HomeMy WebLinkAboutPSD-073-13 Clarkwwn REPORT
PLANNING SERVICES DEPARTMENT
PUBLIC MEETING
Meeting: GENERAL PURPOSE AND ADMINISTRATION COMMITTEE
Date: December 9, 2013 Resolution#: 6 PR-576 -1 By-law#:
Report#: PSD-073-13 File#: COPA 2013-0002, ZBA 2013-0028 &
S-C-2013-0002
Subject: APPLICATIONS TO AMEND THE CLARINGTON OFFICIAL PLAN AND
ZONING BY-LAW FOR A PROPOSED DRAFT PLAN OF SUBDIVISION
TO ALLOW FOR DEVELOPMENT OF 253 RESIDENTIAL LOTS
APPLICANT: PORT DARLINGTON LAND CORPORATION
RECOMMENDATIONS:
It is respectfully recommended that the General Purpose and Administration Committee
recommend to Council the following:
1. THAT Report PSD-073-13 be received;
2. THAT the applications to amend the Clarington Official Plan (COPA 2013-0002)
and Zoning By-law (ZBA 2013-0028) and for a proposed Draft Plan of
Subdivision (S-C-2013-002), submitted by Port Darlington Land Corporation,
continue to be processed and that a subsequent report be prepared; and
3. THAT all interested parties listed in Report PSD-073-13 and any delegations be
advised of Council's decision.
Submitted by: Reviewed by:
D'aviVil Crome, MCIP, RPP Franklin Wu
Director, Planning Services Chief Administrative Officer
ATS/CP/df
3 December 2013
CORPORATION OF THE MUNICIPALITY OF CLARINGTON
40 TEMPERANCE STREET, BOWMANVILLE, ONTARIO L1C 3A6 T 905-623-3379
REPORT NO.: PSD-073-13 PAGE 2
1. APPLICATION DETAILS
1.1 Applicant: Port Darlington Land Corporation
1.2 Proposed Official Plan Amendment (Attachment 1):
To amend the Clarington Official Plan and Port Darlington
Neighbourhood Secondary Plan by:
• Replacing the parkette block with a low density residential
designation;
• Adjusting the Type C arterial road alignment where it meets
East Beach Road;
• Reducing housing and population targets for the
neighbourhood; and
• Reducing the arterial road width and eliminating the required
centre median.
1.3 Proposed Zoning By-law Amendment:
To place lands in appropriate zones to implement the proposed
draft plan of subdivision.
1.4 Proposed Draft Plan of Subdivision (Figure 2):
To permit the development of 253 residential units comprised of the
following:
• 53 single detached lots with 10.0 metre frontages;
• 41 single detached lots with 11.3 metre frontages;
• 75 single detached lots with 13.7 metre frontages;
• 42 semi-detached lots (84 units) with 13.7 metre frontages
(6.85 metre frontage) for each unit); and
• Parkland, open space, a stormwater management block; roads
and related services.
1.5 Area: 18.49 hectares
1.6 Location: Part of Lots 7 and 8, Broken Front Concession, Former
Township of Darlington
2. BACKGROUND
2.1 The subject applications were deemed complete November 15, 2013. The
following studies and reports were submitted with the application and circulated
for comments:
• Planning Justification Report • Environmental Impact Study
• Functional Servicing Report Update
• Energy Conservation and • Shoreline Erosion Hazard
Sustainability Plan Assessment
• Traffic Impact Study
REPORT NO.: PSD-073-13 PAGE 3
• Meander Belt Width • Noise Study
Assessment • Archaeological Study
• Financial Impact Statement
2.2 The subject lands are part of a larger land holding (approximately 45 hectares)
owned by Port Darlington Land Corporation (PDLC) between Bennett Road and
Port Darlington Road, south of the CN Railway.
2.3 The subject development application is located on 18.49 hectares of land, west of
Lambs Road, and west of Draft Approved Plan of Subdivision S-C-2002-002
which was draft approved in February 2012. For ease of writing this report the
draft approved lands (S-C-2002-002) will be referred to as the PDLC East lands,
while the subject lands (S-C-2013-0002) will be referred to as the PDLC West
lands. See Figure 1.
2.4 The original application (S-C-2002-002) proposed 699 residential units across the
entire PDLC land holdings (approximately 45 ha). The development was
determined to be premature on the basis that the development would accelerate
growth beyond the Municipality's ability to service the subject lands. At the time,
in November 2008, the following projects required significant investment beyond
the 10 year capital works forecast in order to facilitate the proposal specifically:
• grade separations at rail crossings along Port Darlington Road and Bennett
Road;
• improvements to the Lambs Road underpass at the CN Railway;
• improvements to the surrounding road networks and specifically the
intersections of: Baseline Road/Liberty Street, Highway 2/Bennett Road, and
Liberty Street/Lake Road; and
• erosion control and mitigation.
2.5 Following much discussion and negotiation, the PDLC East lands received draft
approval, on consent by both parties, at the Ontario Municipal Board for 850
medium and high density residential units. The conditions of approval allow only
the first phase (424 medium density units) closest to Bennett Road to be
constructed prior to the construction of additional municipal infrastructure,
including the full reconstruction of the Lambs Road grade separation at the
railway to accommodate two-way traffic and emergency vehicles. Approving
development at the furthest point east would encourage the use of Bennett Road,
versus reliance on Port Darlington Road, Lake Road and Liberty Street where
capacity to accommodate the traffic is considered to be limited.
2.6 Other key conditions of approval to allow Phase 1 of the PDLC East lands to
proceed include:
• Construction of a continuous waterfront parkway to connect Bennett Road to
Port Darlington Road (prior to 1 01St unit)
REPORT NO.: PSD-073-13 PAGE 4
Improvements to Bennett Road, including improvements at the level CN
crossing
o Improvements to the CN railway overpass at Lambs Road, including
signalization/gating for the one-way operation
• Preparation and implementation of a bluff access management plan
Figure 1
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REPORT NO.: PSD-073-13 PAGE 6
2.7 As a result of the commencement of the waterfront park construction and
relocation of East Beach Road in 2013, the landowner requested a
preconsultation meeting with staff in early 2013 with a preliminary concept for the
PDLC West lands, with the intention of starting development on PDLC West
lands, instead of Phase 1 of the PDLC East lands.
3. LAND CHARACTERISTICS AND SURROUNDING USES
3.1 The subject lands are currently under agricultural production and contain an
existing residential dwelling, agricultural buildings and buildings accessory to the
dwelling. A private forced road connects East Beach Road to Lambs Road and
South Service Road. The forced road is maintained on a year round basis. Just
to the east of the limits of the proposed draft plan of subdivision, Bennett Creek
flows southerly into Lake Ontario.
3.2 The surrounding uses are as follows:
North - Canadian National Railway and the hydro electric transmission
corridor (Hydro One Networks Inc.)
South - Existing residences fronting on East Beach Road
East - Draft approved Plan of Subdivision S-C-2002-002
West - The Region of Durham Water Pollution Control Plant and the Water
Treatment Plant
4. PROVINCIAL POLICY
4.1 Provincial Policy Statement
Settlement areas shall be the focus of growth. Land use patterns shall be based
on densities and a mix of land uses which efficiently use land, resources and
infrastructure and other public services. A full range of housing types and
densities are to be provided to meet the projected requirements of current and
future residents of the regional market area.
The PPS encourages a compact built form which supports the development of
transportation systems that minimize the length and number of vehicle trips and
also supports the development of viable choices and plans for public transit.
4.2 Provincial Growth Plan
The Growth Plan requires municipalities to manage growth, and encourages the
creation of complete communities that offer a mix of land uses, employment and
housing options, high quality open space, and access to stores and services.
Natural heritage features that complement, link or enhance natural systems shall
be identified and protected.
REPORT NO.: PSD-073-13 PAGE 7
The subject lands are within the defined built-up area of Bowmanville. By 2015, a
minimum of 40 per cent of all residential development occurring annually will be
within the built-up area, measured across the Region of Durham.
5. OFFICIAL PLANS
5.1 Durham Regional Official Plan
The Durham Regional Official Plan designates the subject lands "Living Area"
and "Major Open Space —Waterfront'. The predominant use of lands within the
Living Area designation shall be for housing purposes. An Environmental Impact
Study is required prior to development in the Major Open Space system to
ensure that the environmentally sensitive areas are not negatively impacted.
There is specific recognition of the Port Darlington area as a Waterfront Place.
The predominant use of lands in the Waterfront designation may include marina,
recreational, tourist, and cultural and community uses. Residential and
employment opportunities may be permitted, which support and complement the
predominant uses. The scale of such development can be detailed in the
respective local official plans.
5.2 Clarington Official Plan
Clarington Official Plan designates, the subject lands as Waterfront Greenway,
Urban Residential with a District Park on the Lake Ontario shoreline at the mouth
of the Bennett Creek and Environmental Protection Area. A Type C Arterial
Road is designated through the subject lands. In addition to the existing grade
separation at Lambs Road, future grade separations at Liberty Street and
Bennett Road are identified. The construction of future grade separations is
expensive and thus the Plan states that they shall be constructed on a priority
basis considering need and financing. The Bennett Creek is an identified Natural
Heritage Feature. There is a Regulatory Shoreline Area adjacent to Lake
Ontario.
The Clarington Official Plan also recognizes the Lake Ontario Waterfront as a
unique and dynamic feature and a vital public resource. The continuation of the
Waterfront Trail for such purposes as walking and cycling is required along the
Lake Ontario Waterfront. The Official Plan also contains policies regarding the
extension of public infrastructure and services to accommodate growth in an
orderly and cost—efficient manner.
The Port Darlington Neighbourhood Secondary Plan provides a more detailed
land use plan for this area. The Waterfront Greenway with the Waterfront Trail
and the District Park is designated along the Lake Ontario shoreline. A parkette
is also shown on the subject lands adjacent to the designated Open Space areas
adjacent to the CNR tracks. The majority of the lands are designated Low
Density Residential, with several areas of Medium Density Residential and one
High Density Residential Block.
REPORT NO.: PSD-073-13 PAGE 8
The Port Darlington Neighbourhood has a housing target of 1,225 units,
consisting of 275 low density, 500 medium density, 425 high density and 25 units
for intensification.
Any application for residential development must be assessed in accordance with
the growth management principles identified in the Official Plan; and the
provision of municipal services and facilities of the Port Darlington
Neighbourhood Secondary Plan.
An application to amend the Clarington Official Plan and the Port Darlington
Neighbourhood Secondary Plan was submitted and is included as Attachment 1.
6. ZONING BY-LAW
6.1 Zoning By-law 84-63 zones the majority of the subject lands in an Agriculture (A)
zone category. The lands adjacent to shoreline area are zoned Environmental
Protection (EP). The proposed residential development does not conform to the
current Zoning By-law provisions and as such a rezoning application to
implement the proposed draft plan of subdivision was submitted concurrently with
the draft plan of subdivision.
7. PUBLIC NOTICE AND SUBMISSIONS
7.1 Public notice was given by mail to each landowner within 120 metres of the
subject site and three (3) public meeting notice signs were installed on the lands.
7.2 At the time of writing this report, one neighbouring property owner attended the
Planning counter to obtain more information about the proposed development.
8. AGENCY COMMENTS
8.1 CN Railwav
CN has provided a copy of the main line requirements to the applicant, and
provisions, such as warning clauses, will be included in the subdivision
agreement.
CN accepts the findings of the servicing and noise reports, however, would like
an opportunity to further review these issues at the detailed design stage.
REPORT NO.: PSD-073-13 PAGE 9
8.2 Kawartha Pine Ridge District School Board
The public school board has no objections. Students generated by this
development would attend Central Public School and/or Vincent Massey Public
School, and Bowmanville High School.
8.3 Meridian Connections
Veridian has indicated that expansion/upgrades to the service are required to
accommodate this development. Technical comments have been provided to the
applicant for their consideration during the detailed design stage. The applicant
will be required to make an application to Veridian to service the site.
8.4 Other agencies
Rogers has no objections to the proposal. Comments from other circulated
agencies, including the Region of Durham and Central Lake Ontario
Conservation Authority, have not yet been received and will be reviewed in a
subsequent report.
9. DEPARTMENTAL COMMENTS
9.1 Engineering Services
Engineering Services has provided the following preliminary comments and items
to address prior to recommending approval of the development:
Phasing
The phasing of the entire PDLC holdings will require further review to ensure
development in the neighbourhood occurs sequentially considering necessary
improvements to the road network and financial impacts.
Road network and Traffic
The Traffic Impact Study is currently under review. The development must
provide connectivity to Bennett Road and connectivity to Port Darlington Road.
The applicant will be responsible for all costs to implement the recommendations
of the traffic study. The applicant will also be responsible to implement identified
improvements to the surrounding road network to accommodate this
development, including upgrades to Bennett Road and the level railway crossing
and the Lambs Road grade separation at the railway. The applicant will be
required to provide continued access to existing residents in the area of the
development. Proposed alignments and configuration require further review with
the applicant.
Servicing, Grading and Stormwater Management
The submitted Conceptual Servicing and Stormwater Management Report have
provided preliminary details on servicing, grading and stormwater management.
The detailed design will require approval by Engineering Services and CLOCK
REPORT NO.: PSD-073-13 PAGE 10
Shoreline
The shoreline hazard limit must be approved by CLOCA. The applicant will be
required to implement a bluff access management plan as a condition of
approval.
Other
Other items, including on-street parking, noise attenuation, trails/parkland will be
part of the detailed review of this development once the principle of development
has been reviewed and accepted.
9.2 Emergency and Fire Services
Clarington Emergency and Fire Services Department have noted the need for a
secondary access point for emergency purposes.
9.3 Finance Department
The Financial Impact Study is currently under review and comments will be
detailed in a future staff report.
10. DISCUSSION
10.1 The Official Plan and Port Darlington Neighbourhood Secondary Plan designate
the subject lands for urban development and highlight the importance of
establishing a continuous waterfront greenway, including the provision of a park
system that can provide a wide range of outdoor and recreational opportunities to
the residents of Clarington.
10.2 Further discussion will be required with the proponent to address the details of
the proposal and other matters such as:
• The phasing and timing of development in the Port Darlington
Neighbourhood;
• Whether the transportation and infrastructure concerns identified in
consideration of S-C-2002-002, can be mitigated and resolved to allow
development to occur on the PDLC West lands in advance of the PDLC East
lands; and
• Whether the Port Darlington Neighbourhood can proceed in an efficient and
cost effective manner without putting undue financial burden on the
Municipality, and without risking public health and safety
10.3 At this time, comments from a number of key departments and agencies are
outstanding. The purpose of the public meeting is to gather input from the public.
A future report will be drafted to provide a recommendation on the applications.
11. CONCURRENCE — Not Applicable
REPORT NO.: PSD-073-13 PAGE 11
12. CONCLUSION
12.1 The purpose of this report is to provide background information on the
applications submitted by Port Darlington Land Corporation for the Public
Meeting under the Planning Act. It is recommended that the applications to
amend the Clarington Official Plan and implementing Zoning By-law and the
proposed draft plan of subdivision continue to be processed, including the
preparation of a subsequent report considering all agency comments and
concerns raised at the Public Meeting.
CONFORMITY WITH STRATEGIC PLAN — Not Applicable
Staff Contact: Anne Taylor Scott, Planner II
Attachments:
Attachment 1 - Proposed Official Plan Amendment
List of interested parties to be advised of Council's decision:
Port Darlington Land Corporation c/o Kelvin Whalen
Kevin Taylor
ATTACHMENT
-- -TO REPORT PSD-073-13
AMENDMENT NO.
TO THE CLARINGTON OFFICIAL PLAN
PURPOSE: The purpose of this Amendment is to adjust the road pattern, distribution
of land uses and housing targets as they apply to the Port Darlington
Neighbourhood Second Plan Area.
BASIS: The basis of this amendment is as follows:
This amendment is based on an application from the property owner of the
subject lands for approval of a Draft Plan of Subdivision. Through the design
process for the plan of subdivision, certain adjustments to the Secondary Plan
became necessary.
ACTUAL
AMENDMENT: The Clarington Official Plan is hereby amended as follows:
1. By amending Table 9-2 Housing Targets by Neighbourhoods as shown on Exhibit"A"for
Neighbourhood N15— Port Darlington and adjusting the totals accordingly.
2. By amending May H2— Neighbourhood Planning Units Bowmanville Urban Area by revising
the population of the Port Darlington Neighbourhood from "2950" to "2650" as shown on
Exhibit"B".
3. By amending Map A Land Use, Port Darlington Neighbourhood Secondary Plan as shown
on Exhibit "C".
4. By amending Map B Natural Features and Constraints, Port Darlington Neighbourhood
Secondary Plan as shown on Exhibit T".
5. By amending Section 4.2 of the Port Darlington Neighbourhood Secondary Plan by deleting
"3200 persons" and replacing it with "2650 persons".
6. By deleting Section 11.3 of the Port Darlington Secondary Plan and replacing it with a new
Section 11.3 to read as follows:
"11.3 A New Type `C'arterial road parallel to the waterfront shall be designed and
constructed to encourage slow traffic speeds with direct frontage and frequent
intersections in low density residential areas. On street parking may also be
permitted on the south side of the road adjacent to the Waterfront Greenway
designation. In recognition of the intent set out above and the fact that the
waterfront greenway is not designated as a Type `C'arterial road in the Durham
Regional Official Plan, a right-of-way width for this road of less than 26 metres
may be permitted."
IMPLEMENTATION: The provisions set forth in the Clarington Official Plan, as amended, regarding the
implementation of the Plan, shall apply in regard to this Amendment.
INTERPRETATION: The provisions set forth in the Clarington Official Plan, as amended, regarding the
interpretation of the plan, shall apply in regard to this Amendment.
This document is in draft form.The contents,including any opinions,conclusions or recommendations contained in, or which may be implied from,
this draft document must not be relied upon. GHD reserves the right, at any time, without notice, to modify or retract any part or all of the draft
document. To the maximum extent permitted by law, GHD disclaims any responsibility or liability arising from or in connection with this draft
document GHD I Report for Port Darlington Land Corporation—Rationale for Proposed Official Plan Amendment,01081 K 113
EXHIBIT "A" TO AMENDMENT #
Table 9-2
Housi q Targets by Neighbourhoods
Urban Area Housing Units
Neighbourhoods 11-ow IMedium l Hi h I Intensification ITotal
Courtice
N1 Town Centre 0 0 250 100 350
N2 West Shopping District 0 0 0 350 350
N3 Worden 1175 85 0 100 1360
N4 Highland 1225 100 0 75 1400
N5 Glenview 550 535 0 50 1135
N6 Hancock 850 100 0 25 975
N7 Avondale 825 200 0 275 1300
N8 Emily Stowe 1475 275 0 550 2300
N9 Penfound 1175 150 0 75 1400
N10 Darlington 450 25 175 375 1025
N11 Bayview 1150 300 125 50 1625
N12 Farewell Heights* - 0
TOTAL 8 75 1770 550 2025 13220
BowmanviIle
N1 East Town Centre 0 700 225 275 1200
N2 West Town Centre 0 350 1500 0 1850
N3 Memorial 975 0 250 350 1575
N4 Central 425 125 75 75 700
N5 Vincent Massey 1125 250 0 175 1550
N6 Apple Blossom 1300 225 0 125 1650
N7 Elgin 1025 200 50 150 1425
N8 Fenwick 1325 525 0 100 1950
N9 Knox 1350 300 175 125 1950
N10 Northglen 1500 525 100 50 2175
N11 Brookhill 950 550 0 75 1575
N12 Darlington Green 675 375 125 125 1300
N13 Westvale 900 425 500 75 1900
N14 Waverly 1075 275 50 75 1475
N15 Port Darlington 250 H-8.425 8% 425 25 1125
TOTAL 129001 5325 3475 18001 23500
Newcastle Village
N1 Village.Centre 0 100 50, 75 225
N2 Graham 1075 100 0 100 1275
N3 Foster 1575 300 0 125 2000
N4 Port of Newcastle 500 325 250 0 1075
N5 North Village 1050 250 0 50 1350
N6 Wilmot 960, 01 0 0 960
TOTAL 51601 10751 300, 350 l 6885
Potential housing units for Farewell Heights Neighbourhood subject to the
provisions of Special Policy Area No. 5 (see Secion 17.6)
Municipality of Clarington Official Plan-April 2012
Chapter 9-Page 5
EXHIBIT "' " TOAICIEICIDIllENT
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NEIGHBOURHOOD PLANNING UNITS
BOWMANVILLE URBAN AREA
OFFICIAL PLAN
MUNICIPALITY OF CLARINGTON
--- URBAN BOUNDARY APRIL, 2012
NEIGH80URHOOD BOUNDARY REFER TO SECTIONS 5 AND 9
THIS CONSOiJDATION IS PROVIDED FOR COWENIENCE ONLY
(I 000) POPULATION AND REPRESENTS REQUESTED MODIRCATIONS AND APPROVALS
EXHIBIT Cf) TO AMENDMENT #
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RESIDENTIAL " PROTECTION AREA ° ° ° @ $ WATERFRONT TRAIL PORT DARLINGTON NEIGHBOURHOOD
VILLAGE r WATERFRONT r—- LOCAL TRAIL SECONDARY PLAN
COMMERCIAL GREENWAY APRIL. 2012
MARINA GREEN SPACE THIS CONSOLIDATION IS PROVIDED FOR CONVENIENCE ONLY
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