HomeMy WebLinkAboutPSD-080-02
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REPORT
PLANNING SERVICES
PUBLIC MEETING
Meeting:
GENERAL PURPOSE AND ADMINISTRATION COMMITTEE
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Date:
Monday, September 9, 2002
Report #: PSD-080-02
File #: COPA 2002-008 By-law #:
Subject:
CLARINGTON OFFICIAL PLAN AMENDMENT
APPLICANT: SEALAND HOLDINGS INC. (GREAT LAKES COLLEGE)
PART 7, CONCESSION 2, FORMER TOWNSHIP OF DARLINGTON
RECOMMENDATIONS:
It is respectfully recommended that the General Purpose and Administration Committee
recommend to Council the following:
1. THAT Report PSD-080-02 be received;
2. THAT the application to amend the Clarington Official Plan by Sealand Holdings Inc. be
referred back for further processing and the preparation of a subsequent report;
3. THAT the Clarington LACAC be requested to review the architectural and historical
significance of the existing buildings at Great Lakes College and report back to Council;
and
4. THAT all interested parties listed in this report and any delegation be advised of
Councii's decision.
Submitted by:
Davi Crome, M.C.I.P.,R.P.P.
Director, Planning Services
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Reviewed by\...J
Franklin Wu
Chief Administrative Officer
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28 August 2002
CORPORATION OF THE MUNICIPALITY OF CLARINGTON
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601
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REPORT NO.: PSD..QSO-02
PAGE 2
1.0 APPLICATION DETAILS
1.1 Applicant: Sealand Holdings Inc.
1.2 Agent: N. Barry Lyon Consultants
1.3 Official Plan Amendment:
To delete the Community Park designation from the north-west
corner of Lambs Road and Concession Street and the Future
Urban Residential designation and replace these designations with
Urban Residential. To expand the Apple Blossom Neighbourhood
Planning Unit to include these lands and increase the population
target for the neighbourhood from 4800 to 5750. To amend Table
9-2 to allocate 300 low density units and change the corresponding
totals. (Attachment 1)
1.4 Site Area: 42 hectares (105 acres)
2.0 LOCATION
2.1 The subject area to the application is located at 2020 Lambs Road, more
specifically, at the northwest corner of Lambs Road and Concession Street, in
Bowmanville. (Attachment 2)
3.0 BACKGROUND
3.1 The application for Official Plan Amendment was submitted on June 4, 2002 and
was reviewed for its completeness prior to processing. The proposed
amendment was not submitted until June 25, 2002 at which time the application
was deemed complete and was circulated for comment. A document entitled
"Planning and Servicing Rationale Report" was also submitted to support the
proposed amendment.
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REPORT NO.: PSD-080-02
PAGE 3
4.0 SITE CHARACTERISTICS AND SURROUNDING USE
4.1 The entire property owned by Sealand Holdings Inc., covers a total of 42
hectares (105 hectares) and has frontage on both Concession Street and Lambs
Road. The Soper Creek is located on the west portion of the site. The central part
of the site is occupied by Great Lakes College, which uses the institutional
buildings for classroom and residence for its students. The land to the south is
relatively flat and is leased and maintained by the Municipality for use by local
soccer clubs. The lands north of the buildings are gently rolling with mature trees.
A tributary of the Soper Creek bisects this portion of the site in an east-west
direction.
4.2 Surrounding Uses
North - St. Lawrence and Hudson Railway
South - Agricultural and Soper Creek
East - Agricultural and Cochrane Tire
West - Urban Residential and Soper Creek and associated floodplain
lands.
5.0 BACKGROUND REPORT
5.1 The consulting firm of N. Barry Lyon, Consultants Limited submitted a document
entitled "The Great Lakes College - Planning and Servicing Rational Report" to
support the Official Plan Amendment application. A Phase 1 Environment
Assessment is also included in the document. The following is a summary of the
report.
5.2 The Great Lakes College has two campus locations, one in downtown Toronto,
the other in the Bowmanville. The College intends to consolidate the two
campuses and expand the Bowmanville campus to accommodate an additional
200 students. New buildings for classrooms and residence for students and staff
will be required over the next 20 years. Conference and retreat facilities,
recreational facilities, an auditorium and meeting centres are also contemplated.
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REPORT NO.: PSD-OBO-02
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The vacant lands to the north and south of the campus building will not be
required for the college's purposes. These lands are proposed for low density
residential development and are subject of the Official Plan Amendment.
The two residential enclaves will have separate entrances from Lambs Road,
however, will be connected by a pedestrian trail system through Soper Creek
valley.
The Report notes that the market for new and resale homes in Bowmanville has
been steady, likely due to its proximity to Toronto and the surrounding natural
areas. The prospect of ITER and Highway 407 will have a greater demand on
more and higher value homes in this area, resulting in greater pressure for the
development in Bowmanville. The report notes that the college is a logical place
for development.
At the present time, the school is serviced with private services. It will be
decommissioned and sanitary sewer system will be installed. Sanitary sewer
must be extended through the Soper Creek valley from a connection on Barley
Mill Crescent. The site is currently serviced by municipal water. Additional
supply is proposed from the watermain on Concession Street and from a
connection on Guildwood Drive. Proposed storm sewers will convey storm water
to a storm water management pond at the southwest quadrant of the property. A
23 metre north-south collector with sidewalks is proposed through each of the
proposed residential enclaves, 20 metre local roads and sidewalks are also
proposed.
The report concludes the following:
. The expanded campus with surrounding residential uses offers a mix of
compatible use that will create a diverse and vibrant community.
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REPORT NO.: PSD-OBO-02
PAGE 5
. The development would be unique and harmonious with Soper Creek's
landscape and the campus, but would not be isolated given the residential
development to the west and future residential development proposed to the
south.
. The re-designation would be consistent with the Regional Plan's Living Area
designation.
. The existing sanitary sewer and water supply infrastructure and distribution
provides sufficient capacity to serve the development.
. The planned expansion of the Bowmanville campus and growth of the
college's population will create activity and strengthen the site's presence in
the neighbourhood, as well as stimulate local retail commercial uses and
services.
5.3 Phase 1 Environmental Site Assessment
The consulting firm of Shaheen and Peeker Limited Consulting Engineers was
retained by the proponent to undertake a Phase 1 Environmental Site
Assessment. The purpose of Phase 1 ESA is to identify potential sources of
contamination. The reports notes, that given the age of the structures (1930)
and the probability that there has not been significant improvements to the
buildings, its likely that there are areas of contamination on the site. Some
potential sources that may be present include:
. building materials containing asbestos;
. heating oil and coal used to heat the structures; and
. four transformers likely containing PCB's are on site but are not being used.
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REPORT NO.: PSD-OSO-02
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6.0 OFFICIAL PLAN POLICIES
6.1 Durham Reqional Official Plan
6.1.1 The lands are designated as Living Area and Major Open Space with indication
of Environmental Sensitive Area within the Durham Region Official Plan. Land
designated as Living Area are predominately used for housing purposes. Public
and recreational uses are also permitted in the Living Area designation.
6.1.2 Section 5.3.14 indicates any amendment to designate a supply of land for
development must be undertaken as part of a comprehensive five year review of
the area municipal official plan. It must also include an analysis demonstrating
the need for additional land and shall conform to the Region's 20 year servicing
plan. The proposed official plan amendment to redesignate additional lands for
residential development is not part of a comprehensive review of the Clarington
Official Plan and therefore does not conform to the Durham Region Official Plan.
6.2 Clarinqton Official Plan
6.2.1 The lands south of the buildings are designated Community Park in the
Clarington Official Plan. The area associated with the Soper Creek and its
tributary are designated as Environmental Protection. The balance of the lands
are designated as Future Urban Residential. Community parks are intended to
serve the recreational needs of a series of neighbourhoods, providing outdoor
and/or indoor recreational facilities. These parks shall be between 4 to 12
hectares in size, connect to future trail systems, and shall be provided at a
standard of 0.6 hectares per 1000 persons of population. The Bowmanville
Urban Area has four designated Community Park sites. This Community Park
site is approximately 12 hectares.
6.2.2 The Clarington Official Plan has designated lands for urban development to the
year 2016. Lands not required for residential purposes within the time frame of
the Plan have been identified as Future Urban Residential. The subject lands are
outside the area identified by the Official Plan as being required for residential
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REPORT NO.: PSD..QSO-02
PAGE 7
development by 2016. Section 5.3.5 of the Plan states that the redesignation of
lands from Future Urban Residential to Urban Residential Area can only be
considered in the context of a comprehensive review and update of the Official
Plan undertaken by the Municipality.
6.2.3 Map C1 of the Clarington Official Plan identifies the Natural Features and Land
Characteristics for South Darlington. The Soper Creek and its tributary running
through the site are identified as a Cold Water Stream and the floodplain area is
identified as Hazard Lands. In accordance with Section 4.3.8. of the Official Plan,
the presence of these natural features require that an Environmental Impact
Study (EIS) be undertaken.
6.2.4 Map E2 of the Official Plan identifies the Neighbourhood Planning Units for
Bowmanville by name, boundary and population target. The subject lands are not
identified as part of a neighbourhood plan, nor its is assigned any population
target.
The Apple Blossom Neighbourhood is located west of the Soper Creek and north
of Concession Street. It has been allocated a population target of 4800 persons.
The proposed amendment would extend the boundary of the Apple Blossom
Neighbourhood to include the subject area and increase the population target to
5750 persons which is the equivalent of 300 residential units.
7.0 ZONING BY-LAW CONFORMITY
7.1 Within the Comprehensive Zoning By-law 84-63, as amended those lands
associated with the Soper Creek and its tributary are zoned "Environmental
Protection (EP) Zone". This zone does not permit the construction of any
buildings or structures and all structures are to be setback a minimum of 3
metres from the EP boundary. The balance of the lands are zoned "Urban
Residential Exception (R1-10) Zone", which permits a private school. An
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REPORT NO.: PSD-080-02
PAGE 8
application to amend the Zoning by-law would be required prior to any residential
development should Council approve the amendment to the Official Plan.
8.0 PUBLIC NOTICE AND SUBMISSION
8.1 Public Notice was given by mail to each landowner within 120 metres of the
subject site. Public Meeting signs were installed on both Concession Street and
Lambs Road frontages.
8.2 There have been a number of inquiries regarding the proposed Official Plan
Amendment.
Many individuals are concerned that development will be permitted in the Soper
Creek floodplain, that trees would be cut down and the creek would be diverted
resulting in the destruction of fish and wildlife habitat.
Many are opposed to deleting the Community Park stating that the increasing
population in Bowmanville will require more parkland in the future.
Other individuals have expressed concern regarding the loss of historical
significant buildings to accommodate new homes. The property was used as an
internment camp for German Officers in World War II.
Staff also received a letter in support of the proposed amendment from the land
owner at the northeast quadrant of Lambs Road and Concession Road 3. The
site is within the urban envelope in the Clarington Official Plan. It also offers an
attractive neighbourhood adjacent to the Soper Creek valley
9.0 AGENCY COMMENTS
9.1 Comments are outstanding from the following departments and agencies:
. Region of Durham Planning Department
. Region of Durham Works Department
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REPORT NO.: PSD-OSO..Q2
PAGE 9
. Central Lake Ontario Conservation
. St. Lawrence and Hudson Railway
9.2 The following agencies offered no objections to the proposed amendment:
. Clarington Emergency and Fire Services
. Region of Durham Health Department
The Kawartha Pine Ridge District School Board offered no objection to the
proposed Official Plan Amendment, however, will provide additional comments
once the number of units and housing types are available.
The Separate School Board offered no objection to the proposal, however,
requested that adequate sidewalks are incorporated into the development.
Veridian Connections also had no objections, however, noted existing service to
the site inadequate and must be upgraded to accommodate the proposed
development.
9.3 The Municipality of Clarington Community Services Department objects to the
portion of the site that impacts upon the Community Park designation. An indoor
recreation complex complimented by outdoor recreational component is
contemplated for this Community Park. If the site loses its current designation,
an alternate site within the vicinity would be required.
9.4 The Municipality of Clarington Engineering Department offered comments with
respect to the elimination of the Community Park, Future Urban Residential
areas and schematic street pattern shown on the concept plan.
The Engineering Department strongly recommends that the municipality retains
the Community Park designation on the subject lands. The site's proximity to
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REPORT NO.: PSD..QSO-02
PAGE 10
existing and future residential neighbourhoods, to the Soper Creek valley and its
topography make it ideal for indoor and outdoor recreational facilities.
The Engineering Department also notes that Concession Street East, Lambs
Road and Highways NO.2 are the only roads to provide a connection between
the subject lands and the developed portions of the Bowmanville Urban Area. At
the present time, the majority of the works required to urbanize adjacent
municipal roads as well as other infrastructure works has not been included in
the Municipality's Development Charge By-law and it is not anticipated that these
works will be included in the foresable future.
Prior to actual development taking place on the site the applicant must submit a
number of studies to justify the development, including:
. A Servicing Report that identifies all of the urban services, both internal and
external, necessary for development of the subject lands. The impacts on
existing municipal roads and the need for watermains and sanitary sewers
and future road reconstruction should be addressed.
. A Transportation Study that identifies traffic volumes, both vehicular and
pedestrian that will be generated by the development. The study must
determine impacts on existing municipal transportation infrastructure,
including Concession Street East, Lambs Road and Highway NO.2 and
determine what improvements will be required to facilitate the development.
. A Sub-watershed Study that assesses the impacts of development on the
watershed. The study must identify what stormwater management facilities
are required and their size, and demonstrate that downstream erosion within
the Soper Creek watershed will not be further aggravated by development of
the subject lands.
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REPORT NO.: PSO..QSO-02
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. An Environmental Impact Study will be required that identifies the potential
impacts on the open space areas and works requires to mitigate impacts of
development.
The Engineering Department also noted that the street pattern shown on the
conceptual plan should more closely resemble a grid pattern. The proposed cul-
de-sacs should be eliminated and all collector roads must have a minimum width
of 26.0 metres.
In conclusion, the Engineering Department states that the proposed amendment
is premature and should not be endorsed. They also object to the removal of the
Community Park designation.
10.0 STAFF COMMENTS
10.1 This application proposes to redesignate lands designated as Community Park
and Future Urban Residential to Urban Residential. The approval of the
proposed amendment would allow for plans of subdivision to be submitted and
residential development to occur. Both the Regional and Clarington Official Plans
provide for additional residential lands to be designated in the only context of a
comprehensive review of the local Official Plan.
Moreover, the designation of additional lands shall be based on demonstrated
need for designating additional residential lands and recognize the phasing of
development in accordance with the Region's 20 year servicing plan. The
applicant submitted a report to support the amendment, however, it does not
adequately justify the need for more residential lands or why these lands should
be chosen for residential development over other lands designated as Future
Urban Residential in the Bowmanville Urban Area.
611
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REPORT NO.: PSD-OSO-02
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10.2 A Community Park designation is required in east Bowmanville in order to
service the recreational needs of future residents. There are four Community
Parks designated to serve the planned population of 65,000 persons at the build
out of in the Bowmanville Urban Area. While one community park is constructed
in West Bowmanville Community Park (Garnett B. Rickard Complex) and lands
are being acquired for future development of a South Bowmanville Community
Park, both the North and East Community Parks are anticipated for development
at a later date.
The North Bowmanville Community Park, located at Concession Road 3 and
Liberty Street, is also the subject of an Official Plan amendment application to
remove the Community Park designation. These lands were recently sold and
staff are investigating whether the new owners intend to pursue the application.
10.3 The Municipality of Clarington Engineering Department notes that providing full
urban road infrastructure to the site is not within the Municipality's Development
By-law and not anticipated in the foreseeable future. As such, the proposal is
considered premature.
10.4 The Clarington Official Plan requires the submission of an Environmental Impact
of the proposed development on surrounding natural heritage features. An EIS
has not been submitted, however, the applicant is aware that one is required to
further evaluate the application.
10.5 The applicant is proposing low density residential development to the north and
south of the College. A concept plan depicts 300 residential units. Prior to
consideration of a Plan of Subdivision for the subject land, a sub-watershed
study will be required. The sub-watershed for the area encompasses lands with
the Urban Area to the north, east and south of the subject site and drainage
basin of the two tributaries that flow into Soper Creek. The exact boundaries
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REPORT NO.: PSD-OSO-02
PAGE 13
would be defined by the Municipality, Central Lake Ontario Conservation and by
the developers and landowners who would contribute to the Study. The
preparation of a Subwatershed Plan for the Soper Creek is to be undertaken by
the Municipality and likely co-operatively financed by all major landowners in the
sub-watershed due to the costs of such a study.
10.6 Members of the public have raised concerns about the proposed amendment
concerns are summarized in Section 8 of the report. The following has been
prepared in response to their concerns.
· Development in the Floodplain and Destruction of Fish and Wildlife
Section 14.4.2 of the Clarington Official Plan does not permit development
on lands designated as Environmental Protection. In no case would the
development setback be less than 5 metres. In the Planning and
Servicing Rationale Report, the applicant does not propose any
development in the floodplain.
. Community Park
As noted in Section 10.2 a Community Park has been planned on the
subject lands to serve the east portion of the Bowmanville Urban Area.
Staff concur with the resident's concerns regarding the loss of this park
site.
. Historical Siqnificance of the Site
The site was originally constructed for use as a Boy's Training School for
juvenile delinquents in the 1930's. It was converted into a German
Prisoner of War Camp for German Officers during World War II between
1941 and 1945. It returned to its previous use as a Boys Training School
until 1979. The site sat dormant for sometime before it was occupied by a
Sarah Lanken School and subsequently sold to Members of Christ
Assembly who leased it to the Catholic School Board until purchased by
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REPORT NO.: PSD-OSO-02
PAGE 14
Great Lakes College in 1998. The site and it's structures are part of the
Municipality's inventory of significant historical resources by LACAC. It is
suggested that LACAC further investigate the feasibility of designating
some buildings on this site under the Heritage Act.
11.0 CONCLUSIONS
11.1 As the purpose of this report is to satisfy the requirements for the Public Meeting
under the Planning Act, and taking into consideration the outstanding comments,
and the information that is still outstanding to further review the proposal and, it is
respectfully requested that this report be referred back to staff for further
processing and the preparation of a subsequent report.
Attachments:
Attachment 1 - Proposed Amendment
Attachment 2 - Key Map
Attachment 3 - Concept Plan
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REPORT NO.: PSD-080-02
PAGE 15
List of interested parties to be advised of Council's decision:
Mr. Mark Conway
N. Barry Lyon Consultants Ltd.
3 Church Street, Suite 100
Toronto, ON 5E 1 M2
Mr. Gary Ku, President
Sealand Holdings Inc.
323 Keele Street
Toronto, ON M6P 2K6
Rob Hall
161 Guildwood Drive
Bowmanville, ON L 1 C 5C9
Barry Majoor
193 Guildwood Drive
Bowmanville, ON L 1 C 5C9
Debbie Alldread
131 Guildwood Drive
Bowmanville, ON L 1C 5C7
Terry Witherspoon
181 Sprucewood Crescent
Bowmanville, ON L 1 C 5H3
Kevin McCarthy
143 Sprucewood Crescent
Bowmanville, ON L 1 C 5H4
615
Lynn Philip Hodgson
467 Fralick's Beach Road
Port Perry, ON L9L 1B6
Bowmanville, ON L 1 C 5H3
Scott Thomas
139 Sprucewood Crescent
Bowmanville, ON L 1 C 5H4
Dean Prebble
131 Sprucewood Crescent
Bowmanville, ON L 1 C 5H4
Brad Doyle
51 Soper Creek Drive
Bowmanville, ON L 1 C 2K7
Reg and Angie Ball
177 Sprucewood Crescent
Bowmanville, ON L 1 C 5H3
Victor W. Rudik Associates
1855 Rosebank Road
Pickering, ON L 1V 1 P7
Cindy Lewis
103 Sprucewood Crescent
Bowmanville, ON L 1 C 5H5
Add to Report PSD-080-02
.~~'Vl and hL:eiM R..dik
Deborah Landry
J.om and Ruby Smith
ob and J9aane Hall
Graham and Sheryl Queen
Brent and Janet Fletcher
Steve and Deanna
Williamson
ISS5 R __Bank Rd,..ni.1 :r:iag, OMMie LlY~
99 Sprucewood Cres., Bowmanville, Ontario L1C 5H5
119 Sprucewood Cres., Bowmanville, Ontario LI C 5H5
.-- I A rGuild ~ .. 'Dr., BfJu .Np:ille, O~~~Q llC ""'0
165 Sprucewood Cres., Bowmanville, Ontario L1C 5H4
115 Sprucewood Cres., Bowmanville, Ontario L1C 5H5
147 Sprucewood Cres., Bowmanville, Ontario L1C 5H4
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COPA 2002-008
Clarington Official Plan
Amendment
Owner: Sea Land Holding Corp.
616
PURPOSE:
BASIS:
ACTUAL
AMENDMENT:
IMPLEMENTATION:
INTERPRETATION:
ATTACHMENT 2
AMENDMENT NO.
TO THE CLARINGTON OFFICIAL PLAN
The purpose of this amendment is to replace the "Future
Residential" and "Community Park" designation with the
"Urban Residential" designation.
The basis of this amendment is an application from the
property owner.
The Clarington Official Plan is hereby amended as follows:
1. By amending Map A3 - Land Use Bowmanville Urban
Area as shown on Schedule "A" attached hereto.
2. By amending Map E2 - Neighbourhood Planning
Units Bowmanville Urban Area as shown on Schedule
"B" attached hereto; and,
3. By amending Table 9-2 Housing Targets by
neighbourhoods as shown on Schedule "" attached
hereto.
The provisions set forth in the Clarington Official Plan, as
amended, regarding the implementation of the Plan, shall
apply with respect to this amendment.
The provisions set forth in the Clarington Official Plan, as
amended, regarding the interpretation of the Plan, shall
apply with respect to this amendment.
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