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HomeMy WebLinkAboutPD-311-90 UNFINISHED BUSINESS 1 •i '.1....f MINI W., TOWN OF NEWCASTLE � �f # REPORT *, y`s� :� 3'DRAFT-CH.GPA File #f; L� - -:� Res. # By-law # 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 .t 1 r 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 ` I I I Prepared by the Department of Planning & Development, Town of Newcastle October 22, 1990 I : 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 i 6 . GENERAL POLICIES 6 . 1 Environment. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 34 6 .2 Housing. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .36 6 . 3 Economic Development. . . . . . . . . . . . . . . . . . . . . . . . . . . . . 37 7 . IMPLEMENTATION AND INTERPRETATION 7 . 1 Implementation. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .38 i i 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 i 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. i 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 i * 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: 1233 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. X234 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 pt>+•a�QaY�nItRp1�• Let f pop II•R• !�Js r� as iCnl�i -La� v ini�l wG/t ICruurb� jj Y./ Y 1/I�LM r 1lVol A.��IA�CM. 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V �.:• ., �``D .mot :r 'I. -j. r .,IFS f .3 :°;r]�' 'kc4y�•S ...� r .7• ..����yy •J,U•' S ;•�. ILOT 31 LOT• OT LOT 29.LOT 27 LOT 26!:y�C{L i,�•'f�` ,tf),'• �._ „ ci CON u I�t. i� I t• �t�j,'. A.� MIW44AY M' 2 •m COH I RESIDENTIAL AREA ti t BOHD HEAD' INDUSTRIAL AREA I \\ 7 MAIN CENTRAL AREA t RECOMMENDED EXPANSION AREAS FOR NEWCASTLE VILLAGE & ORONO Attachment., R-o. 2 0 1 1c: 0 C O p O O Of ---ol---- P O 1 O O C 1 O 1 E 1 0 1 0 1 _ cr,/ Taunton Rd. A / N ............. ............... ::•�. fell BOW NVILLE ::- —r�■■■■■■■■■■■■■■■■ — o o s :a 1 O_ COURTICE Ninon: o WAY ` NM*■fi�r--tea—iii' :'ease' :::.t.n :::::= : o. 2 OSHAWA _. ........... ■■■ �� HAR000R �� ':•.. .. . C ---- NEW ARTERIALS PROPOSED BY THE REGION ■■■■■■■■■■■ ARTERIAL EXTENSIONS REQUESTED BY THE TOWN 1