HomeMy WebLinkAboutPSD-131-04
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ClYlillgron ,
REPORT
PLANNING SERVICES
Meeting:
GENERAL PURPOSE AND ADMINISTRATION COMMITTEE MEETING
Date: Monday, October 18, 2004
Report#: PSD-131-04 File#: PLN38.4.1
f;e5 #". (;PI4 - 415-0'+
By-law #:
Subject:
COMMERCIAL POLICY REVIEW - CONTEXT AND ISSUES REPORT
RECOMMENDATIONS:
It is respectfully recommended that the General Purpose and Administration Committee
recommend to Council the following:
1. THAT Report PSD-131-04 and C/arington Commercial Policy Review-Context and
Issues Report be received;
2. THAT the Report be circulated to the Region of Durham and the Commercial Policy
Review Stakeholders Group for comment;
3. THAT the Report be made available for public comment for a 30 day period; and
4. THAT the interested parties listed in this report be advised of Council's decision.
Submitted by:
Reviewed by:
. Crome, MCIP, R.P.P.
or of Planning Services
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Franklin Wu,
Chief Administrative Officer
CP*DJC*df
13 October 2004
CORPORATION OF THE MUNICIPALITY OF CLARINGTON
40 TEMPERANCE STREET, BOWMANVILLE, ONTARIO L lC 3A6 T (905)623- 3379 F (905)623-0830
637
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REPORT NO.: PSD-131-04
PAGE 2
1.0 BACKGROUND
1.1 On February 2, 2004, Council initiated a Commercial Policy Review and a review of
the Bowmanville West Main Central Area Secondary Plan and authorized staff to
request proposals from three consulting firms. Staff recommended that a commercial
policy review be undertaken as Phase 1 of a Clarington Official Plan review, in response
to applications and appeals to the Ontario Municipal Board by Valiant Property
Management and Metrus Developments (West Diamond Properties Inc. & Players
Business Park Ltd.). The applications, in combination, seek to expand the Bowmanville
West Main Central introduce an additional 51,700 m2 of retail floor area to the existing
approximately 26,000 m2.
1.2 On April 4, 2004 Council retained Meridian Planning Consultants together with their sub-
consultants urban Metrics Inc. and Tate Economic Research Inc., Brook Mcilroy Inc. and
Totten Sims Hubicki to undertake the Commercial Policy Review and a review of the
Bowmanville West Main Central Area Secondary Plan. In addition to reviewing market
trends and future demands, and planning trends and policy, the study was to consider
urban design considerations and transportation issues related to commercial
development. The study was to be lead by the consultant team with input from staff and
a Stakeholders Advisory Group.
1.3 The Stakeholders Advisory Group includes members of the Bowmanville, Newcastle
Village and Orono BIA, as well as a member of the former Courtice Business
Association. It also includes representatives from each of the two major commercial
applications, the Clarington Board of Trade, residents from different communities in
Clarington and two members of Council. The consultant team presented their
preliminary findings on June 21, 2004 and provided opportunity for feedback and issues
to be raised from the stakeholders. A second stakeholders meeting was held
September 13, 2004 together with members of the Orono CIP and Bowmanvi/le CIP
focus groups. This meeting was set up to explore common issues related to downtowns
between the three groups.
2.0 CONTEXT AND ISSUES REPORT
2.1 The Context and Issues Report reviews the following matters:
· Evo/ution of Commercial Uses and Functions
A review of the general evolution of commercial uses and functions in Ontario
moving from historic downtowns to big box and power centres.
· C/arinqton's Commercial Uses and Functions
A description of the existing and planned commercial areas in Clarington.
· Existino Planninq and Urban Desion Context
The current planning and urban design framework from the Provincial Policy
Statement, the Regional Official Plan, a review of commercial policies of nearby
municipalities, Clarington's Official Plan, Secondary Plans and Urban Design
policies.
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REPORT NO.: PSD-131-04
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· Transportation Context
The interrelationship between transportation infrastructure and transportation
policies in relation to commercial development.
. Market Context
A summary of the market analysis and the potential demand with population growth
to 2016.
· Issues and Options for Reoulatino Commercial Development
A review of various ways municipal planning has regulated commercial development
and the public interest involved in such policies.
. Findinos
The 15 key findings emerging from the review of the context and local issues in
Clarington.
2.2 The key findings of the work to date are outlined in more detail in the report but are
summarized as follows:
i. The existing Commercial Policy structure is relatively complex, out-of-date and,
as a consequence, somewhat confusing stemming from the imposition of OMB
decisions and the framework of the Regional Official Plan.
ii. There would be significant value in creating a new nomenclature of commercial
centres.
iii. The two Main Central Areas in Bowmanville incorporate between them almost
all of the range of institutional, commercial, recreational and services facilities
with central place functions in Clarington.
iv. It may be appropriate to recognize and foster the differences in function
between historic downtown Bowmanville and the environment in the West Main
Central Area.
v. An approach for new commercial development that continues to consider the a
market impact and phases in the amount of new development in relation to
market and population growth is a reasonable and realistic continuation of the
present policy framework.
vi. Efforts to simplify the current policy structure should be made.
vii. Any changes to the commercial policy structure must be made in the context of
anticipated growth, market information and the need to balance growth with the
goal of protecting the downtown area
viii. King Street/Durham Highway 2 may remain the focus of commercial activity in
the Municipality.
ix. Commercial policies for Courtice Main Central Area and Highway #2 corridor
need to consider existing development and impacts of commercial development
in North Oshawa.
x. Commercial policies for Newcastle Village and Orono need to consider the
need for adjustments 10 the planned growth, their role and function in the larger
context.
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REPORT NO.: PSD-131-04
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xi. High quality urban design outcomes should be created through area-specific
urban design guidelines.
xii. The planning policy context supports the protection of the downtown core and
the provision of opportunities for intensification.
xiii. Transportation infrastructure improvements will be needed to ensure new
development complies with the policies of the Main Central Areas.
xiv. Additional financial and alternative policy incentives to promote the downtown
need to be explored.
xv. By 2016, given the planned growth of Clarington and assuming a change in
shopping behaviour from residents who currently shop outside of Clarington,
between 900,000 and 1,100,000 sq. ft of new commercial space will be
warranted to serve the market.
3.0 NEXT STEPS
3.1 The Clarington Commercial Policy Review - Context and Issues Report provides a
benchmark of the current situation and a discussion paper on some of the alternatives
as we move forward. The Report will be made available on the municipal website and in
the Library for the public to review and comment. The Community Stakeholder Advisory
Group will be meetin~ to review the findings at their next meeting planned for
Wednesday October 27 h.
Over the next six weeks, the consultant team will be working toward preparing a the
Phase 2 report with recommendations on proposed changes to the Municipality's
Official Plan with input from the Stakeholder Advisory Group, residents and businesses
in the Municipality.
3.2 A review of the Bowmanville West Main Central Area Secondary Plan will proceed
assuming the recommendations in Commercial Policy Review suggest changes to the
current official plan policies, including thresholds and retail floor caps. This component
is expected to be undertaken in the new year.
4.0 CONCLUSIONS
4.1 It is recommended that the Commercial Policy Review Context and Issues
Report be received and circulated for comment.
Attachments:
Attachment 1 - Context and Issues Report Clarington Commercial Policy Review (Under
separate cover)
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REPORT NO.: PSD.131-04
Interest parties to be notified of Council's decision:
Robert Hann
Valiant Property Management
177 Nonquon Road, 20th Floor
Oshawa, ON L 1 G 3S2
Sam Cohen
Torgan Group
Madison Centre
4950 Yonge Street, Suite 601
Toronto, ON M2N 6K1
Bryce Jordan
G.M. Semas Associates
110 Scotia Court, Unit 41
Whitby, ON L 1 N 8Y7
Anthony Turnbull
Newcastle Village BIA
5 King Street East
Newcastle, ON L 1 B 1 H7
Peter Smith
Bousfield, Dale-Harris, Cutler & Smith Inc.
3 Church Street
Toronto, ON M5E 1 M2
Evelyn Rozario
Orono BIA
85 Station Street
Orono, ON LOB 1 MO
Robert DeGasperis
West Diamond Properties Inc. and
Players Business Park Ltd.
c/o Metrus Properties Ltd.
30 Floral Parkway
Concord, ON L4K 4R1
John Wells
Courtice Business Group
15 Firwood Avenue
Courtice, ON L 1 E 1 P6
Ron Hooper
Chairman, Board of Management
Bowmanville Business Centre
Hooper's Jewellers Limited
39 King Street West
Bowmanville, ON L 1 C 1 R2
Steven Zakem
Aird & Berlis
BCE Place Suite 1800, Box 754
181 Bay Street
Toronto, ON M5J 2T9
Stan Stein
Osler Hoskin and Harcourt
Barristers and Solicitors
Box 50, 1 First Canadian Place
Toronto, ON M5X 1B8
Marvin Green
River Oaks Group
23 Lesmill Road, Suite 401
North York, ON M3B 3P6
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Clarington Commercial Policy Review
MERIDIAN
PLANNING CONSULTANTS INC.
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TABLE OF CONTENTS
Page
Executive Summary
1.0 INTRODUCTION 1
2.0 EVOLUTION OF COMMERCIAL USES AND FUNCTIONS 2
3.0 CLARINGTON'S COMMERCIAL USES AND FUNCTIONS 4
3.1 Bowmanville Urban Area 5
3.2 Courtice Urban Area 8
3.3 Newcastle Village Urban Area 9
3.4 Orono Urban Area 10
3.5 Other Areas 10
4.0 EXISTING PLANNING AND URBAN DESIGN CONTEXT 11
4.1 Provincial Policy 11
4.2 Regional Policy Framework 11
4.3 Comparison of Commercial Policies in Surrounding Municipalities 13
4.4 Clarington's Official Plan Policies 14
4.5 Clarington Secondary Plans 18
4.6 Urban Design Policies 24
5.0 TRANSPORTATION CONTEXT 25
6.0 MARKET CONTEXT 28
7.0 REGULATING COMMERCIAL DEVELOPMENT—OPTIONS AND ISSUES 32
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7.1 Local Issues 35
8.0 FINDINGS 37
Tables
Table 1: Region of Durham Official Plan—Central Area Policies
Table 2: Clarington Official Plan-General Policies
Table 3: Clarington's Commercial Land Use Designations
Table 4: Courtice Commercial Policies
Table 5: Newcastle Village Commercial Policies
Table 6: Proposed/Designated Commercial Space in Clarington
Table 7: Estimated Selected Retail Space(DSTM, Food Stores, Home Improvement, Home
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Table 8: Warranted Selected Retail Space in Clarington
Maps
Map 1: Clarington Urban Structure
Map 2: Main Central Areas
Map 3: Bowmanville East Main Central Area
Map 4: Bowmanville West Main Central Area
Map 5: Transportation System
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Appendices
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Appendix 1: Current Commercial Development Applications
Appendix 2: Bowmanville West Main Central Area and Bowmanville East Main Central Area
Secondary Plan Policies
Appendix 3: Community Stakeholder Advisory Group Working Session (June 21, 2004)
Comments
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EXECUTIVE
Purpose of the Study
As part of its Official Plan Review, Clarington is undertaking a Commercial Policy Review. This
Context and Issues Report provides a summary of the background research and the historical
and context for use in establishing options for commercial growth.
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Changing Commercial Market
Commercial development, especially retail development, is continuously changing and evolving in
response to the economic climate, technology, consumer demographics, consumer preferences,
and retailing/business strategies. Municipalities have seen the rise and fall of the traditional
indoor mall, the revitalization and renewed importance of the downtown and the spread of the big
box and new format retailers in recent years. These changes reflect the response of established
and new retailers to position themselves to compete in an ever-changing marketplace. This
dramatically dynamic and diverse context creates a challenging planning environment.
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Clarington's Commercial Context
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Clarington is currently home to over 77,000 people and is anticipated to grow to a population of
130,000 people by 2016. The growth will bring a need for additional goods and services to meet
the market demand. Understanding the history and evolution of Clarington's commercial area and
their current function will assist in determining the best options for planning for future needs of
residents.
j Over the years, the four Urban Areas of Courtice, Bowmanville, Newcastle and Orono have
become focal points in Clarington, with the Bowmanville Urban Area being the largest and most
developed retail area. These areas are described as follows:
® Bowmanville Urban Area — including the West and East Main Central Areas along King
Street and the Highway Commercial Areas along the 401;
® Courtice Urban Area — including the Sub-Central and Local Central Areas along King
Street;
® Newcastle Village Urban Area — including the Main Central Area along King Avenue;
and,
Q Orono Urban Area — including the Local Central Area along Regional Road 17 between
Station Street and Mill Street.
The Official Plan currently anticipates that the Bowmanville East and West Main Central Areas
will serve both local and regional needs. The Plan's policies are for the downtowns of both East
Bowmanville and Newcastle Village to continue to provide an important commercial function. As
part of this study there is also consideration of other areas for new commercial development
which may be outside of the traditional Main Central Areas.
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Executive Summary „-
Clarington Commercial Policy Review f' ;MERIDIAN i
Prepared by °3�"G r�INC, October 12, 2004
Clarington's Planning Context
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There are several layers of policy which apply to commercial development in Clarington. The
current Provincial Policy Statement (PPS) provides for general policies for developing strong
communities, promoting sustainable development and compact urban form. The key policies of
the Regional Plan for Clarington are the recognition of the Bowmanville and Newcastle Village
urban areas as an eastern anchor for the Region. The Regional policies identify Central Areas as
both the centers and downtowns for the Region.
Clarington's Official Plan (December 4, 2000 consolidation) contains a variety of policies dealing
with commercial growth. The Plan establishes a hierarchy of commercial centres essentially
based on the Regional Official Plan structure. The policies in Clarington's Official Plan establish
that the focus of commercial uses in Clarington should be within the designated Main Central
Areas. Commercial development is also guided by policies relating to Sub-Central and Local
Central Areas as well as Highway Commercial areas. Secondary Plans have also been prepared
for the Bowmanville East Main Central Area, the Bowmanville West Main Central Area, the
Courtice Sub-Central Area as well as the Newcastle Village Main Central Area. The current
Official Plan sets out maximum gross leasable areas for each of the Main Central Areas. It also
provides limits to the amount of floor space permitted to be developed in the Sub-Central and
Local Central Areas.
The Secondary Plans for both the Bowmanville West and East Main Central Areas provide
detailed policies on the size and format of commercial development which are the result of
previous Ontario Municipal Board hearings as well as past Council decisions.
Clarington's Official Plan provides for urban design principles which are reflected in the general
and specific land use policies, open space and transportation goals and objectives, and
guidelines within the Secondary Plans. There have been several previous studies which have
addressed urban design in relation to development along the Durham Highway No. 2/King Street
corridor. Clear urban design guidelines will help to establish a built form and environment which is
reflective of the Municipality's direction for high quality urban design.
Transportation Infrastructure
Transportation infrastructure and transportation policies in the Municipality of Clarington will have
a significant impact on the accessibility and function of existing and future commercial centres. It
is thus very important as part of any commercial policy review to understand how the
transportation network will affect commercial development.
There are several key challenges for Clarington with respect to transportation and commercial
development which include:
(i) ensuring the main arterial road (Durham Highway 2/King Street) can maintain its
function as "main street" through the Main Central Areas and still provide an
effective means of transport across the municipality;
(ii) ensuring the transportation network capacity can accommodate new commercial
Executive Summary
Clarington Commercial Policy Review �`J ly ' I ii
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growth and be implemented in the most efficient manner which may require
phasing of commercial growth; and,
(iii) ensuring efficient traffic operations and to maximize safety.
Each of these will need to assessed with any option for future commercial policy and
development.
Market Context
Planning policy attempts to provide commercial choice to consumers, at easily accessible
locations that cause little or no impact on adjacent uses. The number, location and size of
commercial uses is a function of the market for such uses. Market analyses help determine how
much land should be available in a community to provide floor space for consumer goods and
services.
The Context and Issues Report provides a summary of the initial market demand analysis
completed by urbanMetrics Inc. and Tate Economic Research Inc. The intent of the analysis is to
determine the magnitude of the retail commercial space which will be required to service
population growth in Clarington. The analysis takes into account active applications for
commercial uses, as well as designated Main Central Area retail commercial sites located in
fClarington.
The amount of space warranted in Clarington is based on market growth, recapture of dollars
spent by Clarington residents outside of the municipality, and inflow sales from those living
outside of Clarington. The estimates assume an average sales performance level of $302 per
square foot and on this basis the demand for commercial floor space has been estimated to
increase from 528,000 square feet in 2005 to 1,131,000 square feet by 2016.
The total amount of selected retail space included in the applications for planning approval
currently before the Municipality is estimated at 858,700 square feet. Thus, the applications, in
aggregate, exceed the amount of space which is warranted in the short term. However, in the
longer term, given the assumptions used in the market analysis, all applications can be
accommodated in the Clarington market between 2008 and 2013 without significant impact on
existing retail centres.
Regulating Commercial Development
Over the past 30 years the planning concept that formed the basis for commercial policy was that
of"planned function", a concept based on the Official Plan's description of the role of a particular
commercial centre, usually within a structure or hierarchy of retail commercial facilities. A regional
shopping centre would have the planned function of serving all of Clarington and the surrounding
area; a community shopping centre, a large area of the Municipality; and a neighbourhood
shopping centre, the surrounding neighbourhood. This 'hierarchy' of retail centres directly reflects
the number of people that it takes to support a grouping of stores—the larger the stores, the more
people that are needed to shop there to be economically viable.
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Executive Summary
Clarington Commercial Policy Review
MERIDIAN
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Prepared by � , :� October 72,2004
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This concept forms the basis for commercial policy in both the Durham Region and Clarington
Official Plans, both in the description of the hierarchy of centres and the requirement for a market
justification study prior to allowing any new centres to be established in the Municipality.
Planning policies for a municipality are intended to serve the public interest, which is often
described as the greatest common good. In considering the appropriateness of planning policies
affecting commercial uses, a good place to start is an understanding of how the public interest
can be served by regulating commercial uses.
The three traditional arguments for planning policies that intervene in the market to serve the
public interest are:
® the most efficient use of municipal infrastructure;
® the avoidance of blight; and/or,
® the provision of a range of services and goods in convenient locations.
In the context of Clarington there is also a key objective of the municipality related to the
downtown. The Plan states as a goal that the Bowmanville East Main Central Area shall be "the
focal point of economic, social, cultural activity through shopping areas, housing, symbolic points
of interest, and key institutional and cultural facilities. To provide redevelopment in the Downtown
and the East Business District with emphasis on increased densities, heritage preservation and
quality urban design".
Findings
As a result of the review of Clarington's historical commercial development, the current
commercial structure, the planning policy framework, the market analysis and the transportation
framework, our general findings regarding the relevant context and issues are as follows:
1. The existing commercial policy structure in Clarington's Official Plan is relatively complex,
out-of-date in some cases and, as a consequence, somewhat confusing. There would be
significant value in creating a new nomenclature of commercial centres as part of the
Commercial Policy Review.
2. The two main commercial areas, the historic Bowmanville downtown and the
Bowmanville West Main Central Area, incorporate, between the two of them almost all of
the range of institutional, commercial, recreational and service facilities with central place
functions in Clarington.
3. The goal for the Bowmanville West Main Central Area should not be to replicate the
downtown but to provide for a shopping experience that allows efficient and safe
movement between buildings and serves a function distinctively different than the
downtown. It may be appropriate to recognize and foster the differences in function
between historic downtown Bowmanville and the environment in the Bowmanville West
Main Central Area.
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4. A commercial policy approach that continues to consider the market impact and phases
in the amount of new development in relation to market and population growth is a
reasonable and realistic continuation of the present policy framework that should be
further evaluated.
5. To the greatest degree possible efforts to simplify the current policy structure should be
made including the deletion of references to individual types of stores.
6. Based on the current policy framework and input from the Advisory Group, any changes
to the commercial policy structure must be made in the context of the anticipated growth
and the market information.
7. Commercial development has historically been focused along the Durham Highway
2/King Street corridor which includes the historic downtown area. As the majority of
j growth in Clarington is intended to occur in the Bowmanville area north and south of
Durham Highway 2, this corridor and area may remain as the focus of commercial activity
in the Municipality.
8. The expansion of commercial uses in Courtice and Newcastle Village will need to be
considered as will the role of the Local Central Areas and their function and the support
for Orono's Local Central Area.
9. There is strong emphasis in Provincial, Regional and local policy to protect and maintain
the well being of the downtown core and provide opportunities for intensification. Policies
will be needed to provide for flexibility to redevelop and intensify commercial sites.
10. The market analyses indicate that between today and 2016, given the planned growth of
i Clarington, an additional 1,137,000 square feet of selected retail space (food, department
store, home improvement and auto supply) will be required to serve the market. Options
for moving forward need to be developed and assessed in order to make
recommendations on where and how Clarington's commercial needs can be met.
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CONTEXT AND ISSUES REPORT
CLARINGTON COMMERCIAL POLICY REVIEW
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. INTRODUCTION
Dealing with commercial development issues is perhaps one of the most significant planning
challenges facing Ontario municipalities. Over the past two decades, retailing has seen dramatic
shifts in form and function and communities have become increasingly sensitized to its impacts.
Traditional planning policies in the form of commercial land use hierarchies and limitations on
commercial uses have been challenged in numerous disputes between and among a variety of
interests.
Commercial policy issues are complex. In order for planners to develop effective and progressive
policies, there is a need to understand how retail areas function, the relationship among them and
within the marketplace, and principally, how the role and the ability of the government to shape
market forces can or should be implemented. In order to properly develop and implement
commercial policies that reflect the goals and objectives of a municipality, it is also critical to have
an understanding of the context within which commercial development should be planned and the
role of related disciplines, including market analysis, transportation and urban design.
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As part of its Official Plan Review, Clarington is undertaking a Commercial Policy Review. Part of
the review involves conducting background research on a number of commercial policy issues.
This Context and Issues Report provides a summary of this research and provides the necessary
j historical and background information needed to determine options. It comments on the existing
policy framework in Clarington, current commercial issues and trends, and general planning
options.
The Context and Issues Report, together with the market impact study and input from
consultation, will be used to develop options and a recommended approach to commercial policy
in the Official Plan.
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Context and Issues Report
Clarington Commercial Policy Review f+. MERIDIAN 1
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2.0 EVOLUTION OF COMMERCIAL USES AND FUNCTIONS
Commercial development, especially retail development, is continuously changing and evolving.
Commercial land uses, forms and functions are affected by a number of trends. These include
j changes in the economic climate, technology, consumer demographics, consumer preferences,
retailing/business strategies, and the development of new/revised retail formats.
Historically, the main and only focus of retail commercial activity in a community was the
downtown. The popularity and accessibility of the automobile in the post World War II era and
population growth patterns, gave rise to the dispersion of retail activity.
Most municipalities in Ontario have identifiable, historic downtowns. These traditional commercial
centres often function as the major administrative and service centres for a community. Most
downtowns have a defined core which is usually located along a major corridor (Main Street) or at
intersecting main streets. They often have a civic or community focal point and provide a range of
retail shops and services, restaurants, offices and cultural facilities which are often combined with
residential housing and often located in heritage buildings. At one time, many downtown areas
contained the first traditional department stores and food stores.
On the fringe of the historic downtowns, other types of commercial nodes have developed. These
include neighbourhood, and community and regional centres. The neighbourhood centres,
typically anchored by a supermarket, have provided convenience shopping in strip malls.
Community centres, often enclosed and anchored by a discount department store and
supermarket were also developed. On the fringe of many urban areas, the clustering of highway
commercial uses has also taken place. The highway commercial uses cater to the traveling public
and often require large land areas. In addition, major shopping centres evolved in the 1950's and
1960's in the suburban areas to serve developing residential areas. The traditional enclosed
regional mall, with its large department store anchor tenants, provided an indoor "downtown" for
suburban residents and communities.
Rather than attempting to compete with the larger suburban centres, many downtowns in the
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1970's and 1980's focused their efforts on enhancement and revitalization, often through the
creation of Business Improvement Associations (BIA's). Although the mix of uses in the
downtown has changed over time, with an increased emphasis on non-traditional retail uses,
including services, it often still remains a main commercial node of activity for communities.
The 1990's brought a completely new form of retailing to Ontario in the form of big box stores and
power centres (grouping of several big box or new format retailers), at a time when a recession
had made the public more interested in lower prices than in personal service. In Canada, many
power centres began with big box tenants such as a warehouse membership club and home
improvement centre. They have since evolved from their "bare bones" discount warehouse
beginnings to account for the greatest portion of new retail development in the 1990's and in
recent years. Big box retailers have captured a very significant share of the market for many
forms of retailing, and their success reflects consumer preference for lower cost, variety and the
Context and Issues Report
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discount warehouse format. The range of merchandise at power centres will likely continue to
expand in the future as traditional retailers expand into the big box market. Access to major roads
and highways continues to be an important factor for retailers in determining the location for
power centres.
The retail industry and retailers continue to restructure and reposition themselves. Big box and
new format retailing, including the arrival of Wal-Mart in 1994, have contributed to a reduction in
the number of traditional and discount department store chains in recent years.
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There is also a continuing trend for established retailers to reposition themselves to compete
against new format retailing. This has involved such strategies as expansion, relocation,
refurbishing, spin-offs, differentiation, and closures. Some stores are expanding their size,
merchandise selection and range of services to provide one-stop shopping all under one roof.
Supermarkets, for example, which traditionally sold only food and grocery merchandise, are now
including such merchandise as pharmaceuticals, cosmetics, home furnishings, electronics,
apparel, other general merchandise and a range of services (including health clubs, dry cleaners,
medical centres, etc.). Drugs stores and department stores are also expanding their
merchandise to include food. This has resulted in some stores that are now significantly larger
than their traditional counterparts.
All of these changes and emerging trends create a challenging environment in which to plan for
commercial development.
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3.0 CLARINGTON'S 1 FUNCTIONS
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In the 1790's the Municipality of Clarington consisted of the original settlements in the Townships
of Clarke and Darlington. Changes to those original settlement areas have mirrored those in most
of central Ontario as the technology of transportation has changed, starting with a cart path called
Kingston Road, followed by a grid system of Township roads, several rail lines and much later
Highway 401.
In 1974, Regional government was implemented to respond to the increased demands of growth.
With Regional government came the creation of the Town of Newcastle through the
amalgamation of the Town of Bowmanville with the Village of Newcastle and the Townships of
Clarke and Darlington. In 1993, the Municipality was renamed Clarington. Today Clarington is
home to over 77,000 people and is anticipated to grow to a population of 130,000 people by
2016. With the rapidly increasing population growth, there is a need for additional goods and
services to meet demands. A sound land use planning framework is needed to ensure
appropriately planned commercial development which can conveniently offer a range of goods
and services to the growing population.
Understanding the historical development and evolution of Clarington's commercial areas,
including their role and function, will assist in determining the best options for planning for future
needs of residents while maintaining the health and planned function of existing areas.
Urban settlements along Durham Highway 2/King Street* have always served as the primary
commercial centres in the Municipality. Through increased development pressures in the 1980's
came a need to recognize the importance of managing commercial growth in the entire
municipality, particularly along the corridor. In 1996, all of Clarington was recognized in
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Clarington's new Official Plan.
Over the years, the following Urban Areas have become commercial focal points in Clarington,
jwith the Bowmanville Urban Area the largest and most developed retail area (see Map 1:
Clarington Urban Structure) .
® Bowmanville Urban Area - including the West and East Main Central Areas along King
Street and the Highway Commercial Areas along the 401;
® Courtice Urban Area — including the Sub-Central and Local Central Areas along King
Street;
® Newcastle Village Urban Area — including the Main Central Area along King Avenue;
and,
® Orono Urban Area — including the Local Central Area along Regional Road 17 between
Station Street and Mill Street.
"Throughout this report the references to King Street,King Avenue and Durham Highway No 2 are all references to the continuous corridor of Highway No.2
across Clarington which is defined according to the area it traverses.The corridor is defined as King Street East and West as it passes through Bowmanville,King
Street as it passes through Courtice,King Avenue East and West as it passes through Newcastle and as Durham Highway No.2 at all other locations.
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Ma p g 1: Clarington Urban Structure
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These areas continue to be developed as the focal points of economic, social and cultural
activities and provide a range of commercial uses to meet residents' needs, The Bowmanville
East and West Main Central Areas are seen as serving both local and regional needs.
3.1 Bowmanville Urban Area
Bowmanville's history dates back over 200 years with the arrival in 1794 of the first settlers. The
area became a dominant settlement due to its prosperous mills. Bowmanville's best known
industries included the Dominion Organ and Piano Factory, the Goodyear Rubber Plant, the
Bowmanville Foundry, and the Cream of Barley Mill, whose goods and products were shipped all
f
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over the world. Remnants of those prosperous years are still found throughout the area, not only
in the streetscape of the downtown area, but in the number of large picturesque houses, built by
the merchants and businessmen over 100 years ago.
In a policy context, the majority of retail uses in Bowmanville are grouped in two areas: a) the
Bowmanville West Main Central Area which is west of Bowmanville Creek along Durham
Highway 2; and b) the Bowmanville East Main Central Area which consists of the historic
downtown and also includes the area to the east of the downtown, including a mix of commercial
and office uses.
Initial development in the downtown part of the Bowmanville Main Central Area formed the
nucleus of a tiny settlement which by the early 1800's was linked to the major Kingston-York
Road via bridges over creeks. The introduction of the railway in 1858 created an impetus for
further growth. Up until the 1960's, Bowmanville had largely remained a service and
administrative centre for surrounding the region but soon developed with peripheral subdivisions
and strip development along King Street east of the core. The historic core of Bowmanville has
retained its physical character and maintained a relatively prosperous core for over 100 years.
The Bowmanville BIA has continued to provide an active role in the prosperity of the Bowmanville
downtown area.
In 1992, Clarington undertook a comprehensive land use study for the Bowmanville Main Central
Area. At the time, a series of applications for the west portion of the Bowmanville Main Central
Area (the area west of Regional Road 57) had been submitted by Markborough Properties Inc.
and others. The Study provided for three phases: an overview, development options and final
recommendations. A market study was also completed as part of the process. The purpose of the
study was to find mechanisms and to formulate policies which would accommodate a wide range
of land uses, ensure the viability of both the existing and new sectors of the Bowmanville Main
Central Area and establish appropriate urban design guidelines for the new (west portion) of the
Bowmanville Main Central Area.
The Study looked at various scenarios for the development of the Bowmanville Main Central
Area. One option was to allow the applications filed at the time to proceed. This option was seen
as having serious implications on the structure and viability of the downtown. The second
scenario was to provide for a tri-nodal model which envisaged three activity nodes of relatively
equal intensity through the corridor: the new West Main Central Area, the Historic Core and the
Bowmanville Mall area. A third option focused on strengthening the downtown with a secondary
role provided to the west portion of the Bowmanville Main Central Area.
As a result of the study, Council concluded that the Bowmanville Main Central Area should be
recognized as a regional centre, that new retail development in the west be phased based on
population growth and that the Bowmanville West Main Central Area be developed on a grid and
block system. The final report prepared by Berridge Lewinberg Greenberg Ltd recommended that
the Bowmanville Main Central Area be developed based on a revised concept plan which focused
commercial development on Highway No. 2 (Scenario 3). The recommended scenario also
provided for urban design guidelines which focused on creating a strong streetscape and
landscape design to the new area. The study also recommended thresholds for commercial
growth in the area. At the time there was no department store in the area and the Municipality
was concerned there was a leakage of commercial dollars from Clarington. At the same time,
Council wanted to maintain the health of the Bowmanville downtown area. The policies put
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forward in response required that certain population thresholds be achieved prior to commercial
floor space being built. However, the policies did not apply to the Canadian Tire Store, as it had
been previously approved.
A number of landowners, including Markborough as the major land owner, were opposed to the
thresholds and the highway commercial development concept for the west area. An Ontario
Municipal Board hearing was held to consider several issues including: the appropriateness of
extending the Bowmanville Main Central Area westerly; the appropriate level of allocation of
retail, commercial and accessory uses floor space which would accompany the extension; its
placement in the expanded area; and the likely impacts on the retail/commercial functions of the
existing Main Central Area. The Board noted in its decision that it had two different but inter-
related issues before it: a land use component and a retail/market component. The question to be
addressed was whether the extension of the existing Main Central Area to the west would impact
the economic stability and vitality of the existing downtown to the point where the planned
function of the area was severely compromised. The second question was "if the area was
j extended, what form should the urban structure of the extension take?"
The Board concluded that the Bowmanville West Main Central Area was not an extension of the
existing Bowmanville East Main Central Area. Given that the two areas were and still are
separated by the Bowmanville Creek, the Board determined that the west area should be
complementary to the existing Bowmanville East Main Central Area rather than be considered
part of the same commercial area. The Board also found that the viability of the Bowmanville East
Main Central Area would not be affected by the creation of development in the west portion of the
Bowmanville Main Central Area. The recommended thresholds, land use designations and
policies of Official Plan No. 56 were approved by the Board and were implemented into the
current policies for the Bowmanville West Main Central Area.
1 The Board also agreed with the grid road system proposed for the Bowmanville West Main
f Central Area. Concerns were raised at the hearing regarding the possibility of the big box retailers
developing in the area and as such, the implementing zoning precluded large format food,
clothing and general merchandise stores. Council had also raised a concern about the banks
leaving the Bowmanville downtown, and as such the policies restricted financial institutions to one
per development. In 1995, a total of$1.2 million dollars was spent by developers, the Municipality
and that the Region to reconstruct Highway No. 2 to implement the transportation vision and main
street concept proposed for the Bowmanville West Main Central Area.
Since the original Board hearing, a number of applications have been considered. Additional
changes been made to the Bowmanville West Main Central Area Secondary Plan, including the
expansion of the existing park complex, north of Durham Highway 2, and the deletion and
realignment of the road extension through the park. This area, together with lands to the west, is
currently the subject of a number of applications for new large format retailing proposed (see
Appendix 1: Current Commercial Development Applications).
In 1996, a new Official Plan for the Municipality of Clarington was approved. While not part of the
original recommendations, an additional Highway Commercial area was added by Council to the
west part of the Bowmanville West Main Central Area, as part of the approved Official Plan.
There was also an amendment to the Official Plan which was approved by Council that identified
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a Highway Commercial Area to the west of the Bowmanville West Main Central Area. Shortly
thereafter there were a number of intervening applications for commercial development. In 1997
an urban design study for the Bowmanville West Main Central Area was conducted which
included a traffic analysis. The report entitled, "A Framework for Development: Urban Design
Principles and Guidelines for the "Bowmanville West Main Central Area and West Bowmanville
Gateway" provided a framework to ensure consistency in built form, massing, streetscape and
landscape features, as well as the implementation of a grid road system of arterial and collector
road types with internal circulation roadways providing the local street access function. The Study
was initiated as a response to applications to develop new uses in the area and to expand the
area within the northeast corner.
The Bowmanville East Main Central Area contains the historic downtown and the easterly
business district including the Bowmanville Mall. The area contains a wide mix of land uses with
commercial uses primarily located along King Street East. Prior to 1975, portions of the
Bowmanville East Main Central Area were developed for single detached residences with large
frontages with individual accesses. Since that time a number of strip plazas, apartments and
other uses have been constructed on the vacant lots without consolidation of adjoining properties
to take advantage of common access points. The pockets of infill development over the last 20
years have also lead to confusion over urban form in the area due to the mix of conventional strip
commercial plazas, an indoor mall, as well as several stand-alone buildings setback from the
street with parking in the front areas.
The Bowmanville King Street East Corridor Study was undertaken in 2003 to specifically focus on
these issues and to find ways of revamping and improving the urban fabric along King Street East
in Bowmanville east of Liberty Street. The study identified development interests and the key
drivers and opportunities that would serve as the catalysts for positive change in the future. The
key drivers included building on core assets (identified precincts and destinations), rationalization
of traffic and movement, supporting the creation of a great streetscape through greening,
improving the connections to better link people and businesses, using redevelopment to repair
the street (emphasizing the street edge and wall) and committing to the right implementation tools
1 and capital initiatives.
The study provided a recommended framework for redevelopment introducing land use principles
to guide redevelopment and a prioritization of actions and capital initiatives. Detailed revisions
were recommended to the Bowmanville East Main Central Area Secondary Plan including
changes to land use designations and policies. Specific recommendations were also made in
regard to the regulation of drive-through uses in the King Street East Corridor.
3.2 Courtice Urban Area
The Courtice Sub-Central Area, located in the vicinity of Townline Road and King Street, is the
focus of commercial activity in the Courtice Urban Area. The area, which provides a western
gateway into Clarington and is located adjacent to a commercial node in Oshawa, is supported by
the Courtice Business Association.
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In 1976, the Region of Durham Official Plan recognized the Courtice area as one that should be
location for growth and as such a Community Central Area was designated at the southwest
corner of Highway No. 2 and Trulls Road in the former Town of Newcastle Official Plan. As a
result of growth pressure in the late 1980's, the Official Plan was amended to recognize a Sub-
Central Area as well as the Townline development lands. In 1991, the area at Trulls Road and
King Street was designated as a Main Central Area in the Durham Regional Official Plan to
recognize its importance.
In 2001, the "Highway to Mainstreet: Courtice Highway 2 Corridor and Main Central Area Study"
was undertaken to develop a flexible policy framework for enabling intensification along the
Corridor. The intent was to:
® establish a plan that would accommodate change over the long term;
® develop the Courtice Main Central Area into a primary focal area of activity, interest and
identity for Courtice; and,
® develop an urban design framework to guide development along the highway in Courtice
as a main street and a downtown destination.
A number of recommendations were made to establish Highway 2 as a "Main Street" for Courtice.
Staff also prepared a report with recommendations to Council on the development of the Courtice
Main Central Area. In light of several public submissions the report was referred back to staff for
further review. The recommendations were intended to create a distinct and cohesive identity that
reflected the historic rural character of the community and provided a pedestrian friendly and
transit supportive road, while maintaining the function of Durham Highway 2 as an Arterial Road.
Urban design guidelines were also developed to support goals for Durham Highway 2's main
street function.
Staffs' recommendations for changes to the Courtice Main Central Area were not accepted by
Council and a Highway Commercial designation was added at the 401 and Baseline/Trulls Road
area which is a deferred policy in the current Official Plan.
3.3 Newcastle Village Urban Area
The Newcastle Village Main Central Area extends from the east side of Foster Creek along King
Avenue to Brookhouse Drive. This area contains primarily convenience goods and services,
catering to local residents' daily needs. The area contains an historic downtown and newer
development to the east of the downtown area. Newcastle has an interesting history which is
reflected in its main street buildings and surrounding residences.
In 1847, Daniel Massey settled in the Bond Head area starting the Massey-Harris eventually
becoming the Massey-Ferguson company which made and sold equipment around the world.
Daniel Massey moved "his works" from Bond Head to the Newcastle Village main street, where
there were several hotels and stores, all of which have now disappeared. Newcastle became an
official village in 1856. There are a number of historic buildings which are located along King
Avenue East and the area has maintained its historic character.
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Throughout the last decade the eastern section of Newcastle has continued to see strip mall
development. The current Newcastle Village Main Central Area Secondary Plan recognizes the
role of Newcastle Village as an opportunity for redevelopment and possible expansion given its
function as a Main Central Area within the Municipality.
3.4 Orono Urban Area
Orono is an early settlement, founded in 1832. While not a major commercial node, Orono
remains vibrant as a small community centre offering primarily convenience goods and services.
Orono was an important stop for years on the major road leading from Lindsay to Newcastle. It
has an active BIA which promotes the area as a location with a vibrant main street where people
meet, live, work, shop and play.
The Municipality is currently developing a Community Improvement Plan for Orono. The function
of the Orono Urban Area includes a Local Central Area function for the downtown area.
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3.5 Other Areas
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There are several locations along the Highway 401 corridor, the Highway 35/115 corridor,
Durham Highway 2/King Street corridor, and elsewhere in Clarington where commercial
development has occurred. Local Central Areas and Neighbourhood Centers are dispersed
throughout Courtice and Bowmanville.
Currently there are three commercial plazas under construction in the Local Central Areas. This is
common and will continue as residential communities develop in those areas. To date, the
waterfront areas have remained relatively undeveloped with the exception of areas in Port
Darlington and Newcastle.
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4.0 EXISTING 1 DESIGN CONTEXT
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A municipality's authority to regulate the nature, size and location of commercial uses comes from
the Ontario Planning Act, which allows a municipality to regulate land uses through Official Plans
and Zoning By-laws. These two planning documents, which are approved by Clarington Council
through a public process, have the authority to prescribe where commercial uses may be located,
to specify the uses that may be permitted, and to limit the size of the concentrations of
commercial uses. The Region of Durham also has the authority through its Official Plan to provide
a policy framework for commercial development in the area municipalities. The Province sets out
provincial interests in the Provincial Policy Statement.
The following section of the Context and Issues Report provides a detailed description and review
of the existing policies applying to commercial development in Clarington.
4.1 Provincial Policy
The current Provincial Policy Statement (PPS) provides for general policies for developing strong
communities and includes policies which promote sustainable development and compact urban
form. The long term economic prosperity of municipalities is supported by policies which require a
municipality to make provisions such that infrastructure and public service facilities will be
available to accommodate projected growth, to provide a supply of land to meet long term
requirements and to maintain the well-being of downtowns and mainstreets (Section 1.1.3 e
of the PPS).
The recent Planning Reform Initiatives introduced by the Provincial Government propose
changes to the PPS which introduce additional policies that support the long-term prosperity and
social well being by maintaining the "viability and vitality" of downtowns and mainstreets. The
policies also encourage transit supportive densities and development with a focus on
intensification of existing urban areas.
4.2 Regional Policy Framework
The Region of Durham Official Plan sets out a number of policies related to commercial growth
and development which are outlined as follows:
• In Section 7, Regional Structure, it is clear that the Whitby/Oshawa/Courtice urban area
is to be a focal point in the Region and the Bowmanville/Newcastle Village urban area is
to be the eastern anchor to the Region.
• The Regional Urban Area policies (Section 8) also recognize that Highway 2 is an
important corridor linking urban areas and an appropriate regional framework should be
determined for the Highway 2 corridor for various land use designations, methods of
architectural and sign control, expanding transit use, pedestrian access, vehicular access
and streetscape beautification.
• Section 9 of the Regional Plan provides policies for Central Areas (see Table 1 summary
below). Central Areas are to be the focus of urban activity. They are to be the
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"downtowns" or "centres" of communities containing the widest range of uses and the
highest densities. The amount of retail floor space permitted within the Central Areas is
capped in the current Regional Plan. The four Main Central Areas identified in the
Regional Plan for Clarington are Courtice, Bowmanville East and West and Newcastle.
Table 1: Region of Durham Official Plan—Central Area Policies
Central Areas—Regional Official Plan Section 9—Summary
9.1 Goals Central Areas should be developed as people-oriented places that are focal
points of activity. They are characterized by art and architecture including
preservation of cultural heritage resources. Central Areas integrate shopping,
housing, employment, recreation, social and cultural uses.
9.2 General Central Areas shall be developed as the main concentration of activities at the
Policies highest densities in accordance with the principles contained in Urban Area
policies and the following:
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- Focal point of culture, art, entertainment and assembly through public
facilities (public squares, parks etc.)
- Mixed uses and grid system of roads and walkways
- Direct street pedestrian access
- Prime consideration for Urban design
Development of additional floor space for the retailing of goods and services in
Central Areas shall not be permitted if the viability of any existing Central Area is
likely to experience an undue economic decline. Central Areas are not to include
retailing of a size in a single location that would preclude development of other
central Areas.
9.3.1 Main Central Areas and Sub-Central Areas are designated in the Regional Plan.
Community Central Areas and Local Central Areas are designated in municipal
official plans,
9.3.2 Central Areas shall be classified in a hierarchy of functions as follows:
- Main Central Areas
- Sub-Central Areas
- Community Central Areas
- Local Central Areas
9.3.3 Maximum gross leasable floor space for the retailing of goods and services
I Main Central Areas Square Metres
Bowmanville East and West) 200,000
Courtice 40 000
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Central Areas—Regional Official Plan Section 9—Summa
Newcastle Village 40,000
Sub-Central Areas
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Oshawa/Courtice(Townline Rd. & King St.)
Oshawa Portion 20,000
Courtice Portion 28,000
Local Central Areas 10,000
9.3.5, 9.3.6, Existing shopping centres shall redevelop with a full array of Central Area uses.
9.3.7, 9.3.8 Prior to consideration of amendment for increasing floor space, designated a new
Community or Local Central Area (excluding areas less than 25,000 sq. m.) or
passing of Zoning By-laws to implement Central Area hierarchy, a retail impact
study shall be prepared.
® The policies in Section 10 of the Region's Official Plan (Living Areas) provide that limited
retailing of goods and services may be permitted. It also provides, however, that subject
to local plan policies, special purpose commercial uses servicing specialized needs on an
occasional basis may be permitted in Living Areas. These uses should contain services
and facilities that consume large parcels of land and require exposure to traffic, such as,
and similar to, automotive sales, drive-in restaurants, motels, hotels, lumber yards, and
furniture and major appliance sales. A limited number of uses for the retailing of goods
and services are also permitted in Employment Areas.
® The Region also has guidelines for retail impact studies that are required for applications
to amend the Regional Official Plan. The guidelines set out the study requirements which
include the delineation of a trade area, an inventory of the retail environment, the trade
area population, retail expenditures, market capture and residual potential, inflow and
outflow expenditures as well as sales performance and impacts.
The key policies of the Regional Plan for Clarington are the recognition of the Bowmanville and
Newcastle Village urban areas as an eastern anchor for the Region. The policies also identify
Central Areas as both the centres and downtowns for the Region. The current caps on
commercial development are currently under review by the Region, as is the need for retail
impact studies for retail expansions and new development. Clarington staff have reviewed the
Region's Commercial Policy Review and have provided comments to the Region.
4.3 Comparison of Commercial Policies in Surrounding Municipalities
Although the municipalities in Durham Region share a common Central Area hierarchy as
identified in each of their respective Official Plans, the permitted uses in the various Central Area
designations vary.
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Oshawa and Whitby delineate Main Central Area boundaries in their Official Plan schedules,
However, within those areas is a second level of designations including the Central Business
District, Planned Commercial Centre and Planned Commercial Strip, Ajax's Main Central Area
has a Downtown Central Area and an Uptown Central Area. The municipalities also have a range
in the minimum and maximum floor areas permitted in the various commercial categories. All of
the municipalities provide policies which support the protection of the downtown core.
Only Clarington, Oshawa and Whitby designate Sub-Central Areas. This designation is described
as similar to the Main Central Area but smaller in scale. Community Central Areas are also
designated by some of the municipalities in a similar manner as the Main and Sub-Central Areas
but permit uses that cater to the needs of the surrounding residential communities rather than the
entire urban community. Several of the municipalities consider the Community Central Areas as
focal points for the surrounding area.
The designation of Special Purpose Commercial areas along arterial roads is common in several
of the area plans. Local plans also vary on how these designations are implemented and some
permit large retail warehouse uses.
4.4 Claringfon's Official Plan Policies
Clarington's Official Plan (December 4, 2000 consolidation) contains a variety of policies dealing
with commercial growth. While the commercial policy sections are quite specific, other more
general policies also provide a context. The more general policies are noted as follows.
Table 2: Clarington Official Plan -General Policies
Section Policy
Basis of the Plan Bowmanville will continue to grow as the predominant urban centre and
form the eastern anchor to the Region
Retail facilities will be required on a phased basis related to population
growth
Principles of the Sustainable Development
Plan
Healthy Communities—economic vitality and urban design excellence
Growth Management — compact urban form, structured and balanced
growth and phased development.
Economic 7.3.1 (b) Encourage new retail and commercial developments, while
Development promoting traditional downtown areas as distinctive and attractive locations
for retail, office, institutional, tourism and civic purposes.
7.3.5 Council, in consultation with the Boards of the Business Improvement
Areas and the Chambers of Commerce, shall encourage and assist in the
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Section Policy
promotion of historical downtowns as destinations for shopping, walking
tours and other events. In addition, other organizations are encouraged to
assist in the promotion of tourism through special events such as cultural
festivals, tours and fairs.
Cultural Heritage 8.3.6 In consideration of landscaping, vistas and ridge-lines, the
�I
Municipality has identified the following areas of importance:
(a) the heritage downtowns of Bowmanville, Newcastle and Orono.
The Plan establishes a hierarchy of commercial centres essentially based on the Regional Official
Plan structure. The policies establish that the focus of commercial uses in Clarington should be
within the designated Central Areas (see Map 2: Main Central Areas). Section 10 provides
policies for the Main Central Areas; Courtice, Bowmanville East, Bowmanville West and
Newcastle Village. Courtice also has a Sub-Central Area designation. There are also additional
land use designations for commercial areas outside of the Main Central and Sub-Central Areas.
Secondary Plans have also been prepared for the Bowmanville East Main Central Area, the
Bowmanville West Main Central Area, the Courtice Sub-Central Area and the Newcastle Village
Main Central Area. The following table provides a summary of the commercial land use
designations for Clarington.
Table 3: Clarington's Commercial Land Use Designations
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Designation Uses Permitted
Main Central Areas Full array of retail and personal service, office , residential, cultural,
community , recreational and institutional uses
Sub-Central Areas Retail, office, residential, cultural, community, recreational and
institutional uses.
Local Central Areas Commercial, residential, recreational, community, cultural and
institutional uses.
Neighbourhood Provision of items or services of daily necessity including community and
Commercial Areas residential uses, small plazas, free-standing stores and offices, street-
oriented mixed use buildings
Highway Commercial Automotive sales and service, home improvement centres, garden
Areas centres and nurseries, restaurants, motels, hotels, service stations and
motor vehicle services establishments.
The general goals and objectives of the Central Areas are to provide for a focal point for
economic, social and cultural activities for various communities. The Central Areas are also to
provide specialized commercial uses to meet resident needs, to accommodate new trends in the
commercial sector and to direct new uses to appropriate locations.
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Clarington Commercial Policy Review ^MERIDIAN 15
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Map 2: Main Central Areas
a�
NEWCASn
URBAN AR
SEE MAP
0 1000 2000 3000 m Main Central Area
1000 m
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The objectives of the Main Central Areas include:
i
® the provision for the development of the Bowmanville East and West Main Central Areas
as a Regional Centre; the integration of retailing with other traditional Central Area
functions;
® the creation of the Central Areas as people-oriented places;
® the preservation and enhancement of historic downtowns; and,
® the discouragement of strip mall expansions.
The general policies for the Main Central Areas also provide for numerous urban design
principles and development criteria. The Regional policy requiring a market impact study for retail
commercial development greater than 2,500 square metres is implemented in the Main Central
Area policies. The expansion of the Main Central Areas requires a comprehensive policy review.
The policies note that the Main Central Areas shall be developed as the main concentrations of
urban activities within the Municipality providing a full array of retail and personal service, office,
residential, cultural, community, recreational and institutional uses. They are to function as focal
points, be places of interest for residents and foster a sense of local identity.
The Sub-Central Areas are to serve large segments of urban areas through the provision of uses
that compliment the Main Central Area including mixed uses with retail, office, residential,
cultural, community, recreational and institutional uses.
The current Clarington Official Plan places limits on the maximum gross leasable area for retail
and personal service uses permitted in each Main Central Areas and the Sub-Central Areas as
follows:
Maximum Gross leasable areas (Section 10.4.2):
Bowmanville East Main Central Area 60,000 square metres
1 Bowmanville West Main Central Area 40,000 square metres
Courtice Main Central Area 25,000 square metres
Courtice Sub-Central Area 28,000 square metres
Newcastle Village Main Central Area 15,000 square metres
I
Local Central Areas are intended to be planned and developed in a manner similar to, but smaller
in scale than the Main and Sub-Central Areas. Serving the day to day needs of the surrounding
residential neighbourhoods, the maximum retail and personal service floorspace permitted ranges
from 1,200 square metres to 4,500 square metres depending on the Local Central Area location
(as defined in Section 10.6.3). In total, some 25,150 square metres of retail and service space
has already been designated in Local Central Areas in Clarington. Orono's downtown is
designated as a Local Central Area.
Neighbourhood Commercial Areas are intended to service the daily needs of residents. The
maximum gross floor area for retail and personal services in the Neighbourhood Commercial
Areas is typically 1,000 square metres (although there are a number of exceptions as defined in
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Section 10.8.4). In total, 10,950 square metres of retail and personal service space has been
designated Neighbourhood Commercial.
The Highway Commercial Areas are to serve the specialized needs of residents on an occasional
basis. The services and facilities are anticipated to be those that require large parcels of land with
exposure to traffic and a requirement for outdoor storage and display. A retail warehouse greater
than 4,000 square metres is only permitted in the Highway Commercial Areas if it is too large to
be compatible in a Central Area, can accommodate traffic impact and is supported by a retail
impact analysis. Service stations are permitted in any land use designation so long as they meet
the requirements as set out in the Plan,
Commercial uses are also permitted in the Employment Areas. Certain commercial uses,
community and recreational uses including banks, restaurants, athletic clubs and banquet
facilities are permitted in the Prestige Employment and Light Industrial Area designations
provided they are limited in scale and service employees in the area. In the Light Industrial Area
designation, a large scale retail warehouse may also be permitted by amendment to the Official
Plan and with a retail impact study.
The Tourism Node and Special Policy Area designations permit specialty commercial uses (such
as the Bowmanville Zoo and the local marinas). It should be noted that the King Street Corridor
Special Policy Area does not permit strip retail areas along King Street outside of the Main and
Sub-Central Areas in Courtice.
4.5 Clarlington Secondary Plans
There are four Secondary Plans which provide further policies and land use designations for the
Main and Sub-Central Areas. They include the Bowmanville East Main Central Area, the
Bowmanville West Main Central Area, the Courtice Sub-Central Area and the Newcastle Village
Main Central Area.
The Bowmanville East Main Central Area Secondary Plan consists of the historic downtown
and the east business district area (see Map 3: Bowmanville East Main Central Area) as well as
the surrounding residential communities. Both are to remain as a focal point for activity and
provide an anchor for the Region's eastern boundary. A summary of the key Bowmanville East
Main Central Area policies is found in Appendix 2 to this report.
The Bowmanville East Main Central Area is defined by three commercial land use designations:
Street-Related Commercial, Strip Commercial and Mixed-Use Area. Essentially these
designations relate to the downtown, the Bowmanville Mall and other large businesses and mixed
uses along King Street. The Street-Related Commercial Area policies permit a wide range of
commercial, recreational and cultural uses. Council has adopted Official Plan Amendment No. 36
(OPA 36) for the Bowmanville Mall which deletes the Strip Commercial Area east of Liberty Street
and introduces a Major Commercial designation. OPA 36 is still subject to an Ontario Municipal
Board hearing. There are no drive-thru retail or personal service establishments permitted in the
Street-Related Commercial Area in the Downtown portion of the Bowmanville East Main Central
Area.
Context and Issues Report
Clarington Commercial Policy Review I IH 18
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Map 3 Bowmanville East Main Central Area
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Context and Issues Report
Clarington Commercial Policy Review MERIDIAN 19
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The Strip Commercial Area recognizes recent development containing conventional strip plazas
including the Bowmanville Mall which was initially built in 1977. Redevelopment is encouraged to
improve the existing character of the area by encouraging infill closer to the streetline. Permitted j
uses include retail, personal service, office uses and community facilities. The Mixed Use Area
allows for the conversion and redevelopment of existing structures to enhance the character of
the area. It should be noted that the existing grid of public streets within the Downtown and East
Business District is to be maintained and extended wherever possible.
The Street-Related Commercial Area, which is predominantly the historic downtown, has
restrictions on personal service establishments. This policy should be reviewed as hair salons,
spas, banks, accountant offices and live-work units have and continue to be prominent in many
downtowns. In general terms the existing policies should be reviewed to ensure sufficient
flexibility in uses to allow the area to continue to evolve.
The Bowmanville West Main Central Area Secondary Plan area is separated from the
Bowmanville East Main Central Area by the Bowmanville Creek. While the two areas are
separated, they are connected by virtue of their Main Central Area designation (see Map 4:
Bowmanville West Main Central Area). The policies for the Bowmanville West Main Central Area
are quite detailed and are provided in Appendix 2 to this report.
The Bowmanville West Main Central Area provides for two commercial land use designations:
Retail Commercial and Office Commercial. In the Retail Commercial designation it is anticipated
that development will be phased. Permitted uses include retail and personal uses. The
designation specifically prohibits a general merchandise store, a food retail warehouse, a clothing
retail warehouse and a drug retail warehouse.
Retail development is permitted to proceed in the Bowmanville West Main Central Area provided
"sufficient population exists to support the continued viability of both the Main Central Areas and
to ensure ongoing redevelopment potential within the Bowmanville East Main Central Area". New
retail development (retail and selected personal services) in the Bowmanville West Main Central
Area is linked by the Plan to the growth of population in the Municipality of Clarington as follows:
Clarington Population Target Retail Thresholds
(gross leasable area in sq. m
78,000 27,000
94,000 41,000
110,000 57,000
The Plan also requires a critical mass of retail and personal service development to initiate
development in the Bowmanville West Main Central Area as follows:
- 18,580 sq. m. on the parcel of land bounded by King St., Clarington Blvd., Bowmanville
Blvd., and Green Rd.
- 3,720 sq. m. on the parcel of land adjacent to the Garnet B. Rickard Recreation Complex
- 4,645 sq. m. on the parcel of land at the southwest corner of King St. and Regional Rd.
57
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Clarington Commercial Policy Review lr a MERIDIAN 20
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Map 4: Bovvnoanv|hmVVaet Main Central Area
FA
lk
LLJ
7
|
�
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All of these areas, with the exception of the southwest corner of King Street and Regional Rd. 57.
have now been developed.
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The Plan requires that prior to any further development for retail and personal service uses, the
Municipality shall conduct an independent market analysis, at the expense of the applicant for
such permission, which addresses market impacts. As a result of the current applications, such a
market study is underway. The Bowmanville West Main Central Area also has a series of specific
policies for the lands designated Retail Commercial which are also found in Appendix 2.
The Office Commercial designation is intended to provide appropriate office uses in addition to
residential and commercial uses at highly visible locations. The permitted uses include a range of
office uses, hotel and convention facilities and institutional and community uses.
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There are site specific policies for the lands located at the southwest corner of King St. and
Regional Rd 57. These policies permit retail uses provided that the existing IGA food store is
relocated. The maximum size of a food store shall not exceed 1,858 square metres. The Plan
requires that there be a sufficient portion of the lands reserved free and clear of buildings and
structures for the construction of a prominent building containing office, hotel and convention
facilities. General merchandise stores, a clothing retail warehouse, a food retail warehouse and a
drug retail warehouse are not be permitted.
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The Bowmanville West Main Central Area provides Urban Design Guidelines which were
developed as part of the Bowmanville West Main Central Area Urban Design Guideline Study.
The guidelines are intended to create a character reflective of the primary role of the area in
providing a commercial, residential and community area through, among other things, achieving
compatibility between retail commercial areas and residential areas. The guidelines are reviewed
in detail in the urban design review.
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The maximum floor space caps for this area should be reviewed in the context of the current
market research. The uses permitted should also be carefully assessed to ensure the type, size
and format of the use does not conflict with policies for the Bowmanville East Main Central Area
which are intended to promote and enhance the character of the downtown. The current policies
dealing with site specific floor areas and uses will be reviewed to determine if they remain
I necessary. The references to specific retailers should not be included in the Official Plan policies,
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Courtice Sub-Central Area Secondary Plan is intended to provide an integrated array of
shopping, personal and business service, office, residential and community uses, The Secondary
Plan contains three commercial land use designations: Primary Commercial, Office Commercial
and Mixed Use Area. The permitted uses and policies in each are set out in Table 4 below. There
is a limit on the maximum gross leasable floor space for the area of 28,000 square metres.
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Table 4: Courtice Commercial Policies
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Primary This designation incorporates a mixture of conventional strip plazas, vacant
Commercial lands and single detached dwellings. Permitted uses include, among other
Area things, retail, personal service, office, residential and cultural uses including
theatres and places of entertainment and community facilities.
Mixed Use The Mixed Use area incorporates a mixture of older commercial structures,
Area vacant lands and single detached dwellings. Permitted uses include:
- Mixed use buildings with retail and personal service on the ground floor
- Office buildings
- Medium or high density residential
- Community facilities
Office Lands designated as Official Commercial comprise existing commercial uses
Commercial including a service station. Permitted uses include:
Area - Professional and business offices
- Ground floor retail and personal service not exceeding 20% of gross
leasable floor area of the building
The Courtice Sub-Central Area policies are intended to foster opportunities for redevelopment
and intensification. The policies for the Primary Commercial Areas need to emphasize the
function of the area for community retailing. The policies need to enable the area to reinvent itself
as opportunities arise. There should also be some consistency with the policies from other
Secondary Plans.
Newcastle Village Main Central Area Secondary Plan provides policies for the historic Village
of Newcastle. The policies for commercial uses are found in three designations: Street-Related
Commercial, Strip Commercial Area and Mixed-Use Area. The area is comprised of the historic
downtown and recent development areas. The maximum permitted retail and personal service
floor area is 15,000 square metres. The permitted uses in the commercial designations are
summarized in Table 5
Table 5: Newcastle Village Commercial Policies
Street-Related Permitted uses include:
Commercial Area
- Retail, personal service and office uses
- Residential dwellings
- Recreational and cultural uses
- Community facilities
No drive-through retail or personal service establishments are
permitted
Existing uses not compatible with the character of the heritage
downtown shall be encouraged to relocate.
Context and Issues Report iiA
Clarington Commercial Policy Review I It9 23
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Strip Commercial Area This designation contains conventional commercial plazas on the
periphery of the Main Central Area. Permitted uses include:
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- Retail, personal service and office uses
- Recreational and cultural uses
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Automobile service stations
- Community facilities
Mixed Use Area The Mixed Use Area contains predominantly single detached
residential dwellings. Permitted uses include:
- Residential uses
- Retail, personal service and office uses
- Mixed use buildings
- Community facilities
- Home-based occupation uses
The Port Darlington Neighbourhood Secondary Plan provides for Village Commercial and
Marina Commercial land use designations. The Marina Commercial designation uses are
restricted to boat related commercial uses, hotels, motels, convention centres and restaurants.
The Village Commercial designation permits retail and personal services uses, retail specialty
shops and studios, restaurants, office and related uses. The maximum amount of retail and
personal service shop uses is 1,500 square metres.
4.6 Urban Design Policies
Clarington's Official Plan provides for urban design principles which are reflected in the general
and specific land use policies, open space and transportation goals and objectives, and
guidelines and also within the Secondary Plans, The Municipality has also engaged consultants
in a number of studies which looked at specific corridors and main streets and established
fundamental principles for good design.
Brook Mcllroy Inc. Planning and Urban Design have been engaged to review the current urban
design policies in detail and will identify a number of additional criteria and design elements that
could be considered to assist in the goal of ensuring that the form and function of existing and
new commercial areas reflect the policy direction of the Official Plan. The urban design review will
assist the Municipality further in its analysis of the options for commercial policy as well as the
detailed policies to be provided as part of the Bowmanville West Main Central Area Secondary
Plan study.
The initial review of the urban design policies recommends that specific guidelines be developed
to ensure high quality urban design outcomes. The guidelines should be developed for specific
areas and not applied generally. Guidelines are recommended for strip mall and large format
retail areas as well as for the historic downtowns. The establishment of a municipal design review
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panel should also be considered which would serve to administer established urban design
guidelines and review development proposals to ensure conformity with the guidelines.
Context and Issues Report
Clarington Commercial Policy Review (f II 24
Prepared by 4 , `°"""^" '"` October 12, 2004
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5.0 TRANSPORTATION CONTEXT
Transportation infrastructure and transportation policies in the Municipality of Clarington will have
a significant impact on the quality and quantity of existing and future commercial development
that can be easily accessed. It is therefore important as part of any commercial policy review, to
understand how the transportation network will affect commercial development. Several studies
have been undertaken in Clarington that have reviewed transportation issues relating to
commercial development in the Bowmanville West Main Central Area and the King Street
corridor. The studies have made recommendations on how the Municipality's transportation
network should be planned to assist in achieving the commercial development goals and
objectives. The following sections of the report look at the exiting infrastructure and network,
previous studies and recommendations and the current issues.
Clarington benefits from a transportation system which provides access via major freeways,
arterial and collector roadways (both Regional and local), railways, inter-regional transit lines, GO
Transit service and a regional transit spine. The majority of the system is a complete grid based
on original concession roads (see Map 5: Transportation System),
The Durham Highway 2/King Street corridor serves as the primary commercial street for the
urban communities of Courtice, Bowmanville and Newcastle Village. Main Street is the primary
commercial street for Orono. The Official Plan provides policies for the Main and Sub-Central
Areas, which aim to achieve a high quality urban environment for pedestrians. Consequently,
access along Durham Highway 2/King Street is to be limited to achieve high quality urban design
objectives. It is the intention of the Official Plan to provide for accessible public transit with the
establishment of a transit terminal site within the Bowmanville Main Central Area.
Several studies have been undertaken which have looked at Clarington's transportation system
and associated commercial development issues. Many of the recommendations of previous
studies have been implemented in the current Official Plan policies.
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Based on the previous studies undertaken and the current policies, Clarington is described as
having a fairly efficient road network. The previous study recommendations and policies have all
focused on providing a grid road system that can efficiently handle the proposed residential and
commercial growth for Clarington and provide for a main street function where appropriate.
The continued challenges for Clarington with respect to transportation and commercial
development can be summarized as follows:
® To continue to support the transportation infrastructure and policies recommended and
implemented through the past studies understanding the need to provide for flexibility as
commercial trends change;
® To ensure the main arterial road (Durham Highway 2/King Street) can maintain its
function as "main street" through the Main Central Areas and still provide an effective
means of transport across the municipality;
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Clarington Commercial Policy Review f .'AERIDIAN 25
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® To ensure the transportation network capacity can accommodate new commercial growth
and be implemented in the most efficient manner which may require phasing of
commercial growth;
® To ensure efficient traffic operations and to maximize safety;
® To establish missing connections and complete connections and links in the grid road
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system;
® To ensure a high quality pedestrian environment;
® To ensure that policies are transit supportive;
® To ensure specific development proposals address traffic impacts and ensure
appropriate road design and access while conforming to the overall network
requirements; and;
i ® To ensure land use and transportation remain inextricably linked through planning
policies including goals and objectives for an area's development, land use policies and
guidelines for urban design which can be achieved.
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Context and Issues Report
Clarington Commercial Policy Review 1 26
{ `.PtNA\WGGONiUSIN1S 4YC
Prepared by
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Map 5: Transportation System
BURKETON ST. LAWRENCE AND HUDSON RAILWA�
Mh
REGIONAL ROAD 20
ENFIELD
ENNISKILLEN
+ HAYDCN I
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LESKARO
"'+�p. SOUNn o -- - - FREEWAY
' ••�� r,IRBY -� REGIONAL ROAD 9 TYPE A ARTERIAL
TYPE 8 ARTERIAL
l /
______________ TYPE C ARTERIAL
IHALIPTON I COLLECTOR ROAD
——_
REGIONAL ROAD 4 ———— REGIONAL TRANSIT SPINE
••••••••••••••e•••••• INTER—REGIONAL
MITCHELL, cc..
CORNERS I TRANSIT LINE
Kt ORONO
EXISTING FUTURE
FREEWA'1 INTERCHANGE
elf( ( Q " GRADE SEPARATION
7,
MAPLE
MAPLE
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NEWTONVILLE
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BROWNSVILLE
/ I WAY No. 2
C N.R.
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Map 5
Transportation
0 1000 2000._7000 m
1000-m
Context and Issues Report
Clarington Commercial Policy Review 4MERIDIAN 27
Prepared by 1 f: "` �� T^M��� October 12, 2004
6.0 MARKET CONTEXT
Planning policy attempts to provide commercial choice to consumers, at easily accessible
locations that cause little or no impact on adjacent uses. The number, location and size of
commercial uses is a function of the market for such uses. Market analyses help determine how
much land should be available in a community to provide floor space for consumer goods and
services.
urbanMetrics Inc. and Tate Economic Research Inc. have undertaken a preliminary market
demand analysis for the Municipality of Clarington. The intent of the analysis is to determine the
magnitude of the retail commercial space which will be required to service population growth in
Clarington. The analysis took into account active applications for commercial uses, as well as
designated Main Central Area retail commercial sites located in Clarington.
The analysis was based on detailed consumer research conducted throughout Clarington in 2003
and 2004. This research included:
• licence plate surveys at four locations;
•face-to-face interviews with downtown shoppers;
• a telephone consumer survey of Clarington residents;
• a full inventory of retail and service space in the Municipality;
• population and expenditure forecasts; and,
•a review of commercial applications and designated Main Central Area
commercial sites.
The results of the majority of the research
components are summarized in the document
"Draft — Bowmanville West Main Central Area
Preliminary Base Research Results, Municipality
of Clarington, Ontario".
• Clarington's population is estimated at
77,200 people in 2003. It is expected to
increase by 25,800 persons by the year
2016. A large portion of the anticipated
growth (almost 50%) is to be accommodated
in the Bowmanville Urban Area.
CLARINGTON,RETAIL EXPENDITURE:
($Millions,2003 Dollars)
$8000
$700.0
$6000 !-
- --
- --.
$5000
$400-0
—_-- — — — --
$300.0
$200.0
I
-- -- I- - -
$100.0
-——
$00 -
-.-�---._------ -__
2003 2016
❑Home 8 Auto
$20.5 $32.4
z Home Improvement
$181 $28.8
❑Food
- -
$144.8 $205.5
-
❑DSTM
$284.1-- --- _ $453.2_--
Source:urbanMetrics inc./Tate Economic
Research Inc.
• Based on the forecasted population growth, income levels and real increases in
expenditures, Clarington residents' selected retail expenditures are expected to increase from
$467.5 million in 2003 to $719.9 million by 2016; a growth of some $252 million (expressed in
2003 dollars).
• Clarington residents currently spend, on average, almost 60% of their retail dollars outside of
Clarington. Outflow of sales is highest for DSTM and home improvement merchandise.
Context and Issues Report
Clarington Commercial Policy Review 28
Prepared by MERIDIAN October 12,2004
I-NNING CONsucrOrrs INC
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Table 6 summarizes the proposed retail space and estimated remaining capacity in the Main
Central Areas in Clarington. It refers only to those applications which propose development of
3,000 square feet of gross leasbale area or more. In total, 14 active commercial applications or
designated but as yet unbuilt commercial sites in the Municipality have been identified. A list of all
current applications and projects approved and under construction is found in Appendix 1,
Table 6: Proposed/Designated Commercial Space in Clarington
ACTIVE APPLICATIONS(3,000sq.if.ormore)
Bowmanville Bowmanville West Clarington Centre-Southeast corner 45,000 Loblaw Properties Limited Rezoning i pp4calloo(Z8A 2003-043)submitted to release Loblaws from its current location and allow for the existng 4,166 m
i Main Central Area of Green Road and Highway 2 (45,000 sq R)Loblaws supermarket to be relentiond with non-competitive(I e.non-supermarket)rata
Bowmarlvilte Bowmanville West Cladngton Place-Northeast corner 200.000 :Official Plan Amendment,rezoning and subdivision applications have been submitted to to expand Clanrigton Place by
Main Central Ate. of Green Road and Highway 2 to approximately 200,000 square feet(18580 m) The potential anchor tenant planned for this expansion is
2 Clionglon Boulevard,Bowmanviile
Bowmanville Bowmanville West Clarington Centre-Southeast of 5,000 I Property Management:Rezoning and site plan applications have been submitted to expand the existing Zellers warehouse are
i 3 Main Central Area Green Road and Highway 2 by 520 mr(5,600 sq it)and to recognize two existing store expansions The rezoNng was approved by
Bowmanville Highway Commercial Southeast of Waverly Road and 186,000 •Rezoning and site plan applications have been submitted to permit 17,2801x(186,000 square feet)of special purpose commercial uses
Area Baseline Road and a hotel Torgan has rezoned surplus lands from Shell to Increase development potential.Torgan a
Bowmanville Highway Commercial-West Bowmanville Centre- 356,000 West Diamond Properties Limited 8 Player.Business Park Inc.(Meths Properties Limlted):Of�Ial Plan amendment and rezoning applications have
5 Special Policy Area Northeast corner of Green Road and been subented to redesignate the property from Highway Commercial to Main Central Area Relad Commercial to
"H"(request addition Highway 2
to West Main Central
Bowmanvlle 0.-d
.1 Central Area Non irwest corner of Hartwell Avenue 20,700 Rezoning and site plan applications have been submitted to permit the development of a 1.92S420,700,q B.)retell
6 and Martin Road commorcelplaza The rezoning Is necessary to permit a Mao's Milk convenience store Rezoning appbc
Bowmanville Local Central Area Northeast corner Meam,Avenue an 21,300 Arcop S1ra1 and Milan Shah:A rezoning and site plan applications have been submitted to permit the development of a 1,984 041,300 square R)retell
7 Concession Street East commercial plaza The rezoning to permit a Mao Mllk has been approved A buildmg permit has bee
Bowmanwile Local Central Area Northeast corner Longvronh Avenue 37,700 Halloway Holding Limited and Towchester Developments Limited:Official Plan amendment and rezoning applications have been submitted to to reduce
6 and Liberty Street me amount of retail commercial floospace from 3,500 in(37,700 square feet)to 1.700 m(16.300 square fee
Bowmanvltle Local Central Area Northeast corner of Longurorth 11,111 Halloway Hold log Limited antl Towchester Developments Limited:.11-1 Plan amendment and rezoning applicabons have been submitted to delete the
Avenue and Middle Road Local Central Area and the 5,000 m2(53,600 square feet)of retail commercial Iloorspace and replaced with
B
Couture Local Central Afea- Northeast corner of Nash Road and 19.000 !Rezoning and site plan applications have been submitted to develop a 1,770rm(19,000 sq B)
10 Thuile Road and Nash Twits Road Road retail commercial plaza The rezoning to permit a Mac's Mdk convenience store has been approved
Road
Court- Sub Central Area Southeast corner of Darlington Blvd 3,200 •Having recently purchased additional lands to the south,revised rezoning and site plan applications have been-cou-counted to permit a 297m2(3.
17 and Highway 2 sq If convenience store,as well as a dove-through restaurant and car wash Staganticipa
Counke Coudice Main Central King Stre trTwils Road 150,000 Valiant Property Management Inc:This 15 am site is zoned and could accommodate 150,000 square feet No site plan has been submitted and liming is
12 Area unknown
Newcastle Village Newcastle Village East and West sides of Blockhouse 26,300 DglgJzUDAJJz=Official Plan Amendment and rezoning applications have been approved by the OMD to permit(1)a 2.11�retail commercial plaza and(2)
13 Main Central Area Drive on the south side of King Strata a gas bar with a convenience stare and 329 n'1 of commercial uses Site plan approval for 13.500 al)It
East
Newcastle Village Newcastle Village Southeast corner of Beaver Street 8.000 .Rezoning and site plan applications have bean submitted to to convert an existing three storey Massey Industrial building for 8,000
14 Main Central Area South and King Street East square feel of retail commercial Boorspace on the ground Boor The second and mird Boors,wou
TOTAL PROPOSED(excluding Loblaws retenanting) 1,067,600
MAIN CENTRAL AREAS-ADDITIONAL CAPACITY BASED ON THRESHOLDS AND PROPOSED SPACE(excludes LCA's 8 Neighbourhood Commercial)
Bowmanville West Main Central ADDITIONAL CAPACITY BASED Of none Bowmanville-West Main Central Area(Including Clarington Centre)-Cap of 46,600 on(436,400 sq.ft)less existing of 320,106 sq.H.and proposed
Area THRESHOLD 205,660-over threshold by 101,306 sq.ft
Bowmanvine East Main Central Are ADDITIONAL CAPACITY BASED Of 99,900 Bowmanvltle-East Main Carl ral Area(Including Bowmanville Mall)-Cap 60,606 he(646,600 sq.ft)less existing of 545,700 sq.ft and proposed of 0
h
THRESHOLD sq..=99,900 sq.n.additional capacity.
Court- Main Central Area ADDITIONAL CAPACITY BASED Of 119,000 Total Cap In Courtice MCA=26,060 sq.melose(269,606 sq.hJ less existing space of 0 sq.ft and proposed Valiant development of 160,006 sq.ft..
THRESHOLD
Newcastle Village Newcastle Village ADDITIONAL CAPACITY BASED Of 37,000 Total Cap in Newcastle Village MCA=15,600 sq.metres(161,400 sq.U.)less existing space of 163,606 sq.R and approved Dunbury Plaza and Masse
Main Central Area THRESHOLD building
TOJaL ESTIMATED ADPJTJONAL CAP CITY DE9 G TED 266 900
!I TOTAL PROPOSEDIDESIGNATED 1,343,500
6WRCE wWnlAeincs irtl?xte EArnmc R¢searUi
.on Ws¢d w adna emnrrnoai appi�catian�r•lortna:mn prwirer by Ns,uii,,novl,of Oarvyton Piznreng in li,,8004
r'Ertlir}es app'-cations r?rc�ir¢xoJe only raslaurarl.oBice spzrn or.trar szrvu
-.(se gas vistions)
Table 7 provides an estimate of the amount of selected retail space that could potentially be built
at each of these sites. Selected retail space is defined to include food stores, department store
type merchandise (DSTM), home improvement and home and auto supply stores. The study
Context and Issues Report
Clarington Commercial Policy Review 29
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it I aUNaHN(i CONAATAm56JC
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excluded other retail space (e.g. liquor/beer/wine, second hand stores) and service space, such
as restaurants, fast food, personal services, and financial institutions in this summary.
Table 7: Estimated Selected Retail Space (®STM, Food Stores, Home Improvement, Home
&Auto) Proposed in Clarington
TOTAL Sq. Estimated
Ft. Retail Sq.Ft. %Retail
ACTIVE RETAIL COMMERCIAL APPLICATIONS(3,000 sq.ft and over)
Bowmanville Clarington Centre-Southeast Loblaw Properties Limited 45,000 45,000 100%
1 corner of Green Road and Highway Retenanting of Loblaws
2
Bowmanville Clarington Place-Northeast corner Valiant Property Management Inc: 200,000 165,800 83%
2 of Green Road and Highway 2 to
Clarington Boulevard Bowmanville
Bowmanville Clarington Centre-Southeast of Zellers on behalf of Valiant 5,600 5,600 100%
3 Green Road and Highway 2 Property Management: Zellers
expansion
Bowmanville Southeast of Waverly Road and Torgan Group Inc.: special 186,000 158,100 850%
4 Baseline Road purpose commercial uses and a
hotel.
Bowmanville West Bowmanville Centre- West Diamond Properties Limited 294,300 Phase 1 250,300 85%
Northeast comer of Green Road and &Players Business Park Inc. Walmart,
6 Highway Loblaws
Y (Metrus Properties Limited): retail
centre
61,400 Phase 61,400 100%
6 Bowmanville Northwest corner of Hartwell Martin Road Holdings Limited 20,700 12,420 60%
Avenue and Martin Road retail commercial plaza
7 Bowmanville Northeast corner Mearns Avenue Anoop Saraf and Milan Shah: 21,300 12,780 60%
and Concession Street East retail commercial plaza
Bowmanville Northeast corner Longworth Avenue Hallowav Holding Limited and 37,700 22,620 60%
8 and Liberty Street Towchester Developments
Limited: downsizing(assume
existin
Bowmanville Northeast corner of Longworth Hallowav Holding Limited and 53,800 32,280 60%
9 Avenue and Middle Road Towchester Developments
Limited: (downsizing-assume
existing)
Courtice Northeast corner of Nash Road and Claret Investments Limited and 19,000 11,400 60%
10 Trulls Road Road 1361730 Ontario Limited: Retail
commercial plaza,
Courtice Southeast corner of Darlington Blvd. Imperial Oil: convenience store,as 3,200 3,200 100%
11 and Highway 2 well as a drive-through restaurant
and car wash.
Courtice King SlreetITrulls Road(Main Valiant Property Management Inc: 150,000 105,000 70%
12 Central Area) proposed retail centre
Newcastle Village East and West sides of Brookhouse Dunbury Homes:retail commercial 26,300 13,000 49%
13 Drive on the south side of King plaza,a gas bar with a convenience
Street East store and 329 m'of commercial
Newcastle Village Southeast corner of Beaver Street 964069 Ontario Limited :retail 8,000 4,800 60%
14 South and King Street East commercial floorspace on the ground
floor
TOTAL ACTIVE COMMERCIAL APPLICATIONS(excluding Loblaws re-tenanting) 1,087,3001 856,700 79%
!TOTAL ESTIMATED ADDITIONAL CAPACITY BASED ON MAXIMUM THRESHOLDS MAN 255,900 1 153,540 60%
CENTRAL AREAS ONLY
GRAND TOTAL PROPOSED/DESIGNATED 1,343,2001 1 1,012,240 75%
EXISTING CLARINGTON(2003) 1 1,791,1001 1 1,008,700 56%
SOURCE: urbanMetrics inc./Tate Economic Research Inc.
1) Includes food stores,DSTM,home Improvement and home&auto stores.Excludes second hand retail stores and liquor/beer/wine stores.
A total of approximately 858,700 square feet of selected retail space is included in the active
applications. With an estimated 153,540 square feet of additional capacity in the Main Central
Areas of Clarington available for selected retail space, the total amount of retail space in the
active applications and designated sites is just over 1 million square feet. In comparison, the total
amount of existing retail space in Clarington is essentially the same- 1,008,700 square feet.
Context and Issues Report
Clarington Commercial Policy Review 30
Prepared by ,? IA October 12, 2004
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Table 8 summarizes the preliminary analysis of demand for the selected retail categories
analyzed. Based on market growth, recapture of expenditures currently leaving Clarington, and
an estimate of inflow sales from beyond Clarington, the amount of new retail space required in
Clarington over the period 2005 to 2016 has been forecast by major store type.
Table 8: Warranted Selected Retail Space in Clarington
Assumptions:
REASONABLE INCREASES IN CLARINGTON SHARE(,..RECAPTURE)
NO ADJUSTMENTS IN DEPARTMENT STOREMON-DEPARTMENT STORE DSTM AND SUPERMARKET/OTHER FOOD STORE SHARES
NO ADJUSTMENTS FOR SALES TRANSFERS FROM EXISTING RETAILERS IN CLARINGTON
NO ADJUSTMENTS ON A STORE CATEGORY BASIS FOR SALES TRANSFERS THAT MAY OCCUR FROM ONE STORE CATEGORY TO ANOTHER GIVEN
MERCHANDISE OVERLAPS (e.BRom Non Department Stoie DSTMro Supermarket)
Sales Performance 2005 2008 2013 2016
NON-DEPARTMENT STORE DSTM
$250 per sq.ft 1 294,000 374,000 534,000 637,000
$275 per sq.ft 2 267,000 340,000 485,000 579,000
$300 per sq.ft 3 245,000 311,000 445,000 531,000
$325 per sq.ft 4 226,000 287,000 411,000 490,000
DEPARTMENT STORE DSTM
$400 per sq.ft 1 101,000 117,000 149,000 170,000
$425 per sq.ft 2 95,000 10 000 140,000 160,000
$450 per s%ft 3 89,000 104,000 133,000 151,000
$500 per sq.ft 4 80,000 93,000 119,000 136,000
SUPERMARKET(Food Component Only)
$450 per sq.ft 1 37,000 55,000 91,000 113,000
$475 per sq.ft 2 35,000 52,000 87,000 107,000
$500 per sq.it 3 34,000 50,000 82,000 102,000
$525 per sq.ft 4 32,000 47,000 78,000 97,000
SPECIALTY FOOD
$300 per sgit 1 14,000 22,000 37,000 46,000
$325 per sq.it 2 13,000 20,000 34,000 42,000
$350 per sq it 3 12,000 19,000 32,000 39,000
$375 per sq.0 4 11,000 17,000 30,000 37,000
HOMEIMPROVEMENT
$300 per sq.ft 1 71,000 83,000 100,000 112,000
$320 persq.ft 2 67,000 78,000 94,000 105,000
$350 persq.ft 3 61,000 71,000 86,000 96,000
++ $375 per sq.ft 4 57,000 66,000 80,000 90,000
HOME&AUTO
$275 per sq.ft 1 11,000 21,000 41,000 53,000
$300 per sq.ft 2 10,000 20,000 38,000 49,000
$325 per sq,ft 3 10,000 18,000 35,000 45,000
$350 per sq.ft 4 9,000 17,000 33,000 42,000
TOTAL E SPACE WARRANTED C GTO
$302 Sales Level 1 528,000 672,000 952,000 1,131,000
$327 Sales Level 487,000 620,000 878,000 1,042,000
$353 Sales Level3 451,000 573,000 813,000 964,000
$384 Sales Level4 415,000 527,000 751,000 892,000
i TOTAL RETAIL SPACE-ACTIVE APPLICATIONS
)Includes Phase 2 of Metrus Applications;
Excludes Service Space) 858,700
Source'. urbanMetrics InGTate Economic Research
The amount of space that is warranted in Clarington based on market growth, recapture, inflow
sales and an average sales performance level of $302 per square foot, has been estimated to
i increase from 528,000 square feet in 2005 to 1,131,000 square feet by 2016. The total amount of
selected retail space included in the active applications is estimated at 858,700 square feet.
Thus, the applications, in aggregate, exceed the amount of space which is warranted in the short
term. However, in the longer term, given the assumptions used in the market analysis, all
applications can be accommodated in the Clarington market between 2008 and 2013 without
significant impact on existing retail centres.
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Context and Issues Report
Clarington Commercial Policy Review 31
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7.0 REGULATING COMMERCIAL
- OPTIONS AND ISSUES
Official Plans have always provided for commercial land use designations and the locations within
the municipality where such uses are permitted. The system of categorizing commercial centres
in terms of their size and function is termed the 'commercial hierarchy'. When this system found
widespread use in the 1970's, many Ontario communities, like Clarington, established the
primacy of the downtown as an essential element of planning policy. This was done with the
intent that the continued concentration of commercial uses in the core would ensure a healthy
and vibrant downtown. The belief was that it would be possible to protect downtowns from
competition by controlling the location, number and size of other retail centres. At the same time,
with each site having a specific and defined role, all neighbourhoods would be well served and
the public's interests and needs met.
Much of the Municipality's policy has been directed by the Region of Durham Official Plan which
prescribed the elements of the hierarchy, the range of uses and the total amount of floor space
that could be developed at each level of the hierarchy.
The experience of the past twenty-five years has shown that planning policy has not been able to
keep retail uses from leaving our downtowns, although, in some communities, Downtown's have
continued to thrive despite suburban development. Certainly the form of our new communities is
based on automobile access, which supports a suburban form of commercial development. In
some Ontario downtowns, the stores and services that were part of nationwide chains moved to
suburban malls as the shopping centre developers made their participation in a series of malls a
condition of rental in any one mall. In addition, shoppers were attracted to the convenience of
indoor malls and through the 1970's and 1980's the growth in the number of shopping centres
was matched by the decline of retailing in the downtowns. The loss of retailers from our
downtowns revealed a flaw in the planning theory - while an Official Plan or Zoning By-law could
limit the development of new stores to specific locations, there was no authority or ability of a
municipality to ensure that a store stayed at a location, or stayed in business.
Over the past 30 years the planning concept that formed the basis for commercial policy was that
of"planned function", a concept based on the Official Plan's description of the role of a particular
commercial centre, usually within a structure or hierarchy of retail commercial facilities. A regional
shopping centre would have the planned function of serving all of Clarington and the surrounding
area; a community shopping centre, a large area of the Municipality; and a neighbourhood
shopping centre, the surrounding neighbourhood. This 'hierarchy' of retail centres directly reflects
the number of people that it takes to support a grouping of stores—the larger the stores, the more
people that are needed to shop there to be economically viable.
This concept forms the basis for commercial policy in both the Durham Region and Clarington
Official Plans, both in the description of the hierarchy of centres and the requirement for a market
justification study prior to allowing any new centres to be established in the Municipality.
Context and Issues Report
Clarington Commercial Policy Review ;' 32
Prepared by MERIDIAN October 12, 2004
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The Regional Plan provides that Central Areas shall be classified in a hierarchy of functions as
follows:
® Main Central Areas
® Sub-Central Areas
j ® Community Central Areas
Local Central Areas
The Regional policies also state that existing shopping centres shall redevelop with a full array of
Central Area uses. Prior to consideration of any amendment for increasing commercial floor
space, designating a new Community or Local Central Area (excluding areas less than 25,000 sq.
m.) or passing of Zoning By-laws to implement the Central Area hierarchy, a retail impact study is
to be prepared. All of the Main Central, Sub-Central, Community Central and Local Central Areas
have maximum allowable floor space area targets for retailing of goods and services, reflecting
the policy framework of a relatively rigid hierarchy.
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Planning policies are based on serving the public interest
Planning policies for a municipality are intended to serve the public interest, which is often
described as the greatest common good. In considering the appropriateness of planning policies
i affecting commercial uses, a good place to start is an understanding of how the public interest
can be served by regulating commercial uses.
The extreme ends of the spectrum are relatively easy to determine. For example, few would
i question the need to locate retail uses on roads that are adequate to handle the anticipated
traffic, thus providing a technical and public safety justification for intervening in the market place
and only allowing retail uses in certain locations. At the other extreme, few would suggest that
the number of legal firms and lawyers should be limited, at least as a result of government policy.
We live in a democratic society with an expectation of choice as consumers and our economy is
based on a free market with a municipality seldom intervening to limit the choice of consumers.
In conducting this review of the Municipality's commercial policies, an informed choice should be
made about the degree to which land use issues justify intervening in the market, about the
degree to which consumer choice should be determined by retailers or by the municipality.
Municipalities across Ontario have made different choices based on different circumstances and
contexts. Some have maintained a traditional hierarchical approach utilizing population thresholds
to determine the size of commercial areas. Others have eliminated restrictions and maintained
very detailed urban design guidelines to direct the form of development. Many municipalities
have simply maintained a hierarchical approach to commercial land uses but do not prescribe
caps or require retail studies.
In considering the approach to commercial policy, a good place to start is an understanding of
how the public interest can be served by regulating commercial uses. The three traditional
arguments for planning intervention in the market to serve the public interest are:
® the most efficient use of municipal infrastructure;
the avoidance of blight; and/or,
Context and Issues Report
Clarington Commercial Policy Review 33
Prepared by E IIH October 12, 2004
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® the provision of a range of services and goods in convenient locations.
Efficient Use of Municipal Infrastructure
The Municipality is responsible for providing a variety of services to commercial uses. By
establishing specific locations for these uses Clarington can ensure that there is adequate traffic
capacity on the roads, and that local neighborhoods are not affected by traffic generated from
commercial uses. Good planning for the use of municipal infrastructure also suggests that
commercial uses should be connected to full piped water and wastewater systems, to preserve
environmental quality, and located on a transit line to allow access for all residents of the
Municipality. Where possible, locations that permit access by pedestrians allow for reduced
automobile usage. This element of public interest generally relates to externalities that impact on
adjacent areas or infrastructure requirements.
Avoidance of Blight
Concern has traditionally been expressed by planners about the possibility of urban blight caused
by store closures. Blight is a planning term to describe a deteriorated condition, most typically
chronic and long term vacancy or abandonment of buildings and property. Over the past three
decades in Ontario blight has not been a significant or common issue. It has proven to be
primarily a downtown American phenomenon. It usually occurs in a context of many, small
property holdings, high lot coverage with older buildings that are costly to maintain, and a lack of
centralized functions such as parking lots, marketing and maintenance. Certainly in Clarington,
despite the number of suburban shopping centres that have developed in the Municipality, the
downtown has fared relatively well, particularly when compared to the downtowns of other similar
sized centres in Ontario.
While this is an issue that should never be ignored, the ability of the Municipality to ensure that
buildings are occupied with appropriate uses is extremely limited. Generally the market place will
replace one tenant with another. For example, studies in Scarborough showed that despite the
closure of many supermarkets over the past 30 years, only one had remained vacant for longer
than six months.
Convenient Provision of a Range of Services and Goods
The third public interest consideration, the convenient provision of a range of goods and services,
is perhaps the most important and most obvious reason for a municipality to regulate the location,
size and nature of commercial uses. Unfortunately, as noted earlier, while the Municipality can
provide the opportunity for a store to be built and serve a community, it cannot guarantee that the
store will open, or remain open. Broader economic trends, particularly in the food industry, have
resulted in the consolidation of stores, larger stores, and the relocation of stores in order to
remain competitive, all decisions made by the private sector. The opportunity to provide goods
and services can be created through planning approvals, but a government cannot mandate that
the private sector take up the opportunity, or that the goods and services be provided for a
specific time period.
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Clarington Commercial Policy Review 34
Prepared by AN
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The need for goods and services to be provided from a specific site is established by the market-
by he public. If it is in the public's collective will to purchase goods and services from a specific
Y p p p
location, and not from another, should a municipality attempt to change that behaviour, and for
what reason. For example, as an extreme situation, the Downtown would likely still be the main
retail centre of Clarington if Council had prohibited all new shopping centres for the past three
decades. Would that degree of intervention in the market have been justified? Would the
broader public interest have been served?
The question to be answered is to what degree local governments should use their planning
authority to limit or direct consumer behaviour. This is the first question to be answered in the
commercial policy review process.
A Sustainable Urban Structure with a Sense of Place.
In the context of Clarington there is also a key objective of the municipality related to the
downtown. The Plan states as a goal that the Bowmanville East Main Central Area shall be "the
focal point of economic, social, cultural activity through shopping areas, housing, symbolic points
of interest, and key institutional and cultural facilities. To provide redevelopment in the Downtown
and the East Business District with emphasis on increased densities, heritage preservation and
quality urban design".
jAs an expression of the Municipality's objectives, the Official Plan has set out the primacy of the
downtown in no uncertain terms, as well as the role of the other designated commercial centres.
Thus it is appropriate to note the fourth element of the public interest in commercial policy
i planning in Clarington, is the long term role and health of the Downtown.
7.1 Local Issues
On June 21, 2004, a meeting was held with the Community Stakeholder Advisory Group to
review the Commercial Policy Review Process and present the background planning and market
information. There was an opportunity for the participants to discuss issues and concerns. Some
of the common concerns were noted as follows:
There is a need to protect and promote the downtown cores and a need to provide better
traffic management and flexibility for redevelopment.
® Traffic (vehicular and pedestrian) issues are critical in ensuring accessible and successful
downtowns—we must have the transportation capacity to deal with new development.
® There is a concern of the proximity of the locations for proposed new development in
Bowmanville West Main Central Area and the historic downtown. There is a concern
about the impacts of the large format retailers on the traditional downtown. There is a real
threat by Wal-Mart.
® The BIA's will play a crucial role in the success of the downtowns.
® There is a need to focus on redevelopment and intensification as this is the Provincial
direction —not new greenfield growth areas.
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Context and Issues Report
Clarington Commercial Policy Review 35
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® Three approaches to commercial policy should be explored further — free market
approach (no caps); strict thresholds and caps on size of areas; and, combination of
some caps with use restrictions.
A full summary of the comments from the Advisory Group session is provided in Appendix 3.
On September 14, 2004 a workshop was held with the local BIA groups to discuss the
Commercial Policy Review and the implications for the development of their respective
Community Improvement Plans as well as general commercial planning issues. Approximately
25 persons were in attendance at the Town's recreation centre. There was a lively discussion of
the role of municipal policy affecting retail development. Some of the points raised were as
follows:
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1) Representatives from Orono indicated that their commercial district was declining and
that without additional residential development in the area, that would likely not change.
The Town has not designated any additional residential lands in the area and since they
are not serviced, there is little that can be done to develop an additional market for that
centre.
2) A number of representatives of the Courtice business community indicated that the
amount of Big Rocks development in Oshawa immediately adjacent to their commercial
area had had a negative effect on business in their area.
3) A discussion of the removal of the caps on floor space by the Region of Durham resulted
in the question as to what was the likely impact of the removal.
4) Several expressed concern that no matter what the Town might wish to accomplish, an
appeal to the Ontario Municipal Board would negate their role.
5) It was indicated at the end of the meeting that we hoped they would continue to be
involved at this level and that additional opportunities would be provided over the course
of the next few months to comment on the findings of the work and the ultimate
recommendations.
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Context and Issues Report
Clarington Commercial Policy Review :- 36
Prepared by ,-,,.,,MERIDIAN October 12, 2004
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8.0 FINDINGS
As a result of our review of Clarington's historical commercial development, the current
commercial structure both physical and within the planning policy framework, the market analysis
and the transportation framework, our general findings regarding the context and issues related to
commercial policy in Clarington are as follows:
1. The existing Commercial Policy structure in Clarington's Official Plan is relatively
complex, out-of-date in some cases and, as a consequence, somewhat confusing. Much
of this circumstance stems from the imposition of policies resulting from Ontario
Municipal Board decisions as well as the number and type of commercial centres in
Clarington as defined by the Regional Official Plan.
2. There would be significant value in creating a new nomenclature of commercial centres
as part of this exercise. The creation of new terminology will clearly signal that changes
have occurred. In addition, the use of the term Central Area is somewhat confusing
given the nature of commercial centres in Clarington.
3. The two main commercial areas, the Bowmanville East Main Central Area consisting of
the historic Bowmanville downtown together with the eastern business district, and the
Bowmanville West Main Central Area, incorporate, between the two of them almost all of
the range of institutional, commercial, recreational and service facilities with central place
Mfunctions in Clarington.
4. The current commercial policies with respect to urban design suggest that the
Bowmanville West Main Central Area would function as a pedestrian-friendly
environment and, in some senses, replicate the historic downtown sense of place and
pedestrian orientation. While every effort should be made to make the Bowmanville West
commercial centre as pedestrian-friendly as possible and to promote public transit, the
goal for the area should not be to replicate the downtown but to provide for a shopping
experience that allows efficient and safe movement between buildings and serves a
function distinctively different than the downtown. It may be more appropriate to
recognize and foster the differences in function between historic downtown Bowmanville
and the environment in the Bowmanville West Main Central Area. This distinction could
be recognized in the use permissions, the urban design approaches and related policies.
As the surrounding residential community develops, the use of the area will increase and
there will be more opportunities for ongoing intensification. Opportunities for infill and
intensification should be recognized with any new policies for the area.
5. The relationship between existing commercial areas and new commercial facilities in
Clarington has a long and somewhat adversarial history. Much has been learned as a
result of the experience of these processes. In particular, the introduction of additional
retail in the Bowmanville West Main Central Area has not caused the historic downtown
to decline to any greater degree than most other similar Ontario downtowns have
declined over the same time period. This could be attributed to the thresholds which
fContext and Issues Report
Clarington Commercial Policy Review 37
Prepared by .XRIDIAN October 92, 2004
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were imposed. An approach that continues to consider the market impact and phases in
the amount of new development in relation to market and population growth is a
reasonable and realistic continuation of the present policy framework.
6. To the greatest degree possible efforts to simplify the current policy structure should be
made as well as the deletion of references to individual types of stores. The question of
whether the Municipality should regulate the total amount of floor space, creating an
environment that protects the market for individual users such as food stores or
department stores, should be addressed in more detail. Healthy competition among uses
should be to the advantage of the Municipality's consumers and thus in the public
interest.
7. Based on the current policy framework and input from the Advisory Group, any changes
to the commercial policy structure must be made in the context of the anticipated growth
j and the market information. There is also a need to balance growth with the goal of
protecting the downtown area while creating vibrant urban centres. The challenge in the
commercial structure will be to maintain the commercial structure in Bowmanville as a
unified area with three distinct functions: historic downtown, eastern commercial corridor
and newer western commercial corridor.
8. Commercial development has historically been focused along the Durham Highway
2/King Street corridor and includes the historic downtown areas. As the majority of growth
in Clarington is intended to occur in the Bowmanville area north and south of Durham
Highway 2, this corridor and area may remain as the focus of commercial activity in the
Municipality.
9. While staff has taken a position on the development direction for the Courtice Main
Central Area, it has not received Council approval. The commercial policies for this area
must address existing commercial development and whether additional areas are
1 required given the developments in North Oshawa.
10. Commercial uses in Newcastle Village will also need to be considered as does the role of
the Local Central Areas and their function and the support for Orono's Local Central
Area.
11. The initial urban design review recommends specific guidelines be developed to ensure
high quality urban design outcomes. The guidelines should be developed for specific
areas and not applied generally. Recommended guidelines for strip mall type
development and large format retail areas as well as for the historic downtowns should
be developed.
12. There is strong emphasis in Provincial, Regional and local policy to protect and maintain
the well being of the downtown core and provide opportunities for intensification. Policies
will be needed to provide for flexibility to redevelop and intensify commercial sites.
13. Transportation infrastructure improvements will be needed to ensure new development
complies with the policies of the Main Central Areas.
Context and Issues Report
Clarington Commercial Policy Review f 38
Prepared by ,'MERIDIAN October 12, 2004
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14. Additional financial and alternative policy incentives to promote the downtown need to be
explored which may include the elimination of development charges, cash-in-lieu of
parking (there are currently no cash-in-lieu policies in the Official Plan) and revised
parking and loading requirements for the downtown which would be implemented in the
local zoning.
15. The market analyses indicate that between today and 2016, given the planned growth of
Clarington, an additional 1,137,000 square feet of selected retail space (food, department
store, home improvement and auto supply) will be required to serve the market. This
calculation assumes that a significant percentage of Clarington residents who currently
shop outside the Municipality will change their current behaviour and use stores in
Clarington. Options for moving forward need to be developed and assessed in order to
make recommendations on where and how Clarington's commercial needs can be met.
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Context and Issues Report
Clarington Commercial Policy Review `, 39
Prepared by MERIDIAN October 12, 2004
5
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APPENDIX 2
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Bowmanville West and East Main Central Area-Secondary Plan Policies
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Bowmanville East Main Central Area Secondary Plan
2 - Goals To retain the East Main Central Area as the focal point of economic,
social, cultural activity through shopping areas, housing, symbolic points of
interest, and key institutional and cultural facilities.
To provide redevelopment in the Downtown and the East Business District
with emphasis on increased densities, heritage preservation and quality
urban design.
3—Objectives - To provide for the vitality of retail establishments in merchandise
categories which serve the regional market
- To preserve and enhance the unique character of the Downtown
- To create an urban activity corridor focused on King Street which
is pedestrian oriented
- To strengthen the connection between the East Main Central Area
and the West Main Central Area
- To enhance the prominence of the east and west approaches to
I the East Main Central Area as gateways.
4 - General Land Maximum of 60,000 square metres of retail and personal service floor
Use Policies space shall be permitted as follows:
- Downtown—30,000 square metres
- East Business District—30,000 square metres
Maximum height of buildings shall be six storeys.
The floor space index of any building shall not exceed 1.5
Municipality, in co-operation with local businesses, will promote the
Downtown as a point of tourist activity
Bowmanville West Main Central Area Secondary Plan Policies
1- Purpose The Bowmanville West Main Central Area will serve as a focal point of activity,
interest and identity for residents of the Municipality.
2—Goals Goals
- Creating a strong and vibrant activity centre for residents
- Establish the physical framework through the creation of a system of
streets and public spaces for more intensive development through
reurbanization in subsequent phases of development in the West
Main Central Area
- Ensure a high quality of architecture and urban design in all phases of
development in order to create a unique sense of place and foster
Appendix 2
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MERIDIAN
Prepared by {} °�°��^^��� October 12, 2004
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social interaction in the West Main Central Area.
3—Objectives Urban Structure/Land Uses
- Provide for development at higher intensities to foster animation and
activity and maximize public transit
- Provide for a full range of land uses to foster a good live/work
relationship
- Identify a public realm consisting of a grid street system,
pedestrian/bicycle connections and public spaces.
- Provide opportunities for office, retail, service commercial and
institutional
- Provide housing opportunities at medium and high densities
- Provide a variety of retailing facilities which would complement the
East Main Central Area in serving regional and local retail needs as
population growth occurs
- Control retail growth beyond the initial allocation in order to safeguard
the continued viability of the retail businesses and provide for on-
going redevelopment in the East Main Central Area
- Provide a comprehensive range of local and district community
facilities
L a n d Use - Maximum of 40,000 square metres of retail and personal services
Policies floor space shall be permitted in the West Main Central Area. This
floor space shall be increased only after a comprehensive review of
i the Official Plan after 2001
- Retail and personal service floor space figures include: department
stores, food stores, general and specialty stores, retail stores,
convenience retail stores, video stores, retail liquor stores,
restaurants, taverns, barber shops, beauty salons, dry cleaners, shoe
repair, travel agencies, art studios, financial institutions, medical
offices, real estate offices, business and professional offices and other
similar office uses.
- Department store—retail store containing a minimum of 5,000
square metres of gross leasable floor space organized into individual
departments and the primary sales include a wide variety of
commodities.
- General Merchandise store—retail store containing less than 5,000
square metres of gross leasable floor space primary sales include a
variety of commodities
- Clothing retail warehouse—building or part of a building suitable for
occupation by a single user which contains at least 1,800 square
metres of gross leasable floor area of which 80% is visible to
shoppers and is used for the combination of storage and display for
the retail sale of clothing and apparel in a warehouse format
- Drug retail warehouse-building or part of a building suitable for
occupation by a single user which contains at least 1,800 square
Appendix 2
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Clarington Commercial Policy Review a MERIDIAN
Prepared by October 12,2004
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metres of gross leasable floor area of which 80% is visible to
shoppers and is used for the combination of storage and display for
retail sale of non-prescription medicines, health and beauty aids,
personal hygiene products, confectionery items and stationary in a
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warehouse format, provided that the drug retail warehouse includes a
prescription pharmacy
Food retail warehouse - building or part of a building suitable for
occupation by a single user which contains at least 4,600 square
metres of gross leasable floor space, of which at least 80% is visible
to shoppers and is used primarily for the combination of storage and
display for the retail sale of food, cleaning and laundry supplies,
personal hygiene products, small household items, confectionery
items and sundries in a warehouse format
Specific Policies - Clarington Blvd. shall provide a focus for retail commercial
f o r Retail development in the West Main Central Area. The Urban Design
Commercial Guidelines will provide direction.
- Appropriate buffering mechanisms to eliminate potential conflicts.
- Access to parking and loading that minimizes disruption to
pedestrians.
- New public streets or streets forming part of a grid system shall be
established on portions of the major surface parking area associated
with the retail facility, on the parcel bounded by the King St.,
Clarington Blvd., Bowmanville Blvd. and Green Road, when the facility
l is in excess of gross leasable floor area of 21,370 square metres for
lands and the Municipality considers an addition to the grid system
desirable. Future rights-of-way should resemble a public road in
function and appearance. The Municipality shall acquire either
ownership of or the right to require the future transfer of rights-of-way.
- Commercial uses may be permitted on lands designated Office
Commercial, High Density Residential or for GO Station purposes.
- Council encourages collaborative arrangements with retailers and
business associations in the East Main Central Area.
- Any development or redevelopment on the parcel bounded by King
St., Clarington Blvd., Bowmanville Blvd. and Green Rd. beyond
18,580 square meters shall contain a mixture of retail and personal
service uses up to 2,782 square metres in addition to the initial
allocation with business, professional and/or administrative offices on
upper levels and residential dwelling units to the maximum density
permitted.
- Any retail facility on the parcel bounded by King St., Clarington Blvd.,
Bowmanville Blvd and Green Road shall not contain an enclosed
pedestrian mall.
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Appendix 2
Clarington Commercial Policy Review` MERIDIAN
Prepared by October 12, 2004
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APPENDIX e COMMUNITY STAKEHOLDER ADVISORY
WORKING 1
COMMENTS THE ADVISORY GROUP
6 Police service is an issue with expanded development as it reduces coverage to existing
areas
® Need to increase policing for SECURITY, especially in Orono and Newcastle
® Council should address police service needs with growth
® Increased assessment should lead to increased taxes to provide for more police services
but in reality, this is not necessarily the outcome
® Promoting the downtown core - the downtown cores of other areas have started to
deteriorate:
=*, problems with traffic congestion
=> possibility of a one-way street?
==:, make policies more flexible for different uses
• traffic issues must be addressed for all commercial areas, primarily east/west:
cannot make King Street four lanes without decreasing the number of parking stalls,
however still need to provide parking in the front and/or back lot
if by-pass created, traffic may be alleviated but it could disrupt downtown business
vitality
® Why in Clarington do we not have advanced lights at Highway 57?
why can't we do a study in terms of growth and transportation needs
dealing with downtown core - multi-functional - residential, service oriented - multi-
functioning leads to more pedestrian friendly areas thereby reducing traffic
concern with maintaining a vibrant downtown
® Issue of options for commercial policy-are the alternatives already established or are they
still being developed?The word obvious need to meet demand was used?
® Growth needs to be addressed because it has been planned for in the Official Plan. It is
now a question of where and how do we plan for the growth including commercial growth
® Three examples of commercial policy structure that are:
completely open — no restrictions - growth has brought people to Streetsville,
Mississauga
restrictive hierarchy with caps -Town of Whitby
in the middle—Town of Hanover
® We are all here to determine where is Clarington now as opposed to when the caps were
put in place—that is what we need to address
® Should location - distance between downtown and the proposed area for large retail
areas be considered in development of policies.
Want to see Orono and Newcastle staying as quaint downtowns with support from the
surrounding rural areas
see COURTICE AND BOWMANVILLE MESHING WITH THE BIG BOX USES —
HOW WILL THIS IMPACT THE DISTINCTIVENESS OF THE DOWNTOWN AREAS
Appendix 3
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Clarington Commercial Policy Review 1'
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® Concern that we have missed the opportunity to plan for the new growth -we are too late
® Must increase the transportation capacity
® Need to attract people to the downtown
® Transportation and security are key issues
® Orono has zero growth and consequently, does not have a population or development
charges revenue to sustain businesses or services
® BIAs need to create a marketing plan and determine what they want to be and how they
can be different (events, markets, merchandise mix, etc.)
lack of capital reduces the opportunity to plant trees, maintain sidewalks, etc. to keep
the Town attractive
physically restricted from growth as well
need to have some type of protection - investment
need to convince the planners, engineers, politicians to permit at least some growth
in Orono to bring capital
Nobleton experience - Kleinberg was able to maintain its vitality without growth but it
is a unique, wealthy community
to maintain vitality, you must have some capital
need to create a way to make it better
what is it that makes some communities thrive with no growth and others decline
without growth?
• People need to realize that developing vacant land is not necessarily bad
® We need to improve the development process
® Townline centre - negotiated with the community during the development process;
resulted in a better situation for all
® The study is looking at the whole of Clarington although Bowmanville seems to be the
focus
® American experience with Wal-Mart is that Wal-Mart is"killing the downtown"
® American and Canadian processes are much different; less public input and development
controls
® Redeveloping older malls - relocating Wal-Marts and the impact they have on the
community malls- redeveloped for retail or mixed uses
research shows that people will continue to spend at large format retailers regardless
of location
there is a study that has looked at 18 downtowns and the impacts after a Wal-Mart
has entered the community
® in all instances, the feedback has been fairly positive
=* Vaughan Mills experience with massive commercial development
® Concerns with the size and new Loblaws in the West development as Loblaws sells
department store type merchandise-what impact will that have on other stores
® challenges with the small stores within the large stores
® hair salons, banks, wine shops, book stores, community rooms
® How much can an area withstand
lost two banks and the liquor store from the downtown with the new development in
the west in the 1990s
liquor store is an important anchor in the downtown
=> Lindsay developed a policy to restrict the development of banks outside of the
downtown core
Appendix 3 -
Clarington Commercial Policy Review l ' IA
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Prepared by PIMWINGCONNTANiSING October 12, 2004
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Huntsville pharmacy restriction example
• We look at those uses in the market work to ensure in the analysis that the special uses
are noted
® Need to be flexible to keep modern for the merchants
• BIAs need to look at spaces available - what spaces are needed for new merchandising.
For example:
Shoppers Drug Mart
NB Edmunston - bringing in a new Shoppers Drug store into a former police station
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Appendix 3
Clarington Commercial Policy Review
Prepared by i a AERIDIAN October 12, 2004
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