HomeMy WebLinkAboutPD-327-89 TOWN OF NEWCASTLE
REPORT 5S . r
f0 r WATERFRONT File # 1 /r
Res. #
By-Law #
MEETING: General Purpose and Administration Committee
DATE: Monday, December 4, 1989
REPORT #: PD-327-89 FILE #: PLN 12 . 3.2
SUBJECT: BOWMANVILLE WATERFRONT STUDY
OUR FILE: PLN 12.3.2
RECOMMENDATIONS:
It is respectfully recommended that the General Purpose and
Administration Committee recommend to Council the following:
1. THAT Report PD-327-89 be received; and
2 . THAT the Town of Newcastle undertake a waterfront development study
for Bowmanville subject to funding from the Ministry of Tourism and
Recreation and/or contribution from development interests within
the study area;
3 . THAT the Ministry of Tourism and Recreation be requested to fund
a portion of the planning study under the Community Waterfront
Program.
4. THAT Staff be authorized to issue a Request for Proposals for the
preparation of the Bowmanville Waterfront Study in accordance with
the attached terms of reference, and to select the consultant and
to report back from time to time with respect to the progress of
the study;
5 . THAT Council's decision and a copy .of this report be forwarded to
the Royal Commission in the Greater Toronto Waterfront.
1. BACKGROUND
1. 1 On February 27, 1989, Council considered Confidential Repox-t-_Admin_ _
6-89 with regard to the Port Darlington Area on the Bowmanville
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REPORT NO. : PD-327-89 PAGE 2
waterfront. As a result, Staff were directed to investigate
in detail future land use options for the Port Darlington
waterfront lands .
1.2 Since that time two landowners to the east of Port Darlington have
indicated their desire to develop waterfront properties from
Bennett Road westward to Port Darlington for a combination of
residential, commercial and tourist-oriented facilities. It is
Staff's view that any major development of the waterfront area must
be subject to careful scrutiny through the preparation of a
comprehensive plan for the future of the waterfront.
1. 3 In July of this year, the Minister of Tourism and Recreation
announced a new Community Waterfront Program which applies to
municipalities with less than 50 000 population for the development
of waterfront projects which benefit tourism, recreation and
stimulate economic activity. The program funds both planning and
feasibility studies and capital projects for recreational
facilities which enhance the lives of local residents and attract
tourists .
1.4 A further initiative has recently shed a new light on waterfront
development. The Premier of Ontario, on October 17, 1989,
announced the establishment of a Royal Commission on the Greater
Toronto Area Waterfront to inquire into and recommend initiatives
to preserve and create a continuous public access to the waterfront
from the western boundary of Halton Region to the eastern boundary
of the Town of Newcastle. This Royal Commission has just commenced
its work but will have a significant impact on the way we view and
develop our waterfront areas .
1.5 All of the above have led Staff to broaden the scope and direction
of the original waterfront study contemplated for the Port
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REPORT NO. : PD-327-89 PAGE 3
2 . OFFICIAL PLAN
2 . 1 The lands south of the C.N.R. mainline between the Wilmot Creek
Retirement Community and the Port Darlington Area (to the St.
Mary's Cement lands) is designated "Waterfront-Related Major Open
Space" in the Durham Region Official Plan. Section 12 . 3. 3 of the
Plan requires that the Region, in co-operation with the area
municipality, prepare and adopt plans for the areas with this
designation.
Such waterfront plans are to address such matters as the
appropriateness of nodes functioning as centres of tourist
activity, active recreation uses, seasonal residential uses or any
other uses deemed desirable. To date, there has been no such study
to address the future development of the Bowmanville waterfront.
3 . WATERFRONT PLAN FOR BOWMANVILLE
3. 1 In recognition of the requirements of the Durham Region Official
Plan, recent initiatives and the previous direction of Town
Council, Staff have prepared a much broader terms of reference than
previously contemplated. The terms of reference are attached and
include the definition of a study area south of the C.N.R from Lot
4 to the Bowmanville Creek and West Beach Road in Lot 11.
3 .2 The Work Program for the Study would involve six components:
1. Urban Structure and Land Use.
2 . Demographic Analysis and Market Consideration
3 . Recreation and Open Space Analysis
4 . Transportation and Access Requirements
5 . Urban Design
6 . Planning Documentation
These various components are described in the attached terms of
reference.
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REPORT NO. : PD-327-89 PAGE 4
3.3 It is Staff's opinion that such a study would be most expeditiously
completed by a consultant with a broad range of expertise to
address the various issues involved in the waterfront lands.
Accordingly, it is appropriate for Council to issue a Request for
Proposals to a number of reputable planning firms with previous
experience in waterfront development planning.
3 .4 It is proposed that a Technical Advisory Committee be established
representing the key agencies which have an input into the planning
process . The key agencies would include the Region of Durham, the
Ministry of Tourism and Recreation, Central Lake Ontario
Conservation Authority, the Ministry of Natural Resources, the
Ministry of the Environment, and the Small Craft Harbours Branch
of the Federal Department of Oceans and Fisheries, or other
agencies as required.
3 .5 The waterfront planning process would be subject to public input
including the Port Darlington Community Association, major
landowners and environmental groups . The consultants will be
requested to document how this will be accomplished in their
proposal.
4 . STUDY FUNDING
4 . 1 Although the Town would retain control over the direction of the
study, the funding of the study could be accomplished totally
through provincial programs and/or contributions by development
interests .
4 .2 Staff have met with the Ministry of Tourism and Recreation with
regard to this waterfront study. Although the Ministry have not
formally approved the terms of reference, it is Staff's
understanding that a portion of the study would be eligible for
Ministry funding under the Community Waterfront Program.
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REPORT NO. : PD-327-89 PAGE 5
4 . 3 Staff have also approached the two major landowners with
development interests in the waterfront portion of the study area.
Both landowners, Kingstown investments, and 841221 and 841222
Ontario Limited are willing in principle to each fund 50% of the
study costs which would not be covered by the Ministry of Tourism
and Recreation. The firms would be required to submit 50 percent
of their contributions to the Town prior to the execution of the
contract and staged payments over the projected study period.
5 . CONCLUSION
It is recommended that the Town initiate a planning study which
prepares a comprehensive development strategy for the Bowmanville
waterfront. This study would recognize the significance of the
waterfront lands including its recreational and tourism potential.
It would examine the problems of access, conflicting lands uses and
environmental constraints . It would also identify the public and
private sector development opportunities in this area. As well as
identify the means to secure public access to the Bowmanville
waterfront. Given the lack of Staff resources and other priorities
within the Department, a study of this nature would be best carried
out by a consultant who can also provide a wide range of expertise
and to complete the study in a timely manner.
Respectfully submitted, Recommended for presentation
to the Committee
Franklin Wu, M.C. I .P. awren`ce' E. Kotseff
Director of Planning Chief//Administrative
and Development Off ices'
DC*FW*cc
*Attach
29 November 1989
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ATTACHMENT #1
TERMS OF REFERENCE
BOWMANVILLE WATERFRONT STUDY
1. Study Purpose
The purpose of the study is to assess the current and future development potential of the Bowmanville
waterfront. It is intended that the study provide guidance to Council in the form of recommended
policies for the management and development of the waterfront resource in a manner which addresses
the recreational, environmental, and overall economic potential of the area between Highway 401 and
Lake Ontario. The study should include an action plan which identifies the extent and nature of public
access to the waterfront areas, the roles of the public and private sectors as well as design and
environmental criteria for consideration in approving future development proposals.
2. Background
The lands south of the Canadian National Railway and east of the Bowmanville Creek at Bowmanville
are designated as 'Waterfront Related Open Space" in the Durham Regional Official Plan. Section
12.3.3 of said Plan requires that specific plans be prepared for these areas to address such matters as
the appropriateness of nodes functioning as centres of tourist activity, active recreation uses, seasonal
residential uses or any other uses deemed desirable. To date, there has been no such study to address
the future development of the Bowmanville waterfront.
On February 27, 1989,Town Council considered a Background Report reviewing some of the constraints
and opportunities in the immediate area of Port Darlington. As a result, Staff were directed to
investigate in further detail future land use options.
Subsequently two major landowners located to the east of the Port Darlington area have indicated their
desire to develop the waterfront properties for a mixture of residential, commercial and tourist-oriented
facilities.
On October 17, 1989, the Premier of Ontario announced the establishment of the Royal Commission
on the Greater Toronto Area Waterfront to inquire into and recommend initiatives to preserve and
create a continuous public access to the waterfront from the western boundary of Halton Region to the
eastern boundary of the Town of Newcastle.
The Bowmanville Waterfront Study is to be prepared to fulfill Council's intention and prepare detailed
policies for the waterfront area. The scope and purpose has broadened in light of recent initiatives.
3. The Study Area
3.1 Location
The geographic boundaries of the Study include all of the lands south of the Canadian National Railway
mainline along Lake Ontario generally including the lands from Lot 4,Broken Front Concession to West
Beach Road south of the present Bowmanville Urban Area. The study shall include existing
developments as well as the development/redevelopment potential of both public and privately-held
lands.
The study area is shown on the attached plan.
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3.2 Description of the Study Area
The Study Area consists of a mixture of land uses, some of which are incompatible. The majority of
the Study Area is undeveloped at present.
Major landowners in the area include the following:
Central Lake Ontario Conservation Authority
The Bowmanville Harbour Conservation Area includes lands and marshlands associated with the
Bowmanville Creek. Minimal recreation facilities and no interpretative facilities have been developed.
Port Darlington Marina
The Port Darlington Marina complex includes yachting facilities, a restaurant, hotel facilities and 25
residential condominiums.
Port Darlington Harbour Company
The Port Darlington Harbour Company was established in to facilitate trade in colonial times. Port
Darlington never developed as much of trading port, restricted by its lack of a natural harbour. The
Harbour Company lands are now occupied by dilapidated seasonal dwellings.
Kingstown Investments
A recent development application was submitted by Kingstown Investments on 23.4 ha land located in
Lots 7 and 8. The firm is presently preparing planning documents to define and support its application
for inclusion in the urban area for predominantly residential uses. It is presently utilized for
agricultural purposes.
841221 and 841222 Ontario Limited
A development proposal is under preparation on 23.5 ha of land located in Lots 5 and 6. The
development proposal will include a major tourist facility and residential development. These lands are
presently utilized for agricultural purposes.
In addition to the above, there are residential dwellings located in clusters on West Beach Road and
East Beach Road. The size, condition and age of these dwelling vary considerably. The residents have
an active community association.
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Industrial uses in the study area include Dufferin Aggregates Concrete Batching plant, Custom Trailer
Manufacturing, and Wiggers Yacht Builders. The Region of Durham water supply plant and sewage
treatment facility for the Bowmanville Urban Area are also located in the Study Area. The Town of
Newcastle has a small parkette but has no major recreational facilities in the area.
4. Study Goals and Objectives
The overall goal of the study is to prepare a comprehensive development strategy for the Bowmanville
waterfront which recognizes the significance of the area including its physical, recreational,
environmental and aesthetic potential.
Objectives
i) Prepare a strategic plan and related planning amendments which identify the future direction
for land use planning in the study area.
ii) Address the relationship of the Bowmanville urban area to the Lake Ontario waterfront.
iii) Provide the justification for the inclusion of the study area in the urban area boundary.
iv) Address the relationship and balance among the different types of land uses in the waterfront
area.
V) Identify environmental constraints to the development of the waterfront and prepare policies
and design guidelines to address these constraints.
vi) Identify the broadest possible range of recreational and open space opportunities to meet the
year-round needs of residents and visitors.
vii) Identify and assess all public and private sector development opportunities on or adjacent to the
waterfront.
5. Study Components
5.1 Urban Form and Land Use Component
a) examine the study area in its context and identify the rationale for inclusion of the Study Area
within the Bowmanville Urban Area boundary.
b) provide a detailed analysis of the existing use of lands within the study area including land
ownership, vacant lands and potential land use conflicts.
C) assess access, circulation, parking and servicing in terms of capacity, location and condition with
special regard to access separation for vehicles, trucks, railways, bicycles and pedestrians.
d) identify environmental constraints and issues including hazard lands, significant natural features,
erosion, water quality, etc.
e) assess existing site qualities including unique visual perspectives, vegetation and overall
environmental constraints to be enhanced or protected in the development process.
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f) review existing Official Plan policies as well as those of other affected agencies such as the
Conservation Authority to determine their impact on past and future development patterns.
g) prepare a comprehensive assessment of the development constraints related to land use and
urban ,form. In particular, the study must address the relationship of the waterfront lands
with the adjacent industrial lands, the St.Marys Cement operation and the Wilmot Creek
Retirement Community.
h) examine the barriers to the study area and the viability of various means to integrate the study
area with residential areas and services provided north of Highway 401.
5.2 Demographic Analysis and Market Component
a) prepare an analysis of the population and demographic profile of Bowmanville to identify
particular shifts and needs in respect to housing and recreation.
b) assess the nature of housing growth and demand relative to the future development of the
waterfront area.
C) identify and assess specific markets related to tourism facilities, marinas and other potential
development opportunities in the area.
5.3 Recreation/Open Space Component
a) based on available information, prepare an inventory of existing passive and active recreational
facilities.
b) identify three levels of future needs related to all residents of Bowmanville, Newcastle, and the
Region of Durham which could be met in the waterfront area.
C) identify potential public access and open space systems including the possible development of
a District Park intended to provide significant areas of publicly accessible open space along the
waterfront as well as integrate existing uses.
d) identify and detail opportunities related to the tourism potential of the Bowmanville waterfront.
e) assess the potential for conflict between Town-users, Regional-users, and tourist-users of the
waterfront resource and the means of resolving same.
5.4 Transportation Component
a) identify and assess existing and future pedestrian, bicycle and road connections to ensure safe
and adequate access to the waterfront.
b) identify potential conflicts and improvements related to vehicular and pedestrian movement
through the area and the CN mainline.
C) detail traffic and parking improvements which would have to be undertaken relative to specific
development opportunities.
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5.5 Urban Dessgn Component
a) prepare urban design standard guidelines to be used in the implementation of the Waterfront
Development Strategy.
b) land use recommendations should reflect a scale appropriate to the area and be designed to
provide a transition and balance between public and private developments.
5.6 Planning Component
a) a strategic land use plan for the waterfront should be prepared which incorporates the
recommendations related to urban form, land use, open space,transportation and urban design.
This plan will form the basis of amendments to the existing Durham Region Official Plan and
the Town of Newcastle Official Plan.
b) recommendations which require changes to the Official Plans or Zoning By-laws will be drafted
and reviewed with the appropriate planning and municipal staff.
C) specific recommendations and policy requirements regarding urban design, shoreline
management, environmental enhancement and open space systems shall be prepared as part
of the plan documentation and referred to their respective implementing departments/agencies.
d) municipal servicing and transportation improvements should be identified, priorities established
and implementation mechanisms identified in consultation with municipal officials.
6. Consultant Responsibilities
The Consultant will be responsible for:
a) undertaking all necessary research, including data collection and analysis, required for the
completion of the work program components in accordance with Section 5 of these terms of
reference.
b) appropriate consultations with outside agencies, organizations, government departments and
Ministries in accordance with Sections 7 and 8 of these Terms of Reference.
c) undertaking appropriate measures to enable public input into the planning process, in
accordance with Section 9 of these terms of reference.
d) attendance at meetings in accordance with Section 10 of these terms of reference.
e) the preparation, production and distribution of the draft and final documents.
NO MATERIALS, DATA OR INFORMATION PERTAINING TO THE STUDY ARE TO BE
RELEASED TO ANY INDIVIDUAL, GROUP, ORGANIZATION OR AGENCY WITHOUT THE
EXPRESS CONSENT OF THE TOWN OF NEWCASTLE.
7. Study Direction
The work of the consultant will be directed by the Town of Newcastle, Planning and Development
Department.
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8. Consultation Process
During the course of the preparation of the Study, the requirements and policies of all affected public
or regulatory agencies shall be considered.
For this purpose, a Technical Advisory Committee will be established for the purposes of expediting the
input of the key agencies. It is proposed that Technical Advisory Committee will consist of the
following agencies:
Town of Newcastle - Planning & Development Department
- Works Department
- Community Services Department
Region of Durham - Planning Department
- Works Department
Central Lake Ontario Conservation Authority
Ministry of Natural Resources
Ministry of Tourism and Recreation
This Committee may be augmented by representatives of the Ministry of the Environment, Federal
Small Craft Harbours Branch and the Royal Commission on the Greater Toronto Area Waterfront.
Other agencies will be consulted but not participating members of the Technical Advisory Committee.
9. Public Participation
The consultant will be required to undertake a public information and participation program intended
to solicit the views and identify the needs of local residents. In this regard, there should be various
forums for the input of the major landowners, the Port Darlington Community Association,
environmental groups and the general public.
10. Meetings
The consultant will be required to attend meetings, including but not limited to:
i) Meeting with the Town of Newcastle Planning Staff as required
ii) consultation with the public and community ratepayer groups
iii) meetings with the Technical Advisory Committee during Phase 1 and at the conclusion of each
phase
iv) presentation of alternatives at a public meeting of Council at the conclusion of each phase
V) presentation of the fmal plan to Regional Planning Committee and Council, if deemed necessary.
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11. Report Format
The study shall be undertaken in two phases.
Phase I
This phase will include all of the background analysis related to land use, transportation and servicing
as well as an identification of development constraints. Future development concepts will be prepared
together with preliminary recommendations on key issues. A report will be presented to the Technical
Advisory Committee and the General Purpose and Administration Committee of Council. Following
a review of the report, a final waterfront development concept will be prepared.
Phase II
The recommended concept will form the strategic basis for the preparation of a comprehensive
waterfront plan which among other matters will contain:
- a set of clearly stated goals and objectives to provide vision, priority and direction for the future
development of the waterfront;
- priority listing of public improvements required to facilitate the implementation of the Plan and
their estimated costs;
- clear identification of land use policies related specifically to the various land uses intended in
the area; and
- guidelines for urban design and environmental management to be used in the implementation
of the Plan.
The Plan is to be organized and illustrated in a Plan document that is well written, in a straight
forward, unambiguous terminology that will be clearly understandable to the general public and private
and public sector decision makers.
Draft Official Plan amendments and zoning by-laws will be prepared in this phase.
All original text, maps, plates, data, reports and other materials or information collected or prepared
by the consultant shall be considered municipal property and will be turned over to the Town at the
conclusion of the study.
12. Timing and Budget
The consultant's written proposal shall specify the timing of the work program by component and the
anticipated completion date. Cost estimates shall be provided for each phase or component of the study
and shall include the production of 50 copies of Phase I report and 50 copies of the final report.
13. Proposal
The consultant's written proposal shall contain the following:
a) a detailed description of the consultant's suggested approach to the study as outlined in these
___________—__.termsmof reference-and--the-requirements-for-any-municipal--staff-resources:-------- -- ------
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b) a specific timetable/work plan for the various phases of the study and a deadline for
commencement, submission of any reports and completion of the study process and final report.
C) the principle fields of activity and range of professional consulting services offered by the
consulting firm relevant to the purpose of this study.
d) the name(s) of the principal(s) of the firm who will be co-ordinating and presenting the study
and the staff who will specifically be assigned to the study, indicating their qualifications and
experience pertaining to preparation of a waterfront plan.
e) the names, qualifications and experience of any outside firms to be subcontracted.
f) the type of research and public participation program proposed for this study.
g) a list of previous municipal clients with contacts for reference purposes and copies of recently
completed studies which are of a similar nature to this proposal. Sample documents will be
returned upon request.
h) cost estimates with upset costs for the study, including such matters as the costs of meetings,
mileage, secretarial, telephone, computer and printing costs. The consultant will furnish an
itemized estimate of the costs of each component and phase of the study process. Any per diem
rates and meeting rates for additional work not specifically covered in these terms shall also be
provided.
i) a schedule of hourly rates and an estimate of the number of days that each member would
spend on the study and a sum total of this time.
The consultant is encouraged to make separate constructive comments and suggestions regarding the
terms of reference and the approach to this study which in his/her opinion would improve performance
in carrying out the assignment. Such comments shall not be made conditional to acceptance of the
assignment.
14. Proposal Evaluation
Each proposal will be closely examined for compliance with the terms of reference. Any proposed
revisions to the terms of reference should be clearly indicated and an explanation for the suggested
changes should be documented by the consultant.
In addition to the proposed methodology, content and overall adequacy of the proposal, the selection of
the consultant will be determined on the basis of qualifications, experience, competence of personnel,
reputation of the firm and total cost and budgetary considerations. The proposal should recognize the
Town's unique local conditions and address the specific problems of incorporating the waterfront into
the urban area.
15. Authorization for Services
Upon the selection of the successful consultant, the responsibilities of the consultant, study timing, study
phases, and the like will be authorized in writing. It should be noted that the Town may impose a
penalty clause in its authorization for delay in completion of the project.
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16. Over-Run of Cost
All costs incurred by the consultant in preparation of the study and not specifically provided for in the
consultant's cost proposal and authorization letter will not be the responsibility of the Town of
Newcastle.
17. Information Available from the Town of Newcastle
The following is a list of some of the information relevant to this study that is available from the Town:
i) Town of Newcastle Official Plan
ii) Comprehensive Zoning By-law 84-63
iii) Port Darlington Development Study (1988)*
iv) Town of Newcastle Planning Studies (1975)
V) Culture and Recreation Master Plan (1983)
vi) Assessment Information on land ownership, housing, building condition, etc.
vii) Wetland Evaluation, Ministry of Natural Resources
viii) Durham Regional Official Plan
ix) Base Maps & Topographic Mapping
X) Air Photography
* It is suggested that prior to submitting a proposal, that the consulting firms invited to submit
proposals obtain a copy of this publication.
In addition, the following information is available from the Central Lake Ontario Conservation
Authority:
i) Environmental Sensitivity Mapping Project, Gartner Lee & Associates (1978)
ii) Floodplain Mapping
iii) Bowmanville Harbour Conservation Area Master Plan
iv) Conservation Planning Study: Long Term Acquisition Plan
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