HomeMy WebLinkAboutPD-210-91 REPORT #2
THE CORPORATION OF THE TOWN OF NEWCASTLE
DN: OFF-PLN.COU REPORT
PUBLIC MEETING
Meeting: Council File #
Date: Monday, September 16, 1991 Res. #
By-La
Report#: PD-210-91 File #: Pln. w#
Subject: REVIEW OF THE TOWN OF NEWCASTLE OFFICIAL PLAN
Recommendations:
The following is respectfully recommended to Council:
1. THAT Report PD-210-91 be received;
2 . THAT the Planning and Development Department be authorized to
initiate a comprehensive review of the Town of Newcastle official
Plan and that this task be the top priority of the Planning
Department;
3 . THAT the approach in handling development applications during the
Official Plan preparation process as discussed in Item 5. 1 of
Report PD-210-91 be APPROVED and the applicants for those
applications listed in Appendix 3 be advised of Council's decision;
4 . THAT a copy of this report be sent to the Region of Durham, the
Ministry of Municipal Affairs and the interested parties listed in
this report.
1. LEGISLATIVE REQUIREMENT FOR A REVIEW OF THE OFFICIAL PLAN
1. 1 Section 26 of the Planning Act, 1983 requires the Council of
every municipality that has adopted and approved an official
plan to hold a special meeting of Council, at least once every
5 years, for the purposes of determining the need for a
revision of the official plan.
1. 2 The Town of Newcastle Official Plan was approved by the
Minister of Municipal Affairs in part on July 4, 1986 and
November 11, 1987 as Amendment No. 22 to the Official Plan of
the former Township of Darlington.
REPORT NO. : PD-210-91 PAGE 2
The Plan is primarily an amalgamation of Urban Area Plans
prepared several years before, as noted below:
Section 6 (Policies for the Courtice Major Urban Area)
Town Council Approval Sept. 10, 1979
Ministry of Housing Approval June 6 , 1980
Section 7 (Policies for the Bowmanville Major Urban Area)
Town Council Approval July 13, 1981
Ministry of Municipal Affairs Approval April 7, 1983
Section 8 (Policies for the Newcastle Village Small Urban
Area)
Town Council Approval March 29, 1982
Ministry of Municipal Affairs Approval April 13, 1983
Section 9 (Policies regarding Hamlets) although new, was
premised on existing Hamlet Development Plans for six (6) of
the fourteen ( 14) hamlets . The actual schedules for land use
designations were essentially the same.
The Town of Newcastle Official Plan does not include any
policies or designations for the rural areas . It was
considered at the time that the Durham Regional Official Plan
was sufficiently detailed to address the concerns of the rural
areas .
2 . PUBLIC NOTICE
2 . 1 The Planning Act requires a meeting of Council to deal with
the need for the Official Plan Review and that notice of the
meeting is to be published in local newspapers at least once
a week in two separate weeks, such publication to be completed
not later than 30 days before the date of the meeting.
. . . 3
REPORT NO. : PD-210-91 PAGE 3
2 . 1 In this regard, notice of the Council meeting was published
in local newspapers as follows:
in the Oshawa Times, the Bowmanville Statesman, and the
Orono Weekly Times on August 7, 1991 and August 14, 1991;
in the Newcastle Independent on August 14, 1991
2 .2 Notice of the Council meeting was also mailed on August 8,
1991 to a total of nineteen community and ratepayer
associations in the Town. These groups are indicated in the
list of interested parties at the end of this report.
3 . RATIONALE FOR A COMPREHENSIVE REVIEW OF THE TOWN'S OFFICIAL
PLAN
3 . 1 The Planning Act further requires that sufficient background
information be provided to give Council and the public a
reasonable idea of whether or not revisions to the Official
Plan are necessary, and how extensive a review should be
undertaken.
3 .2 For this purpose, Staff have prepared an Introductory
Discussion Paper (Attachment No. 1) which provides an analysis
of the need to review the Town of Newcastle Official Plan. The
Discussion Paper presents several compelling reasons why the
Town of Newcastle should undertake a comprehensive review of
its Official Plan. As discussed below, these reasons can be
grouped into three distinct categories - changes in the policy
context, increase in growth pressures, and changes in societal
needs and values .
3 . 3 Changes in Policy Context
3 . 3 . 1 The Town of Newcastle Official Plan must be brought into
conformity with the new Durham Regional Official Plan, as
approved by Regional Council on June 5, 1991 . The new Regional
Plan designates a substantial amount of new land in the Town
. . .4
REPORT NO. : PD-210-91 PAGE 4
for residential and employment uses, as well as increasing the
amount of commercial floorspace allocated to the Central Areas
in the Town.
3 . 3. 2 The new Regional Official Plan contains less detail and
provides more of a conceptual framework for the Regional
structure than the previous Plan. Area municipalities must
provide the necessary land use and policy details within their
own Official Plans to manage and control growth and
development. In particular, the Town's Official Plan should
provide policies and designations for the rural areas of the
municipality.
3 . 3. 3 In recent years, the Provincial Government has released a
number of draft and approved Policy Statements pursuant to
Section 3 of the Planning Act, including statements regarding
Land Use Planning for Housing, Wetlands and Mineral
Aggregates . The Town's Official Plan is required to be
reviewed to determine how the provisions of the Provincial
Policy Statements may be incorporated into the Plan. In
addition, the Provincial Government has also declared
provincial interest on land use planning issues relating to
the Lake Ontario waterfront and the Oak Ridges Moraine. These
issues must be addressed in the local Official Plan.
3.4 Increase in Growth Pressures
3 .4. 1 Within the past five years, the Town has become the focus of
much of the growth of the Toronto-centred region, forcing the
municipality to deal with pressures not previously
experienced. This includes recent changes to infrastructure
initiated by the Provincial government, such as the selection
of a technically preferred route for Highway 407 . The Town's
Official Plan should be reviewed to enable the Town to respond
appropriately to these demands and growth pressures .
. . .5
REPORT NO. : PD-210-91 PAGE 5
3 . 5 Changes in Societal Needs and Values
3 .5 . 1 Significant shifts have occurred over the past decade in
societal values and needs, including a greater awareness of
environmental concerns, shopping and retail practices, and an
increased demand for smaller housing units . The Town's
Official Plan should be responsive to the needs and values of
the community, and therefore should be updated to reflect
these changing values and needs .
4. WORK PROGRAM
It is proposed that the preparation of a new Official Plan for
the Town of Newcastle will be guided by the following themes:
Management of Growth - The plan preparation process will
address public attitudes related to growth in the Town
and the mechanisms to ensure orderly and controlled
growth in the future.
Sustainable Development - The Official Plan Review
process will need to examine how the Town's economy can
prosper and grow in a manner in which the use of land and
resources can sustain society for the long term.
Quality of Life - Under this theme, the plan preparation
process will address the ways the quality of life of
Newcastle residents can be maintained and improved.
The Official Plan Review process requires a substantial
commitment on the part of every member of the Planning
Department. A draft Work Program has been prepared, not only
to provide coordination for the efforts of individual Staff
members, but as well to ensure that the work undertaken
reflects the underlying themes of the Review process.
. . . 6
I
REPORT NO. : PD-210-91 PAGE 6
The draft Work Program is presented in Attachment No. 2 for
Committee's information. The work is to be undertaken in five
phases, as follows:
Phase 1 Background Research
Phase 2 Issues, Options and Implications
Phase 3 Policy Framework
Phase 4 Draft Official Plan
Phase 5 Recommended Official Plan
The goal is to place a recommended Official Plan before
Council in early 1994 .
Meaningful public participation will be an integral component
of each phase of the Official Plan review process . Both
traditional and more innovative methods will be used to inform
the public of the Review, to solicit their input, and to
stimulate their interest and participation.
5 . PROCESSING OF DEVELOPMENT APPLICATIONS
5 . 1 The preparation of a new Official Plan can be considered as
the most important task ever undertaken by the Town and it
requires a concentrated effort of staff and Council in order
to accomplish the task on a timely basis . Since it will be
done internally, the limited staff resources will need to be
P
reallocated. It is my intention to involve all planning staff
in some aspect of the Official Plan preparation.
For the Strategic Branch, there will be virtually no
opportunity to take on additional tasks other than those
already committed. Even so, existing projects and responding
to and monitoring senior government initiatives will consume
a good portion of staff time. For the Development Review
Branch, planners will be assigned to devote half of their time
to the Official Plan preparation process .
. . . 7
REPORT NO. : PD-210-91 PAGE 7
As a consequence there will be inevitable delay resulting in
longer processing time to review development applications.
In this regard, it is proposed that development applications
will be dealt with in the following manner:
i) all development applications (rezoning, site plan, plans
of subdivision, etc. ) not requiring an amendment to the
Town of Newcastle Official Plan will continue to be
processed in the usual manner.
ii) development applications within the existing urban area
boundaries which require an amendment to the Town of
Newcastle Official Plan will continue to be processed.
If the proposed amendment is minor in nature and would
not prejudice the Official Plan Review process, staff
will bring forward a recommendation. If however, the
application is considered to have implications on the
preparation of the new Official Plan and would prejudice
the review, staff will not bring forward a
recommendation.
iii) development applications for areas recently added as
urban expansion area in the new Durham Region Official
Plan will not be processed during the period of the
review. This means that the applications will not be
circulated or reviewed. In all cases, however,
the applications would be considered as input into the
Official Plan preparation process . The rationale for
this approach is discussed in more detail in Paragraph
5 .2 of this Report. Although it appears that there will
be no processing of any official plan amendment
application for the new urban expansion areas,
effectively these applications will be addressed and
dealt with through the comprehensive review of the Town
Official Plan.
. . .8
REPORT NO. : PD-210-91 PAGE 8
iv) development applications in lands currently subject to
a planning study, being the Bowmanville Waterfront and
the Bowmanville Main Central Area, may be considered only
after completion of the study and will be dealt with
concurrently with the adoption of appropriate amendments
to the existing Town of Newcastle Official Plan.
v) development applications in the rural areas and hamlets
would continue to be processed with the exception of
future applications for the expansion of hamlets and
residential proposals in the Oak Ridges Moraine.
5.2 Rationale for Not Dealing with Applications Involving
Expansion Area Lands
5 .2 . 1 The new Durham Region Official Plan designates approximately
an additional 3300 acres of residential lands and 1700 acres
of employment area lands . Over the past few years a number
of applications have been submitted to amend the Town of
Newcastle Official Plan. Related subdivision and rezoning
applications have also been filed. There are 22 current
applications as indicated on Attachment #3 . We anticipate
more applications will be forthcoming.
A number of these proponents have approached staff with
regard to the processing of their applications. Several wish
to prepare Neighbourhood Development Plans to facilitate
consideration of their proposal. Tremendous pressure has been
placed on Town staff to deal with their applications . The
preparation of the Town's Official Plan is of such paramount
importance that it should be the top priority of the
Department. Aside from the lack of staff resources to deal
with these applications, there are other compelling reasons
that these applications not be processed during the Official
Plan preparation. These are:
. . .9
REPORT NO. : PD-210-91 PAGE 9
i) It is not possible to evaluate the merits of a
development application in the absence of policies and
designations in the Town of Newcastle Official Plan.
The new Durham Region Official Plan is a broad policy
document providing an urban structure plan for the
Region. Land use categories are broad and will contain
a variety of land uses . For example, within Living
Areas, the local plan can designate Community and Local
Central Areas, Special Purpose Commercial Areas, parks,
schools and other more specific land uses. Each urban
area has a population target but there are no details
regarding neighbourhood population targets, densities,
housing types, collector road systems, etc .
It is staff 's opinion that it is not possible to evaluate
the merits of a specific development application until
such time as the new Town of Newcastle Official Plan has
been prepared. There is a considerable level of detail
needed, as would be provided in the Official Plan, prior
to dealing with individual development applications.
ii) There is no short term or medium term land supply
requirements for new residential land.
The Town of Newcastle Draft Municipal Housing Statement
notes that as of December 31, 1990, draft approved and
registered lots represented a total potential housing
supply of 4 .5 years . A further 10 years of potential
housing supply is represented by active development
applications within the existing designated urban areas .
In addition there are vacant lands within the urban area
for which no subdivision application has been submitted.
In fact, a recent UDI publication identifies the Town of
. . . 10
REPORT NO. : PD-210-91 PAGE 10
Newcastle at the top of the list of all Greater Toronto
Area municipalities as having the most residential lot
supply.
Given that there is a potential 14 year supply of housing
represented by existing applications within the current
urban limits, there is no justification to prejudice the
Official Plan Review process by considering development
applications on lands outside the existing designated
urban area boundary.
iii) Delaying consideration of development applications in the
new expansion areas will ensure that the existing
designated urban lands are developed in a proper fashion.
The consideration of any development applications in the
expansion areas at this time will lead to a scattered
development pattern with some "leapfrogging" . This does
not allow for the orderly, compact development of urban
areas and will lead to premature impacts on the
agricultural community and natural environment and
strains municipal financial resources to provide services
to scattered subdivisions throughout the Town. Delaying
processing and/or approval of this type of applications
will allow the existing urban communities to develop in
more compact urban form and facilitate and expedite the
introduction of infractures and services such as school,
park, fire stations etc. in the community.
iv) The Development Charges Study is premised on development
within the existing urban area boundaries.
. . . 11
REPORT NO. : PD-210-91 PAGE 11
In the preparation of the Development Charge Study,
growth forecasts and anticipated capital works do not
take into account of additional urban lands beyond the
current urban area boundaries . In view of the
constraints placed upon the municipality through the
Development Charge Act approval of any subdivision in the
expansion area will definitely have a very significant
financial impact on the Town.
5 .2 . 2 Based on the rationale advanced in the preceding paragraphs,
it is staff's opinion that development applications on those
new urban expansion area are premature. These applications
are piecemeal and have significant negative planning and
financial impact on the municipality. In addition, they will
prejudice the outcome of the preparation of the Town Official
Plan in many ways . In the remote chance the applicant contest
the Town's refusal to deal with their applications during the
Official Plan preparation exercise, staff is confident that
the rationale stated previously can withstand the scrutiny by
the Ministry of Municipal Affairs and the Ontario Municipal
Board.
5 .2 . 3 The approach suggested by staff in the handling of development
applications discussed above is both reasonable and necessary
to ensure that limited staff resources can be directly to the
top priority of conducting the comprehensive review of the
Town Official Plan. The long term vision in securing the
public interest through the Official Plan exercise must come
first. In this regard, staff request the full support of
Council in endorsing the approach proposed herein.
6 . CONCLUSIONS
6 . 1 The Town is required to review its Official Plan to respond
to the recently approved Regional Official Plan and provincial
Policy Statements and declarations of public interest.
. . . 12
REPORT NO. : PD-210-91 PAGE 12
However, a more substantive review of the Plan's basic goals
is required to deal with the growth pressures being
experienced by the Town and to reflect changes in society's
needs and values . A comprehensive review of the Official Plan
would be the most effective mechanism for the Town to deal
with the large number and the scope of the issues currently
facing the municipality and be able to provide policies and
direction to guide the municipality to manage growth into the
next century.
Respectfully submitted, Recommended for presentation
to the Committee
Franklin Wu, M.C. I .P. Lawrence Kotseff
Director of Planning Chief A istrative
and Development Officer
FW*DJC*jip
*Attach
9 September 1991
INTERESTED PARTIES TO BE NOTIFIED OF COUNCIL'S AND COMMITTEE'S DECISION:
Ms . Niva Rowan Ms . Wendy Bootham
Save the Oak Ridges Moraine No Ganaraska Dump Committee
R.R. #1 R.R. #1
Newtonville, Ontario Kendal, Ontario
LOA 1JO LOA 1E0
Mr. George Webster Ms . Yvonne Maitland
Bowmanville BIA Orono BIA
Rickaby's Ltd. The Apple Blossom Shop
27 King Street West Main Street
Bowmanville, Ontario Orono, Ontario
L1C 1A3 LOB 1M0
Mr. Rob Griffin Ms . Phyllis Dewell
Newcastle Village BIA L.A.C.A.C.
Newcastle Laundromat Box 255
54 King Street East Bowmanville, Ontario
Newcastle, Ontario L1C 3L1
L1B 1H3
Report PD-210-91
Page 13
Mr. Ron Locke Mr. Lou Stavrakos, President
Durham Central Agricultural Tyrone Ratepayers Association
Society R.R. #5
R.R. #2 Bowmanville, Ontario
Newcastle, Ontario L1C 3K6
LOA 1H0
Ms . Irene Kock, Executive
Mr. Dan Spence, Chairman Director
Courtice for Clean Air Durham Nuclear Awareness
3339 Courtice Road Box 2143
Courtice, Ontario Oshawa, Ontario
LlE 2L7 L1H 7V4
Mrs . Pam Callus Mr. John Veldhuis
Courtice and Area Community Garbage of Ontario Diminished
Association Committee
Box 253 Box 16, 3 Division Street
Courtice, Ontario Hampton, Ontario
L1C 3L1 LOB 1J0
Mr. Victor Humphreys, President Ms. Helen MacDonald
Pebblestone area Residents Port Granby-Newcastle
Association Environment Committee
5 Kresia Lane R.R. #1
Courtice, Ontario Newtonville, Ontario
LlE 2G8 LOA 1J0
Mr. Gordon White, President Mr. Neil Allin
Port Darlington Community Durham Region Federation
Association of Agriculture
Group 2, Box 21 R.R. #1
R.R. #2 Orono, Ontario
Bowmanville, Ontario LOB 1J0
L1C 3K3
Mr. David Scott, President
Committee of Clarke Constituents
Box 20028
Newcastle, Ontario
L1B 1M3
C.B. MacDonald
Port Darlington Harbour Company
Tenants Association
R.R. #4
Bowmanville, Ontario
L1C 3K5
Ms . Katherine Guselle ,
Chairperson
Save the Ganaraska Again
R.R. #1
Orono, Ontario
LOB 1M0
A NEW OFFICIAL PLAN FOR THE TOWN OF NEWCASTLE
INTRODUCTORY DISCUSSION PAPER
September 1991
Attachment # 1 to Report PD-210-91
THE TOWN OF
ewiwsl(e Department of Planning and Development
ONTARIO
TABLE OF CONTENTS
Page
1. INTRODUCTION
1.1 The Role of the Official Plan 1
1.2 The Existing Town of Newcastle Official Plan 1
1.3 The Need to Review the Official Plan 1
1.4 Issues for Discussion 2
2. CHANGES IN POLICY CONTEXT
2.1 The Durham Regional Official Plan 3
Population Targets 3
Employment Targets 5
Commercial Development 5
Reduced Level of Detail - -6
2.2 Provincial Policy Initiatives 7
The Greater Toronto Area 7
Provincial Policy Statements 8
Royal Commission on the Future of the
Greater Toronto Waterfront 8
G.T.A. Greenlands and the Oak Ridges Moraine 9
3. GROWTH PRESSURES
3.1 Increase in Residential Building Activity 10
3.2 Impact of Growth - 11
3.3 Provincial Transportation Infrastructure Initiatives 11
Extension of GO Rail Services 12
Highway 407 and the Courtice Freeway Link 12
4. CHANGING NEEDS AND VALUES OF SOCIETY
4.1 Increased Interest in Environmental Issues 13
4.2 Changing Demand for Housing 13
4.3 Changing Shopping and Retail Practices 14
4.4 Changing Age Structure of the Population 14
4.5 Commuting and Changing Live/Work Relationships 15
5. STYLE OF THE OFFICIAL PLAN REVIEW 16
6. CONCLUSION
Management of Growth 18
Sustainable Development 18
Quality of Life 18
1. INTRODUCTION
1.1 The Role of the Official Plan
The Official Plan of a community is intended to provide a stable policy framework
within which the municipality can guide and control its future. It is the principle
document of the municipality for ensuring orderly growth, although many other
supplementary documents, including the zoning by-law, will be utilized to
implement and enforce the general policies of the Official Plan. The goals and
policy direction of an official plan are premised upon certain basic assumptions
regarding such matters as the rate of population and employment growth,
housing requirements, the protection of the natural environment, and the demand
for services. These assumptions are a reflection of the context in which the plan
was prepared.
1.2 The Existing Town of Newcastle Official Plan
The Town of Newcastle Official Plan is an amalgamation of various planning
documents prepared more than 10 years ago. The current plan is legally only
an amendment to the Official Plan for the former Township of Darlington which
consolidated three separate Urban Area Plans for Courtice, Bowmanville and
Newcastle Village, together with a number of hamlet development plans, into one
document. This consolidated document (Amendment # 22) was renamed "The
Town of Newcastle Official Plan". The Plan does not include any policies or
designations for the rural areas of the Town. Amendment # 22, considered by
Town Council on July 22, 1985, was adopted by the Region of Durham on
November 20, 1985 and approved in two parts by the Ministry of Municipal Affairs
on July 4, 1986 and November 11, 1987.
1.3. The Need to Review the Official Plan
An Official Plan should be sufficiently flexible to respond to a variety of
circumstances and changing conditions in society. However, dynamic forces can,
over time, change conditions so much that, as a result, the assumptions upon
which an official plan is based become outdated. It then becomes necessary to
re-examine the Plan to provide a relevant and appropriate policy framework
within which decisions regarding future growth within the community can be
made.
The Planning Act 1983, requires that every five years a special meeting of
Council be convened to determine the need for a review of the municipal official
plan. This review may be minor: monitoring the Plan to determine whether it has
responded to its underlying assumptions and is achieving its defined goals. On
the other hand, the review may be major: a complete reassessment of the Plan's
assumptions and fundamental principles, in recognition that these, and with it the
Plan, have become outdated and therefore render the Plan ineffective.
The following questions are central to the issue of whether the Town of
Newcastle Official Plan needs to be reviewed:
1
Which factors may have acted to change the assumptions upon which the
existing Town of Newcastle Official Plan was based?
What are the most critical issues facing the Town of Newcastle today and
in the future, and how can they be addressed in the Town's Official Plan?
What style or form should the review of the Town of Newcastle Official Plan
take?
This Discussion Paper attempts to answer these questions, thereby assisting
Council and the public in determining whether a review of.the Town's Official
Plan is necessary and what manner of review would be most appropriate.
1.4. Issues for Discussion
The discussion presented herein will focus on the following issues:
Changes in Policy Context
Increase in Growth Pressures -
Changes in Societal Needs and Values
Style of the Official Plan Review
Major Themes of the Official Plan Review
2
2. CHANGES IN POLICY CONTEXT
2.1 The Durham Regional Official Plan
The existing Durham Regional Official Plan was approved by Regional Council
in 1976 and by the Ministry of Municipal Affairs in 1978. Existing and new official
plans for the area municipalities within the Region are required by the Planning
Act to conform to the Regional Official Plan. In this respect, the assumptions
which form the basis for the Regional Official Plan are reflected in the official
plans for the area municipalities, including the Town of Newcastle Official Plan
which was prepared in the late 1970's and early 1980's.
The Region of Durham recently culminated the review of its Plan with the
adoption of a new Durham Regional Official Plan by Regional Council on June
5, 1991. As discussed below, the revisions to the Regional Official Plan as they
relate to the Town of Newcastle are both substantive and significant.
Population Targets
In the background work done in 1974/75 for the original Regional Official Plan,
a population forecast of 660,000 for the year 2001 was selected as the most
likely scenario for Durham Region. The additional population was to be
accommodated primarily in the area adjacent to Lake Ontario. .To ensure that the
Region developed an identity distinct from that of Metropolitan Toronto, the bulk
of this population (365,000 persons) was to be accommodated in the Whitby-
Oshawa-Courtice Urban Area.
Approximately 13% of Regional population was directed to the Town of
Newcastle. However; despite the dominance of the Whitby-Oshawa-Courtice
Urban Area, only 20,000 persons were allocated to Courtice. Bowmanville and
Newcastle Village were allocated 42,500 persons and 8500 persons respectively.
Population projections prepared by the Regional Planning Department in July
1990 indicate that the total population of Durham Region is expected to increase
to 561,230 persons by the year 2001, and to 868,980 persons by the year 2021.
These same projections assign Newcastle a total population of 78,275 persons
for 2001 (13.9% of Regional total), and 142,065 persons (16.3%) of Regional
total in the year 2021. By way of comparison, Newcastle's total population at the
end of 1990 was just shy of 45,000 persons.
The new Regional Plan provides for an urban population of approximately
1,000,000 persons for Durham Region over an unspecified time period.
Approximately 182,000 persons or 18% of this urban population has been
allocated to the urban areas in Newcastle as follows: Courtice - 60,000,
Bowmanville - 95,000, and Newcastle Village - 27,000.
The new Regional Plan seeks to balance the pressure for growth in the western
part of the Region by encouraging growth in eastern areas. In this regard,
Bowmanville and Newcastle Village are intended to develop as the eastern
anchor of the Region. Together, they have been allocated a population of
3
POPULATION FORECAST
TOWN OF NEWCASTLE
150
140 ...............................:.......................................................................................................................................................
.....
130 ..................................................................................................................................................................................
.................
120 ..»»............................................... ..................................................................................................... ...........................
110 ..» ............................................-M;Aa'3sm..................................................................... ........................................
TOWN r005
POMWION DOUBLES
1 OD ................................._...........»... ........................................................... ...... .. ....................................................
C:
OD ..............»..................................................................I............................................ .............................................................
...
80 ......................I...........................I.....................................I............................ ................................................................I.....
.....
OF—
a_ 70 ................................................................I.......................... ......................................................................................
1990 YEAR END
60 44,988 »...»... ...................................................... ............................
..................................
50 ............................................................. .................................................................................
40 ................................................I-------------- ........................................................................................»..................................
30 ...****...... .....................................I............................................................................................................................I..........
.
20"Imiii inipinjim , nnpim , mi , 'it , q impli , 11
1971 2021
1976 1981 1986 1991 1996 2001 2006 . 2011 2016
YEAR
Source: Region of Durhom Planning Deparir"M
122,000 persons. As well, Orono has been redesignated from a hamlet to a
Special Study Area which will permit fqture growth options for Orono as ah urban
area to be examined.
In total, the new Regional Plan has added approximately 5000 acres of new lands
for urban development in Newcastle. This substantive increase both in land
areas and population needs to be examined in terms of the impact on both hard
and soft municipal services, land use allocation and the supporting transportation
infrastructure.
The new Regional Plan*also places a lot of emphasis on the need to create
compact urban form, greater integration of different uses in Living Areas and
increased densities for residential development. The Plan hopes to achieve an
overall density in Living Areas of approximately 30 persons per gross acre. This
increase in density is particularly significant for the Urban Areas of Courtice and
Newcastle Village in that the Town of Newcastle Official Plan promotes low
density residential development as the norm for these communities (eg. 15
persons per gross acre in Courtice). The new emphasis by the new Regional
Plan on compact urban form and increased residential densities must be
evaluated in order to develop policies which reflect the particular circumstances
of the urban areas in Newcastle,
4
Employment Targets
Lands designated as 'Industrial' by the existing 1976 Regional Official Plan are
intended to be used primarily for such uses as manufacturing and warehouses.
Other uses are permitted provided that they are compatible with the industrial
uses in the area. The Regional Plan designates approximately 1200 acres of land
as 'Industrial' (excluding St. Mary's Cement lands) in the Town of Newcastle.
Approximately 36% percent of the Town's supply of industrial land is not serviced
with municipal sewer and water services. This unserviced land is located primarily
in the Courtice Industrial Park.
The new Regional Plan renames the Industrial Areas as 'Employment Areas'. This
change 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. In particular, 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. As well, for the
first time, the Regional Plan includes employment targets for each of the urban
areas in the Region. -
The new Regional Plan designates approximately 3000 acres for 'Employment
Areas' within the Town of Newcastle, of which about 2000 acres are located
within the expanded boundaries of the Courtice Urban Area:a It is intended that
the majority of the Employment Area lands within Courtice are to be serviced with
municipal sewer and water.
The Town of Newcastle Official Plan must provide the necessary direction for the
development of 'Employment Areas'. Appropriate policies must be included
regarding the various types of industrial, commercial and other uses which will
be permitted. As well, the Plan should provide the policy framework to guide
economic development so that the Employment Areas are developed with the
maximum possible benefit to the community.
Commercial Development
The background reports to the original 1976 Regional Official Plan regarded
Newcastle as a rural municipality. - In the discussion of commercial floor space
allocations, it was anticipated that there would be no regional or sub-regional
commercial centres located in Newcastle. The Bowmanville Main Central Area,
allocated 500,000 sq. ft. of retail and personal service floor space, was intended
to form the central commercial hub of the Town. The Newcastle Village Main
Central Area and the Courtice Community Central Area were targeted at 100,000
sq. ft. and 150,000 sq. ft. respectively. This floor space allocation was not
increased despite the subsequent addition of residential lands in Bowmanville
(west of Regional Road 57), in Courtice (Lot 35, Concession 3) and in the
Wilmot Creek retirement community.
As well, in the preparation of the commercial policies in the existing Regional
Plan, an underlying assumption was that the per capita demand for retail and
personal service floor space would remain essentially unchanged over the life of
the Plan, and that any increases in the demand for commercial floor space would
5
be directly proportional to population growth. This has not been the case
however, as new retailing formats have led to requirements for an increase in per
capita floor space.
The new Regional Plan maintains the hierarchy of Central Areas and substantially
increases the amount of retail and personal service floorspace permitted within
each Central Area. The Oshawa Main Central Area (King and Simcoe Streets),
with an allocation of 6.46 million sq. ft., is intended to continue as the dominant
Central Area within the Region.
Most significant for the Town of Newcastle however, is the designation of a
regional commercial centre in Bowmanville. The 2.15 million sq. ft. of commercial
floorspace allocated to the Bowmanville Main Central Area is more than four
times that permitted by the existing Plan. With this new commercial floorspace
allocation, the Bowmanville Main Central Area will function not only as the
community focus for the Town of Newcastle, but as well, as the eastern anchor
for Durham Region.
The new Regional Plan also places an increased emphasis on developing Central
Areas as the focal points of activity, interest and identity in the community. In
particular, the Official Plan seeks to restore the historic integration of the
shopping function with other traditional Central Area functions, such as Dousing,
employment, recreation, social activities and cultural facilities. Central Areas are
also encouraged to be developed on the basis of a grid system of roads and
walkways.
This significant increase in commercial floor space allocation to the Town
necessitates a detailed examination to formulate policies and detail land
uses to guide the growth and development of the commercial sector.
Reduced Level of Detail
The 1976 Regional Official Plan was prepared at a time when a number of area
municipalities in the Region, including the Town of Newcastle, had either partial
or no local plan coverage. Sufficient detail was provided in the Regional Plan to
permit development proposals to be evaluated directly against the policies and
land use schedules of the Plan. The new Regional Plan provides more of a
conceptual framework for the structure of land use in the Region than the 1976
plan. This is reflected in the reduced level of detail provided by the policies and
schedules in the new Plan. For example, Central Areas are only indicated
conceptually on the land use schedules. As well, land use categories are very
broad and permit a wide variety of uses.
It is now the responsibility of the area municipalities to "flesh out" the policies
and land use designations in their respective official plans. In this respect, the
local Official Plan must provide details with regard to such matters as the
allocation of populations to individual neighbourhoods, population densities,
tenure and affordability of housing, and urban design guidelines.
6
Given the broad policy nature of the new Regional Plan, it is now incumbent
upon the Town to provide the appropriate level of detail in our Official Plan to
fully evaluate development proposals. In particular, the Town has relied on the
policies in the Regional Official Plan to provide guidance for the rural areas of the
Town. Such issues as the role of hamlets and other forms of rural residential
development in accommodating new residential growth in the Town, as well as
the protection of the agricultural land base, need to be examined.
Summary
The new Durham Region Official Plan adopted by Regional Council on June
5, 1991 not only extends the planning period to beyond 2021 but changes
some fundamental assumptions about the future growth and development
of the Town of Newcastle. Moreover, the Durham Region Official Plan was
substantially altered in form and content. The Town of Newcastle Official
Plan must be reviewed in the larger regional context and all policies must
be updated, refined and detailed to conform to the new Durham Region
Official Plan.
2.2 Provincial Policy Initiatives
The Provincial Government has recently announced a number of policy initiatives
that will have a profound effect on land use planning decisions in the Town of
Newcastle.
The Greater Toronto Area
Within the past few years, the concept of the 'Greater Toronto Area' (GTA) has
gained acceptance as a mean of delineating the area which is substantially
affected by economic growth focused on Toronto. The GTA is recognized as
extending from the City of Burlington in Halton Region in the west to the Town
of Newcastle in Durham Region in the east. The Provincial Government has
created a number of bodies to provide coordination and cooperation for issues
affecting the GTA.
In June 1990, the Minister of Municipal Affairs released a document entitled the
'Greater Toronto Area Urban Concepts Study'. This study represents an attempt
to deal with the growth pressures being experienced in the GTA by exploring the
broad implications of three distinctively different urban structure concepts for the
GTA, as follows:
the 'spread concept' in which the existing pattern of low density growth
focused on suburban areas would be continued
the 'central concept' in which growth would be focused on existing built-
up areas, especially Metropolitan Toronto
the 'nodal concept', which represents an intermediate approach in relation
to the other two concepts, and which would encourage compact growth
in and around existing communities within the GTA.
7
The Provincial Government has not yet indicated its support for any of the
concepts explored in the Study and no major infrastructure initiatives have been
undertaken as the result of the study. However, it is apparent that the provincial
government is establishing an increasing role for itself in respect of major
planning issues facing the GTA. Any provincial initiative to support an urban
structure plan will have a profound influence on the magnitude and form of
.growth in the Town. Growth in Newcastle must be viewed in the context of
growth within the larger Toronto-centred region.
Provincial Policy Statements
Section 3 of the Planning Act, 1983, provides for the Minister of Municipal Affairs,
together with any other Minister of the Crown, to issue policy statements on
matters relating to municipal planning that are, in the opinion of the Minister, of
provincial interest. Municipalities are required to have regard for these Policy
Statements in exercising their planning authority and to review their Official Plans
against these policy statements to incorporate their provisions.
The following provincial Policy Statements have been issued either in-draft or in
approved form since the adoption of the existing policies in the Town of
Newcastle Official Plan
Food Land Preservation
Land Use Planning for Housing
Flood Plain Planning
Mineral Aggregate Resources
Wetlands
The policy statement on Flood Plain Planning is currently reflected in the Town
of Newcastle , Official Plan. The policy statements on Mineral Aggregate
Resources and Wetlands and the draft statement on Food Land Preservation are
not addressed since the existing Official Plan does not provide,policies for the
rural area.
Town staff are currently reviewing the housing requirements through a Municipal
Housing Statement. This will subsequently lead to an amendment to the Official
Plan as required by the Policy Statement on Land Use Planning for Housing.
Royal Commission on the Future of the Greater Toronto Waterfront
The Royal Commission headed by the Honourable David Crombie, is currently
in the final year of its mandate. Its interim reports in 1989 and 1990 have already
had a significant impact on the way waterfront areas are to be planned and
developed. Moreover, the Commission's promotion of an ecosystem basis to
land use planning has led to broad popular and political support for re-
examining the practice of planning. Undoubtedly, the Commission's final report
will have significant implications on planning policies and assumptions in the
Town of Newcastle Official Plan.
8
GTA Greenlands and the Oak Ridges Moraine
The 1990 Provincial report "Space for All: Options for a Greater Toronto Area
Greenlands Strategy" has led to the government's declaration of a provincial
interest in the Oak Ridges Moraine. More recently, the Ontario government has
announced Interim Guidelines for the Oak Ridges Moraine and a two year
planning study to develop a long term strategy to ensure the significance and
sensitivity of the Moraine is protected. It is anticipated that this provincial
strategy, for the Oak Ridges Moraine will need to be reflected in the Town's
Official Plan.
Summary
These provincial policy statements and the more recent planning initiatives,
will have major implications for the policy framework within which decisions
regarding future growth in the Town are made. The Town's Official Plan
must be reviewed, not only to determine if it provides an adequate reflection
of the policy direction being provided by the Province, but as well to ensure
that these policies are implemented in Newcastle in a manner which is
sensitive to the individual characteristics of this community.
9
3. GROWTH PRESSURES
3.1 Increase in Residential Building Activity
In recent years, Newcastle has been experiencing unprecedented new growth
and development. In the mid- 1970's when the original Regional Official Plan was
formulated, Newcastle was very much of a rural community outside the sphere
of influence of Metropolitan Toronto. Approximately 43% of the Town's population
lived in rural areas, including hamlets. For the twenty-five.years prior to 1986, the
Town had an average annual growth rate of 470 persons.
In contrast, within the last 5 years, the Town has become fully enveloped in the
growth phenomenon of the Greater Toronto Area. Since 1986, population growth
in the Town has accelerated to an average annual growth rate of 2,700 persons.
Growth in the last 5 years is equivalent to growth in the previous 25 years
combined. As well, almost 80% of new residents in Newcastle are locating in
urban areas.
Newcastle is currently in a period of transition from a largely -rural
community to one which is more urban in nature. This growth provides a
serious challenge for the municipality. If not property addressed, it will
strain not only the fiscal capability of the municipality but as well stretch
the social and cultural fabric of the community. The Town's Official Plan
must provide the necessary guidance So that the community can deal with
these growth pressures in an approprlate fashion.
NEW RESIDENTIAL DWELLING UNITS
AVERAGE ANNUAL HOUSING STARTS
1400
1200 ....................:.......................................................................................................................
1000 ......................................................................._................................................................... .......................
800 ..................._....................................................................................................................... .......................
0
W600 ............................................................................................................................................
M
z
400 ......................... .....................................................................................
200 ..................... ...... .................-----
0
1971-1975 1981-1985
1976-1980 1986-1990
NTERVAL
10
3.2 Impact of Growth
Growth is not benign. It brings with it not only a number of positive but also
negative impacts: there are economic benefits of growing but there are also
potential environmental and social costs of this growth.
Growth affects our natural environment in a number of ways. Urban sprawl and
speculation by developers takes large areas of land out of agricultural
production, and increases development pressures on lands which perform
important natural functions, such as groundwater recharge areas and wildlife
habitat.
As a society, we continue to consume large volumes of all natural resources to
support our standard of living, with most of the waste products of this
consumption ending up in landfill sites. These landfills further consume
agricultural lands and pose additional environmental problems.
For a number of years, the negative effects of unrestrained growth on our natural
environment have become increasingly apparent. On a global scale, the burning
of fossil fuels as an energy source threatens to irreversibly alter climatic patterns
on the planet. The thinning of the ozone layer which surrounds and protects the
earth from the sun's harmful rays poses a threat to all forms of life.
At a more local level, emissions from the motor vehicles on' which we have
become so dependent have caused a serious deterioration in the air quality in
our cities and towns. The degradation of the quality of water in our lakes and
rivers, and in particular of Lake Ontario and the other Great Lakes, has already
affected our lives, as evidenced by beach closures in the summer and
restrictions on the consumption of fish. What is becoming all too apparent is that
air and water pollution is not constrained by borders and boundaries. Local
problems, in the end, are global problems. -
Although growth may bring economic prosperity, create local employment
opportunities and benefit the living standard of the residents of Newcastle, it may
do so at the expense of our quality of life. It is apparent that the future livability
of our community is dependent upon the reconciliation of economic, social and
environmental imperatives.
In order for the Town to deal effectively with these competing demands, a
more comprehensive approach to planning is required: one that
encompasses not only the economy and land development, but also the
interrelationships between economic development, land use, and the natural
and social environments. The Official Plan can assist the Town in meeting
these challenges by presenting a long -term strategy to ensure a balance
between environmental integrity, social well-being and economic vitality.
3.3 Provincial Transportation Infrastructure Initiatives
Recent initiatives by the Provincial government in the transportation infrastructure
to serve the Greater Toronto Area, as discussed below, promise to further
intensify the development pressures on the Town.
11
Extension of Go Rail Services
Within the next few years, GO Transit plans to construct a GO Train station near
Townline Road between Oshawa and Newcastle. As well, the new Regional Plan
indicates its support for the extension of GO Rail services to Bowmanville, with
the intersection of Regional Road 57 and Highway 2 as the preferred location for
the station. The extension of full-time GO Rail service to serve Newcastle would
bring the Town more fully into the Toronto commuter shed, thus making the
Town more attractive as a place to live for those who commute to work in
Toronto and other communities in the GTA.
Highway 407 and the Courtice Freeway Link
The Ministry of Transportation has recently selected a technically preferred route
through the Town of Newcastle for the future Highway 407. The identification of
a technically preferred route for the 401/407 connector to serve Oshawa &
Newcastle is expected in late 1991 or early 1992.
The construction of these facilities will lead to more intense development
pressures on primarily rural areas of the Town and has the. potential to
significantly impact a number of hamlets which are located in proximity to these
future facilities. The Town must make decisions regarding the future land use
adjacent to these highways and how to manage the gro4h pressures on the
hamlets. The transportation network serving the Town will need to be examined
to determine what, if any, changes to the existing and future road network are
required to account for the new highways.
A review of land use and transportation cannot be done in isolation.
Provincial transportation initiatives to serve broader provincial needs will
lead to significant local impacts on land use. It is timely to examine what
Impacts such facilities will have in the context of the entire municliSality.
12
4. CHANGING NEEDS AND VALUES OF SOCIETY
Over the past decade, significant shifts have occurred in the underlying needs
and values of society as a whole. These changes have the potential to
fundamentally affect the assumptions upon which the Town and Regional Official
Plans are based. The more significant of these changes are discussed below.
4.1 Increased Interest in Environmental Issues
One of the most significant changes is the increased interest by the general
public in environmental issues. This concern is due, in large part, to a growing
awareness of global environmental problems such as acid rain, the depletion of
the ozone layer and global warming. People have also become acutely aware of
environmental problems of a more local and regional nature, ranging from the
"garbage crisis" and pollution of the Great Lakes, to an increased interest in the
protection of urban woodlots.
This heightened awareness of how we, as a society, negatively impact on the
natural environment, has manifested itself in a number of ways, including the
recent emphasis in the "319s" (the reduction, reuse and recycling of waste), and
the marketing of . "green" consumer products. This concern for natural
environment issues has even spilled over into a more general concern for the
quality of our total environment, including the built environment.
The Town of Newcastle Official Plan must be able to respond to this growing
public awareness of the quality of both the natural and built environments by
providing solutions to problems at the local level. The Town's Official Plan could
explore local solutions which contribute to the resolution of global environmental
problems.
4.2 Changing Demand for Housing '
Since the early 1970's, there has been a significant change in the type and size
of housing being sought by the general public. Between 1971 and 1986, single-
detached dwellings accounted for 81% of all housing in the Town. Since 1986
however, single-detached dwellings have accounted for only 59% of housing
starts in Newcastle. In addition, of the future housing stock which is approved
or proposed in Newcastle, only 42% is single detached, 22% are link homes and
semi-detached dwellings, while townhouses and apartments account for 22%
and 14% respectively.
A number of factors have contributed to this change in demand for housing. The
size of the average household in Newcastle has decreased from 3.7 persons in
1971 to 2.9 persons in 1986. This reduction is due, in large part, to families
having fewer children, and an increase in the number of single parent families
and non-family households. In addition, the number of "empty - nesters" who are
seeking smaller accommodation to suit their changing life-styles is and will
continue to increase as seniors account for an increasing proportion of the
population.
13
The price of housing in Newcastle, as in the entire Greater Toronto Area, has
also increased substantially since the mid-1970's. Between 1984 and 1990, the
average price for a house in Newcastle increased by 172 percent. The price of
rental accommodation also rose substantially during this period. The ability to
buy or rent affordable housing has become increasingly difficult for a larger
percentage of the population.
The reduction in household size and the increase in housing prices have resulted
in a trend towards more compact housing and the provision of alternatives to
traditional single family housing. The Town of Newcastle Official Plan must be
amended to account for these changing demands for housing, while ensuring
that such changes can be integrated into the community without undue strain on
our social fabric.
4.3 Changing Shopping and Retail Practices
Since the mid-1970's, there has been a substantial increase in the disposable
income available to the average consumer for retail and personal service
expenditures. The single most important contributing factor in this regard-is the
increased participation of womem in the labour force and the emergence of the
two-income family as a societal norm. The average household size, as previously
discussed, is also becoming smaller. These factors have combined to produce
a significant increase in real per capita purchasing power.
With their enhanced purchasing power and reduced time available for shopping,
consumers are placing a greater emphasis on service and convenience. One
result has been an increasing trend to shop on the. trip to and from work.
Suburban shoppers now also expect a broad range of merchandise and high
levels of service, qualities which are traditionally more characteristic of dowrOown
retail areas.
The structure of commercial retailing in the Region is continuously evolving in
order to meet the changing needs and expectations of consumers. Retail
facilities with a regional draw, such as shopping centres and
superstores/warehouse outlets have developed in response to the consumer's
demand for 'one-stop shopping'. Specialty stores have become more popular at
the expense of traditional department stores. Mid-range (neighbourhood)
commercial centres are becoming less viable as more retail expenditures are
being made in convenience-level and regional-level shopping facilities. Although
the new Regional Plan reinforces the Central Areas Concept, there is still
considerable flexibility in how this could be implemented. The Town's Official
Plan needs to consider how to incorporate the evolving shopping and retail
practices.
4.4 Changing Age Structure of the Population
Changes in the age structure of Ontario's population over the next 25 years will
be very different from that experienced over the last 25 years. Specific data for
Newcastle is not available. However, it is expected that the changing age
structure of the Town's population will mirror provincial trends.
14
In the 1960's and 1970's, the most significant increase was apparent in the
'under 24' age group as the result of the post war 'baby boom'. In contrast,
between 1986 and 2011, the 45-64 population is expected to increase sharply
as the leading edge of the 'baby boomers' enters this age group. The over 65
age group will be the fastest growing age group over the next 25 years and, in
2011, is expected to comprise 16% of Ontario's population.
This trend towards an aging population is the result of both the wide swings
which have occurred in fertility and increased life expectancy. It is also expected
that these seniors will enjoy better health and a more active life-style than seniors
in previous times. As a result, the community will have to be able to respond to
the demands from these seniors in terms of housing and community services.
4.5 Commuting and Changing Live/Work Relationships
The quest for affordable housing has been the biggest factor in the Town's
recent population growth. By and large, new residents are employed elsewhere
and are prepared to commute to work daily to enjoy-the house and lifestyle
afforded in the Town of Newcastle. This is changing the live-work relationships
for residents of the Town as it becomes increasingly a dormitory community.
Will this trend continue? Improving the live-work relationships of residents will
reduce the strain of family life, reduce the requirement for major transportation
infrastructure and be more environmentally sound. The Official Plan should
contribute to this objective.
Summary
As the expression of the desired future for a community, an official plan will
be shaped by the values and social norms of the community. In the decade
since the source documents for the Town of Newcastle Official Plan were
prepared, the needs and values of society have changed. The Official Plan
should not only reflect these changes but try to anticipate those in coming
decades.
15
5. STYLE OF THE OFFICIAL PLAN REVIEW
In reviewing the Town of Newcastle Official Plan, there are several options as to
the style of review which could be undertaken. These are briefly summarized as
follows:
i) Minor Update
The Town of Newcastle Official Plan. must conform to the new Durham Region
Official Plan and any applicable provincial policy statements. In this regard, the
tone of the review would focus on purging the Official Plan of any conflicting
policies, adding new provisions including those to meet the requirements of the
policy statement on Land Use Planning for Housing, and providing land use
designations and policies for the expansion areas added to the Courtice,
Bowmanville and Newcastle Village urban areas. This is the minimum level of
effort required.
ii) Performance Appraisal
This style of review would focus on evaluating the objectives and policies of the
existing Plan to determine their effectiveness. What has been achieved? What
is not working well? The performance appraisal approach would attempt to fine
tune the existing Official Plan to make it more relevant to current conditions and
trends.
iii) Comprehensive Review
This style of review would begin with a broad examination of all facets of the
Town: its natural, social, economic and cultural environment. The tone of this
type of review is not so much to evaluate and modify the existing document but
to begin afresh and, in essence, prepare a new official plan. Nevertheless, it still
would permit an evaluation of the assumptions of the existing plan.
It is staff's opinion that a comprehensive review of the Town of Newcastle
Official Plan is not only warranted, but indeed must commence immediately.
The existing document is flawed in many ways. As an amalgamation of various
documents prepared at different times, it is a confusing Plan with many
redundancies and inconsistencies. It would seem pointless to only tinker within
the existing format.
As was discussed earlier, the assumptions which provide the rationale for the
policies and land use designations of the Town of Newcastle Official Plan are
out-dated. The Durham Regional Official Plan, which provides the *tructural
framework for the Town's Official Plan, was formulated in the mid-1970's when
Newcastle was still primarily a rural community, with only moderate population
growth anticipated for the foreseeable future.
Today, the Town of Newcastle has experienced rapid urban growth within the
Greater Toronto Area. The Town is being forced to deal with unprecedented
growth pressures which threaten to fundamentally change the cultural and social
16
fabric of our community. The basic needs and values of the Town's residents
have also undergone a profound evolution in response to changes which have
occurred in society in general.
It is readily apparent that, if the Town's Official Plan is to continue to present the
community's collective vision of its desired future, a new Official Plan for the
Town of Newcastle must be formulated to reflect the changing reality of life in the
Town today and in the future. A comprehensive review of the Official Plan would
present the opportunity to re-examine the goals and the basic strategy of the
Plan. This, in turn, would permit a policy framework to be developed which
would provide direction for the Town and within which future development
decisions could be made.
A comprehensive review of the Plan would also present the public with the
opportunity to express their views on how they wish their community to develop
and how the Official Plan can best guide the Town as it moves into the next
century.
17
6. CONCLUSION
This paper has reviewed a number of the factors which have acted to change the
assumptions upon which the existing Town of Newcastle Official Plan was based.
It has also reviewed some of the critical issues facing the Town at this time. The
policy initiatives of senior level governments mandate that some changes be
made to ensure the Plan's compliance with these policies. However, the
effectiveness of the Town's Official Plan can only be assured through a
comprehensive review. This affords Council and the citizens of Newcastle the
best opportunity to prepare a development strategy that reflects the needs, and
values of our time.
As the Town prepares for the next century, rapid growth, threats to the
environment and changing public attitudes and values leads to the .following
three themes which would provide focus to the review and update of the Town
of Newcastle Official Plan.
Management of Growth
Growth provides a serious challenge for the municipality and strains.our social
and cultural fabric. The Official Plan is the principle document to define how the
municipality will manage this growth. The official plan review will need to deal
with questions of public attitudes to growth; the desirable rate and type of
growth; the staging of public infrastructure, including the social, cultural and
institutional services; and monitoring mechanisms for the development process.
Sustainable Development
The term "sustainable development" has become widely accepted as a
philosophical concept, yet it remains a pragmatic puzzle in terms of
implementation. It is a concept to deal with the relationship between economic
activity and the natural environment. As we realize the limitations of planet Earth,
planning for the future needs to focus on the use of land and resources which
can sustain our society for the long term. A new Official Plan will need to
examine how our communities can grow with regard for the products and
impacts of growth: this includes issues of air and water quality, waste production
and disposal, and energy consumption.
Quality of Life
The Town of Newcastle, with its variety of communities, is viewed by many as
a desirable place to live. Under this theme, the plan review process will address
the ways of maintaining and improving the quality of life in the Town. In
preparing the plan, consideration will be given to our cultural and built heritage;
the creation of vibrant downtowns and people places; the building of desirable,
neighbourly residential areas; the provision of parks, green spaces and
recreation facilities; the provision of affordable housing; and the ways and means
of ensuring a healthy and safe community for present and future residents.
18
A NEW OFFICIAL PLAN FOR THE TOWN OF NEWCASTLE
OVERVIEW OF PROPOSED WORK PROGRAM
September 1991
Attachment # 2 to Report PD-210-91
THE TOWN OF
ew�as� e
Department of Planning and Development
ONTARIO
TABLE OF CONTENTS PAGE
1. Introduction 1
2. Overview of Work Program 2
3. Public Input into the plan Preparation Process 4
4. Organization for Preparing the Plan 6
5. Related Studies 7
6. A Schedule for Preparing the Plan 9
1.11NITRODUCTION
The Official Plan is to provide the guiding framework to articulate the type of
community the Town of Newcastle wishes to become over the coming decades.
The challenge is to reflect the dynamism and the changing nature of the Town while
at the same time reinforcing the Town's unique strengths and character.
As the Town of Newcastle prepares for the next century, rapid growth, threats to the
environment and changing public attitudes lead to three main themes which will
provide focus to the preparation of a new Official Plan for the Town of Newcastle.
These are:
1. Management of Growth
2. Sustainable Development
3. Quality of Life
Management of Growth
In the last five years, the Town of Newcastle has become fully enveloped in the
growth of the Greater Toronto Area, experiencing pressures previously not known in
the Town. Growth provides a serious challenge for the municipality and strains our
social and cultural fabric. The plan preparation process will need to deal with
questions of public attitudes to growth; the desirable rate and type of growth; the
staging of public infrastructure, including the social, cultural and institutional
services; and monitoring mechanisms for the development process.
Sustainable Development.
The term "sustainable development" has become widely accepted as a philosophical
concept yet remains a pragmatic puzzle in terms of implementation. It is a concept
to deal with the relationship between economic activity and our natural environment.
As we realize the limitation of planet earth, planning for the future needs to focus on
the use of land and resources which can sustain our society for the long term. A
new Official Plan will need to incorporate an ecosystem basis of planning as
advocated by the Royal Commission on the Greater Toronto Waterfront. It will need
to examine how our communities can grow with regard for the products of growth:
this includes issues of air and water quality, waste and energy consumption.
Quality of Life
The Town of Newcastle, with its variety of communities, is viewed by many as a
desirable place to live. Under this theme, the plan preparation process will address
the ways of maintaining and improving the quality of life. In preparing the plan,
consideration will be given to our cultural and built heritage; the creation of vibrant
downtowns and people places; the building of desirable, neighbourly residential
areas; the provision of parks, green spaces and recreation facilities; the provision of
affordable housing; and the ways and means of ensuring a healthy and safe
community.
1
2. AN OVERVIEW OF THE WORK PROGRAM
Preparing a work program for a task of this magnitude is difficult. There are
interdependencies with other studies and a broad public and agency consultation process.
The goal is to place a recommended Official Plan before Council by the spring of 1994.
The work to be undertaken categorized into five stages.
PHASE 1
BACKGROUND RESEARCH
The initial phase of the study will involve the collection and analysis of data on various
topical areas relevant to the preparation of the Official Plan. This will primarily be
consolidated from existing sources but in this stage, the information gaps will be identified
where further original research is required. Additional specific studies may be
commissioned to provide the information required. As a result of this work, a
comprehensive Background Report will be prepared summarizing incorporating an analysis
of the data and the primary issues affecting the preparation of a new official plan will be
identified.
The following topical areas will be addressed in this phase:
Cultural/Historical Environment
Natural Environment
Land Use and Human Settlement
Economic Base: Forecasts and Activities
Agriculture and Forestry
Mineral Aggregates
Commercial
Industrial
Tourism
Housing
Parks, Recreation and Institutional-
Transportation
In order to ensure that public involvement at the start of the process, it will be very
important in the early stages to incorporate various non-traditional methods to solicit public
input. This is detailed further in the Public Participation section.
PHASE 2
ISSUES, OPTIONS AND IMPLICATIONS
In order to stimulate public discussion, a series of discussion papers will be released for
public review on the major issues identified in the foregoing phase. These discussion
papers will analyze emerging issues; summarize the background information; review relevant
Provincial policies and the approved Durham Regional Official Plan; and identify various
options possible in the'drafting of a new official plan.
Discussion Papers would likely include the following topics:
2
Urban Structure
Employment and Industrial Policies
Downtowns and Commercial Policies
Neighbourhoods
Parks and Greenlands
Heritage and Urban Design
Oak Ridges Moraine
Agriculture
Rural Settlements
Transportation
The Waterfront
Managing Growth
PHASE 3
POLICY FRAMEWORK
A general policy framework will be prepared with recommended direction and set of
principles endorsed by Council. This would not include any site specific consideration of
properties but would establish the context for the draft Official Plan document.
This would include the preparation of an urban and rural growth strategy. A decision about
the structure of the new Official Plan would be made at this stage.
PHASE 4
DRAFT OFFICIAL PLAN
A draft document will be prepared to implement a proposed policy framework which will
include the spatial identification of all land use components as well as written policy. '
A series of public open houses will be conducted throughout the Town in order to present
the proposed new Official Plan.
PHASE 5
RECOMMENDED OFFICIAL PLAN
Building upon the findings of the earlier stages and the comments received through the
discussion of the draft Official Plan, a new Official Plan document will be prepared for staff
recommendation to Council for adoption.
Formal written objections to the Plan will be received. Site specific reports will be prepared
and presented to Committee with recommendations to either change the plan, refer the
matter to the Ontario Municipal Board or defer for further consideration.
3
3. PUBLIC INPUT INTO THE PLAN PREPARATION PROCESS
. GENERAL
Media Strategy
Throughout the Official Plan preparation, a series of press releases or even a quarterly
column could be placed in local newspapers to generate interest of local residents. Certain
topics could be addressed such as the following:
What is an Official Plan and How does it Affect You?
Urban Growth: What are the options?
Rural Growth: Resource Management and Urban Pressures
Housing Policy: What is Intensification?
Heritage: Why Presence It?
The Environment and Land Use Planning
Growth and our Economic Base
Community and Interest Groups
Various community and interest groups will be consulted and invited to participate
throughout the process. This could take many forms including submission of briefs,
participation in focus groups, assistance in collecting information (eg. naturalist groups) or
reviews of discussion papers.
PHASE 1 - BACKGROUND RESEARCH
1. Public Meeting on Need to Review Official Plan (Sept.16,1991)
2. Public Attitudes Survey
3. Meetings with identified interest groups
4. Public Information Centres/Workshops on Phase 1 Report
5. Public Meeting on Phase 1 Report
PHASE 2 - ISSUES, OPTIONS AND IMPLICATIONS
1. Meetings with identified interest groups and organizations
3. Public Information Centres/Workshops on various Discussion Papers. There could
be a forum at one point in the process exploring the three themes of the Official Plan
Review.
4. Focus Groups to review various Discussion Papers
4
PHASE 3 - POLICY FRAMEWORK
1. Public Information Centres throughout the community to convey the general
principles and strategy which would serve as a framework for the Official Plan.
PHASE 4 - DRAFT OFFICIAL PLAN
1. Public Information Centre/Workshops in various parts of the community
2. Meetings with identified interest groups
3. Public Meeting on Draft Official Plan
4. Submissions to GPA on Draft Official Plan
PHASE 5 - RECOMMENDED OFFICIAL PLAN
1. Public Information Centre/Workshops in various parts of the community
2. Public Meeting on Recommended Official Plan
5
4. ORGANIZATION FOR PREPARING THE PLAN
The preparation of a new Official Plan,in a process which take several years, requires a
clearly defined organizational structure specifically to deal with this task. It will also require
the commitment of considerable staff resources, many persons solely dedicated to the
preparation of a new plan. The following organizational framework will utilized and
committed to this task.
STEERING COMMITTEE
Comprised of senior planning staff, this committee would oversee the entire study process,
in particular to assign staff resources, monitor the work plan schedule, review and evaluate
policy options and edit final drafts of all documents.
PUBLIC CONSULTATION/COMMUNICATIONS WORKING GROUP -
A group of planning staff would have specific responsibility to design and implement the
various aspects of public participation, including surveys, newsletters and public information
centres.
TECHNICAL ADVISORY COMMITTEE
To co-ordinate data collection efforts and provide timely review by government agencies at
critical points In the plan preparation process, a technical advisory committee would be
established. This would include key representatives frQm the Town and Regional
Departments, the conservation authorities, school boards and provincial ministries.
6
V
5. RELATED STUDIES
A number of studies have been undertaken or are currently underway which will serve a
important components in the preparation of the new Official Plan.
Municipal Housing Statement
In response to the provincial policy statement on Land Use Planning for Housing, the
Town in nearing completing of its first Municipal Housing Statement Study. The Study by
examines the supply and demand requirements for housing, examines opportunities for
residential intensification and includes an assisted housing survey. A recommended
housing strategy and monitoring system will be considered by Council as a result of this
study.
Recreation/Leisure Services Master Plan
Under the direction of the community Services Department, a master plan for recreation
and leisure services will be completed in the fall of 1991. In addition to specific
recommendations about leisure services delivery and administration, this document identifies
a conceptual vision for parks and greenlands in the Town of newcastle which needs to be
reflected in the Official Plan.
Community Improvement Policies Study
The existing Official Plan does not have approved community improvement policies as
defined under Section of the Planning Act. Previous policies considered by the Town were
judged to be inadequately research and deferred by the Ministry of Municipal Affairs.
Through 1991, Town staff have undertaken a comprehensive study of deficiencies of various
types of infrastructure with the view to identifying and prioritizing community improvement
areas. Community improvement policies will be incorporated into the existing official plan
and ultimately into the new official plan when completed. '
Newcastle Waterfront Study
The Town is completing a study of the waterfront of Bowmanville with the view to
incorporating these lands into the urban area for development and redevelopment purposes.
A broader study of the entire Newcastle Waterfront has just commenced. This will form a
component of the Official Plan Review. This study will build on the principles promoted by
the Royal Commission on the Future of the Greater Toronto Waterfront. In particular, it will
establish an ecosystem basis to the planning of the waterfront.
Bowmanville Main Central Area Study
The Bowmanville Main Central Area is experiencing significant development pressure with a
number of major proposals before Council. Due to the complexity and importance of the
Bowmanville Main Central Area as the civic and cultural focus for the Town, a separate
study has been commissioned for this component. The CAUSE Event in September 1991
will be a start to this process.
7
„ a
Oak Ridges Moraine Study
The Ministry of Natural Resources is co-ordinating a provincial study of the Oak Ridges
Moraine to develop a long term strategy to ensure that the significance and sensitivity of the
Moraine is protected. The study involves three main tasks: the identification of key features
and functions of the Moraine, the identification of regional trail systems and green corridors,
and the cumulative impact of,various types of development activity. The Moraine is a very
significant feature in the Town and the results of this study will be important to the
preparation of a new Official Plan for the Town.
8
5. A SCHEDULE FOR PREPARING THE PLAN
In a task of this magnitude, it is difficult to accurately detail the schedule for various
components of the plan preparation process. The greatest unknown is the time required for
the consultation and review process with the public, public agencies and private
landowners. Nevertheless, the broad outline of a schedule is necessary with each
component to be detailed by staff at the time each phase commences.
OFFICIAL PLAN PREPARATION SCHEDULE
1991 1992 1993 1994
S O N D J F M A M J J A S O N D J F M A M J J A S O N D JFMAM
Phase 1
Background Research
Phase 2
Issues, Options and Implications
Phase 3
Policy Framework
Phase 4
Draft Official Plan
Phase 5
Recommended Official Plan
Public Meeting/Information tr.
9
ATTACHMENT NO. 3
OFFICIAL PLAN AMENDMENT APPLICATION TO
EXPAND URBAN AREA BOUNDARIES
Courtice
OPA 87-27/D/N Three D. Developments Pt. Lot 33, Conc. 2
OPA 89-32/D/N Stolp Homes (Durham) Ltd. Pt. Lot 35, Conc. 1
OPA 89-58/D/N Bloor Courtice Developments Pt. Lot 29, Conc. 2
OPA 89-67/D/N Alexandris Investments Pt. Lot 31, Conc . 2
OPA 89-133/D/N Akal International Pt. Lot 33, Conc. 3
OPA 90-048/D/N Kiddicorp Investments Pt. Lot 30; Conc . 2
OPA 91-011/D/N Abbott Drafting Pt- Lot 26, Conc. 3
Courtice Industrial
87-72/D Iwan Zwarum Pt. Lot 23, Conc . B.F.
88-47/D Badja Holding Ltd. Pt. Lots 23/24, Conc. l
89-017/D Ken and Ruth Wright Pt. Lot 23, Conc . B.F.
89-112/D Wing Hang Corporation Pt. Lot 26, Conc . 1
90-010/D 858372 Ontario Ltd. Pt. Lot 27, Conc . 1
Bowmanville
OPA 89-057/D/N Schickedanz Bros. Pt. Lot 7, Conc. 1
OPA 89-107/D/N Northbrook Developers Group Pt. Lts . 12-14, Conc. 3
OPA 89-121/D/N West Bbwmanville Developments Pt. Lots 16/17, Conc. 2
OPA 89-125/D/N Tonno Construction Ltd. Pt. Lot 15, Conc . 2
OPA 89-129/D/N Kingstown Investments Pt. Lots 7/8, Conc . B.F.
OPA 90-022/D/N 841222 Ontario Limited Pt. Lots 5/6, Conc. B.F.
(Newcastle-on-the-Lake)
OPA 91-022/D/N Credit Point Developments Ltd Pt. Lots 8/9, Conc. 3
OPA 91-040/D/N Credit Point Developments Ltd Pt. Lot 9, Conc. 3
OPA 91-041/D/N Anglo York Developments Ltd Pt. Lot 10, Conc . 3
Newcastle Village
OPA 90-006/D/N 811461 Ontario Limited Pt. Lot 26, Conc . 2