2. This formulation of options will be undertaken on an ecosystem basis. For each element of the environment (those which define the ecosystem) , it will be necessary to consider not only the 5 conditions south of the Hwy. 401 corridor but also features and conditions that will impact on, or be impacted by, land use plans and development proposals south of the highway. The 'area' that must be considered north of the highway will vary in location, size and extent, depending upon the element(s) of the environment that is being considered. For instance: for river ine-associated wetland communities, it will be necessary to consider the conditions, characteristics and development plans for the drainage basin; - for wildlife, existing and potential movement corridors, in addition to the river valleys; - for land' use designations, existing and proposed plans north of the highway that may conflict or complement existing and proposed plans south of the highway; generally., land use designations would be affected where they relate to a river valley or linkage via a transportation route; - for transportation, land uses and facilities that will require linkages, etc. The evaluation of the data and the formulation of options will be undertaken in a manner and format consistent with the Phase 2 requirements of the study. The aim is to develop alternatives that protect, enhance and integrate key elements of the environment (as defined by the ecosystem approach) ; meet the planning and growth objectives of the Town; are sensitive to the needs of the local and broader-based population; and recognize that the goals of the RCFTW, the GTA, and the Office, of the Special Advisor to the Premier on the Toronto Waterfront Development (Duncan Allan's office) may influence components of the Plan. The alternative options will be evaluated to identify the ' Recommended Waterfront Strategy and Land Use Plan, as required by Phase 3 . Reasonable design and mitigation measures, as well as both positive and negative impacts will be included when weighing 6 the alternative options. The option that is recommended would be the one which best meets the evaluation criteria for all elements of the environment. The study team will present and discuss the benefits and constraints of each alternative, and make a recommendation for the preferred alternative; however, the final decision should be based on a cooperative effort involving the study team, the Town, and the Technical Advisory Committee, and incorporating input and comments from other agencies and the public. The general approach to the project will be 'interactive' with groups and individuals. There will be on-going liaison with Town staff; liaison as required with government agencies' personnel; and meetings and liaison with members of the Technical Advisory Committee. Through discussions with various agencies and individuals that were had during the preparation of this proposal (see Section 2.1 of this proposal) , it has been ascertained that many of the proposed Committee members wish to participate on an 'as needed' basis, rather than according to a fixed meeting schedule. This will be accommodated where possible. As well, public participation will be integrated with all phases of the study, to acquire data, to permit comments and concerns to be voiced, and to receive constructive input on plans and proposals. The venue for this interaction will be both formal and informal; and, site visits may be incorporated if appropriate. The public will be encouraged to contribute to the study in a constructive, critical manner. Information will be solicited, and options will be presented for review; however, the development of the options will be undertaken by the study team in consultation with the Town and the Advisory Committee. That is, the public will be actively involved but we will not convey to them a false sense of authority; the decision making must rest with the Town and the various government agencies. 7 The study will be undertaken to resolve technical issues within the framework of an ecosystem approach so that residual concerns are minimized and are recognized (hopefully by the public) to be emotional rather than factual . The appropriate planning documents will be prepared for inclusion in the-Town. of Newcastle Official Plan. Concurrently, the detailed secondary plan and urban design guidelines for the Newcastle Village waterfront area will be prepared. The reporting will include sections that address mechanisms for securing greenland . areas, and facilitating public access to greenlands. As further documents are issued by the RCFTW, they will be critically evaluated to determine the implications, if any, to our approach for this project. Specific documents that are anticipated to be issued by the RCFTW in the near future and that may have implications for this project include*. "Integrating Environmental Considerations into Land-Use Planning"; the "Greater Toronto Bioregion Study" ; and, the "Cumulative Effects Study" . The eleventh report in the series of reports being issued by the RCFTW has .recently been completed. . This report, "Pathways: Towards an Ecosystem Approach" , is being acquired and will be reviewed in light of the planning framework for this project.