HomeMy WebLinkAboutPD-311-90 UNFINISHED BUSINESS
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TOWN OF NEWCASTLE
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IMEETING: General Purpose and Administration Committee
DATE: October 22, 1990
IREPORT #: PD-311-90 FILE #: Pln 2 .2
t SUBJECT: TOWN OF NEWCASTLE COMMENTS
J RE: DRAFT CHANGES TO THE DURHAM REGION OFFICIAL PLAN REVIEW
1
RECOMMEtV T.IONS:
- s espectfully recommended that the General Purpose &
Administration Committee recommend• to Council the following:
1. THAT Report PD-311-90 be received;
2 . THAT the Appendix to Report PD-311-90 be adopted as the comments
of the Town of Newcastle with respect to Commissioner's Report
90-1 "Draft Changes to the Durham Regional Official Plan" .
3. THAT the Region of Durham be requested to submit the
"Recommended" Changes to the Durham Region Official Plan for
municipal comments prior to adoption.
4 . THAT a copy of Report PD-311-90 and Appendix be forwarded to the
Region of Durham and all area municipalities within the Region.
1 5 . THAT the Director of Planning and Development be authorized to
make presentation to the Region Planning Committee, if necessary,
to present the Town of Newcastle comments .
1. History of the Durham Region Official Plan Review
1. 1 The Region of Durham is undertaking its first comprehensive
review of the Durham Regional Official Plan since it was prepared
and adopted in 1976. The areas of concentration for the review
process are as follows:
i) industrial policies and designations;
ii) rural development policies;
iii) commercial policies, floor space allocations and
designations;
iv) transportation issues and policies; and
v) regional structure including level of detail. . . . .2
REPORT NO. : PD-311-90 PAGE 3
over the past few months. This time consuming part was primarily
due to the fact that there was very little or no background
information provided by the Region. This situation has forced
Town Staff to undertake a comprehensive analysis in several
areas .
2 . 3 During the past several months, many landowners and developers
have made submissions to the Town of Newcastle Planning
Department. These same individuals have also made submissions
and deputation to the Region Planning Committee. Notwithstanding
submissions were made to the Town, it is our view that the ,Town
is only a commenting agency in this matter and that we have no
authority and should not entertain any submission. Accordingly,
all submissions to the Town were filed and no notice was sent to
any individual with respect to this Staff report.
2 . 4 Attached to this Staff report is the official Town's comments to
the Region's Draft Changes to the Official Plan which once
adopted by Council, will be forwarded to the Region immediately.
It may be necessary for the Director of Planning and Development
to make a verbal presentation to the Region Planning Committee to
reinforce the Town's position and the Director will take the
appropriate action.
2 .5 Upon receipt and review of all submissions on the "Draft
Changes" , the Region will be making revisions and bring forward
"Recommended Changes" to Regional Planning Committee. Staff are
recommending that the Region circulate the Recommended Changes
for area municipal comment prior to adoption.
Respectfully submitted, Recommended for presentation
to the Committee
Franklin Wu, M.C. I.P. Lawrence Kotseff
Director of Planning Chief A t istrative
and Development Officer
DC*FW*cc
*Attach
17 October 1990
12 1...6 ?y
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Appendix to
Report PD-311-90 a
RESPONSE OF THE TOWN OF NEWCASTLE
TO REGIONAL PLANNING COMMISSIONER'S REPORT 90-1
DRAFT CHANGES TO THE DURHAM REGIONAL OFFICIAL PLAN `
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Prepared by the Department of
Planning & Development, Town of Newcastle
October 22, 1990
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: 121 %
Table of Contents
1 . INTRODUCTION. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .1
2 . REGIONAL STRUCTURE. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .1
3 . URBAN AREAS. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .5
1 3 . 1 Living Areas . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .5
3 .2 Central Areas . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .10
3 . 3 Employment Areas. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14
3. 4 Institutional .Areas . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .17
3.5 Regional Nodes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .18
3 .6 Urban Open Space. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18
4 . RURAL AREAS. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19
4 . 1 Agricultural Areas . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .20
4 .2 Major Open Space System. . .'. . . . . . . . . . . . . . . . . . . . . . . . . 21
4 . 3 Mineral Aggregates . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .22
4 .4 Rural Settlements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .23
Hamlets . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23
Residential Clusters . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .23
Estate Residential. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .25
Shoreline Residential. . . . . . . . . . . . . . . . . . . . . . . . . . . . . .26
Farm-Related Residential. .27
Non-Farm Residential. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .28
RuralEmployment Areas . . . . . . . . . . . . . . . . . . . . . . . . . . . . .28
5 . OTHER STRATEGIC POLICIES
5 . 1 Special Study Areas . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .28
5 .2 Special Policy Areas . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .29
5 .3 Transportation Network. . . . . . . . . . . . . . . . . . . . . . . . . . . . . 30
5 .4 Utilities and Services . . . . . . . . . . . . . . . . . . . . . . . . . . . . .33
5 .5 Culture Health and Social Services. . . . . . . . . . . . . . . . .34
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6 . GENERAL POLICIES
6 . 1 Environment. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 34
6 .2 Housing. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .36
6 . 3 Economic Development. . . . . . . . . . . . . . . . . . . . . . . . . . . . . 37
7 . IMPLEMENTATION AND INTERPRETATION
7 . 1 Implementation. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .38
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1. INTRODUCTION
This submission is prepared under separate cover from Staff
Report PD-311-90 . The comments of the Town of Newcastle are
structured to coincide with the organization of the Draft
Changes to the Durham Regional Official Plan as contained in
Commissioner's Report 90-1. The Town's submission contains
a synopsis of the Plan's policies and the draft changes .
For ease of reading, the Town's comments are highlighted in
bold text.
The Review of the Durham Regional Official Plan is a major
task and Regional staff have undertaken a mammoth effort to
bring it to this stage. One objective of the Review has
been to extend the planning horizon of the Plan to
accommodate growth to approximately the year 2021. The
Plan, however, remains a structural plan which emphasizes a
1 framework for development unrelated to any particular time
horizon,for the fulfilment of the structural framework.
-� The purpose and goals of the Durham Regional Official Plan
remain unchanged. The Plan has been re-organized to
emphasize the distinction between Urban and Rural Areas and
to consolidate some policies where possible (ie. Major and
Small Urban Areas) . There has been some effort to reduce
the amount of detail in the Regional Plan in preparation for
two-tier planning.
2. REGIONAL STRUCTURE
The Report 90-1 on the Draft Changes to the Durham Regional
Official Plan establishes a structure for growth in the
Region which attempts to integrate various components which
.� are supportive of each other. There are four elements:
"Urban Areas" , which are varied in size, distinct and
separated; "Rural Areas" , which provide large blocks of
agricultural land, outdoor recreational opportunities and
urban separators; "Transportation Systems" which connect all
activities; and "Utilities and Services" which meet the
needs of the various settlement areas.
The major elements of the proposed Regional Structure are as
follows:
Population and Employment targets are allocated on
Map 'C' for each urban area. The inclusion of
employment targets is a new feature to the
Regional Official Plan.
; 22 0
Page 2 . .
The basic framework for the Regional Official Plan
for guiding development is intended to remain the
same.
The Plan recognizes three major urban areas:
Pickering/Ajax;
Whitby/Oshawa/Courtice; and
- Bowmanville
The Region identifies Whitby/Oshawa/Courtice as
the predominant urban centre in the Region and all
Urban areas are to be "oriented to it" .
In managing growth in Durham, the Region is
seeking to balance pressure for growth in
Ajax/Pickerinng by "encouraging growth in the
Central and Eastern parts of the Region. " (It is
noteworthy that since the 1976 Durham Regional
Official Plan was adopted approximately 6000 acres
of residential areas and 4000 acres of industrial
areas have been designated primarily in Ajax and
Pickering with no new lands added in Newcastle) .
The existing and proposed population targets and
the proposed employment targets for the various
urban areas in the lakeshore municipalities of
Durham Region is shown below:
Existing Pop. Proposed Pop. Proposed
Employment
Target Target Target
South
Pickering 100,500 100,000 47,000
Seaton .90,000 90,000 67 ,000
Ajax 115,800 115,000 78, 000
South
Whitby 110,100 140,000 77,000
Brooklin 10,500 25,000 12,000
Oshawa 241,200 260,000 133,000
Courtice 20,000 30,000 9,000
Bowmanville 42,500 65,000 30, 000
Newcastle I
Village 8,500 15,000 6,000
Page 3 . .
The Town supports the intent of the proposed Regional
structure, insofar as Whitby/Oshawa/Courtice is to be the
dominant urban centre and that there is a need to balance
market forces i_n .the western corner of the Region through
encouraging growth in the central and eastern portions of
the Region. The Town is concerned, however, that the
proposed urban structure does not adequately reflect these
principles. Specifically the Town is concerned with the
following:
2 . 1 There should be an explicit policy in the Regional Structure
(Section 2) of the Durham Regional Official Plan with regard
to encouraging growth and servicing land in eastern Durham
to balance market forces in western Durham.
2 .2 The Regional Plan does not designate sufficient land in
Newcastle to achieve its intent to encourage growth to the
eastern part of the Region. The focus of growth is central:
the draft Regional Plan would add over 12,000 acres of urban
lands (including Special Study Areas) to Oshawa, Whitby and
Courtice Urban Areas with only 2,000 acres being added to
the Bowmanville and Newcastle Village Urban Areas.
The Regional Plan proposes a distribution of urban
population as follows:
West (Ajax/Pickering) 305 000 36%
Central (Whitby/Oshawa/Courtice) 455 000 54%
East (Bowmanville/Newcastle Vlg. ) 80 000 10%
2 . 3 The Courtice Urban Area represents a very small proportion
(only 7%) of the total Whitby/Oshawa/Courtice Major Urban
Area. There has been a bias to expanding to the north in
Oshawa and Whitby at the expense of consideration of lands
to the east in Courtice. The Regional Plan should be
examining growth alternatives on a structural basis without
regard to municipal boundaries. In this sense, the Plan
fails to rise above political considerations.
2 .4 In order to encourage growth in the east, the Regional Plan
should:
recognize Bowmanville as a major growth node in
the regional structure;
recognize Orono as a Small Urban Area
� 2
Page 4 . .
On the basis of the Durham Region Population forecast to
2021, the Town proposes that the urban structure provide for
urban population targets approximately as follows:
Courtice 40,000
Bowmanville 65,000 (including Special
Study Areas)
Newcastle Village 12,000
Orono 7,000
2.5 The emphasis on northerly expansion and the designation of
land uses adjacent to a "possible" alignment for Highway 407
is premature and prejudices the validity of the Highway 407
Environmental Assessment process. The urban area boundaries
and land use designations for northern Whitby and Oshawa
should not be established until the Highway 407 route
planning exercise is completed.
2 . 6 The Town concurs with the need to establish large blocks of
Open Space to act as greenbelts and urban separators between
Pickering/Ajax and Whitby/Oshawa/Courtice and between
Whitby/Oshawa/Courtice and Bowmanville. The Town is
concerned, however, that sufficient urban separators are not j
being established between the existing urban areas and the
new communities to be established around Brooklin and
Columbus. Without east-west urban separators, the two-tier
concept of development will effectively be abandoned and
sprawl development reinforced. The Region should examine
the alternative of reducing the northerly expansion of
Oshawa/Whitby, directing some growth to the east in Courtice
incorporating a larger greenbelt and establishing distinct
second-tier communities.
2 . 7 The Regional Plan limits the economic development
opportunities of the Town and reinforces its existing
"bedroom community" status. This is reflected in part, by
the small amount of land designated for employment areas in
Newcastle.
The firm of C.N. Watson and Associates has examined the
industrial land requirements for the Town of Newcastle. On
the basis of the population forecast prepared by the Region
of Durham Planning Department and the employment projection
analysis by the consultant, there is a need for 1590
additional acres of serviced industrial land in Newcastle by
2021. By contrast the Region has proposed 350 additional
acres (plus possible future lands in Special Study Areas) .
2 .8 The limitation of economic development opportunitie$ is I
further reflected in the employment targets established on
Map 'C' . The inclusion of employment targets may have
significant implications of the economic development
l Page 5. .
J potential of each municipality. It is important and a
thorough study of these targets be done prior to adoption.
} It is the Town's view that the employment targets on Map 'C'
are low and should be adjusted to account for the additional
employment areas lands noted above, higher employment
densities, larger Central Areas and for additional office
employment.
It is noted Regional staff utilized an employment density of
10 workers per acre for Newcastle employment areas whereas
for other lakeshore municipalities an employment density of
15 workers per acre areas was utilized. The Town believes
that an employment density of 15 workers per acre can also
be achieved in Newcastle. (The Town's consultant, C.N.
Watson utilized an employment density of 16 workers per net
acre) .
Secondly, only 2,000 office jobs out of the 60,000 (3.3% of
1 the office employment in the lakeshore municipalities) were
j allocated to Newcastle with an urban population of 110,000
persons. By way of comparison, South Whitby with a
population of 140,000 and Ajax with a population of 115,000
were each allocated office employment of 10,000 persons.
3. URBAN AREAS
The Draft Changes to the Durham Regional Official Plan
establishes a separate policy section on "Urban Area" . The
previous nomenclature "Settlement Areas" included rural
settlement types such as hamlet, estate residential and non-
A farm residential.
3.1 LIVING AREAS (Section 4)
The Region proposed to rename the Residential Areas
designation to Living Areas. The change in name reflects an
attempt to reduce some of the detail in the Regional Plan.
This will mean a wider variety of uses than pure residential
uses .
The main features of the Living Areas policies are as
follows :
There is an increased emphasis on compact form;
the integration of various uses and higher density
residential uses in Living Areas.
Special purpose commercial uses are incorporated
into this designation.
Highway #2 is an identified transit link with
preference to higher. density reside t'al and
commercial uses . 1 Z 4
Page 6 . .
3.1.1 The Town of Newcastle supports the change in the thrust
of the Regional Plan represented by the renaming of
Residential Areas to Living Areas.
3.1.2 While the Town of Newcastle wishes to pursue a moderate
growth option and it is satisfied with the gross
allocation of new lands for residential purposes, it
does not concur with the distribution of lands proposed
in the Regional Official Plan. The designation of new
lands should meet the following criteria:
Expansion areas should be allocated in larger,
logical units suitable for planning all community
facilities and services (ie. neighbourhood
planning areas) .
Expansion areas should "round out" the urban form
in a manner which best serves all community
functions (not simple ease of providing hard
services)
Expansion areas should avoid environmentally i
sensitive features
Prime agricultural land should be avoided, if
possible
Urban Areas must have clearly identifiable
boundaries
In the Town's view, the proposed expansion areas do not
meet the above criteria.
3.1.3 Bowmanville Major Urban Area
The Bowmanville Urban Area has the opportunity to
extend in all four directions. The Regional Plan gives
preference to the north, indicates moderate growth to
the east and a minor extension along the north side of
Highway 2 to the west. These new Living Areas total
approximately 1100 acres.
The Town of Newcastle recommends that future expansions
to the Bowmanville Urban Area be to the east and west,
rather than to the north, to round out the community's
boundaries. As well, expansion areas must have
distinct boundaries and be of a size and shape suitable
for the development of communities.
.
K(" it 225
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Page 7 . .
i) Bowmanville East (Living Area L7)
The Town recommends that Living Area 'L7 ' to the
east of the Urban Area be expanded to include all
lands west of the Bennett Road extension. This
area would add approximately 500 acres to the
Urban Area and be of sufficient magnitude to be a
distinct planning unit. This would incorporate
the lands of the former Pine Ridge Training
School.
Bowmanville West (Living Area L5)
I
Future expansion of the Urban Area to the west
should be investigated through the designation of
a Special Study Area. The Town recommends
therefore that Living Area 'L5' be deleted and a
Special Study Area designated on those lands west
of the existing Urban Area to Green Road. The
environmentally sensitive lands associated with
Bowmanville Creek would forma suitable northern
limit to the Study Area. The Town would support
the inclusion of the lands at the northeast corner
of Highway 2-and Regional Road 57. It would also
support the inclusion of lands south of Highway #2
and east of Green Road within the Urban Area.
► iii) Bowmanville Waterfront
The Town also recommends that the lands along the
Bowmanville Waterfront be designated as a Special
Study Area in recognition of the studies being
undertaken by the Town, specifically the draft
Port Darlington Secondary Plan. It is anticipated
that the Town will be seeking a Living Area
designation for a portion of these lands to
accommodate approximately 4,400 persons.
iv Bowmanville North Livin L6
North (Living Area )
The Town recommends that Living Area L6 to the
north of Bowmanville, as well as the existing (d)
Deferred Development symbol, be deleted.
The Central Lake Ontario Conservation Authority
Environmental Sensitivity Mapping Project
identifies the lands to the north of Bowmanville
as exhibiting moderate to high environmental
sensitivity. A portion of this area is a
sensitive recharge area for the Soper Creek. It
is also noted that the estate residential
Page B.
subdivisions in this area would be detrimentally
impacted and be an obstacle to the development of
this area.
The above noted changes are identified on Attachment
IA.
3.1.4 Courtice Urban Area
The proposed intensification within the Courtice Urban
boundary by an increase from 20,000 to 30,000 persons
does not represent any real increase for Courtice.
This reflects current development densities and the
"infill" area added to Courtice in 1985 .
1) Courtice South
It is recommended that new lands be designated as
a Living Area south of the current urban limit.
Approximately 650 acres should be designated both
north and south of Bloor Street.
ii) Courtice East
It is recommended that a small parcel be added to
the urban lands on the east side of Courtice on
the north side of Highway No.2 to complete a
neighbourhood planning unit.
These areas are identified on Attachment 1B.
3.1.5 Newcastle Village Small Urban Area
Any changes for Newcastle Village should be limited in
scale within well-defined boundaries in order to
preserve this community's distinct character. The
proposed population of 15,000 would almost double the
current design population of the Village. It is
recommended that much of the additional population
proposed for the Village be redirected to Orono to
provide more balanced growth in the eastern area of the
Town.
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1) West Newcastle Village (Living Area L8)
'Living Area L8' represents a small, well-defined
and logical extension to the existing Urban Area.
However, it is recommended that 2 Z 1
Page 9 . .
this Living Area be expanded to include those
lands north of Highway 2 currently proposed as
Employment Area 'E91 . Living Area L8 as expanded
would add 180 acres to the Urban Area.
ii) North Newcastle Village (Living Area L9)
The Town recommends that proposed Living Area L9
be deleted. The CPR mainline presents a major
barrier and helps to provide a well-defined
northern boundary for the community. It would be
difficult to integrate the new area with the rest
j of the community.
These changes are identified on Attachment 1C.
3.1.6 Orono
Orono remains designated as Hamlet in the draft
Regional Plan.
Orono possesses a number of attributes which would
support the redesignation of the community as a Small
Urban Area. It has a distinct downtown, district level
recreation facilities and considerable frontage along.
Highway 35/115. The redesignation of Orono would
j rejuvenate the community and provide a balance to
growth . In its consideration of the Orono Secondary
Plan, Council directed Staff to address the possible
redesignation of Orono as a Small Urban Area as part of
the Town's comments on the Draft Changes to the
Regional Official Plan.
It is therefore recommended that Orono be redesignated
as a Small Urban Area. New lands in the northwest
quadrant, with an area of 280 acres, would accommodate
a .population of approximately 5100 persons for a total
urban population target of 7000 persons.
The above noted changes are noted on Attachment 1C.
3.1.7 The Town of Newcastle is generally supportive of
attempts to encourage a more compact urban form and
increased residential densities at appropriate
Page 10. .
locations. The Town is concerned, however, that there
is not sufficient protection for stable
residential neighbourhoods, particularly heritage
areas, where the existing residential fabric should be
protected.
3.1.8 Section 4.3.1 (d) perpetuates an existing policy in the
Regional Official Plan to allow limited retail and
personal service uses anywhere in Small Urban Areas
subject to being compatible with their surroundings and
a retail market analysis. The Town is concerned that
such a policy would inevitably lead to detrimental
impacts on the Central Areas in Newcastle Village and
Orono.
It is recommended that 4.3.1 (d) be deleted from the
Regional Official Plan or at least subject to the
inclusion of enabling policies in the local official
plan.
3.1.9 Special Purpose Use are proposed to be eliminated as a
land use designation. In this regard, Map A5 needs to
be amended to incorporate the Special Purpose
Commercial Areas along Baseline Road into Living Areas.
3.1.10 Due to changes in Major Open Space policies, it is
anticipated that certain minor valleyland systems (ie.
Foster Creek) will be incorporated into Living Areas.
Policies provisions should clarify that the local
municipality can designate further open space areas.
3.2 CENTRAL AREAS (Section 5)
The concept of Central areas has been retained and
strengthened as a result of the Draft Changes proposed in
Commissioner's Report 90-1. Central Areas are focal points
of activity, interest and identity to develop with the
fullest range of urban functions and amenities . It is a
goal of the Plan to restore the historic shopping function
with other central areas functions such as housing,
employment, recreation, social and cultural activities .
The main features of the Central Areas Policies are as
follows:
1 Page 11. .
Central Areas continue to be arranged in a hierarchy
and classified as Main Central, Areas, Sub-Central Area,
Community Central Area and Local Central Area.
Each urban area has a designated Main Central Area
appropriate to the scale and characteristics of the
community.
The Oshawa Main Central Area is recognized as the
dominant Central Area in Durham with specific emphasis
on office, business and administrative services .
One new Main Central Area has been identified in North
Oshawa (Simcoe Street/Winchester Road) .
The existing Community Central Areas in Courtice and
Seaton have been upgraded to Main Central Areas .
A new Sub-Central Area has been identified in Ajax
(Highway #2/Harwood Avenue) .
A new Community Central Area has been identified in
Bowmanville at Highway #2/Green Road.
The Draft Changes propose to increase the size of Main
and Sub-Central Areas as indicated on Table 3 . 2 .
The maximum size of the commercial component of
( Community and Local Central Areas has been increased as
follows :
} Existing Proposed
1 (Sq.Ft. (Sq.Ft. )
Community Central Area 150,000 215,280
Local Central Area 60,000 107, 640
3 .2 .1 The Town of Newcastle supports the basic concept of
Central Areas, the hierarchy of uses and the
recognition of the dominance of the Oshawa Main Central
as serving a Regional function.
3.2.2 The Town of Newcastle is concerned that the increase
and allocation of commercial floorspace has not been
subject to any significant analysis of the commercial
floorspace requirements for the various municipalities.
There has been no rationale provided for the changes
proposed, nor have the underlying assumptions been
explained. - r
1, 230
Page 12 . .
3.2.3 The Town of Newcastle is not well-served by the
commercial floorspace allocations proposed in the draft
Regional Official Plan. By comparison, the cumulative
floorspace allocations relative to population forecasts
are as follows:
Cumulative 2021 Floorspace
Floorspace* Population Per Capita
(Sq.Ft. )
Newcastle 1,270,200 142,065 8.9
Oshawa 9,580,200 241,890 39.6
Whitby 3,444,600 162,170 21.2
Ajax 2,206,700 101,915 21.7
Pickering 4,951,600 155,365 31.8
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* The cumulative floorspace excludes Local Central
Areas, Special Purpose Commercial and Convenience
Commercial.
The Town of Newcastle requests that the Durham Regional
Official Plan be amended to provide Newcastle with the
appropriate commercial services for its residents. It
is not acceptable that the distribution of floorspace
be based on the assumption that Oshawa will provide all
higher order goods and services to Newcastle residents.
On the basis of the standards utilized in other
southern tier municipalities, the Town should be
allocated retail and commercial floorspace for higher
order centres (Main Central Areas to Community Central
Areas) in the magnitude of 22 sq.ft. per capita or
approximately 3.2 million sq.ft. (300,000 sq.m. ) .
Although this should be subject to further study, it
would appear reasonable that the Bowmanville Main
Central Area should receive a floorspace allocation of
approximately 2.1 million square feet (200,000 sq.m. ) .
It is noted that several municipalities have received
an increase in floorspace in the 1976-1990 period for
which the Durham Plan has been in effect. Among other
changes, the Oshawa Main Central Area was increased by
1.3 million square feet and the Whitby Sub-Central Area
(Thickson/Dundas) was increased by 180,000 square feet.
By way of comparison, despite the addition of West
Bowmanville and Wilmot C eeeek� Retirement Community,
Page 13 . .
there has been no increase to the allocation of
floorspace to the Bowmanville and Newcastle Village
Main Central Areas.
3.2.4 The definition of floorspace has been revised to move
closer to the industry-standard of "gross leasable
area" . In the past, it has been difficult to work with
the two definitions in the evaluation of commercial
proposals.
The Region should review this matter further to see if
a standard definition could be utilized.
3.2.5 The Town of Newcastle supports the elimination of the
policies with regard to overall density limits and
density requirements for residential uses in Central
Areas. These policies which have been difficult to
interpret and unnecessarily detailed for the Regional
Plan. It is also recommended that Section 5.2.3.13 be
reviewed with the view to further deletion of detail
regarding the type of residential development in
Central Areas.
3.2.6 The Town is supportive of the principle of preparing
detailed "Central Area Plans" for the primary Central
Areas. (Section 5.2.3.16).. It is assumed that this is
intended to be a Secondary Plan. Moreover, the Town
endorses the attention directed to urban design plans
I
which would require consideration of architectural
treatment, landscaping, a grid system of public
streets, pedestrian walkways, sufficient off-street
parking and similar considerations. The Town suggests
that the policy should clarify that development
proposals would not necessarily be frozen until a
Central Area Plan is prepared.
3.2.7 The Town supports the role of the Region in monitoring
commercial development and the implementation of
floorspace guidelines as required in Section 5.2.3.12.
The Town suggests that it would be appropriate to
establish the benchmark prior to recommending an
allocation of floorspace in the Regional Plan.
3.2.8 The Town supports the improvements to the existing
policies which would require a more rigorous analysis
of development proposals. New Central Areas or the
approval of any commercial development exceeding 1500
square metres of gross retail and personal service
floorspace, a retail impact study shall be prepared. It
is suggested that the policy be further strengthened by
allowing the Region or a,;eeqL- Municipality, at their
1
Page 14 . .
discretion, to require a proponent of a major
commercial development to fund an independent retail
analysis to be conducted under the direction of the
Regional or area municipal staff.
3 . 3 EMPLOYMENT AREAS (Section 6)
The Draft Changes to the Regional Plan proposes to rename
the Industrial Areas section to Employment Areas. The
change in name reflects a broadening view of the type of
uses to be permitted with less of an emphasis on
manufacturing and an increasing emphasis on the service and
office sectors .
The main features of the new Employment Area policies and
designations are as follows:
Office parks are permitted subject to local
official plan policies and designations which
ensure that there is not an adverse impact on
Central Areas and that uses and design guidelines
are specified.
The location of recycling, reclaiming, storage,
transportation terminals and utility functions are
restricted to non-prime locations .
Industrial Areas are to be adequately served by
public transit.
Local official plans are required to prepare a
detailed classification of industrial areas .
Expansions to the Employment Areas are a follows:
Municipality Acreage
Ajax 430
Oshawa/Whitby 3045
Newcastle 480
It is anticipated that a substantial portion of
the Special Study Areas will be reserved for
Employment Areas. Seventy percent of the Special i
Study Area lands are in Oshawa and Whitby. l
3.3.1 The Town of Newcastle recommends that the following
assumptions should be used in the consideration of the
designation of additional Employment Areas:
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Page 15 . .
Live/Work relationships should be strengthened.
The Region should strive to ensure that there is
no net out-commuting by providing for one job
opportunity within Durham for each member of the
projected labour force.
Employment Areas should not be considered on the
basis of a hierarchy like Central Areas. Each
municipality should receive a fair share of lands
on the basis of its projected population and
employment requirements.
3.3.2 Existing and proposed Employment Area lands in the
lakeshore municipalities are as follows:
Employment 2021 Ratio
Municipality Areas (act Population (Ac/1000 person)
Newcastle 1775 142 065 12.5
Oshawa 4000 241 890 1.6.5
Whitby 2990 162 170 18.4
Ajax 2900 101 915 28.5
Pickering 3500 155 365 22.5
The Town of Newcastle is clearly the poorest served
lakeshore municipality with less than a half of the
Employment Area lands allocated to Ajax on a per capita
basis. The Town of Newcastle has submitted a report
prepared by C.N. Watson and Associates to provide "An
Assessment of the Unmet Requirement for Industrial Land
in the Newcastle Study Area" . On the basis of the
industrial employment projection methodology, the Town
of Newcastle's requirements necessitate the designation
and servicing of 1590 additional acres of employment
Area lands.
3.3.3 Most of the addition Employment Areas proposed by the
Region are on the north side of the Ajax, Whitby and
Oshawa urban areas. Their viability is highly
dependent on the future construction of Highway 407.
The future economic health of the Region will thus be
much improved with the designation of substantial new
Employment Areas along the Highway 401 frontage in the
Town of Newcastle.
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Page 16 . .
3.3.4 Courtice Employment Area
The Town of Newcastle recommends that the south
Courtice area become the predominant location for new
Employment Area lands in the Town. In addition to the
currently designated lands, it is recommended that
approximately 800 acres be allocated in the ,area west
of Courtice Road and north of the CPR mainline.
In addition it is recommended that a further 400 acres
be reserved for future designation either south of
Highway 401 (following the completion of the Newcastle
Waterfront Study) and/or east of Courtice Road and
north of the CPR mainline (following the completion of
the Oshawa/Newcastle Freeway Link Alignment Study) .
This would result in a total allocation of
approximately 1200 additional acres in South Courtice.
3.3.5 Employment Area E7 (East Bowmanville)
The Town supports the designation of an additional 200
acres of Employment Area lands north of Highway 401 on
the east side of Bowmanville, as proposed by the
Region.
3.3.6 Employment Area E8 (South-West Newcastle Village)
The Town does not support the designation of 150 acres
between Highways 401 and 35/115 (now designated as
Special Study Area #13) . While this site has high
visibility to Highway 401, topography and access create
some constraints on the site. Moreover, the Town is
not supporting major new residential growth in
Newcastle Village.
3.3.7 Employment Area E9 (North-West Newcastle Village)
As noted earlier in this submission, the Town
recommends the designation of these lands for
residential use. The Town, consequently, does not
support the proposed designation in the Regional
Official Plan.
3.3.8 Orono Employment Area
A portion of the lands adjacent to near Orono on the )
east side of Highway 35/115 are currently used for
industrial purposes. As �of re�q ing Orono as a
1 71�
1
Page 17 . .
Small Urban Area, the Town recommends that
approximately 150 acres be recognized as an Employment
Area on full municipal services.
3.3 .9 The Regional Plan proposes to broaden the type and
amount of commercial uses permitted in Employment
Areas. While the Town generally supports the principle
of allowing limited commercial uses to service needs in
the Employment Areas, the Town is concerned that,
without clearer definition of these uses, there could
be widescale infiltration of commercial uses seeking
less expensive land. The Town also recognizes that
some Special Purpose Commercial uses such as automobile
and recreation vehicle dealerships and lumber yards may
be more suitable in Employment Areas. Further
j clarification is required to ensure protect the
j integrity of the commercial hierarchy in Central Areas
and to protect industry from the escalation of land
prices due to the introduction of commercial uses.
' 3.3.10 Section 6.3.7 requires that lands adjacent to harbours,
water pollution control and supply plants, electrical
generating stations and airports be reserved for those
industries benefiting most from these facilities. The
Town recommends that this section should be qualified
to ensure that heavy industries, open storage
facilities and other visually unattractive industries
are not given high visibility sites by virtue of this
policy. (i.e. aluminum smelter located adjacent to
Highway 401 and Darlington Generating Station) .
3 .4 INSTITUTIONAL AREAS (Section 7)
Few changes have been made to the policies related to
Institutional Areas . The Region has designated
approximately 200 acres north of Durham College for a future
university campus or other higher educational facility.
3.4.1 The Town of Newcastle supports the effort to attract a
higher educational facility in the Region.
3.4.2 The reference to the Pine Ridge Training School lands
in Section 7.3.5 is redundant and can be deleted from
the Regional Official Plan.
:f
230
' I
Page 18 . .
3.5 REGIONAL NODES (Section 8)
Regional Nodes are designated to accommodate specialized
uses of Regional scale requiring larger parcels of land
which cannot be accommodated within Main Central Areas . The
only facility of this nature is the East Metro Trade Centre
in Pickering.
The Town of Newcastle has no comments on this section.
3 .6 URBAN OPEN SPACE (Section 9)
Urban Open Space is a new designation introduced in the
Regional Official Plan in recognition that policy
requirements for urban open space areas will be quite
different from that in rural areas . Open space areas within
urban boundaries is essentially for conservation and passive
recreation purposes, whereas in the rural areas lands
designated as Open Space may legitimately be used for
agriculture, farm-related uses, golf courses, nurseries, and
limited other uses residential.
The main elements of the new policy section are as follows:
Urban Open Space shall be developed in a manner that
will maintain the natural functions, preserve and
enhance existing features, increase public
accessibility, provide a range of leisure activities
and complement adjacent uses.
Provision is made for Regional Parks .
A development plan for the Urban Open Space system is
required prior to development on adjacent lands .
Furthermore, the Regional Plan requires that site plan
agreements address such matters as land dedication,
measures to enhance the natural environment,
landscaping and urban design measure to ensure
complementary development to open space features.
Development plans are encouraged for existing harbour
areas at Bowmanville and Newcastle Village.
Some valleylands and other areas which are currently
designated Major Open Space would be deleted and
incorporated into other land use designations. In the
Town of Newcastle this affects the Harmony Creek
tributary in Courtice and Foster Creek valley in
Newcastle Village. 1 2 3 7
Page 19 . .
3.6.1 The Town of Newcastle fully supports the introduction
of this new policy section. The goals statement in
Section 9 . 1.1 should be amended to include wetlands and
environmentally sensitive areas.
3.6.2 Where creek valleys form a boundary for an urban area,
it is .important that the valleyland areas be designated
as Urban Open Space and incorporated in the urban
boundary. This enables the area municipalities to
protect these valleyland areas from detrimental uses
and to more readily acquire these lands for an
integrated open space system. The Town of Newcastle
requests that the Black Creek, Bowmanville Creek, Soper
Creek, Wilmot Creek and Graham Creek valleylands, where
they are adjacent to urban designations, be designated
as Urban Open Space.
3.6.3 The Regional Official Plan should -implement the
recommendations of the Courtice Environmental Impact
Analysis prepared by Gartner Lee Associates Ltd.
Accordingly the Living Areas designation in Court-ice
North Neighbourhood should be amended to designate
areas as Urban Open Space as shown on Attachment #1B.
4. RURAL AREAS (Section 10)
The proposed introductory section on Rural Areas
distinguishes the nature, purpose and function of the rural
area and provides framework by which conflicting land use
demands are to be reconciled or prioritized.
The stated goals of the rural area policies are to:
preserve the open landscape and the natural
environment of the Rural Areas as distinct from
Urban Areas;
protect farmland and support agriculture;
conserve and manage the use of natural resources;
Y` preserve the cultural heritage of the Rural Areas
and to provide an orderly settlement pattern
consistent with the goals of this plan.
The Town fully supports the new section which provides
a framework for specific land use designations.
S 1238
Page 20. .
It is recommended that a Rural Servicing policy section
be established to incorporate a consistent set of
policies for residential development and eliminate the
duplication in each Rural Settlement section.
4. 1 AGRICULTURAL AREA (Section 11)
Agricultural policies remain much the same although there
has been some effort to strengthen the policies in an effort
to preserve the integrity of high quality farmland.
A synopsis of the proposed policies is a follows:
The distinction between Permanent Agricultural
Reserves and General Agricultural Areas is
retained. As -before, more restrictive policies
apply to Permanent Agricultural Reserves.
The emphasis is placed on the growing of food and
the raising of animals for food. Only in General
Agricultural Areas would nursery gardening, riding
and boarding stables, kennels, mink farms, golf
courses and public fairgrounds be permitted.
Woodlots and retail stands for the sale of
agricultural products grown on the farm are
permitted.
Farm parcels greater than 40 hectares ( 100 acres)
are permitted to have an accessory dwelling.
Portable, manufactured dwellings are encouraged
for this purpose.
Salvage yards, farm implement dealerships and
community uses such as schools, day care centres
and homes for the aged may be permitted as an
exception subject to a number of conditions
including that appropriate designations and
policies are included in the local official plan.
4.1.1 The Town of Newcastle concurs with the efforts
undertaken to strengthen policies to protect
agricultural land. The Town is concerned, however,
that the concept of "Permanent" Agricultural Reserves
needs some further examination to ensure that there is,
indeed, .a permanence to this designation. It is noted
that much of the area now proposed for urban expansion
is designated "Permanent" Agriculture Reserve. The
Region should examine implementation mechanisms such as
easements, transfer of development rights and other 1
means to secure lands for "permanent" agricultural use.
If the sense of permanence 47c
�nnot be guaranteed then
► 239
Page 21. .
"Prime Agricultural Areas" would be more of an
appropriate name.
} 4. 1.2 Farm implement dealerships and community uses should be
j encouraged to locate in Settlement areas. As an
exception, it is recommended that these uses may be
permitted in General Agricultural Areas and then, by
amendment only to the local official plan. The
proposed policies would enable the area municipality to
include such criteria deemed necessary.
4.1.3 The Town of Newcastle recommends that salvage yards be
treated as waste disposal sites and appropriate
policies incorporated under Section 18.
i 4.1.4 The Town concurs with the accessory dwelling
j provisions, minimum size for agricultural parcels
created by consent and recognition of pockets of poor
-� agricultural land as essential. parts of Agricultural
Areas.
4.1.5 The Town does not concur with the revision to uses
permitted in the Permanent Agriculture Reserve which
would limit the raising of animals to food production
only. Many smaller lots are suitable for horse
stables, kennels and other farm related uses.
` 4.2 MAJOR OPEN SPACE (Section 12)
The Major Open Space section now applies to rural areas
ti only. The following is a summary of the major elements
contained in this section:
A greater emphasis on the roles of reforestation
and wetlands .
Incorporation of policy regarding the retention of
river valleys as linear open spaces linking
various components of the Major Open. Space.
Introduction of a policy regarding the maintenance
of Major Open Space areas on both east and west
sides of the Courtice/Oshawa/Whitby Urban Area as
urban separators.
The Region is to develop comprehensive
implementation strategies for components of the
Major Open Space System (ie. Oak Ridges Moraine
and Waterfronts) . The Region will encourage area
municipalities to undertake detailed studies and
to incorporate provisions in local Official Plans
with respect to these Major Open Space components .
Page 22 . .
The introduction of Regional Recreation/Tourism
Node policies and designation.
4.2.1 The Town of Newcastle supports the general thrust of
the changes to this section including the introduction
of policies concerning reforestation, the preservation
of wetlands, and the retention of river valleys.
4.2.2 The Town of Newcastle agrees with the important role
that urban separators will play as components of the
Major Open Space System. The Town wishes to see that
stronger policies are developed which would clearly
define the function of urban separators and which would
clearly establish which uses should be excluded (ie.
estate residential) .
4.2.3 The policies regarding the Oak Ridges Moraine and Lake
Ontario Waterfront need to be clarified particularly in
light of the recommendations coming from the Greater
Toronto Greenlands Strategy and the Royal Commission of
the Future of the. Greater Toronto Waterfront. Section
12.3.15 appears to place the onus for detailed studies
of the Oak Ridges Moraine and waterfront areas on the
area municipality at a time when the Moraine is being
recognized as not only a Regional but a Provincial
resource. In this regard, the existing policy (Section
12.3.7) of the Durham Regional Official Plan is
preferred to the proposed new policy. The Town of
Newcastle recommends that the Region assume its
responsibility for establishing the policy framework
for this important area.
4.2.4 The only Regional Recreation/Tourism Node recognized
within the Region is Cullen Garden. The Town of
Newcastle requests that the Bowmanville Zoo, Orono
Exotic Cat World and the Oshawa Ski Club in Kirby
should be recognized as Regional Recreation/Tourism
Nodes as these facilities serve a regional function.
4 .3 MINERAL AGGREGATES (Section 13)
This section remains relatively unchanged. The changes
which have been proposed though, please a greater emphasis
on rehabilitation of mineral extraction areas. This
emphasis reflects the new changes to the Aggregate Resources
Act.
4.3.1 The Town of Newcastle supports these changes which
would facilitate an improved rehabili aril n process.
Page 23 . .
4.3.2 The St. Marys Cement quarry is currently designated
j Industrial in the Durham Region Official Plan. It is
j the only pit or quarry so designated in all of the
Durham Region. Its waterfront location, natural
features, long term rehabilitation plans and location
outside of the urban area would make it more suitable
for designation as Major Open Space. Moreover, at
present it gives a false impression of the amount of
industrial land in the Town. It is the recommendation
of the Town of Newcastle that the St. Marys Cement
lands be considered in the same manner as other
quarries. The underlying designation should be Major
Open Space. The policies should be amended to
recognize industrial uses directly related to the
quarry operation.
4.3.3 The lakefill associated with the existing St. Marys
Cement marine terminal should be recognized and
designated as Major Open Space.
4.3.4 References to Pits and Quarries Act should be amended
to Aggregate Resources Act.
4 .4 RURAL SETTLEMENTS (Section 14)
Previously the Rural Settlement section was coupled with the
Urban Area policies as Settlement Areas . The changes
however, recognizes that Rural Settlements are a component
part of the Rural Areas .
The emphasis of the Rural Settlement general policies is to
direct new non-farm growth to hamlets. This emphasis
however, is contradicted by the specific rural settlement
sections. Not only are there too many exceptions to the
development of hamlets, the criteria for creating lots
outside hamlets are far less stringent than those for the
expansion of hamlets. For example, major expansion of a
hamlet will now require a hydrogeological study based on
test drilling for the entire hamlet, whereas an estate
residential proposal would only require test drilling on
site. These policies would seem to favour estate
residential development over hamlet growth. As illustrated
these specific policies conflict with the general policy of
directing non-farm residential growth towards hamlets.
4.4.1 Hamlets
Hamlets are to act as the centres for new non-farm-
residential growth. The maio`r �lemen�tg of the proposed
Page 24. .
Hamlet section are as follows:
The maximum number of residential units within
hamlets are to be shown in the local official
plan.
The Region may allow communal water supply or the
extension of municipal water supply to .hamlets,
subject to number of requirements .
Infilling is defined as a 10% increase in the
number of units in the hamlets as of the date of
adoption of the Regional Plan.
Infilling requires hydrogeological study based on
test drilling and shall proceed by way of consent
or plan of subdivision.
Major development in a hamlet up to its maximum
potential shall require a hydrogeological study
based on test drilling be conducted for the entire
hamlet.
The development of hamlets shall have regard for
the historical character of the hamlet.
The Region shall undertake a study to determine
the type of water supply and sewage disposal
services required in hamlets.
4.4.1.1 The Town of Newcastle does not concur with
the definition of infilling provided in the
Draft Changes. Given the various size of
hamlets, ten percent may vary between two
lots and sixty lots. Infilling should be
strictly defined as the creation of new lots
between existing dwellings with a maximum
number of lots possible (ie. 10 lots) .
4.4.1.2 The policies with regard to hydrogeological
studies are too stringent and would deter
development from occurring in hamlets.
Infilling should be permitted on the basis of
on-site test drilling only. Only Major
development should require more comprehensive
hydrogeological studies to be prepared by the
proponent at the time that development is to
occur.
The study should include on-site test
drilling and demonstrate that there will be
no adverse impacts on the surrounding lands.
\ 119- 43
Page 25. .
4.4.1.3 The Region of Durham should be responsible
for the broader servicing studies of hamlets
f to be utilized in determining the basic
y parameters for development in a hamlet. The
Town would support a more definitive
1 commitment outlined in Section 14.3.10 to
monitoring and periodic review.
1 4.4.1.4 The Town of Newcastle requests that the
policies regarding known servicing problems
in Hampton be retained with specific
1 reference to the action to be undertaken to
resolve these problem areas. (Section
10.4.2.7 of the current Regional Official
i Plan) .
J
4.4.1.5 The Town of Newcastle requests that the
cluster of Brownsville be recognized as a ,
hamlet. The cluster of Brownsville presently
rivals many of the Town's existing hamlets.
The preparation of a hamlet plan for
Brownsville would allow staff to evaluate
current development proposals in the context
of that community's overall structure rather
than on an ad hoc basis.
, I 4.4.2 Residential Clusters
Residential Clusters is a new section which would
replace the previous cluster policies contained in the
Non-Farm Residential Section.
The major features of the Residential Cluster section
are as follows:
The definition of clusters is improved.
Existing dwellings shall generally be 1 ha or
less .
Hydrogeological studies are required based on test
drilling.
4.4.2.1 The Town of Newcastle requests that this section
should be removed in its entirety. The previous
cluster policies have proved extremely difficult
in defining clusters and in the implementation of
the supporting policies. Furthermore, enabling
�� n 1 A
Page 26 . .
further development of this type is not seem as a
preferable form of rural settlement.
4 .4.2.2 Should the Region decide to retain this section,
the following policies are recommended:_
(i) Residential clusters should not be permitted
in urban separator areas of the Major Open
Space System.
(ii) Residential clusters should be permitted only
if the area municipal council incorporates
such provisions in the local official plan,
and then, only by site specific amendment to
the local official plan.
4.4.3 Estate Residential i
Estate residential development continues to be
permitted by way of site specific amendments to the j
Durham Region Official Plan. The proposed changes
revise the criteria to be used in assessing estate
residential development as follows :
Estate Residential shall be well separated from .
Urban Areas, Hamlets and other estate residential
developments .
Estate Residential development shall have a
maximum 30 lots and maximum 20 has area.
A hydrogeological study based on test drilling
shall be included with an application.
Additional criteria may be established in the
local official plan.
4.4.3.1 Section 14.5.1 states that estate residential
development is "generally discouraged and shall
only be permitted by amendment" . . . . The Town of
Newcastle requests that this section be
strengthened by stating that "hamlets are the
preferred location for rural residential
development and that estate residential
development shall generally not be permitted" .
1
4.4.3 .2 Some of the criteria proposed for Section 14.9.2
as the basis for evaluation are very subjective
and difficult to evaluate. It is recommended that
Page 27 . .
further consideration be given to clarify the
intent and provide more objective criteria (ie.
minimum separation distances) .
t
4.4.3 .3 A proponent is presently required to submit a
hydrogeological study and a landscape analysis in
support of the application. It is recommended
that two additional studies be required:
(i) a planning study to address such matters as
land use impacts, justification the proposal
on the basis of the evaluation criteria, and
other matters so as to articulate a clear
planning rationale for the development;
(ii) a market study justifying the need for estate
residential housing which reviews
alternatives available in hamlets and
requirements for affordable housing.
4.4.4 Shoreline Residential
There are no areas presently designated Shoreline
Residential within the Town of Newcastle.
The Town of Newcastle have no comments with respect to
this Section.
1
4.4.5 Farm Related Residential
The Farm Related Residential section addresses the
creation of lots for farm retirement and farm
consolidation purposes. Severances may be granted for
retirement lot purposes provided the applicant meets a
number of stringent criteria.
4.4.5. 1 The Town of Newcastle supports with the
elimination of inter-family lots.
4.4.5.2 As previously noted in the Town's earlier comments
on the rural policies, the Town prefers to see the
elimination of retirement lot policies. The
proposed policies are cumbersome and detailed. It
Js the Town's view that in an area with extreme
pressures for urbanization, retiring farmers do
not need a special exemption which has the net
effect of making agriculture less viable.
Moreover, in Newcastle a total of 255 retirement
lots have been granted while there are onlv 2An
ti
Page 28 . . ,
size. It appears that most bona-fide farmers have
already obtained a retirement lot.
4.4.6 Non-Farm Residential
This section is a list of non-farm residences which
were allowed as exceptions, as they are deemed
desirable by both Regional and area municipal Councils.
- The Town of Newcastle have no comments with respect to
this section.
i
4.4.7 Rural Employment Areas
The proposed Rural Employment Area section is a new
section which will allow rural municipalities,
particularly those in the northern portion of Durham,
to improve live-work relationships and encourage i
limited economic development in their municipalities .
The major elements of this section are as follows :
Locational criteria are established are
established and area municipalities can establish
additional criteria in local Official Plans .
Policy enabling area municipality to establish
additional criteria in local Official Plans .
Rural Employment areas are to proceed through plan
of subdivision and requires the submission of a
hydrogeological study based on test drilling and a
detailed landscape analysis .
4 .4.7.1 The Town of Newcastle is supportive of this Section.
However, the Town of Newcastle has previously noted its
concern to the establishment of rural employment areas
within Oak Ridges Moraine.
5. OTHER STRATEGIC POLICIES
5.1 SPECIAL STUDY AREAS (Section 15)
Special Study areas are identified in the Regional Plan for
those lands requiring further study prior to adoption of an
amendment to the Plan. Four new Special Study Areas are
proposed.
Page 29 . .
f Further expansions to the Brooklin Urban Area.
1 (Special Study Area 16)
( A new urban area to be established at Columbus in
J Oshawa. (Special Study Area 17)
Expansion to the existing Oshawa Urban .Area
adjacent to Townline Road and north of Taunton
jj Road. (Special Study Area 18)
1 Southerly expansion to the Courtice Urban Area.
(Special Study Area 19)
( 5. 1.1 The Town of Newcastle does not support the designation
of Special Study Area #19 and requests urban
designations as noted previously.
5. 1.2 In the policies related to Special Study Area #11,
reference should be made to comprehensive waterfront
planning studies.
5.1.3 Special Study Area #13 by Newcastle Village should be
eliminated and designated as General Agriculture Area.
5. 1.4 The Ganaraska headwaters area has been identified as an
area for special study by a number of Provincial
panels. It is recommended that a specific area be
delineated and that policies be established to guide
the consideration of these studies. Until such studies
`y have been completed, it is recommended that only
jl permitted uses be those related to recreation,
conservation or limited residential development in the
hamlet of Kendal in accordance with the Hamlet policies
in the Town of Newcastle Official Plan.
5.1.5 The Town of Newcastle requests two new Special Study
Areas related to possible extensions of the Bowmanville
Urban Area. (See Attachment 1A)
5.2 SPECIAL POLICY AREAS (Section 16)
The use of lands designated as Special Policy Areas
recognize unique areas which require policies specific to
that area. As well, specific provisions are to be
c incorporated into local Official Plans .
1 248
Page 30 . .
Within the Town of Newcastle, the low level radioactive
waste site at Port Granby and the Wilmot Creek retirement
community are designated as Special Policy Areas.
5.2. 1 The Town has no difficulty with this section as
proposed.
5.3 TRANSPORTATION SYSTEM (Section 17)
The Transportation System section has been re-ordered and
expanded. This section is now organized by the following
subsections; Freeways and Arterial Roads; Public Transit;
Railways; Airports; and Harbours . The majority of the
policies in this section address the regional road network
and public transit. A greater emphasis has been put upon
expanding and improving public transit within these proposed
policies .
Freeways and Arterial Roads
The following are a list of the major elements contained in
this section:
Road types are defined.
The Ministry of Transportation's North Central
Alternative has been delineated as the Region's
preferred alignment for Highway 407 .
The Bennett Road interchange has been deleted in
favour of the Lamb's Road interchange.
Intersection and right-of-way widths have been
increased.
Greater restrictions have been proposed with
respect to access onto arterials.
5.3. 1 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 Environmental Assessment
review process.
5.3.2 The Town of Newcastle requests that the Newcastle
Freeway Link (401 to 407) be conceptually shown on Map
A5 and Map B.
5.3.3 The Town of Newcastle supports the deletion of the I
Bennett Road interchange, the creation of a Lamb's Road
interchange and the maintenance of the Liberty
Street interchange. -51-4--- 1249
Page 31. .
5.3.4 The Town of Newcastle has requested the Region to
assume Highway #2 as a regional road. In this regard,
however, the Town requests that the role of Highway #2
as the "Main Street" of the Region be recognized.
Specific policies regarding intersection spacing, among
other things, should be developed for Central Areas
within that corridor. Urban design values must be
balanced .with transportation planning objectives.
The Town wishes to note that the more stringent Type
'A' arterial road standards would apply to Highway #2
only in Bowmanville and Newcastle Village whereas the
Type 'B' standards apply to all other urban areas which
are served by Highway #2. This poses obstacle to
creative urban design efforts in these communities.
1 5.3.5 The Town supports the proposed new arterial roads
indicated on Map B. In addition, the Town requests
that consideration be given to the designation of the
following:
1. Type B arterial for Townline Road between Bloor
Street and Olive Avenue.
2. Type B arterial for Adelaide Avenue from Townline
to Hancock Road.
3. Type B arterial for Hancock Road between Adelaide
Avenue and Highway #2.
4. A mid-block east-west Type B arterial in Cour-tice
located south of Highway #2 and north of Bloor
Street.
5. Type B arterial from Troll's Road between Bloor
Street and Baseline Road.
6. Type B arterial for Green Road between Highway #2
and Baseline Road.
7 . Extension of Baseline Road as a Type B arterial to
Bennett Road.
8. Retain Type B arterial road for Bennett Road from
Highway 401 to Highway #2 and extend northerly to
Concession Road 3.
9 . Extension of Longworth Drive as a Type B arterial
from Middle Road to Regional Road 57.
10. Extension of Concession Road 3 as a Type B
arterial from Lamb's Road to Regional Road 42.
Page 32 . .
Public Transit
The following are a list of the major elements contained in
this section.
The Region is to support the operation of an integrated
transit system.
Public transit needs are to be considered through the
review of plan of subdivision applications .
Consideration shall be given to public transit
corridors .
The Region is supportive of the extension of GO rail
service to Bowmanville and indicates a general location
for a station site.
5.3.6 The Town of Newcastle supports the increased emphasis
on public transit and the identification of a GO
Station Site in Bowmanville.
5.3.7 The Town of Newcastle requests that consideration to a
GO Rail station site in the South Courtice industrial
area be given and that mention of this future rail
station be mentioned within the text of this plan. In
this regard, the Region may have to consider the trade-
offs of a Courtice site versus a site in east Oshawa.
5.3.8 In order to preserve options for future station sites
in Bowmanville and Courtice, policies should be
incorporated in the plan to freeze all land parcels
abutting the CPR mainline greater than 2 hectares (5
acres) until such time as studies have been undertaken
to identify the station sites.
Railways, Airports and Harbours
Policies regarding each particular mode of
transportation have been divided into their appropriate
section.
5.3.9 The Town of Newcastle have no comments with respect to
these sections.
r
Page 33. .
5.4 UTILITIES AND SERVICES (Section 18)
Water Supply and Sewage Disposal Systems
Some of the more pertinent policies of this section include:
Requirements for preparation of a servicing plan
to be reviewed and updated annually.
The costs of sewer and water trunk facilities
attributable to new residential development shall
be recovered through development levies .
Municipal sewer and water can be extended outside
urban area limits subject to specific criteria.
5.4.1 The Town generally has no objection to the proposed
changes, although it should be specifically stated in
the Plan that area municipalities shall be consulted in
the preparation and the annual review of the Servicing
Plan.
5.4.2 The Town has an outstanding request to Regional
Council (Official Plan Amendment Application 86-13/D)
for the extension of municipal water to properties with
contaminated wells on Regional Road 17 north of
Newcastle Village. As well, the Town has previously
indicated its support for the provision of sanitary
I sewer and water services to Orono from Lake Ontario.
Appropriate policies should be included in the Plan
with regard to these issues.
5.4.3 Section 18.3.4.8 allows for oversizing of trunk sewer
facilities up to 50 percent greater than the population
level shown on Map C. Given the experience of the last
planning period, the Region should give consideration
to alternative policies to provide for the long term
servicing needs of the Region.
5.4.4 The Town of Newcastle recommends that the servicing of
the South Courtice area be committed by policy and the
designation of the appropriate trunk facilities on Map
D. The South Courtice Servicing Study prepared by
Totten Sims Hubicki for the Town of Newcastle is
referenced in this regard.
Waste Disposal
The policies with respect to waste disposal remain
essentially unchanged, although greater emphasis has
been given to the recycling, reduction, recovery and
re-use of waste.
f
Page 34 . .
5.4.5 The Town of Newcastle recommends that clarification be
provided in the definition of "waste disposal sites" so
as to classify waste processing centres for recycling,
composting and similar uses, as industrial uses.
Specific policies would need to be developed.
5.4.6 It is recommended that salvage yards and used tire
storage sites be regarded as waste disposal sites,
notwithstanding that a certain degree of resource
recovery occurs.
1
5.5 CULTURE, HEALTH AND SOCIAL SERVICES (Section 19)
Currently, most policies regarding culture, health and
social services are found primarily in an appendix to the
existing Regional Plan. This new section would incorporate
these policies into the text of the Plan. A new policy has
been included stating that sites containing archaeological
resources are to be protected from destruction or alteration
wherever possible.
5.5. 1 These policies are mainly of a promotional nature and
address both Regional (health and social services) and
local (libraries, museums) spheres of influence. The
Town has no objection to the inclusion of this section
in the Plan save and except to question the level of
detail and the merits of including statements regarding
such matters as police and emergency services.
6. GENERAL POLICIES
i
6. 1 ENVIRONMENT (Section 20)
The policies of this section are more cognizant of the
significance of the environment to the quality of life for
residents of the Region and, in particular, in the review of
development applications . A greater emphasis has been given
to the protection of ecological processes .
The major features of this policy section are as follows:
t
Environmentally Sensitive Areas are to be
identified in local Official Plans and/or Zoning
By-laws .
1
Page 35 . .
The Regulatory Flood Standard is to be defined in
accordance with the Provincial Policy Statement on
Flood Plain Planning.
An environmental impact study is required to be
prepared for development applications within and
adjacent to environmentally sensitive areas and
for developments which may have major
environmental impacts .
The enhancement and protection of the visual
environment, as well as acoustical impacts, are to
be considered in the review of development
applications .
6.1.1 The Town of Newcastle supports the increased emphasis
being given to the protection of the physical, visual
and acoustical environments.
6.1.2 The Town of Newcastle concurs with Section 20.3.31
which places the onus of environmental impact analysis
on the proponent and not the municipality. It is
1 recommended that the preparation of an environmental
impact study be to the satisfaction of both Regional
and Local Councils, rather than just the Council having
jurisdiction.
` 6. 1.3 It is also noted that a number of environmental
sensitive area mapping studies have been undertaken
since the adoption of the Regional Official Plan in
1976 . The land use designations in the draft Plan do
not appear to have been reviewed to reflect the
i findings of these studies. For example, lands north of .
1 the Bowmanville Urban Area are still designated as
'Permanent Agricultural Reserve' although C.L.O.C.A. 's
Environmental Sensitivity Mapping identifies this area
as having moderate environmental sensitivity. The
designation of this area as 'Major Open Space' would
appear to be appropriate.
6.1.4 The Town has experienced a major problem with
indiscriminate tree cutting due in part, to the
conflict between the indication of environmentally
sensitive areas and the underlying land use
designations. For example Major Open Space allows
forestry as a permitted use. The Town of Newcastle
recommends that policies be incorporated to restrict
tree cutting in any area shown as environmentally
sensitive.
�`` 1 2 5 4
Page 36 . .
6 .2 HOUSING (Section 21)
As a result of the Provincial Policy Statement on Land Use
Planning for Housing, the Region has made major changes to
the Housing policies in the Regional Plan. These policies
outline the Region's role in the provision of housing,
future studies to be undertaken by the Region. Major
features of this section are:
A Housing Needs analysis shall be undertaken and
housing targets adopted by the Region which shall
be updated every five years .
An annual monitoring program shall be undertaken
by the Region.
Residential land supply shall be reviewed every
five years .
Local municipalities shall accommodate a wide
range of housing types .
Condominium conversion policies are retained and
strengthened.
Residential intensification shall take place in
all urban areas .
6.2.1 The Town of Newcastle supports the general thrust of
the policies contained in Section 21 and acknowledges
that 25% of new residential stock shall be deemed
affordable under the Provincial Policy Statement.
6.2.2 The Town is concerned that some of the policies
contained in Section 21 are too detailed and
inappropriate to the Regional role in the provision of
housing. In particular, the Town questions policies
dealing with the size of housing units to be
established in Official Plans and the interim Regional
Policy which would require 25% of housing in larger
subdivisions to be less than 80 sq.m. (861 sq.ft. ) .
The selection of 80 sq.m. is too arbitrary given that
the Region has not completed its research into
affordable housing. It does not, for example,
recognize the differences in the housing market across
the Region.
6.2.3 The Town of Newcastle is concerned with regard to the
intensification policies applying to all urban areas.
It is the Town's desire to maintain the small town
character of Newcastle Village and Orono. There needs
to be greater flexibility for the ability of the area
municipalities to determine their intensification
policies. ) ;
Page 37 . .
_1 6.2.4 The Regional housing policies do not address the needs
of rural areas and the feasibility of affordable
housing objectives in the rural areas.
6.3 ECONOMIC DEVELOPMENT (Section 22)
It is the goal of the Region to develop the Region to its
fullest economic potential while enhancing the quality of
life. Most policies remain unchanged although a number have
j been deleted. Several new policies have been added:
The Region will strive to create a positive
corporate image and community environment.
The Region will endeavour to attract new tourism
f investment through the implementation of a Tourism
f Development Strategy.
l The Region shall prepare an annual economic
J development and tourism strategy.
6.3.1 The Town of Newcastle generally supports the proposed
policies contained in Section 22.
6.3.2 The Town of Newcastle recommends that the Region
include a policy which states that it is the Region's
objective to ensure that employment opportunities are
created throughout the Region.
6.3.3 The Town of Newcastle recommends that five year targets
be established for servicing employment areas in each
municipality, similar to housing supply targets.
7. IMPLEMENTATION AND INTERPRETATION
;z
7.1 IMPLEMENTATION (Section 23)
The implementation policies of the Plan outline the various
( planning and other tools available to the Region and the
local municipalities to implement the provisions of the
Regional Plan. Implementation mechanisms cover such matters
as Amendments to the Durham Regional Official Plan, Local
Official Plans, Development Plans and Zoning By-laws .
X156
Page 38 . .
7.1.1 Although there has been a reorganization of this
section, including the transfer of most of the
policies regarding capital works into other
sections of the Plan, there have been few
significant changes. As such, the Town has no
major concerns with the proposed changes.
7.1.2 One goal of the Official Plan Review exercise was
to reduce the amount of detail in the Regional
Official Plan in preparation for two-tier
planning. While the review exercise has taken
some steps in this direction, the Town of
Newcastle would support further efforts to reduce
the level of detail in the Plan. This would also
necessitate the incorporation of appropriate
policies in the Implementation section related to
the delegation of Official Plan approval powers
and the two-tier planning process.
1 X57
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