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HomeMy WebLinkAboutPD-135-86 "' - TOWN OF NEWCASTLE r REPORT File # _6- f,a• Res. # &W - 6' :.1 1 By-Law # METING: General Purpose and Administration Committee DATE: Tuesday, May 20, 1986 REPORT #: PD-135-86 FILE #: 86-3/NO and OP 2.2.3 SLR ECT: APPLICATION TO AMEND TOWN OF NEWCASTLE OFFICIAL PLAN FILE: 86-3/ND APPLICATION TO AMEND COURTICE NORTH NEIGHBOURHOOD 3B DEVELOPMENT PLAN FILE: OP 2.2.3 PART LOT 309 CONCESSION 3, FORMER TWP. OF DARLINGTON (COURTICE URBAN AREA) APPLICANT: COURTICE HEIGHTS DEVELOPMENT LIMITED RECOMMENDATIONS: It is respectfully recommended that the General Purpose and Administration Committee recommend to Council the following: 1. THAT Report PD-135-86 be received; and i 2. THAT Official Plan Amendment Application 86-3/ND and the Application to amend the Courtice North Neighbourhood 3B Development Plan submitted by Courtice Heights Developments Limited be referred back to Staff for further dialogue with the applicant; and 3. THAT a copy of Council 's decision be forwarded to the applicant. pp cant. BACKGROUND: On January 21, 1986, the Town was advised by the Region of Durham of an application submitted by Courtice Heights Developments Limited to amend the Town of Newcastle Official Plan. The purpose of the application is to redesignate a 0.736 hectare (1.R acre) parcel of land in Part Lot 30, Concession 3, Courtice Urban Area from "Residential" to "Local Central Area" to permit the development of a 2500 square metre (27,000 square foot) retail REPORT NO.: PD-135-86 Page 2 commercial plaza. The applicant subsequently submitted a proposed Site Plan which indicated a retail plaza having an area of 2,191 square metres (23,585 square feet) . The Town' s Official Plan (Section 6.5.2(iii ) ) states that convenience commercial facilities may be permitted in areas designated "Residential " and requires that such sites be specifically designated within the respective Neighbourhood Development Plan. The subject site is so designated within the Courtice North Neighbourhood 3B Development Plan. The Official Plan states that the maximum gross retail and personal service floor space for convenience commercial sites, as a general guideline, shall be 465 square metres (5,000 square feet) . Staff note that the "C2-Neighbourhood Commercial " zone of By-law 84-63 gives a maximum floor area of 500 square metres. Staff advised the applicant that the Neighbourhood Development Plan would also require amending inasmuch as the proposed development represents a four-fold increase over the maximum floor area permitted for convenience commercial facilities. An application to amend the Neighbourhood Development Plan was received by the Town on March 26, 1986. The Durham Regional Official Plan (Section 8.2.3.4) states that prior to the designation of a Local Central Area, a Retail Analysis shall be undertaken for proposed Central Areas exceeding 15,000 square feet of gross retail and/or personal service floor space in order to demonstrate the need and to ensure such proposed Local Central Areas do not unduly affect the viability of any existing Central Areas and/or any other Local Central Area. The Town of Newcastle Official Plan (Section 6.5.3(iii) ) also requires a Market Analysis to be carried to justify proposed commercial development and to evaluate the potential impact upon existing and future development. The submitted impact report states that its purpose is to assess the market opportunity for the proposed Local Central Area and identifies Neighbourhood 3B as providing the principle source of sales revenue for the proposed development. The Report provides an estimate of the potential sales capture . . .3 REPORT NO.: PD-135-86 Page 3 of the subject site and further provides some analysis of the expected impact of the proposed development on other commercial facilities within the Courtice Urban Area. The Report states that, under reasonably competitive circumstances, sufficient market potential exists to support the subject proposal without prejudicing the development of other commercial facilities within either Neighbourhood 3B or the Courtice Urban Area. The Planning Department circulated the subject application to the Town Public Works Department, the Building Department and the Fire Department. None of these departments indicated any objection to the proposed development. The Region of Durham also circulated the Official Plan Amendment application to the Central Lake Ontario Conservation Authority; comments from the Conservation Authority have not as of yet been received by the Town. However, Staff note that these comments would relate to site development matters and therefore could affect the evaluation of these applications to amend the Official Plan and the Neighbourhood Development Plan. Public Notice of the proposed development and the Public Meeting were provided in accordance with the Planning Act requirements and Town Policy. No letters objecting to the proposed development have been received by the Town. COMMENT: �I In the review of the Retail Market Appraisal , Staff concentrated on the extent to which the Report satisfies the conditions established by the Official Plan for market impact studies. As a result of this review, Staff identified a number of the concerns with respect to the Market Report which were outlined in a letter to the applicant dated February 1.1, 1986. Staff noted in the letter the major concern with the Report is that it is primarily a market opportunity study for the proposed development and that, although the report does address the issue of the potential impact upon . . .4 i REPORT NO.: PD-135-86 Page 4 other existing and designated commercial sites within the Courtice Urban Area, it does so in a collective sense. Staff noted that there was no attempt to analyze the individual impact upon each of the existing and proposed commercial centres within the Courtice Urban Area, in particular the convenience commercial site designated in Neighbourhood 3A and the Community Central Area at the corner of Trulls Road and Highway No. 2. i Staff also noted that the Report excludes any analysis of impact of a number of components of the proposed development - specifically, the bank, restaurant and personal services - from the analysis of sales impact due to the non-retail nature of these operations. Staff stated that, inasmuch as these components collectively absorb a significant portion of site j development, and the total floor space allocation for Courtice reflect both retail and personal service uses, the exclusion of these factors from the impact analysis leaves some question with respect to real impact. Staff requested that a response be provided to the matters identified in the letter and that written confirmation be provided from the Marketing Consultant that the development of the subject site would not result in any undue economic impact upon existing or designated Central Areas within Courtice or East Oshawa. A written response from the Marketing Consultant was provided to the Town for March 21, 1986. With respect to the Town ' s concern regarding the identification of impact upon individual commercial sites, the Consultant noted that the market share of all existing and proposed facilities must be considered an impact calculation in order to determine whether the collective drawdown of market potential exceeds achievable limits . He also stated that impact calculations of a Local Central Area against a convenience commercial facility would be conducted at so small a scale as to be relatively meaningless. I i . . .5 REPORT NO. : PD-135-86 Page 5 The Consultant also responded to the Town 's concern regarding the exclusion of a number of components from the analysis of sales and impact. He indicated that the information required to determine such impacts, for example sales figures for the various types of personal service uses, is either not available or is very limited. The Consultant concluded by stating that the impact analysis takes into account the sales volume of other designated, proposed or simply allocated commercial facilities, including the convenience commercial centre and Neighbourhood 3B on Courtice Road north of Nash Road. Staff are satisfied with the Consultant' s explanation with respect to the exclusion of certain components from the analysis of sales and impact. Staff are further satisfied that the Report demonstrates that sufficient market potential exists within the Courtice Urban Area to support the proposed development although, in Staff's opinion, the Consultant has failed to provide a clear statement as to impact on individual commercial sites. Staff note that the allocation and distribution of commercial sites within the Courtice Urban Area and respective neighbourhoods was based upon figures provided by the IBI Consulting Group and the Courtice Development Plan prepared in March, 1.979. The Study concluded that the per capita requirement in Courtice for Retail Commercial space was 10 square feet (0.93 square metres) and allocated approximately 70% of this space to the Community Central Area. The remainder, being equivalent to 3 square feet (0.28 square metres) per capita, would be located in specific Neighbourhoods and/or along Highway No. 2. Staff note that the Town' s Official Plan Section 6.5.9 ii states that Local Central Areas shall serve the day to day needs of the residents of the surrounding residential areas. In that respect, the proposed Local Central Area would serve primarily the residents of Neighbourhoods 3A and 3B. The design population of these neighbourhoods, as given by the Neighbourhood . .6 REPORT NO.: PD-135-86 Page 6 Development Plans, are 2300 and 5000 respectively. Using the figure of 0.28 square metre per capita requirement for retail commercial space outside the Community Central Area, the demand for retail space within the two neighbourhoods would be approximately 2.000 square metres . Three Neighbourhood Commercial sites, including the subject site, are currently designated within Neighbourhoods 3A and 3B. Assuming a maximum floor area of 500 square metres each for the two other sites, it would appear that, based upon IBI ' s figures, 1,000 square metres of retail commercial space could be supported on the subject site without a detrimental impact upon the other two commercial sites. I' With respect to the potential impact upon the designated Community Central Area at the southeast corner of Highway No. 2 and Trulls Road, Staff note that the subject site is located only 400 metres, or approximately 1 minute travelling time, from the Community Central Area. Staff therefore have concern that the development of a retail commercial plaza of the size proposed by the applicant, could be negatively impacted by the Community Central Area in the long term. Staff have also reviewed the proposed Site Plan as submitted by the applicant and have identified a number of problems with respect to site design including the amount of landscaping provided, the location of parking spaces and vehicle and pedestrian circulation. Given the floor area required by the applicant, Staff feel that the "C2-Neighbourhood Commercial" zone would not be an appropriate zone for the proposed development and would suggest that provisions similar to those of the "C1.-3" zone, which is the zoning which applies to the Bowmanvil le Mall , should apply to the proposed development. Given the problems identified by Staff with respect to site design , and the potential for impact due to its proximity to the Community Central Area and other Neighbourhood Commercial sites designated within Neighbourhoods 3A and 3B, it is recommended that the subject Official Plan Amendment application REPORT NO.: PD-135-86 Page 7 and the Neighbourhood Development Plan application be referred back to Staff to permit further dialogue with the applicant. i spec t 1 bmitted, T.T. Edwards, M.C. I .P. Director of Planning JAS*TTE*j ip *Attach. May 8, 1986 cc: Mr. W. Manson W.D.M. Consultants 20 Clematis Road WILLOWDALE, Ontario MV 4X2 cc: Mr. Don McKenna Box 22, Group 23 R.R. #3 j BOWMANVILLE , Ontario j UC 3K4 cc: Mr. Ron Hennessy Group 23, Box 17 R.R. #3 BOWMANVILLE , Ontario L1C 3K4 = SUBJECT SITE. 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