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REPORT
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Meeting:
SPECIAL GENERAL PURPOSE AND ADMINISTRATION COMMITTEE
Report #:
PSD-078-05
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PLN 38.4.1; By-law #:
COPA 2002-002; COPA 2002-009
BOWMANVILLE WEST MAIN CENTRAL AREA SECONDARY PLAN REVIEW
AMENDMENT 44 TO THE CLARINGTON OFFICIAL PLAN
AND RELATED APPLICATIONS BY HALLOWAY HOLDINGS LIMITED AND
WEST DIAMOND PROPERTIES INC./PLAYERS BUSINESS PARK LIMITED
File#:
Date:
Monday June 13,2005
Subject:
RECOMMENDATIONS:
It is respectfully recommended that the General Purpose and Administration Committee
recommend to Council the following:
1. THAT the Bowmanville West Main Central Area Secondary Plan Review Report, the
Workshop Summary for Bowmanville West Main Central Area Secondary Plan and Staff
Report PSD-078-05 be received;
2. THAT Official Plan Amendment 44 to the Clarington Official Plan as contained in
Attachment 4 to Report PSD-078-05 with the modifications as contained in Attachment
5 be adopted and that the necessary by-law be passed;
3. THAT Council resolves that a further public meeting is not necessary;
4. THAT the application to amend the Clarington Official Plan (File COPA 2002-009 )
submitted by Halloway Holdings Limited be approved in part through Amendments 43
and 44;
5. THAT the application to amend the Clarington Official Plan (File COPA 2002-002 )
submitted by West Diamond Properties Inc and Players Business Park Limited be
approved in part through Amendments 43 and 44;
6. THAT the application to amend the Clarington Official Plan (File No. COPA 2000-003)
submitted by Loblaw Properties Ltd, to expand the Clarington Centre to permit an
additional 37,200 square feet expansion to the existing supermarket be denied; and
CORPORATION OF THE MUNICIPALITY OF CLARlNGTON
40 TEMPERANCE STREET, BOW MANVILLE, ONTARIO L 1C 3A6 T (905)623-3379 F (905)623-0830
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REPORT NO.: PSD-07iJ.05
PAGE 2
7. THAT notice of Council's decision be forwarded to the Region of Durham and all
persons or bodies that requested notification of this decision.
Submitted by:
D vi J. Crome, M.C.I.P., R.P.P,
Director of Planning Services
DJC"sn
June 10, 2005
Reviewed by:Q ~~J
klinWu,
Chief Administrative Officer
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REPORT NO.: PSD-078..()5
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1.0 Introduction
1.1 The Commercial Policy Review (CPR) provided for a second phase of study, which was
linked to consideration of private development applications in the Bowmanville West
Main Central Area and the adjacent lands designated Highway Commercial and Special
Policy Area H, This second phase of work reviewed the existing Bowmanville West
Main Central Area Secondary Plan and provided recommendations to update the
Secondary Plan policies.
1.2 The two major commercial development applications at the commencement of the
Study were as follows:
. West Diamond Properties Inc.lPlayers Business Park Limited (West Diamond!
Players), companies jointly controlled by Metrus Developments and the Kaitlin
Group, proposing to construct 33,070 m2 (356,000 sq. ft.) of floors pace on the north-
west comer of Highway 2 and Green Road.
. Halloway Holdings Limited (Halloway) proposing to construct 17,610 sq, m, (200,000
sq, ft.) of f100rspace on the north-east corner of Highway 2 and Green Road,
In addition Loblaw Properties Ltd, (Loblaws) had submitted a proposal for the expansion
of their existing store in Clarington Centre which necessitated an Official Plan
Amendment.
1.3 Public participation for the Secondary Plan portion of the Study consisted of a workshop
which was held with residents and stakeholders on April 20th, 2005, There were over 75
participants including residents, developers and retailers. The workshop included a
review of the background planning, market and transportation issues but focused on the
urban design options for the Bowmanville West Town Centre. The workshop used
precedent images of large format retail development and mix use areas as success
stories with potential application in Bowmanville. Three options were presented for the
purposes of discussion of alternatives for development. Break-out groups participated
in a facilitated discussion of the possibilities for the Bowmanville West Town Centre.
2.0 The Existing Secondary Plan
2,1 The existing Secondary Plan for the Bowmanville West Main Central Area is a product
of a series of development applications, studies and an extended Ontario Municipal
Board hearing in 1993. A comprehensive study of the entire Bowmanville area was
undertaken in 1992/1993 which looked at both the east and west areas of Bowmanville.
A retail market impact study was also completed. The purpose of the study was to find
mechanisms and formulate policies which would accommodate a wide range of land
uses, ensure the viability of what is now referred to as the Bowmanville East Main
Central Area and establish urban design guidelines for the new Bowmanville West Main
Central Area.
2.2 The Secondary Plan approved by Council provided that new retail development in the
west should be phased based on population growth and the development should occur
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REPORT NO.: PSD..()78..()5
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within the structure of a grid road system. The area was to be developed with a retail
focus around Clarington Boulevard, a north-south commercial street for pedestrian-
oriented retail uses. The urban design guidelines aimed at creating a strong
streetscape to allow the West Main Central Area to develop more of an urban quality as
development occurred over time.
2.3 The OMB, in approving the Secondary Plan, noted in its decision that two different but
related issues needed to be addressed with the development of the Bowmanville Main
Central Area: the impact on the downtown, and, if extended, what form would the
extension take? The OMB concluded that the west was not an extension of the east and
that the two areas should remain as separate areas but should be complementary. The
OMB recommended thresholds for commercial development and new land use
designations. They also noted that the grid road system was an extremely important
element of the urban structure.
2.4 The existing Secondary Plan for West Bowmanville provides for the development of a
mix of higher density uses and the integration of residential, employment, cultural and
community uses that can serve as a focal point of activity, interest and identity for
Clarington residents. There are three main goals:
. It is to complement the strengths of the East Main Central Area to create a strong
and vibrant centre.
. The physical framework through a system of street and publiC spaces is to allow for
more intensive development over time.
. It will have a high quality of architecture and urban design to create a sense of place
and foster social interaction.
2.5 The West Main Central Area Secondary plan provides policies focusing on retail around
the Clarington Boulevard/Highway 2 intersection, The lands on all four quadrants are
designated Retail Commercial although the release of development rights is controlled
through a threshold mechanism linking warranted f100rspace to population growth,
Office Commercial Areas are identified on the south- west and south-east comers of
Regional Road 57 and Highway 2. Medium and High Density housing areas are
located in the southerly portion of the West Main Central Area along the St. Lawrence
and Hudson (CP) railway line, The current housing targets are for a total of 1,750 units
_ 250 medium density and 1,500 high density. A future GO Rail station site is also
planned and the lands have been acquired by the GO system operating authority,
Various community and recreation uses are planned or built, including a secondary
school, two churches, and several parks.
2.6 The existing Secondary Plan provides relatively general urban design principles dealing
with a variety of issues including:
. Creating a character reflective of the primary role of the area - providing a
commercial, residential and community focus for the Bowmanville West Main Central
Area through a variety of landscaping and architectural features and treatments;
. Fostering pedestrian accessibility among all parts of the area including the existing
and future adjacent residential communities;
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. Ensuring an appropriate separation from the railway corridor; and,
. Facilitating the implementation of transit and accessibility to the proposed GO
stations from all parts of the community,
In addition, the Plan provided for urban design guidelines which were prepared and
subsequently revised in 1999.
3.0 The Proposed Secondary Plan
3.1 Proposed Official Plan Amendment 43 proposes to rename the Bowmanville West Main
Central Area as the Bowmanville West Town Centre. The conclusions of the
Commercial Policy Review Study (CPR) lead to an expansion of the land area in the
Bowmanville West Town Centre, new floor space limits based on population growth and
the market reports, revised transportation facility requirements and more detailed urban
design policies to be included in the Secondary Plan. The proposed changes to the
Secondary Plan are detailed in Official Plan Amendment 44,
3.2 The conclusions of the CPR support the redesignation of the West Diamond/Players
lands immediately to the west of Green Road for inclusion as part of the Bowmanville
West Town Centre. Given the market support and provided the urban design and
transportation goalS can be achieved. these lands represent the most appropriate
location for new commercial uses. The Study notes throughout that market, land use,
urban design and transportation Objectives must be considered comprehensively,
Without all components being addressed satisfactorily, the Municipality may wish to
consider other options. A standard big-box centre as part of the new Bowmanville West
Town Centre is not appropriate and is not supported. Similarly, the transportation
infrastructure must be in place or arrangements made to ensure that the transportation
infrastructure will be in place shortly for this development to proceed, Lastly, there can
be no undue market impacts that detrimentally impact the Town and Village Centres, in
particular the historic downtowns. This leads to the recommendation for phasing of
f1oorspace.
3.3 Land Use
Some of the more significant recommendations regarding land use are as follows:
. The Retail Commercial designation is split into two designations; General
Commercial and Street Related Commercial. The General Commercial designation
would accommodate larger format retail activities, The Street Related Commercial
designation would provide specific areas dedicated to smaller scale, pedestrian-
oriented retail and personal service uses.
. In the General Commercial designation, hotels and convention centres and
residential dwelling units are deleted as permitted uses,
. In the Street Related Commercial designation, stores are limited to a maximum of
800 sq. m. (8.600 sq. ft.) and drive-through facilities are not permitted.
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. Only two full service financial institutions are permitted.
. Medical offices, business, professional and administrative offices are permitted only
above the ground floor.
. The Home Depot store proposed on the Halloway Holdings site is not consistent with
the planning and urban design vision for the Bowmanville West Town Centre and the
policies are clarified in this regard. (There is further discussion on this issue in
Section 4.1)
. The permission for the food store and other retail uses in the Office Commercial
area on the south-west comer of Highway 2 and Regional Road 57 is deleted. The
store specific use permission has not been built since it was approved by the OMB
over a decade ago.
. The High Density Residential designation has been split into two designations; Low
Rise High Density Residential (6 storeys or less) and Mid Rise High Density
Residential (12 storeys or less).
. Energy efficient building and site design is strongly encouraged,
3.4 Thresholds and Allocations
Drawing upon the conclusions of the Commercial policy Review, the Retail Market and
Impact Analysis Report and the Addendum Market Analysis Report discussed in Report
PSD-077 -05 respecting Official Plan Amendment 43 as well as the recommendations of
the Bowmanville West Main Central Area Secondary Plan Report, Official Plan
Amendment 44 establishes target retail and service floor space thresholds related to the
projected population growth of Clarington in the future.
The purpose of these thresholds is to ensure that the development of retail and service
floor space in the Bowmanville West Town Centre will proceed incrementally and in a
fashion that sufficient population exists in Clarington to support the continued viability of
the Town and Village Centres and to ensure ongoing redevelopment potential within the
Bowmanville East Town Centre.
The development of retail and service floor space in the Bowmanville West Town
Centre is not to exceed the target threshold of 65,000 sq. m. of gross leasable area
when the population of Clarington is 85,000 persons, expected to be reached in 2007.
The target threshold is not to exceed 75,000 sq, m. of gross leasable area when the
population of Clarington reaches 91,000 persons, expected to be reached in 2010.
Official Plan Amendment 44 calls for a new comprehensive Official Plan review to take
place. Before additional retail and service floor space can be provided after the
Clarington population exceeds 91,000 persons.
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Official Plan Amendment 44 also provides for the allocation of specific amounts of retail
and service floor space in the Bowmanville West Town Centre to most of the lands
designated for General or Street-Related Commercial including the lands for which
applications for Official Plan and Zoning By-law Amendments have been made.
The allocation of retail and service floor space made to the West Diamond/Players
lands is limited to the applicant's initial phase 1 development proposals for the Wal-mart
and Real Canadian Superstore components. An allocation of additional retail and
service floor space for phase 2 of these projects is deferred by Official Plan Amendment
44 until the population of Clarington reaches 91,000 persons. This will provide
additional protection against unacceptable sales transfers from existing businesses in
Clarington occurring before there is necessary supporting population in Clarington.
3.5 TransDortation Network
TSH undertook a strategic review of transportation requirements for the area based on
their earlier work in 1998, a review of the traffic reports submitted by the development
proponents and discussions with the Study Team. The main transportation network
currently proposed for the Bowmanville West Town Centre is based on King
StreeUDurham Highway 2 (Highway 2), Regional Road 57 and Green Road serving as
designated arterial roads. These roads in turn are served by a system of collector roads
and local streets in a grid road pattern with blocks to provide access throughout the
area.
The development of the grid road system is critical to the established vision and function
of Highway 2 as a "main streef through the Bowmanville West Town Centre. The minor
roads making up the grid allow for flexibility in access and internal traffic circulation, and
alternative routing for local trips. When fully developed, the grid system will facilitate a
reduction in traffic demand along Highway 2, and specifically a potential reduction in the
turning movements at the signalized intersections,
The strategic transportation review considered the residential areas to the north and
south of the Bowmanville West Town Centre, and the need to provide alternative routes
to complement the major arterial roads. The north-south grid road links extend from the
West Bowmanville area into the northerly areas and intersect with the proposed
Brookhill Boulevard and the planned extension of Longworth Avenue.
The strategic transportation review also considered linkages between the commercial
and residential areas, future transit service and routing, emergency access, school
transportation requirements, and the desired flexibility in route choice for commercial
and residential traffic, Addressing those transportation requirements in a system
context, has confirmed and defined the role and function of Highway 2 as a "main
streef according to the vision established by the Official Plan.
As retail commercial growth occurs it will be critical to ensure that transportation
network capacity can accommodate new growth in an efficient manner.
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Within the Bowmanville West Town Centre, the transportation infrastructure required to
support continued growth includes intersection improvements along Highway 2,
including signalization at Boswell Drive and Green Road, and the completion of various
links that form a grid road network, The review considered the Municipality's plans to
construct the grade separation and road improvements for Green Road, The internal
roads that are currently planned to complete the grid include the extensions of Uptown
Avenue, Clarington Boulevard, Prince WUliam Boulevard, and Boswell Drive, as weU as
the construction of Brookhill Boulevard between Boswell Drive and Regional Road 57.
3.6 U!pan Desicn
The planning framework for the Bowmanville West Town Centre requires a strong
commitment to creating a strong sense of place with a mix of uses. In order to achieve
this there needs to be a clear urban design vision and policies for the Bowmanville West
Town Centre. The consultant has recommended that the existing Secondary Plan and
Urban Design policies be amended to incorporate the following:
. Urban Design Principles - broad statements of the intent and key aspects of design,
. Detailed Site Design Criteria - policies related to a variety of site development
issues including parking, buffering, landscaping, pedestrian access, service areas
and signage.
. Building Design Policies- policies dealing with elements of building form and design.
. A Demonstration Plan and Illustrated Urban Design Policies showing the application
of the principles, criteria and policies. This plan would be exemplary rather than
regulatory,
The proposed Official Plan Amendment 44 incorporates the following urban design
principles as objectives in Section 3 of the Secondary Plan:
. A distinct sense of place.
. A connective street network.
. Pedestrian access.
. Urban street edge.
. Plan for infill.
. Environmentally sustainable development.
Other urban design policies are included in Section 13 of the Plan,
Detailed site design criteria include policies governing the street and movement
network, building orientation and site layout, surface parking areas, landscape buffers,
pedestrian areas, and pedestrian entrances among other things.
Building design policies address building facades, glazing, corner buildings, building
materials, and drive-through design.
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The consultant has recommended that the Demonstration Plan and Illustrated Urban
Design Policies be incorporated as Schedules to the Secondary Plan.
3.7 ImDlementation Policies
Implementation policies have been strengthened by adding a new section on the use of
HOlding Symbols, Since certain lands will be rezoned in advance of the completion of
site plans, Holding Symbols will be placed on new development sites. In order to lift the
Holding Symbols applicants will need to demonstrate that the proposed development
successfully implements the urban design policies and the market, land use and
transportation objectives of the plan. In particular satisfactory arrangements are
required to be made with the Municipality with respect to specific public and private
roads defined in the plan.
The site plan policies are strengthened by requiring site plans to "comply with" rather
than simply to have regard for.
4.0 Current Applications
4.1 Hallowav Holdincs
4,1,1 Halloway Holdings submitted an application on July 21, 2003 to amend the Official Plan
and the Zoning By-law to permit:
. A 98,641 sq. ft. Home Depot store with an 18,648 sq, ft. garden centre at the north-
west comer of Uptown Avenue and Clarington Boulevard
. 59,880 sq. ft, of additional large format commercial f1oorspace; and,
. Three retail pads along Highway 2 totaling 19,348 sq. ft.
The application covers a 6.92 hectare parcel on the north-east comer of Green Road
and Highway 2 (Attachment 6). A site plan application was received on May 17, 2005,
which has been circulated to relevant agencies for comment. The intention is that
Home Depot would sever most of the eastern half of the property.
4.1.2 The application to amend the Clarington Official Plan proposes to:
. Delete the Uptown Avenue extension between Clarington Boulevard and Green
Road; and,
. Amend the retail commercial thresholds in the Bowmanville West Main Central Area
Secondary Plan to permit all of the proposed commercial f1oorspace.
4.1.3 It is recommended that the Uptown Avenue extension through the Halloway Holdings
site be maintained in accordance with the current plan. This extension is a logical
continuation of the existing grid street network providing east-west movements to the
arterial road system, local access to development parcels and opportunities for long
term intensification. It provides a important secondary role to the new proposed
Brookhill Boulevard, carrying less traffic than originally anticipated but providing for both
pedestrian and vehicular movements between shopping and recreational areas.
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4.1.4 Staff and the consultant do not support the development of a Home Depot store in this
location. Uptown Avenue is to develop into a strong retail pedestrian environment
connecting the north and south residential areas. Street related commercial uses of
limited scale and size are most appropriate here. Home Depot is a quasi-industrial use
with outdoor storage and display, on-site trucks for delivering construction materials and
the internal and external storage of bulk materials requiring the use of tow motors. It's
location near the Cineplex and the High School are not consistent with type of urban
environment planned and committed to through existing infrastructure. Provision is
made for home improvement centres in Highway Commercial Districts and possibly in
certain industrial areas.
4.2 West Diamond/Plavers
4.2.1 West Diamond/Players submitted their initial applications on February 1, 2002. On
February 10, 2003, they submitted revised applications to amend the Official Plan and
the Zoning By-law to permit:
. A 111,135 sq, ft. Wal-Mart store, with a subsequent Phase 2 expansion to 151,135
sq, ft,;
. A 142,641 sq ft. Real Canadian Superstore (Loblaws) with a subsequent Phase 2
expansion to 164,000 sq. ft,;
. 40,550 sq. ft. of smaller retail and service stores along the Highway 2 frontage; and,
. A Loblaws brand gas station with a convenience store and car wash at the north-
west comer of Highway 2 and Green Road.
The application covers a 12.11 hectare parcel on the north-west comer of Green Road
and Highway 2 (Attachment 6), No site plan application has been received to date,
although several pre-consultation meetings have been held and a preliminary site plan
has been submitted. The intention is that the lands will be divided and Wal-Mart and
Real Canadian Superstore would own separate parcels with West Diamond/Players
retaining the majority of the Highway 2 frontage lands for the smaller retail and service
stores.
The original application provided for phasing both the Wal-Mart and the Real Canadian
Superstore, The application was amended on March 9, 2005 to eliminate the phasing
and construct both the Wal-Mart and the superstore to their ultimate sizes immediately,
In addition, discussions with the applicant indicate that the Loblaws store may be larger
than originally anticipated.
4.2,2 The application to amend the Clarington Official Plan proposes to:
. Delete Boswell Drive extension north of Highway 2;
. Delete Uptown Avenue extension between Green Road and Boswell Drive;
. Expand the Bowmanville West Main Central Area boundary to include the subject
lands;
. Designate the lands for commercial purposes in the Bowmanville West Main Central
Area Secondary Plan; and,
. Amend the retail commercial thresholds in the Bowmanville West Main Central Area
Secondary Plan to permit all of the proposed commercial f1oorspace,
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PAGE 11
4.2.3 Proposed Official Plan Amendment 44 retains Boswell Drive extension north of Highway
but it does provide for Uptown Avenue west of Green Road to be constructed as a
private road to municipal standards. This would provide for a continuation of street
elements such as sidewalks, street trees, lighting and similar features so that it has the
look and feel of a public street. Parallel parking would be provided along the store front.
It is proposed that suitable arrangements be made with the Municipality to assume this
private street in the future if the Municipality requires its future dedication. The street
and block pattern supports enhanced options for vehicular traffic, transit and pedestrian
movement and it allows for future intensification of the area over time.
4.2.4 It is recommended that the Wal-mart and Real Canadian Superstore be phased as
noted in Section 3.4. Furthermore, the division of the site into two designations
provides a Street-Related Commercial along Highway 2. As a result, proposed Official
Plan Amendment 44 would also prohibit the location of a service station on the comer of
Green Road and Highway 2 and drive-through facilities in this location.
4.2.5 The proposed Official Plan establishes a high standard of urban design to humanize the
big box environment including articulation of the buildings, glazing of the front facades,
corner features, and possibly limitation on footprints of buildings. Parking areas would
be divided into smaller parking courts, creating opportunities for landscaping and
pedestrian connections. Street-facing buildings help to define and strengthen urban
character of the area.
4,3 Loblaws Clarinaton Centre
4.3.1 Loblaws owns a 2.44 hectare parcel within Clarington Centre, which contains a 50,000
sq, ft. supermarket. They currently have two sets of applications before the Municipality
as follows:
. An application to amend the Clarington Official Plan (COPA 200()"()()3) as well as
rezoning (ZBA 2000-020) and site plan (SPA 200Q..017) applications to permit a
proposed 37,700 sq. ft. expansion of the existing supermarket; and,
. A rezoning application (ZBA 2003-043) to change to the zoning regulations for the
Clarington Centre, which requires that a food store must operate within Clarington
Centre on lands zoned "C1-14",
The Official Plan Amendment and Rezoning applications have been appealed to the
Ontario Municipal Board. The expansion application was superseded by the West
Diamond/Players application but Loblaws retained the original application as an
alternative in the event that the West Diamond/Players application was not approved.
4,3,2 It is recommended that the application to amend the Clarington Official Plan to expand
the existing Loblaws store be denied as the same applicant is being recommended for
approval in the proposed expansion to the Bowmanville West Town Centre.
4.3.3 Planning staff will be reporting on the rezoning applications and the site plan
applications in the context of the Municipally-initiated zoning applications to be
considered by Council on June 27, 2005.
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PAGE 12
5.0 The Ontario Municipal Board
5.1 Both Halloway Holdings and West Diamond/Players have filed appeals on their private
Official Plan Amendment and Rezoning applications. A pre-hearing conference is
scheduled for Friday, June 17, 2005. At that time the issues list and procedural order
are intended to be finalized. An OMB hearing is scheduled to commence on September
6, 2005 for two months.
5,2 The Municipality's solicitor and I will report on the result of the pre-hearing conference at
the special meeting ofthe GPA Committee on June 27, 2005.
6.0 Conclusion
6.1 Since the publication of Proposed Official Plan Amendment 44, staff have met with a
number of stakeholders and continued to prepare for the public meeting. As a result, a
number of modifications to the original Amendment have been identified. These
modifications are contained in Attachment 5. Proposed Official Plan Amendment 44 is
recommended for approval with the modifications set out in Attachment 5,
6.2 The application to amend the Clarington Official Plan by Halloway Holdings should be
approved in part in the context of the recommended Official Plan Amendments 43 and
44. The proposed amendment provides for Halloway to proceed to develop much of the
site immediately for certain commercial uses subject to the Municipally-initiated
rezoning to be considered at a public meeting on June 27th and subject to site plan
approval and subdivision requirements.
6.3 The application to amend the Clarington Official Plan by West Diamond/Players should
be approved in part in the context of the recommended Official Plan Amendments 43
and 44. The proposed amendment provides for West Diamond/Players to proceed to
develop in a phased manner subject to the Municipally-initiated rezoning to be
considered at a publiC meeting on June 27th and subject to site plan approval.
6.4 The application to amend the Clarington Official Plan by Loblaws Properties should be
denied,
Attachments:
Attachment 1 - Existing Bowmanville West Main Central Area Secondary Plan Land Use Map
Attachment 2 - Bowmanville West Main Central Area Secondary Plan Review Report May 30,
2005 (under separate cover)
Attachment 3 - Workshop Summary - West Main Central Area Secondary Plan Review (under
separate cover)
Attachment 4 - Amendment No, 44 to the Clarington Official Plan
Attachment 5 - Changes to Proposed Amendment 44 since published on May 30th
Attachment 6 - Proposed Site Plans for West Diamond/Players and Holloway Holdings
Attachments listed under separate cover are available for review in the Clerks' Department.
REPORT NO.: PSD..()78..()5
PAGE 13
List of interested parties to be advised of Council's decision:
Henry Joseph
Ari Vasa
Ron Worboy
B, Westerman
Beth Kelly, Valiant Property Mgmt.
Bob Hann, Valiant Property Mgmt.
John Vanderkooi
Eileen Costello, Aird & Berlis LLP
Gwen Wallace
Lyn Townsend, Lynda Townsend-Renaud Law
Brent Clarkson, MHBC Planning Limited
Heather Muir
Carol Duffy
Bruce Curl
Jim and Suzanne Gregory
Stan Stein, Osler Hoskin & Harcourt
Todd Gibbon
Bill Humber
Linda Moore
Ron Hooper
George Kloos
Richard Lange
Leroy Clarke
Ted Watson
Hannu Halminen, Halminen Homes Limited
Jennifer Stone, This Week Newspapers
Brian O'Connor
Richard Marchant
David Butler, The Butler Group Inc,
Peter Smith, Bousfields Inc.
Bryce Jordan, G.M. Semas Associates
Carmela Cupelli
Scott Houghton
Nancy Lewis
Maryann Fines
E.C. Braham
Sue Sedlak
N.Gummon
Otto Provenzano
S. Fraser
Bill Hinbert
Doug Finnson and Terri Bickwell-Potts
Duncan McPherson
Trevor Small
Ellen Cowan
Peter Vogel
Ray and Joyce Atkinson
Margaret Zwart
Ira Kagan, Kagan, Shastri. Barristers & 501.
Brian Fraser
Mark Rowe
Rudi Van Wiingaarden
Paul & Anne-Marie Halliday
John Huber
James Scarth
John and Lilian Bouma
B, Haines
Lilly T. Hinton
Mary-Ann Kalotai
Diane James
Costantine Bruno
Richard Rekker
Alan Vaillancourt
Mavis Carlton
Rick Hofstede
The Greater Toronto Transit
Robert DeGasperis, Metrus Properties Inc,
Yolanda Gjaltema
John & Lillian Bouma
Marvin Green, River Oaks Group
Kathy Pandell, Geoffrey L. Moore & Associates Ltd.
Marianne Zwyers
Lakeshore Group
Carmine Cupelli
George Ibanez
Lawrence Hellinga
R. Tukker
A. 50rg
Bryan Maclean
Linda Hallett and George loanidis
Doug Woods
Frank W, Lockhart
J. Sproatt
Mike Dome
Celeste Terry, Durham Regional Planning
Gail Rickard
James Vinson
Ian Smith
Anthony Tumbull
Evelyn Rosario
Suzanne McCrimmon, Clarington Board of Trade
Jim Russell
John Shewchuk, Royal LePage Frank Real Estate
Paul Wilson
Philip Brent
Peter Walker, Walker Nott Dragecivic Associates Limited
Steve zakem, Aird & Berlis LLP
Scott Arbuckle, Planning & Engineering Initiatives Ltd,
David Crowell, A & P Properties Limited
Terry and Phyllis Price
RosIyn Houser, Goodmans LLP
Rick Gay, Gay Company Limited
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Attachment 2 to PSD-078-05
BOWMANVILLE
WEST MAIN
CENTRAL AREA
..
SECONDARY
PLAN REVIEW
MAY 30,2005
C!flrJpglon
MERIDIAN
l'I.ANNlNG CONSULT....,.. INC.
, ,
Table of Contents
EXECUTIVE SUMMARy...................................................................... ........ I
1.0 STUDY PURPOSE..................... ...................................................... 1
2.0 BACKGROUND AND CONTEXT ........................................................... 2
2.1 Historical Development and Past Studies............................................. 2
2.2 Current Applications..... ...... .......... .......... ............ .................. ........ 3
2.3 Study Area Context................. ............. ..... ............ .................. ...... 4
3.0 CURRENT PLANNING AND URBAN DESIGN FRAMEWORK............................. 5
3.1 Provincial Policy and Initiatives ........................................................ 5
3.2 Regional Policies......................... ........... ............... ....................... 5
3.3 Clarington Official Plan Policies ........................................................ 6
3.4 Central Area Policies ..................................................................... 6
3.5 Current BWMCA Secondary Plan Policies ............................................. 6
3.6 BWMCA Urban Design Guidelines....................................................... 7
3.7 Current Transportation and Servicing Framework.................................. 8
4.0 COMMERCIAL POLICY REVIEW REPORT AND RECOMMENDATIONS ................. 9
5.0 URBAN DESIGN PRINCIPLES AND POLICIES ...........................................12
5.1 Urban Design Principles........ ..................... .... ............ ..... ...............12
5.2 Detailed Site Design Criteria........................................................... 13
5.2.1 Street and Movement Network.................................................... 13
5.2.2 Building Orientation and Site Layout.............................................14
5.2.3 Surface Parking Areas ..............................................................15
5,2.4 Landscape Buffers...............,..........,..,................., ........,..., ...... 15
5.2.5 Pedestrian Access..,..,..,.., ........... ...........,... ........ ......., ....... ,..... 16
5.2,6 Pedestrian Entrances ............................................................... 16
5,2.7 Parking Area Landscaping........................................................., 17
5,2.8 Amenity Areas .......... ......... ..... ......... .............. ......... ......, ......., 17
5.2.9 Service Areas .......................................................................17
5.2.10 Transit Facilities ................ .................... ...... ................... ....... 18
5,2.11 Signage ......... ............ ..... .......... ...... ............. ..... .... ......... ...... 18
5.3 BUILDING DESIGN POLICiES..... ......... ....................................... ........ 19
5.3.1 Building Materials and the Location of Buildings on a Property............... 19
5.4 DRIVE THROUGH FACiLITIES............................................................ 19
5.4.1 Design Policies........,..,....,................................,..................... 19
5.4.2 Stacking Lane Policies .............................................................. 20
6.0 PUBLIC INPUT AND COMMENTS ........................................................ 21
7.0 TRANSPORTATION ANALYSIS ........................................................... 22
8.0 POLICY DIRECTION................................................................. ......24
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8.1 BWTC - Current Commercial Policy Evaluation ..................................... 24
Exhibit 1 - Required Transportation Network
Appendix A - Public Submissions Received
Schedule A - Demonstration Plan
Schedule B - Illustrated Urban Design Policies
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EXECUTIVE SUMMARY
i. The conclusions of the Commercial Policy Review Study (CPR) lead to an
expansion of the land area in the Bowmanville West Main Central Area
(BWMCA), new floor space limits based on population growth, revised
transportation facility requirements and more detailed urban design
guidelines. The BWMCA would be renamed as the Bowmanville West Town
Centre (BWTC). The policies of the Secondary Plan will require that all three of
the market/land use, transportation and urban design objectives be fully met
before development may occur, within the existing Secondary Plan area or in
the expanded area.
ii. The conclusions of the CPR support the redesignation of the lands immediately
to the west of the existing BWMCA for inclusion as part of the Central Area.
Given the market support and provided the urban design and transportation
goals can be achieved, these lands represent the most appropriate location for
new commercial uses.
iii. Achievement of the Municipality's urban design vision for BWMCA is of the
highest priority, In order to ensure the area is appropriately developed it is
recommended that the existing Secondary Plan and Urban Design policies be
amended to incorporate the following:
. Urban Design Principles - broad statements of the intent and key
aspects of design.
. Detailed Site Design Criteria . policies related to a variety of site
development issues including parking, buffering, landscaping,
pedestrian access, service areas and signage.
. Building Design Policies- policies dealing with elements of building form
and design.
. A Demonstration Plan showing the application of the principles, criteria
and policies, This plan would be exemplary rather than regulatory,
iv. As retail commercial growth occurs it will be critical to ensure that
transportation network capacity can accommodate new growth in an efficient
manner,
v. Within the Bowmanvilte V/est Tov.;n Centre, the transportation infrastructure
required to support continued growth includes intersection improvements
along Highway 2, including signalization at Boswell Drive and Green Road, and
the completion of various links that form a grid road network. The internal
roads that are currently planned to complete the grid include the extensions of
Uptown Avenue, Clarington Boulevard, Prince William Boulevard, and Boswell
Drive, and the construction of Brookhill Boulevard.
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vi. The development of the grid road system is critical to maintaining the
established vision and function of Highway 2 as a "main street" through the
BWMCA. The minor roads making up the grid allow for flexibility in access and
internal traffic circulation, and alternative routing for local trips. When fully
developed, the grid system will facilitate a reduction in traffic demand along
Highway 2, and specifically a potential reduction in the turning movements at
the signalized intersections,
vii. The strategic review of transportation requirements considered the residential
areas to the north and south of the Bowmanville West Town Centre, and the
need to provide alternative routes to complement the major arterial roads.
The north-south grid road links extend from the West Bowmanville area into
the northerly areas and intersect with the proposed Brookhill Boulevard and
the planned extension of Longworth Avenue.
viii, The strategic transportation review also considered linkages between the
commercial and residential areas, future transit service and routing,
emergency access, school transportation requirements, and the desired
flexibility in route choice for commercial and residential traffic. Addressing
those transportation requirements in a system context has confirmed and
defined the role and function of Highway 2 as a "main street" according to the
vision established by the Official Plan.
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1.0 STUDY PURPOSE
In order to address changes in the planning context since the Secondary Plan for the
Bowmanville West Main Central Area (BWMCA) was developed in the early 1990's, and
to respond to a number of planning applications the Council of the Municipality of
Clarington approved the review of the BWMCA Secondary Plan in conjunction with an
overall commercial policy review in May 2004. The Commercial Policy Review (CPR)
has now been completed. This report responds, in part, to the recommendations of
the CPR and provides a discussion and analysis responding to the terms of reference
for the BWMCA Secondary Plan study which included the following issues:
.
how best to accommodate additional commercial floors pace in the BWMCA;
whether an expansion to the area is appropriate;
what form of commercial development should be considered;
how appropriate are the current land use policies in the BWMCA Secondary Plan
and what changes are required; .
how appropriate are the urban design policies and what changes are required;
what are the transportation related implications for changes to the land uses
and/or urban design guidelines;
what transportation and infrastructure improvements are required and how
should they be phased; and,
how can the BWMCA be integrated with the surrounding residential areas and
the Bowmanville East Main Central Area.
.
.
.
.
.
.
.
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2.0 BACKGROUND AND CONTEXT
The BWMCA is located on the western side of the Bowmanville Urban Area and is
intended to serve both local and regional needs, The current BWMCA Secondary Plan
was approved following a lengthy Ontario Municipal Board Hearing. The current
BWMCA Secondary Plan area contains approximately 55 hectares of land and is
bounded by Green Road to the West, Brookhill Tributary (a tributary of the
Bowmanville Creek) to the north and east and the rail tracks to the south. Highway 2
traverses the Secondary Plan area and provides a major intersection with Regional
Road 57 in the Plan area.
2.1 HISTORICAL DEVELOPMENT AND PAST STUDIES
The current structure of the BWMCA is a result of a series of development
applications, studies and Board hearings which led to the approval of the current
BWMCA Secondary Plan. In 1992 a series of commercial applications, led by
Markborough Properties, were made in the BWMCA. At the time a comprehensive study
of the entire Bowmanville area was undertaken which looked at both the east and
west areas of Bowmanville. A retail market impact study was also completed. The
purpose of the study was to find mechanisms and formulate policies which would
accommodate a wide range of land uses, ensure the viability of the East Main Central
Area and establish urban design guidelines for the new Bowmanville West Main Central
Area.
The Study examined various scenarios for the development of Bowmanville. One
option was to allow all of the proposed applications to proceed. This option was seen,
however, as having serious implications for the historic downtown in east
Bowmanville, A second option was to provide a tri-nodal model which envisioned three
activity nodes of retailing of equal intensity through the Bowmanville corridor: the
West Main Central Area, the Historic Core and the Bowmanville Mall Area. A third
option focused on strengthening the historic downtown and providing a secondary role
for the west area,
Council concluded, as a result of the Study, that the Bowmanville Main Central Area
should be recognized as a regional centre. The proposed new retail development in
the west should be phased based on population growth and the development should
occur within the structure of a grid road system. The area was to be developed with a
retail focus around Clarington Boulevard, a north-south commercial street for
pedestrian-oriented retail uses. The urban design guidelines aimed at creating a
strong streetscape to allow the West Main Central Area to develop more of an urban
quality as development occurred over time.
A number of commercial proponents and existing businesses, including the
Bowmanville BIA and the Bowmanville Mall were opposed to the allocation of
development rights proposed by the Municipality or had related appeals associated
with their official plan, zoning and site plan applications, An Ontario Municipal Board
(OMB) hearing was held to consider several issues including:
Bowmanvitle West Ma;n Central Area
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the appropriateness of extending the Bowmanville Main Central Area westerly;
the appropriate amount of retail, commercial and accessory uses which would
accompany any extension of the area;
the placement of floorspace within the extended area; and,
the likely impacts on the downtown.
.
.
.
The OMB noted in its decision that two different but related issues needed to be
addressed with the development of the Bowmanville Main Central Area: the impact on
the downtown, and, if extended, what form would the extension take? The OMB
concluded that the west was not an extension of the east and that the two areas
should remain as separate areas but should be complementary, The OMB
recommended thresholds for commercial development and new land use designations.
They also noted that the grid road system was an extremely important element of the
BWMCA urban structure. Official Plan Amendment No, 56 to the Official Plan of the
former Town of Newcastle was approved and currently provides the Secondary Plan for
the BWMCA,
Since the hearing there have been changes to the original plans for the west
Bowmanville area including a revised park configuration and road alignment and the
addition of a Highway Commercial area to the west of the BWMCA in 1996. In 1999, in
response to applications, an urban design and transportation study for the BWMCA was
completed leading to a document entitled "A Framework for Development: Urban
Design Principles and Guidelines for the BWMCA and West Bowmanville Gateway", The
study provided a framework to ensure consistency in built form, massing, streetscape
and landscape features, and the implementation of the grid road system in the
BWMCA. It also led to the redesignation of lands now owned by Halloway Holdings
from Medium Density and High Density Residential to Retail Commercial.
2.2 CURRENT APPLICATIONS
There are four current applications for retail commercial development in the BWMCA
and on the Special Policy Area "H" site to the west, They are summarized as follows:
. West Diamond Et Players site - Relocated Loblaws supermarket from Clarington
Centre and proposed Wal-Mart department store and ancillary retail and
service uses (Phase 1 only). A Phase 2 expansion of Loblaws (21,300 square
feet) and the Wal-Mart (40,000 square feet) was also proposed but has since
been revised to be included in Phase 1.
. Loblaws ore-tenanting of former Loblaws space in Clarington Centre if Loblaws
relocates through revisions to the zoning to delete the requirement for a Food
Store in Clarington Centre.
. Loblaws - expansion of the Loblaws Store in Clarington Centre to add 37,700
squaie feet
. Halloway Holdings Limited - Proposed Home Depot store, large format retail
and ancillary retail space.
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2.3 STUDY AREA CONTEXT
Clarington has identified the BWMCA as a focal point of activity, interest and identity
for residents. The area is bisected by King Street West, part of the Durham Highway
No.2 Corridor, which traverses the municipality from Courtice to Newcastle, The
BWMCA is bounded on three sides by proposed and eXisting residential neighborhoods -
the proposed Brookhill neighbourhood to the north, the existing Westvale
neighbourhood to the south and the Darlington Green neighbourhood to the west. The
lands to the east are largely vacant and the Bowmanville Creek provides a separation
between the BWMCA and the historic downtown in east Bowmanville.
The core area of retail commercial uses in BWMCA is on both sides of Highway 2,
around the intersection with Clarington Boulevard. It includes restaurants, a movie
theatre complex, a Loblaws, Zellers, Canadian Tire and numerous retail stores located
in a plaza known as Clarington Centre. The existing floor space totals approximately
23,000 square metres. The Garnet B. Rickard Recreation Complex is located at the
northwest corner of Highway 2 and Regional Road 57 adjacent to the Durham Regional
Police detachment to the north. The Clarington Fire and Emergency Services
Department Headquarters is located just west of the Recreational Complex. The area
northwest of the movie theatre complex on Clarington Boulevard is being developed
for a new high school.
On the northeast corner of Regional Road 57 and Highway 2 is the Liberty Pentecostal
Church. The Church of Jesus Christ of the Latter Day Saints is located on the south side
of Highway 2 just west of Regional Road 57. There is also a proposed area for a new
GO Transit station just south of the existing Canadian Tire store. The future GO
station site extends south of the St, Lawrence and Hudson Railway into the Westvale
neighbourhood.
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3.0 CURRENT PLANNING AND URBAN DESIGN FRAMEWORK
3.1 PROVINCIAL POLICY AND INITIATIVES
The BWMCA is part of the Bowmanville urban area and will be developed on full
municipal services. The new Provincial Golden Horseshoe Greenbelt Strategy does not
have a direct impact on any of the lands within the BWMCA study area or surrounding
area.
The new Provincial Policy Statement (March 1, 2005) continues to emphasize the need
to direct growth to settlement areas according to Smart Growth principles of
intensification, redevelopment and compact urban form. There is a renewed emphasis
on intensification with the direction to municipalities to establish minimum targets for
intensification in built up areas. Given the current level of development in the
BWMCA, there will be opportunities for intensification both in the short and long term.
The new Provincial Policy Statement also stresses the importance of long-term
economic prosperity by maintaining and, where possible, enhancing the vitality and
viability of downtowns and mainstreets. This is an important objective to consider in
the overall direction of the BWMCA Secondary Plan given its proximity and connection
with the Bowmanville East area and the historic downtown.
Lastly, the new Provincial Policy stresses energy efficiency and air quality through land
use and development patterns which promote compact form and a structure of nodes
and corridors, use of transit, improving the mix of employment and housing and the
design and orientation of buildings which maximize the use of alternative or
renewable energy such as solar and wind. This is an important new consideration in
the development of the West Town Centre, in particular recognizing Clarington's new
economic development initiatives in the energy field.
The Province's Places to Grow legislation recognizes areas within the Municipality of
Clarington as designated growth areas, It will be important to recognize the objectives
for development of these areas as part of the BWMCA Secondary Plan process, The
draft Places to Grow Concept also shows "higher order transit", GO Rail reaching the
BWMCA, as anticipated by the Municipality's Official Plan,
3.2 REGIONAL POLICIES
The Region of Durham Official Plan recognizes Bowmanville and Newcastle Village as
urban areas which provide the eastern anchor for the Region. Highway 2 is also clearly
noted as the corridor linking the urban areas, The BWMCA is recognized as a Main
Central Area in the Regional Official Plan. The Main Central Area policies of the
Regional Official Plan describe Central Areas as the focal points of activity. They are
to be developed with a high concentration of activities at the highest densities, They
are to integrate shopping, housing, employment, recreation, social and cultural uses.
The principles of development are to include the provision of a focal point of culture,
art, entertainment and public facilities, a mix of uses and a grid road system, direct
street pedestrian access and prime consideration for urban design.
BowmanvWe West Main Central Area
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The current Regional Official Plan provides for a maximum combined gross leasable
floor space for the Bowmanville Main Central Areas (East and West) of 200,000 square
metres. The Region is also in the process of completing a Durham Arterial Road
Corridor Design Guidelines Study. A Phase 1 report dealing with the road classification
is nearing completion as are the draft guidelines which will be circulated to local
Municipalities and stakeholders for comment soon. These guidelines will be important
to the role and function of Highway 2 in the BWMCA.
3.3 CLARINGTON OFFICIAL PLAN POLICIES
Clarington's Official Plan identifies Bowmanville as the predominant urban centre and
eastern anchor of the Region. The Plan requires that development should be phased to
ensure sustainable growth. Both East and West Bowmanville are recognized as Main
Central Areas in the Clarington Official Plan,
Clarington is currently completing a Growth Management Study and addressing the
implications of the Province's Greenbelt Plan and Growth Plan. Both of these matters
may impact the degree of future development in the BWMCA and should be carefully
monitored.
3.4 CENTRAL AREA POLICIES
The Main Central Areas are to provide a full array of retail and personal service,
office, residential, cultural, community, recreational and institutional uses, They are
to provide a focal point for activities and 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. The Plan objectives for the Main Central
Areas include;
. 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 people-oriented places;
. The preservation and enhancement of historic downtowns; and,
. The discouragement of strip mall expansions.
The current maximum gross leasable area provided for in the BWMCA is 40,000 square
metres.
3.5 CURRENT BWMCA SECONDARY PLAN POLICIES
The current BWMCA Secondary Plan provides two commercial land use designations;
Retaii Commercial and Of/ice Commercial. Retail development is controlled by an
initial allocation of development rights to three sites within the BWMCA. Population
thresholds control the subsequent release of additional floorspace through rezoning.
The Plan provides a mechanism to exceed the established thresholds through a retail
market impact study.
BowmanvUle West Main Central Area
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The southwest and southeast corners of Highway 2 and Regional Road 57 are
designated as Office Commercial and are currently vacant. There is also a block of
land to be developed with a neighbourhood park and high density residential uses. The
lands south of Prince William Boulevard, north of the CPR tracks are to be
predominantly residential with the new GO station. At present a seniors retirement
home and a seniors condominium apartment are under construction in this area.
The lands north of the unopened concession road allowance between Clarington
Boulevard and Green Road are designated as a Special Policy Area and are being
developed for a new high school. The purpose of the Special Policy Area designation
was to provide flexibility in siting the high school.
Just west of the BWMCA there is also a Special Policy Area H - West Bowmanville
Gateway recognized in the Official Plan, This policy area restricts service stations and
motor vehicle service establishments and requires the owner to convey a 0.5 ha site
for a public use facility. The conveyance was proposed by one of the partners in the
West Diamond/Players site in consideration of their request for a Highway Commercial
designation and accepted by Council. Specific urban design guidelines are also to be
prepared and approved for this area. (this was completed through the Framework for
Development document referenced above).
The current housing targets for the BWMCA are for a total of 1,750 units - 250 medium
density and 1,500 high density. Since this was a greenfield development with medium
to high density housing designations, there are no units allotted for intensification,
3.6 BWMCA URBAN DESIGN GUIDELINES
The Urban Design Guidelines found in the current BWMCA Secondary Plan consist of
the policies in Section 13 of the Secondary Plan and the actual guidelines contained in
Framework for Development: Urban Design Principles and Guidelines for Bowmanville
West Main Central Area and West Bowmanville Gateway, The policies of the
Secondary Plan consist of relatively general principles dealing with a variety of issues
i ncludi ng:
. Creating a character reflective of the primary role of the area - providing a
commercial, residential and community focus for the BWMCA through a variety
of landscaping and architectural features and treatments;
. Fostering pedestrian accessibility among all parts {)f the area including the
existing and future adjacent residential communities;
. Ensuring an appropriate separation from the railway corridor; and,
. Facilitating the implementation of transit and acceSSibility to the proposed GO
station from all parts of the community.
It is noted in Section 13,2.2 of the Secondary Plan that "the Urban Design Guidelines
may be reviewed from time to time and revised without amendment to this Plan,
provided they conform to this Secondary Plan". The Guidelines detail the urban
design goals and objectives and describe the major urban design elements both in text
and plan form,
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3.7 CURRENT TRANSPORTATION AND SERVICING FRAMEWORK
The current transportation framework for the BWMCA is based on a significant amount
of background research and study, Council has established a clear direction for the
transportation network in the BWMCA to achieve a safe and efficient traffic network
and to facilitate public transit and to improve pedestrian and bicycle accessibility,
The main transportation network currently proposed for the BWMCA is based on King
Street/Durham Highway 2 (hereafter referred to Highway 2), Regional Road 57 and
Green Road serving as designated arterial roads. These roads are then served by a
system of collector roads and local streets in a grid road pattern with blocks to provide
access throughout the area ensuring efficient linkage with the proposed GO transit
station.
The transportation network for the BWMCA should ensure clear pedestrian linkages
within the area and to and from the adjacent residential neighbourhoods. Parking
areas are to be generally located at the side and rear of buildings and are to be
screened, It is a key objective of the Municipality to ensure that Highway 2 can
maintain and enhance its function as a "main street" though Town and Village Centres
and still provide an effective means of transport across the municipality.
Bowmanville West Ma;n Central Area
Secondary Plan Review
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4.0 COMMERCIAL POLICY REVIEW REPORT AND RECOMMENDATIONS
The CPR looked at the historic development of Clarington's commercial areas and the
current commercial structure. The review also addressed the current planning
framework, various approaches to commercial planning, market need, transportation
issues and urban design principles, The key findings from the CPR to be implemented
in the Secondary Plan are as follows:
1. The analyses of market opportunity conclude that by 2010 additional retail
space (excluding service space) in the 850,000 to 875,000 square foot range can
be built in Clarington without causing undue impacts on the existing
commercial centres. This space estimate includes reasonable levels of sales
transfers from existing stores in Clarington of some 10%. By 2010, additional
service space warranted in Clarington would be in the 150,000 square foot
range.
2. Based on the warranted space estimates an additional estimated 92,000 to
117,000 square feet would be warranted by 2010 beyond that currently
proposed or committed (not including AYT). By 2021, over 782,000 square
feet of additional space would be warranted in Clarington over and above
proposed and committed space.
3. The Addendum Market Analysis concluded that the additional new retail space
to be added to the proposals in the BWMCA is warranted by 2010 on the
assumption that the proposed A YT site was not developed during this time
period.
4, The recommended expansion to the WBMCA will permit the first phase of the
applications on the West Diamond and Players site immediately, The second
phases would be permitted by 2010/2011 or based on the equivalent population
threshold. The permission to expand or intensity on this site should be
conditional on achieving the land use, urban design and transportation
objectives which are to be addressed through the review of the Bowmanville
West Main Central Area Secondary Plan,
5, The Halloway Holdings proposal to amend the Official Plan to permit a home
improvement centre within the current boundaries of the WBMCA should not be
approved as a home improvement facility is considered to be a quasi-industrial
use not consistent with the intent to create a pedestrian oriented commercial
centre. The proposed site is immediately adjacent to an existing high school
and occupies a key location in the BWMCA.
6. The retenanting of current Loblaws store in Clarington should be permitted and
the zoning requirement mandating a food store on this parcel should be
removed. The application to expand the Loblaws store in Clarington Centre
should be denied as the same applicant is recommended for approval in the
expanded West Town Centre,
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7. It is proposed to continue the policy relationship between the anticipated
market demand and the amount of floor space available to the consumer, The
relationship will not make a distinction as to the type of floor space (food,
department store etc.) in order to allow the market to respond to consumer
preference and in recognition that there is becoming less and less distinction
among store types in the goods that are retailed, and a municipality's ability to
control what is sold in a store.
8. Given the significant amount of space proposed to be developed or potentially
available through intensification in the BWMCA, it is recommended that, the
Secondary Plan use a population threshold to phase the development of new
commercial floor space.
9. The current permission for a food store on the lands located at the southwest
corner of the intersection of Regional Road 57 and Highway 2 was granted as
. part of the OMB hearing over a decade ago. The site, use and store specific
permission has not been taken up. Given the time period and the underlying
office commercial permissions, it is recommended that the food store
permission be removed, continuing to allow for office commercial uses that
would contribute to the employment base, customer base and mixed use
nature of the area.
10. It is a key objective of the Municipality to ensure that Highway 2 can maintain
and enhance its function as a "main street" through the Town and Village
Centres and still provide an effective means of transport across the
Municipality.
11. The development of the grid road system is critical to maintaining the
established vision and function of Highway 2 as a "main street" through the
BWMCA. The minor roads making up the grid allow for flexibility in access and
internal traffic circulation, and alternative routing for local trips. When fully
developed, the grid system will facilitate a reduction in traffic demand along
Highway 2, and specifically a potential reduction in the turning movements at
the signalized intersections.
12. In order to achieve the needed transportation infrastructure and urban design
objectives in the Bowmanville West Main Central Area, certain transportation
improvements must be constructed prior to or concurrent with development.
13, The further development of the Bowmanville West Main Central Area should be
designed in a comprehensive manner as a mixed-use Town Centre with high
quality design incorporating common features and design elements. The grid
road network will be a key element in achieving urban street blocks to
accommodate pedestrian and vehicular traffic and will create opportunities to
incorporate common design elements along the public road network.
14, Different areas within the BWMCA may receive different land use and urban
design treatments consistent with the urban design vision, the functions of
specific areas, transportation facility needs and the surrounding context, This
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Secondary Plan Review
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would allow for a distinction bett' een areas for large format stores and other
areas where street-related build in forms would be more appropriate
15, Bowmanville East and Bowmanvi le West Main Central Areas, to be renamed
Town Centres, are distinct parts of the larger Bowmanville urban area. They
currently serve, and should continue to serve, as the main focus of retail
facilities in Clarington. Bowmanville West will function as a developing centre
able to accommodate larger stores within a pedestrian-oriented grid street
system,
16, Retail and service commercial uses in the Downtown are generally small in size
and serve more specialized, markets, As such, restrictions on certain types of
specific uses and retail store size minimums or maximums may be imposed in
areas outside of downtowns in order to focus specialty retail uses and
government/office/administrative functions in the Downtowns. At grade office
uses are an example of facilities that Council may wish to direct to the more
pedestrian oriented areas in the historic downtowns.
17. Town and Village Centres, Neighbourhood Centres, Shopping Districts and
Highway Commercial Districts should have sufficient land areas designated with
boundaries provided for in the Secondary Plans to allow for additional retail
and service space development in the range of 1 million square feet of gross
leasable retail and service floor space, This growth could occur in the
designated areas and/or the expansion of the areas dependent on the
achievement of the urban structure objectives of the Municipality.
In summary the conclusions of the CPR lead to an expansion of the land area in the
BWMCA, new floor space limits based on population growth, revised transportation
facility requirements and more detailed urban design guidelines. The policies of the
Secondary Plan will require that all three of the market/land use, transportation and
urban design objectives be fully met before development may occur, within the
existing Secondary Plan area or in the expanded area.
The conclusions of the CPR support the redesignation of the lands immediately to the
west of the BWMCA for inclusion as part of the Central Area. Given the market
support and provided the urban design and transportation goals can be achieved, these
lands represent the most appropriate location for new commercial uses.
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5.0 URBAN DESIGN PRINCIPLES AND POLICIES
Achievement of the Municipality's urban design vision for the Bowmanville West Town
Centre (BWTC, formerly the Bowmanville West Main Central Area, BWMCA) is of the
highest priority. In order to ensure the area is appropriately developed it is
recommended that the existing Secondary Plan policies and Urban Design Guidelines
be amended to incorporate the following in the Secondary Plan:
. Urban Design Principles - broad statements of the intent and key aspects of
design,
. Detailed Site Design Criteria - policies related to a variety of site
development issues including parking, buffering, landscaping, pedestrian
access, service areas and signage.
. Building Design Policies- policies dealing with elements of building form and
design.
. A Demonstration Plan and Illustrated Urban Design Policies - showing the
application of the principles, criteria and policies, This plan would be
exemplary rather than regulatory.
5.1 URBAN DESIGN PRINCIPLES
Based on the urban design analyses and workshop the following principles are
recommended for inclusion in the revised Secondary Plan policies, essentially updating
and further detailing Section 13 of the Secondary Plan,
. Connective Street Network: An efficient grid street network should form
the basic organizational structure for the area. The grid street network will
define an urban block pattern, provide maximum pedestrian, bicycle
vehicular connectivity and route choices, and facilitate access to existing
and proposed transit services. The street network should form a key
component of the public realm through high quality streetscaping and
landscape treatments. Private streets must be designed according to
municipal road standards and function as an extension of the overall public
street network.
. Pedestrian Access: Pedestrian access and movement should be direct,
safe, and efficient, and supported by sidewalks situated along all roads and
drive aisles, walkways located within parking areas, and designated
crosswalks.
. Urban Street Edge: Commercial development should provide physical
definition to streets and public spaces through appropriate placement and
design of buildings, parking areas and landscaping, particularly at Highway
2, Clarington Boulevard, and Green Road.
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.
Distinct 'Sense of Place': Commercial development should create an urban
character and incorporate high quality architectural treatments and site
planning that provides visual interest at the scale of the pedestrian. High
quality development will reinforce the character and community focus of
the Bowmanville area,
.
Plan for Infill: Block patterns should be designed to ultimately
accommodate denser, mixed-use development,
.
Environmentally Sustainable: Development is designed to achieve a high
degree of environmentally sustainability.
These principles were formulated early in the CPR process, discussed at the public
workshop and revised based on comments from a variety of interests during the course
of the study. The principles and related policies should be incorporated directly into
the Secondary Plan policies rather than being considered an Appendix, The design
principles and policies should be considered by Council as one a key element in making
a decision on the outstanding applications. The policies are considered reasonable
and represent the vision for the area that has garnered substantial public support.
The policies dealing with urban design are generally categorized as Site Design Policies
and Building Design Criteria. The principles are expressed, and the policies illustrated
in Schedules A and B. Schedule A is a Demonstration Plan for the Secondary Plan area
showing one scheme that successfully implements the urban design, land use and
transportation objectives. Schedule B provides examples and precedents of the
application of the urban design policies. It is recommended that the principles,
policies and two Schedules be included directly in the Secondary Plan.
The following detailed design policies, which elaborate on the principles, should be
included in the BWTC Secondary Plan. The Municipality should implement them to the
extent possible through the exercise of its available powers of regulation and approval
of development under the Planning Act.
5.2 DETAILED SITE DESIGN CRITERIA
5.2.1 Street and Movement Network
. An open grid of public and private streets, and major private lanes will
form the basic organizational structure for the area and should define an
urban block pattern, provide maximum pedestrian, bicycle, and vehicular
connectivity and route choices, and facilitate access to existing and
proposed transit services.
. The street network will form a key component of the public realm and
should be characterized by high quality streetscaping and landscape
treatments.
. Where commercial uses front on a publiC or private streetline, sidewalks
should continue to the building face.
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.
Sidewalks in major pedestrian zones on both public and private streets
including Highway 2, Clarington Boulevard, Uptown Avenue, and Green
Road should be at least 3.0m wide.
.
Sidewalks will be provided on both sides of all public streets and a minimum
of one side of all private streets.
.
Sidewalks should promote active and safe pedestrian activity and stimulate
visual interest. All sidewalks fronting commercial uses will include in-
ground trees planted 6.0 to 9.0m on centre (minimum 70 mm caliper),
pedestrian scale lighting, and street furnishings such as garbage
receptacles, and possible outdoor merchandise displays and selling areas.
.
All sidewalks fronting other non-commercial uses should include in-ground
trees planted 6.0 to 9.0 m on centre (minimum 70 mm caliper) within the
grassed landscape boulevard, pedestrian scale lighting, and street
furnishings such as garbage receptacles.
.
The use of special paving treatment is encouraged at focal points including
building entrances, squares, and through block connections.
.
Clearly designated pedestrian crossings should be provided at the
intersection of all public and private streets and major private laneways.
Pedestrian crossings should be marked with line painting or surface material
variation and should be at least 3.0 m wide.
5.2.2 Building Orientation and Site Layout
. Buildings will be organized to define and frame abutting streets, major
private laneways, internal drive aisles, sidewalks, parking and amenity
spaces.
. The large format "super block" will be broken into functionally and visually
smaller units by major private laneways and internal drive aisles, a network
of connected walkways, and landscaping.
. Building setbacks shall be reduced to minimize distances between building
entrances and abutting public street sidewalks; to establish a consistent
built form edge; and to allow for the development of a significant
streetscape contributing to the identity and amenity of the area, Maximum
building setbacks from the property line on public streets are as follows:
Highway 2:
Clarington Boulevard:
Uptown Avenue:
3.0 m
2.0 m
2.0m
(JME RIDJAH
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. Definition of the street edge is apriority. At least 60% of the total street
frontage shall be occupied by buildings on Highway 2, Clarington Boulevard,
and Green Road. The zoning by-law will establish mandatory limits for
total street frontage of buildings.
5.2.3 Surface Parking Areas
. Internal vehicular routes will be clearly defined by raised and curbed
landscape islands planted with trees and low level vegetation. Internal
drive aisles will be a minimum 6.0 m in width.
. Parallel parking spaces should be provided on private roads at store fronts
with appropriate bump-outs at periodic intervals where high pedestrian
activity is anticipated.
. Parking aisles should not exceed 30 contiguous spaces in length and should
have a consistent design angle perpendicular to primary building entrances.
. A landscaping island should be provided at the mid point of the parking
aisle, and/or every 15 parking bays (whichever provides a greater number
of islands). The landscaping island should be a minimum width of 2.5 m
and include a minimum of one tree (minimum 70 mm caliper) per parking
row.
. Surface parking areas may be lowered by 0.5 m from the adjacent street
grade to reduce visual prominence.
. Appropriate lighting levels and consistency of coverage will be provided in
parking areas to assist both pedestrian and vehicular circulation, The
height and intensity of light standards should be sensitive to adjacent land
uses minimizing light spillover, glare and impact on night skies, Full cut-off
fixtures are to be used.
. Designated handicapped and mobility impaired parking spaces should be
located as close as possible to building entrances and be clearly identified
by signs or markings.
5.2.4 Landscape Buffers
. High quality landscaping treatments will be used to define site boundaries,
provide buffers between adjoining developments, and screen storage and
utility areas,
. Landscaped areas adjacent to the streetline will be a minimum of 3.0 m
wide adjacent to parking areas.
. Trees at the perimeter of parking areas will be planted every 6.0 to 9.0 m
on centre (minimum 70 mm caliper),
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. To ensure opportunities for surveillance from adjacent areas, perimeter
hedge and shrub screening should not exceed 1.0 m in height.
. Selection of plant material should consider the following:
. Year-round appearance;
. Seasonal variety;
. Hardiness and resistance to disease;
. Maintenance requirements;
. Tolerance of plant materials to salt; and,
. Urban conditions.
5.2.5 Pedestrian Access
. Pedestrian walkways shall be contiguous to major private laneways and
opposite primary building entrances to enable safe and direct pedestrian
movements.
. An internal pedestrian walkway network will visually and functionally
define smaller parking "courts",
. Walkways should be a minimum of 1.5 m wide, with a landscaping zone on
one side that is 2,0 m in width.
. Walkways will include pedestrian-scaled amenities wherever possible, such
as benches, trash receptacles and lighting,
. Drive aisle crosswalks should be signed and constructed of materials that
are different to the drive aisle, such as interlocking brick paving.
5.2.6 Pedestrian Entrances
. Main entrances to buildings shall be emphasized through canopies, awnings,
towers or similar taller, non-habitable building structures, The volume and
height of such structures emphasize the prominence of entrances
particularly at a corner location,
. Each store, commercial unit, or building will generally provide an entrance
facing the adjacent street.
. Building entrances shall be identifiable and accessible to the disabled, High
quality streetscape and landscaping treatment is encouraged at all building
entrances.
. Windows should be coordinated with the location of pedestrian walkways to
provide interest and improve security along these routes.
. Pedestrian access from adjacent neighbourhoods should be provided by
walkways where insufficient access is available from street sidewalks.
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5.2.7 Parking Area Landscaping
.
Internal landscaping elements will define visually and functionally smaller
parking "courts" and reduce the overall impact of surface parking areas and
heat island effects.
.
A landscaped island should be located at each end of every parking aisle
and will be located at the end of every aisle greater than 20 spaces in
length, Landscaped islands should be a minimum width of 2.5 m wide and
include one tree, minimum 70 m calliper, per parking row.
.
Planting beds and landscaped islands should include a 4-inch curb to
prevent damage caused by vehicular movements and snow clearing.
.
Where possible, internal landscaping should incorporate existing vegetation
and significant tree planting.
5.2.8 Amenity Areas
. Amenities may include terraces, parkettes or squares, water features,
public art, outdoor dining areas and transit shelters,
. Customer and visitor amenities should be located in close proximity to
building entrances.
. Amenities are particularly important in the Street-Related Commercial
Areas,
. Bicycle parking facilities shall be provided to encourage alternative modes
of transport, particularly for employees and consumers with small
purchases.
. Amenity areas shall be located within landscaped areas, pedestrian spaces,
and provide seating,
5.2.9 Service Areas
. Service areas will not be visible from public roads, major pedestrian or
residential areas, It is preferable to locate service areas off side streets or
service driveways.
. Service areas should be an integral part of the building and/or site design
and not separate stand-alone structures. Storage of goods or garbage will
be internal to the main buildings, wherever feasible, Alternatively,
garbage will be stored in a building of similar architectural character to the
principal building with a full roof and steel doors.
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. Service areas for delivery, loading and garbage pick-up will be coordinated
to reduce vehicular interruptions along the public street and within parking
areas.
. Screening will use building materials and/or landscape treatments similar
to those used for the principal buildings.
. Where solid screens are provided, the materials should be similar to or
compatible with those of the building's exterior finishes,
5.2.10 Transit Facilities
. Building entrances and bus stops should be arranged to provide convenient
access to the buildings by public transit passengers.
. On sites adjacent to or near a bus stop, conveniently located walkways will
be provided to cross and connect individual sites is encouraged in order to
provide pedestrians the most efficient route to and from transit stops.
5.2.11 Signage
. Pylon signs for private development should be oriented to address the
street frontage, street intersections and primary access driveways. Pylon
signs should be compatible with the associated building design in scale,
material and colour, and should be set within a landscaped setting.
. Building identification signs should be incorporated on the front fa~ade,
and should be compatible with the building design in scale, material and
colour.
. Externally lit signs are encouraged, particularly those that face the public
street or parallel a pedestrian walkway.
. Building identification signs should be applied as large scale building
elements, including awnings and banner signs to contribute to an artful and
dynamic building presence that will be attractive and visible to passing
pedestrians and motorists.
. Directional signs should be provided for pedestrian walkways, parking and
service areas. The graphic quality of directional signs should be clear and
distinct and be coordinated with the image of the development.
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5.3 BUILDING DESIGN POLICIES
5.3.1 Building Materials and the Location of Buildings on a Property
. Blank or single material facades that extend the entire length of the
building parallel to the public street will incorporate additional
architectural detailing and, where appropriate, signs, murals, sculptural or
graphic design.
. Facades longer than 25 metres shall be subdivided through a combination of
windows and projections and recessions in the building wall to create a
consistent rhythm across the fa<;:ade and establish divisions that express a
hierarchy of entrances and identify individual businesses, where applicable.
. At least 60% glazing shall be provided on the at-grade primary building
facades and areas that have public activity, Glazing should be actively
used to proVide storefront windows or merchandise displays.
. Corner buildings at the intersections of Highway 2 with Regional Road 57,
Clarington Boulevard, Green Road and Boswell Drive, or at gateway
locations shall include articulated building elements in the form of towers,
bays or other details that emphasize the focal nature of these buildings and
wall projections, recessions, materials and other details that enhance the
Visibility of these locations.
. Building materials recommended for new construction include brick, stone
and wood frame. Materials such as aluminium, steel and metal panels may
be used provided they are used within an appropriate context.
. Rooftop mechanical equipment and fume extractor vents should be
integrated with the building design and rooftop units and vents will be
screened using materials complementary to the building. Where
appropriate, parapets should be used to screen rooftop mechanical units.
5.4 DRIVE THROUGH FACILITIES
5.4.1 Design Policies
. Any drive-through facility must be located on a lot greater than 3,000 sq.
m.
. All buildings containing drive-through facilities shall be oriented to the
primary street frontage with a setback not to exceed 3.0 m. No portion of
the stacking lane and no parking spaces or drive aisle shall be located
within the setback area.
. Drive-through facilities, including the stacking lane, order board, loud
speaker, pick up window, or banking machine, shall not be located within
12 m of properties zoned for or containing residential uses,
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. Speakers and order-boards associated with a drive-through facility shall be
oriented away from a residential use and their sound levels should be
minimum so as not to create sound disturbance. Screening from headlights
must be provided,
. Drive-through facilities located adjacent to properties zoned to permit
residential uses shall construct opaque fencing at least 1.8 m in height,
between the uses,
. Landscape buffers adjacent to a property zoned to permit residential uses
should be a minimum of 2.0 m wide and include ample coniferous trees
(minimum of 2,4 m height), and deciduous trees (minimum 70 mm calliper).
5.4.2 Stacking Lane Policies
. A 1,5 m wide direct pedestrian walkway to the building entrance, which
does not intersect with or cross the stacking lane, shall be provided and
maintained on the lot from the primary street frontage.
. Stacking lanes shall have a minimum width of 3.0 m.
. For a restaurant with a drive-through facility a stacking lane length of a
minimum 12 vehicle queuing spaces (one vehicle queuing space is defined
as 6,0 m in length) shall be provided; At least 4 queue spaces shall be
located between the pick-up window and the order board station.
. For all other drive-through facilities a stacking lane length of a minimum 4
vehicle queuing spaces (one vehicle queuing space is defined as 6,0 m
length) shall be provided.
. The entrance to a required stacking lane may not be located within 18 m of
a site access to a public street.
. The required stacking lane must not interfere with or block access to
required parking spaces,
. A required stacking lane should not be crossed or bisected by a driveway, or
access to a loading space access or service area,
. The full length of the stacking lane must be demarcated by concrete curbs,
and the use of soft and hard landscape features.
. Stacking lanes should be linear and straight, with a minimum number of
curves or turning movements and should not interfere with traific on public
streets.
. Double drive-through facilities on a site should be avoided. Where a double
drive-through condition cannot be avoided the landscaping and decorative
pavement shall be increased on-site
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6.0 PUBLIC INPUT AND COMMENTS
A session with the Community Stakeholder Advisory Group was held in mid January
2005 to obtain comments and further input into the recommendations contained in the
draft report. An open house was also held to present the report findings and
recommendations and obtain input from the general public. The public who attended
the sessions raised concerns about the amount of growth proposed for the
Municipality. Many wanted to ensure that the impacts of new commercial growth
were minimized and that the growth was phased and carefully designed. Most felt
that new commercial growth should be focused and not dispersed. There was a
general desire that the character of new retail development should reflect the form
and character of Bowmanville rather than give the appearance of typical commercial
uses and areas.
A workshop was held with approximately 75 participants on April 20, 2005, This well
attended session began with a description of the options, had those in attendance
group themselves into four table and undertook a relatively unstructured discussion on
the merits of each option, It was an animated and lively discussion, There was a
general agreement on the need for urban design guidelines with some difference of
opinion between general members of the public and representatives of the
development interests and retailers on the most appropriate option and the nature of
the urban design guidelines,
Written submissions were also received from a variety of corporate and private
interests commenting on the process, the options presented at the workshop and the
variety of reports released during the study period. Many of these comments were
directed to the CPR and are summarized in an appendix to that report. Several
specific written submissions were received on Secondary Plan issues and these can be
found in an Appendix 1.
Based on our analyses, the public input and the context, the Study Team has
concluded that it would not be appropriate to develop any part of the BWTC in a
typical big-box format with large unbroken parking areas, uninterrupted walls of single
colours or material and few pedestrian amenities. While the nature of the retailing
inside the buildings may have a typical big-box format, for these uses to be permitted
in the BWTC there will have to be some significant enhancements and changes to the
standard look and design, Without these changes, and without the urban design
objectives being met, the Municipality will not be able to achieve the current Official
Plan policies which see a pedestrian-oriented Town Centre as an attractive and
inviting activity centre.
This approach is clearly supported by those residents of Clarington in attendance at
the workshop and is consistent with current Official Plan policy and the
recommendations of the transportation and urban design components of the Secondary
Plan review. .
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7.0 TRANSPORTATION ANALYSIS
The CPR has established that significant additional retail development can be
accommodated in Clarington. As retail commercial growth occurs it will be critical to
ensure that transportation network capacity can accommodate new growth in an
efficient manner. This approach will require phasing given the likely time period for
development.
Within the BWTC, the transportation infrastructure required to support continued
growth includes intersection improvements along Highway 2, including signalization at
Boswell Drive and Green Road, and the completion of various links that form a grid
road network, The internal roads that are currently planned to complete the grid
include the extensions of Uptown Avenue, Clarington Boulevard, Prince William
Boulevard, and Boswell Drive, and the construction of Brookhill Boulevard. This has
been reviewed further in the Secondary Plan update.
The development of the grid road system is critical to maintaining the established
vision and function of Highway 2 as a "main street" through the West Bowmanville
Main Central Area, The minor roads making up the grid allow for flexibility in access
and internal traffic circulation, and alternative routing for local trips. The completed
grid system in each of the growth areas will assist in keeping future traffic demands
along Highway 2 within capacity, partly by facilitating a reduction in the turning
movements at the signalized intersections,
It is expected that the grid will allow Highway 2 to continue to function as a four lane
facility with conventional intersection lane arrangements, and provide for both
commuter traffic and turning movement traffic generated by the existing and future
BWTC developments. Without the grid system, it is anticipated that Highway 2 would
eventually require a general widening to six basic lanes, and signalized intersections
would eventually require dual turn lanes to accommodate the traffic demand
associated with the proposed development levels. The latter type of improvements
would be contrary to the "main street" vision, and would not be consistent with the
urban design features currently in place and those proposed.
The phasing and implementation of future transportation improvements in the BWTC
was addressed in a strategic transportation review. The strategic review was based
on information contained in the TSH study, "Urban Design Plan for the West
Bowmanville Gateway, Traffic Component, Draft Report, December 18, 1998", traffic
impact studies undertaken by others in 2004 on behalf of West Diamond Properties
Inc./Players Business Park Ltd. and Valiant Property Management, and discussions with
the Municipality and project team regarding local area development,
The strategic review of transportation requirements considered the residential areas
to the north and south of the West Bowmanville Main Central Area, and the need to
provide alternative routes to complement the major arterial roads. The north-south
grid road links extend from the West Bowmanville area into the northerly areas and
intersect with the proposed Brookhill Boulevard and the planned extension of
Longworth Avenue. Longworth Avenue is significant in that it is an east.west minor
arterial in the Bowmanville road network, and its extension from Scugog Street
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westerly to Green Road is expected to provide relief to the Highway 2 corridor, The
extension of Green Road southerly to Baseline Road will provide an important
connection to the adjacent residential development, as well as providing an
alternative to Martin Road.
The strategic transportation review also considered linkages between the commercial
and residential areas, future transit service and routing, emergency access, school
transportation requirements, and the desired flexibility in route choice for commercial
and residential traffic. Addressing those transportation requirements in a system
context, has confirmed and defined the role and function of Highway 2 as a "main
street" according to the vision established by the Official Plan. Exhibit 1 provides a
description of the proposed road network,
Key elements of the street network that will be required as a precondition to
development of certain lands include:
. For the lands on the north-west corner of Green Road and Highway 2 (West
Diamond / Players):
o The conveyance of land and the proVIsIon of securities for the
construction of Boswell Drive extension to the future Brookhill
Boulevard and for the construction of Brookhill Boulevard from Green
Road to Boswell Drive extension;
o The conveyance of land and the provision of securities for the
construction of Brookhill Boulevard or Uptown Avenue from Regional
Road 57 to Green Road; and,
o Appropriate arrangements for the construction of Uptown Avenue from
Green Road to Boswell Drive extension as a private road.
. For the lands north of Highway 2 between Green Road and Clarington Boulevard
(Halloway Holdings), the conveyance of land and the provision of securities for
the construction of Uptown Avenue between Green Road and Clarington
Boulevard.
. For the lands on the south-west corner of Regional Road 57 and Highway 2, the
conveyance of land and the provision of securities for the construction of the
extension of Prince William Drive to Regional Road 57.
. The urbanization of the existing arterial roads, intersection improvements and
signalization of intersections will also be required to be completed in
conjunction with future development approvals,
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8.0 POLICY DIRECTION
The following charts provide the detailed recommended changes to the BWMCA
Secondary Plan. The recommendations were prepared collaboratively with staff,
recognizing the various ongoing initiatives and staff experience in administering the
Plan over the past decade.
8.1 BWTC - CURRENT COMMERCIAL POLICY EVALUATION
Bowmanville West Town Centre Secondary Plan
Current Policies Discussion/Recommendation
1. Purpose No change
The Bowmanville West Town Centre will serve as a focal
point of activity, interest and identity for residents of the
Municipality,
2. Goals Add Urban design, land use,
- Creating a strong and vibrant activity centre for market and transportation
residents objectives are required to be
- Establish the physical framework through the creation considered comprehensively and
of a system of streets and public spaces for more fully met before development
intensive development through reurbanization in may occur
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 social interaction in
the West Main Central Area,
3. Objectives
3.1 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 Modify the objective of phasing
occurs growth to safeguard the
- Control retail growth beyond the initial allocation in continued viability of retail
order to safeguard the continued viability of the businesses and provide for
retail businesses and provide for on-going redevelopment in the East Town
redevelopment in the East Main Central Area Centre.
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. Provide a comprehensive range of local and district
community facilities
- Ensure development occurs in a sustainable fashion,
with emphasis on the integration of land uses,
compact urban form, and the implementation of
public transportation initiatives
3.2 Open Space/Environmental Features
- to enhance the environmental, recreational and
aesthetic quality of the West Main Central Area
through the preservation, restoration and
enhancement of existing natural elements, notably
the valley system associated with the Bowmanville
Creek
- to ensure the provision of adequate new park facilities
for area employees and residents
3,3 Transportation
to provide safe and efficient movement of people and
goods, with particular emphasis on implementing
public transportation services and facilities
to develop a pedestrian system which encourages safe
circulation and bicycle movement within the West
Main Central Area and which provides safe and
convenient movements to adjacent residential
communities, the extensive valley system and other
sectors of the Bowmanville Urban Area
3.4 Urban Design
Ensure a high quality of architecture and urban design
to create a unique sense of place which encourages
and creates the opportunity for human interaction,
pedestrian activity and facilitates high use of public
transportation.
Facilitate redevelopment at greater intensity in the
longer term
4. Land Use Policies' General
Land use designations establish a general pattern for
future development:
Maximum of 40,000 square metres of retail and personal
services floor space shall be permitted in the West Main
Central Area. This floor space shall be increased only
after a comprehensive review of the Official Plan after
2001
Retail and oersonal service floor space figures include:
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Add objective to foster the
function of Highway 2 as the main
street with a supporting network
of local and collector roads in a
grid pattern
Add objective to reinforce the
grid system of public and private
streets
Amend with the urban design
objectives listed earlier in this
report as follows:
- distinct sense of place
. connective street network
- pedestrian access
- urban street edge
- plan for infill
- environmental sustainability
Remove limit of 40,000 square
metres and replace with policy
that would prevent expansion of
the geographic boundaries of the
West Town Centre until a
comprehensive review of the
Official Plan after 2011,
25
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.
Section 4.4 definitions
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 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
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,
confectionerv~ items and sundries in a warehouse format
5. Retail Commercial
!t is intended that retail development in the West Main
Central Area be phased in so as to ensure that retail
growth complements existing businesses and potential
commercial development in the East Main Central Area.
BowmanvWe West Mo;n Central Area
Secondary Plan Review
( \
(J!1lRID1AH
Based on the direction from the
CPR - these definitions, would be
removed from the Secondary
Plan.
Add policy Based on the role and
function of the East Town Centre,
a maximum of two full-service
financial institutions should be
permitted in the West Town
Centre,
Add policy Prominent
intersections should be identified
for urban design purposes and in
relation to the service station
policies in the Official Plan.
Prominent intersections would be
Durham Highway 2 at Regional
Road 57, Clarington Boulevard and
Green Road
Replace Retail Commercial with
two separate commercial
designations - General
Commercial and Street-Related
Commercial
Add Policy Development will be
conditional on market/land use,
transportation and urban design
objectives bein2 satisfied
26
Permitted uses shall include amongst other things
Retail and personal uses including department stores,
food stores, general retail stores, convenience retail
stores, video stores, retail liquor stores, restaurants,
taverns, barber shops, beauty salons, dry cleaners, art
studios, travel agencies and financial institutions
provided that a general merchandise store, a food
retail warehouse, clothing retail warehouse and drug
retail warehouse shall not be permitted
Privately operated recreational and cultural facilities
including movie theatres, bowling alleys and other
places of entertainment; public building and
community uses, including social, recreational and
cultural facilities; day care and nursery facilities,
Business, professional and/or administrative offices so
long as they are located on the second or upper levels
above ground floor retail use provided that, on the
parcel of land bound by Highway 2, Clarington
Boulevard, Prince William Boulevard and Green Road,
up to 929 square metres may be located on the ground
floor
Modify: The uses permitted in the
General and Street-Related
Commercial Areas would vary;
larger stores permitted in General
Commercial with limited store
sizes in Retail Commercial.
Add policies:
The zoning by-law may
establish minimum and
maximum store sizes and
maximum coverages and
densities to ensure conformity
with the policies of this Plan,
Provide clarification that a
home improvement store is
not a permitted use
Provide for limitations on the
size of the footprint of large
format stores with the
objective of encouraging
compact built form and energy
efficient buildings
Drive-throughs not to be
permitted in Street-Related
Commercial Areas
There should not be a
restriction on general
merchandise stores, food
retail warehouses or drug
retail warehouses
Eliminate hotels and
convention centres as
permitted use in General and
Street-Related Commercial
Zones
Permission for business or
training school as a specific
institutional use.
The addition of business
offices on the upper floors in
the retail commercial
designation should remain to
encourage intensification.
The permission for offices of
up to 929 square metres on
the ground floor of Clarington
Centre should be deleted with
the intention to direct such
uses to the Bowmanville East
Town Centre.
Bowmanvitle West Main Central Area
Secondary Plan Review
/'\
(J MEIlli1MH
27
Residential dwelling units to a maximum of 80 units
per hectare on the net development parcel
Maximum density for Retail Commercial lands shall be
0.5 F51
Residential uses in combination with retail uses are
subject to a maximum residential density of 80 units
per hectare with a maximum combined density on the
site not exceeding 1.0 FSI
Retail Thresholds (Section 5.2.4)
Retail development should proceed in a fashion where
sufficient population exists to support the continued
viability of both the Main Central Areas and to ensure
ongoing redevelopment potential within the East Main
Central Area, new retail development in the West
Main Central Area will be linked to the growth of
population in the Municipality of Clarington.
Clarington Population
Target Retail Thresholds
(gross leaseable area in
sq,m.)
78,000
94,000
110,000
27,000
41,000
57,000
For purposes of calculating these thresholds, retail
floor space includes the following retail and personal
service uses: department stores, food stores, general
and specialty retail stores, convenience retail stores,
video stores, retail liquor stores, restaurants, taverns,
barber shops, beauty salons, dry cleaners, shoe repair,
travel agencies, and art studios,
Eliminate Residential as a
permitted use in General
Commercial
Residential densities and FSI in
the Street-Related Commercial
designation should remain at 80
units per hectare and 0.5 and 1.0
FSI respectively.
Revise the section on retail
thresholds (5,2.4) based on
market analysis and the CPR
recommendations.
80wmanvitle West Main Central Area
Secondary Plan Review
(JMERID!AM
28
A critical mass of retail and personal service
development shall t:>e established to initiate
development in the West Main Central Area as follows:
18,580 sq. m. on the parcel of land bounded by King
St., Clarington 8Ivd., 80wmanville 8lvd" and Green
Rd,
3720 sq. m. on the parcel of land adjacent to the
Garnet 8, Rickard Recreation Complex
4645 sq. m. on the parcel of land at the southwest
corner of King St. and Regional Rd, 57
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 the
following
impact of development that has occurred
changes in consumer expenditure patterns
anticipated impact on the viability of existing retail
uses
Section 5,2,5 provides policies for the development of
lands designated Retail Commercial in the West Main
Central Area which are drawn from the urban design
guidelines, -
Office Commercial
Section 6.2
The permitted uses shall be:
a) Office uses including corporate, business,
professional, administrative and government
offices.
b) Hotel and convention facilities,
c) Institutional and community uses.
d) Retail and personal services uses that are
accessory to office uses (ground floor restrictions
and size restrictions)
e) Residential dwelling units up to 150 units per
hectare
f) On lands designated Office CommerciaL at the
southwest corner of King Street and Regional Road
57 retail uses provided a number of restrictions
are in place.
Maximum density of the Office Commercial designation
shall be 1,0 FSI. In combination with residential uses the
maximum FSI shall be 1.5.
Bowmanville West Main Central Area
Secondary Plan Review
(jJ !1lRjQJ.AH
Revise an allocation of space for
the phase 1 development should
be made to each of the sites and
an appropriate fsi assigned to
each area.
Retain policy for any proposed
new space beyond those
recommended in this Study,
Amend these policies in the light
of split into two separate land use
designations and the urban design
policies and amended accordingly.
Street-Related Commercial Areas
buildings shall be located at grade
with the adjacent sidewalk to
ensure convenient pedestrian
access,
The site specific exception for the
lands at the southwest corner of
Highway 2 and Regional Road 57.
This corner will serve as a
gateway from the south and
should provide for a prominent
office use. The retail commercial
uses at this location should be
limited to the accessory uses now
permitted. Retail commercial uses
such as food stores should be
focused in the General and
Street-Related Commercial
designation areas.
29
Policies 6.23, and 6.2.4 discusses landscaping and
architectural reauirements.
Residential These density ranges generally
remain appropriate.
Section 7 provides for residential policies.
Increase the maximum height of
Medium density residential is to be 31 to 60 units per net medium density to 4 storeys,
residential hectare, Maximum height is 3 storeys.
Add a new section to distinguish
High density is to be 50 to 150 units per net residential Low Rise High Density and Mid
hectare. Maximum height is 6 storeys, Rise High Density
With the new High Density site
north of the Players/West
Diamond site, a lower high density
range would be an appropriate
transition to the neighbourhood,
Low Rise High Density would be
50-80 upa with a maximum height
of 6 storeys
Mid Rise High Density would
maintain same density as previous
but Increase the maximum height
of high density to 12 storeys,
There are to be additional policies
regarding urban design
incorporated directly into the
Plan.
Community Facilities
Section 8
Provision for a range of local and district community
facilities.
Environmental Protection Area and Parks
Section 9 Revise to provide for publicly
accessible squares in new
Policies to provide for a range of uses and restrictions in development areas in street-
environment protection areas. related commercial areas
GO Station Add reference to transit terminal
Section 10 has policies for the GO Station area.
Special Policy Area No. 1 Delete Special Study Area and
designate high school site as
Section 11 Community Facility and residual
Area to be developed for secondary school lands to the south as Street-
Related Commercial
Bowmanville West Main Central Area
Secondary Plan Review
(jJMERIDlA~
30
Storm Water Management Facilities No Changes except to update
references to Brookhill Tributary
Section 12 policies deal with the stormwater management Subwatershed Study,
reauirements for the area,
Urban Design Replace this section Incorporate
policies noted in the text.
Section 13 provides general urban design guidelines for the
area.
Energy Conservation Revise policies to include
additional energy conservation
Section 14 measures to implement the
revised Provincial Policy
Statement and support
Clarington's enerQV initiative
Transportation Amend This section will be
amended to lis t the
Section 15 transportation improvements
required as a precondition to
development.
Municipal Services Implications from the Brookhill
Subwatershed study need to be
Section 16 addressed through minor changes
to this section.
Implementation - Add policy noting that urban
design, land use, market and
Section 17 transportation objectives
should be considered
comprehensively;
- Section 17.2 Zoning needs to
be strengthened
- Provide foi noise studies for
loading and refuse pick-up
areas and drive-through
facilities
- With respect to rezoning
through a comprehensive
review by the Municipality,
lands may be rezoned in
advance of site plan
applications but subject to
holding provisions below
- Add policy regarding the use
of holding symbols to
implement the provisions of
the Official Plan and to ensure
the achievement of the
policies of the Secondary plan
linking retail space to
population growth,
achievement of urban design
policies and the provision of
infrastructure.
Bowmanville West Main Central Area
Secondary Plan Review
(IMERIDlAH
V
31
Add a policy regarding the
lifting of holding symbols
contingent on submitting
plans that show that the
proponent successfully
implements the urban design
policies, the market, land use
and transportation objectives
of the Plan with specific
reference to the required
infrastructure noted above in
Section 15;
Section 17.4 regarding Site
Plan Control needs to be
strengthened to enforce the
need to meet the urban
design policies and guidelines
rather than "regard for
them".
Bowmanville West Main Central Area
Secondary Plan Review
(J !lli\1!lIAN
32
EXHIBIT 1
PROPOSED ROAD NETWORK
Bowmanville West Main Central Area
5econdory Plan Review
I'1MERIDIAN
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APPENDIX A
PUBLIC SUBMISSIONS RECEIVED
BowmonvWe West Main Central Area
Secondary Plan Review
!'1MERIDIAN
V"-~~.O
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,
APPENDIX 'Ii
t,
6. Parking areas could be improved by breaking them up into smaller pods,
Provision should be made for handicapped parking and for parents with toddlers.
Such areas should be properly defined with appropriate screening, etc, In
addition, the stores should be closer to the street to break up the massive
appearance of so many parking areas.
7. I am looking at the whole proposal from an eastern point of view and as a long-
time Bowmanville resident. Therefore, I do not know how the area could ever be
designed to encourage pedestrian traffic from the centre core ofBowmanville,
The road from Scugog Street, under the railway overpass, crossing Highway 57
and the various turning roads, past the entrance to the recreation centre and the
fire hall can never be walking friendly. It is windy and cold, or in the summer,
very hot. The speed of the traffic, particularly as it gets close to Highway 57 and
the speed change requirement is high. This is a diffcult area for the municipality
and particularly for those walking.
8. Walking from the centre of Bowmanville is difficult. Sidewalks should be wider
and should be separated from the roadway by some form of barrier, extremely
high curbs, etc. to prevent splashing from passing and speeding vehicles,
9. Any new areas should have provision for transit infrastructure. There are
examples where many years ago, forward-thinking provisions were made to
accommodate future transportation needs. This provision applies particularly
where public access will be needed, However, the area could certainly be
reached more easily from developments to the north and to the west or perhaps
from other surrounding areas, Vehicular travel is required from other areas from
Highway 401 up Waverley Road and Highway 57, etc..
10. Any developments should consider the needs of existing nehighbourhoods and
should endeavour to provide for future needs, Absolutely loading areas, in
particular, must be screened. Vast areas of surface parking is not attractive and is
not desirable. However, with appropriate landscaping the appearance can be
improved.
Mavis Carlton
Centre St,
Bowmanville, ON
905-623-1298
0'
Ellen Cowan-Brock
69 Concession St. W.
Bowmanville, ON
LdlC IY7
April 24, 2005
To Whom it may concern:
I would like to express my opinion as to the workshop held at the Baseline Community
Centre on April 26, 2005. This workshop was regarding the Bowmanville West Main
Central Area Secondary Plan Review to study and provide a vision and a set of policies
and guidelines for future land uses including commercial development.
It was encouraging to see many in attendance, as we are very concerned as to the
direction this increase in commercial floor space will take us. Big Box is notorious for
building "ugly" formula building designs that will ignore our local historic character and
charm. This can lead to a loss of unique community character,
There was an initial introduction of Municipal staff and their associated consultants who
walked us through a variety of design concepts, objectives, and alternatives, We were to
break into workshop groups and consider all the options and submit comments.
Seats at the workshop tables were limited as was the supply of print material to follow
the presentation. Municipal staff were most accommodating and set up more seating at
the rear of the hall. Residents, one reporter from the local media, and members of the
business community took seats at the back of the room, which was acceptable for the
presentation portion of the evening.
Local residents and business people turned out in significant numbers but unfortunately
were unable to find a seat at the workshop tables. Developers (including property
owners, big box representatives, and their "paid" legal and planning consultants occupied
two of the four tables for this public discussion. It was difficult to sit on the sidelines and
watch a discussion being led by a "paid" Walmart representative who led and dominated
this public discussion to provide our vision. It was appalling indeed, and many left in
disgust that such a thing could be allowed and felt the workshop tables to be too heavily
weighted and biased in favour of developers.
One representative of the media sat at the back of the room with residents as an observer,
while others took a place at the workshop table. People felt that the developers
(including property owners, big box representatives, and their "paid" legal and planning
consultants) should have been there to observe only, but not to participate and lead
discussion at the table, They could have taken this opportunity to observe and listen to
ideas and thoughts of the people of Cia ring ton.
They should have been observers not active participants.
,
,
.
At the end of the round table discussion, a spokesperson from each table was chosen to
present the ideas of the group, There were 3 options to choose from A, B, or C.
Observers at the back of the room did not have Option A,B, or C drawings because of the
shortage of print material. It should come as no surprise that the table which was
predominately led by Wahnart representatives should choose "Option A" the Big Box
formula retail mall. Honestly, that is hardly representative of many residents feeling in
the community in which they live. And if one was to spend any time researching
Walmart communities that certainly wouldn't be the favoured option in any community.
We know what Walmart, Loblaws, and developers want. Our municipal staff knows
what they want. Look anywhere in Canada or the U.S. at any big box mall, they're all the
same. No thought or concern for our historic built environment or the retail climate we
would like to create for our community. Walmart, Loblaws and their associates have had
their time to tell us what they want, April 26, 2005 was "OUR" evening to share "OUR"
vision with municipal staff. Afterall, we live here,
There was only one interruption in the evening that wandered off the agenda, One brave
lady stood up at the table and said, "The town should be telling Walmart what we want!
Not Walmart telling the town! There was an outbreak of spontaneous applause from
participants and observers in the crowd, It was definitely the highlight of the evening. I
hope the lady's sentiment will be duly recognized as comments are submitted.
Regards,
Ellen Cowan-Brock
Workshop Questionnaire
Comments attached
I,
THE BUTLER GROUP CONSULTANTS INC,
Land Planning Services
!,.,-cO:'";;:~li'~
~
_._::.,v~~;~J~?~j~~~i~lQN
April 28, 2005
Mr. David Crome, M,C.I.P., RP.P.
Director of Planning Services
Municipality of Oarington
40 Temperance Street
Bowmanville, Ontario
LlC3A6
Re: Bowmanville West Main Central Area Seconda:r;y Plan Review
Dear Mr. Crome:
As you are aware, I attended the Public Information Centre held on April 20,
2005, with respect to the Bowmanville West Main Central Area Secondary Plan
Review. While I had a number of discussions with planning staff and the Town's
consultants at this meeting, I would like to formalize my comments regarding
the various options for future retail commercial development put forward for
discussion,
First, I would like to congratulate staff on holding an excellent meeting, which
provided for meaningful public input. Secondly, the quality of the debate to
create an urban vision for the future expansion of the Bowmanville West Main
Central Area (BWMCA) was impressive. The Town first enunciated this vision
back on December 13, 1993, when Council approved the "Urban Design
Guidelines for the BWMCA". These guidelines later formed part of the Ontario
Municipal Board decision in December 23, 1994, for retail development in the
BWMCA. The Board found that the "west main central area must be planned in
accordance with the proposed land use plan and the urban design plan and
guidelines". The urban design plan had been developed by the firm Berridge
Lewinberg Greenberg Ltd. who were the municipality's consultants at that time.
In February 1999, the firm Urban Strategies Limited (previously Berridge
Lewinberg Greenberg Ltd.) prepared a subsequent report, which revised and
updated the previous WBMCA Guidelines to provide a comprehensive Urban
Design Framework for an expanded area. The study area boundaries were very
similar to the proposed new boundaries that are being discussed today.
Furthermore, the urban design principles, objectives and guidelines
recommended at that time have the same basic philosophical underpinnings as
were described by representatives of Brook Mcilroy at the meeting on April 25,
2005. It is my view that the various consultants for the Town have consistently
recommended an urban vision for the WBMCA and potential expansion areas
since 1993.
11 Hazelton Avenue, Suite 300
Toronto, Ontario M5R 2E1
416,926,8796 Fax 416,926.0045
E-mail dab@butlerconsultants.com
-2-
It must be noted that the 1999 WBMCA Urban Design Framevvork was premised
on a multi-functional main central area including significant amounts of
residential and institutional uses as well as retail commercial. Furthermore, the
Urban Design Framework was not based on accommodating large scale big box
developments in a typical suburban format with large amounts of parking areas
located in front of buildings situated at the back of sites.
Our understanding of the April 20, 2005, Public Information Meeting was to
provide guidance as to how to establish a pedestrian-oriented main central area
with a high degree of urban design. While the fundamental principles have not
changed from the 1993 and 1999 urban design approach, the challenge now is to
respond to the applications for significant big box retail development on lands
located north of Highway 2 from Oarington Boulevard to Boswell Drive,
It is apparent in reviewing previous reports that the Town and its consultants
have consistently recommended a westerly extension of Uptown Avenue as a
major east-west road located north of Highway 2. As outlined at the Public
Information Centre by representatives of Totten Sims Hubicki Associates
(transportation consultants), there are many public benefits to create this grid
system including better traffic movements, more traffic capacity, better
pedestrian walkways and bicycle routes, and better future transit connections. In
combination with the overall planning and urban design objectives of the Town,
maintaining the grid system will provide for a unique expansion of the BWMCA.
There have also been plans to incorporate a finer grain system of other public
and private roads to create a grid system. However, it is noted that the 1999
roads plan also provided for Street K, which was another private road located
between Uptown Avenue and Highway 2 providing east-west connections. This
roadway is shown in Option A, but not in Options B or C. We would question
why this connection is not shown in all options.
The major difference between the Urban Strategies Limited concept plan in 1999
(see Appendix 1 and 2) and the present plans of the applicants is that major big
box retail is shown north of the planned westerly extension of Uptown Avenue
whereas the 1999 plan anticipated residential development. Uptown Avenue
would then separate retail commercial uses located to the south with residential
uses located to the north.
The current applications do not propose residential uses north of a potential
alignment of Uptown A venue. Option A - Applicant Scenario shows the
preferred plan by the applicants with two large boxes for Wal-Mart and Loblaws
stores IOl:ated at the north edge of the property. Therefore, the entire site is
proposed for commercial uses at a greater intensity and in greater proximity to
residential uses.
-3-
While a private road is shown in front of these stores, it is unlikely that a public
road could be developed so proximate to the front doors of these large stores.
Option C - Hybrid shows a public road in front of two smaller stores with a
slightly larger setbad< from the road to the front doors.
In our opinion, neither of these two above-noted options is acceptable. In
Options A and C, all of the shoppers must cross either a public road or a private
road which will effectively be a continuation of Uptown Avenue to enter these
two stores. This will create a traffic hazard and safety risk, which is
unwarranted. In our experience, either a private or public road designed to carry
east-west traffic through the site and provide a connection with Oarington
Road on the east and Boswell Drive on the west will generate significant traffic at
full development. While there are a few big box locations where there is a private
road directly in front of big box stores, rarely is this road designed to be part of
the overall road system function. In other words, there is a difference between a
driveway in a parking lot, and a roadway connecting two public roads designed
to be part of a public grid system.
In summary, the extension of Uptown Avenue as originally proposed has an
important role to play in the transportation network. It will provide an essential
alternative for east-west through traffic movements on Highway 2, it will assist
in the circulation of traffic within the retail centre for parking and access, it will
improve the drop-off for shoppers at the front door of these stores, and it will
assist in providing safe pedestrian and bicycle routes in the main central area,
In our opinion, Option B - Urban Framework is clearly the preferred
development alternative. While this option still allows for commercial uses north
of Uptown Avenue, a full public road is provided connecting Oarington
Boulevard and Boswell Drive, Parking areas are designed so that shoppers do
not have to cross a major east-west road. It is noted that there is also a proposed
intersection mid-way between Oarington Boulevard and Boswell Drive that
would provide a safe pedestrian and vehicular crossing.
While this same intersection is shown on Option A, it is unlikely that all of the
shoppers exiting from these two large stores would all utilize this intersection to
go bad< to their cars. In our view, this would be a serious design flaw both in
terms of the functionality of the store operations as well as general traffic/ safety
concerns.
Option B provides for a range of big box and small box retail stores and
restaurants. This option best implements the future roadway system by
providing suitable integration between commercial properties, enhancing the
public realm, providing for pedestrian safety, maximizing road capacity,
providing for future public transit, and providing excellent urban design.
-4-
Option B also provides for a better land use relationship for residential and
institutional land uses located to the north,
In our opinion, the success of the BWMCA will hinge on the successful
integration of various land uses including proper buffering and interface
between residential/institutional and big box retail uses. The primary objective
of the Town should be to achieve its urban vision including high quality
architecture, an appropriate public realm and the relationship of buildings to the
public realm. In our respectful opinion, Option A which is a typical format for
big box retail should not dictate the urban form; rather the principles of the
Urban Design Framework should set the development pattern and the retail
applications need to change to conform with the Framework. Option B provides
the best integration with the existing retail centre located on the south side of
Highway 2.
Options A and C do not accomplish the above objectives and will result in a big
box development that will not be an urban format. In our opinion this form of
development will not create an urban character, which reflects the area's role as
an important commercial, entertainment, community use, and recreational focus.
It will not reinforce and develop a high quality and desirable urban character
along Highway 2,. or foster harmonious pedestrian and streetscape objectives for
the area,
We would recommend that you give the highest consideration to Option B -
Urban Framework.
We would be pleased to discuss these issues with you at your convenience,
Yours very truly
THE BUTLER GROUP (CONSULTANTS) INC.
~C{_&__
David A. Butler, MCIP, RPP
President
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Submitted by William Humber, citizen of Bowmanville, and Chair of
the Old Bowmanville Neighbourhood Association, in response to the
Bowmanville West Main Central Area Secondary Plan Review
30 April 2005
1. Background
Like my fellow citizens, I am more than a consumer ofitems, which I buy and then use
behind the doors of my home. I am more than a person who moves from one private
space of my home, to another in my car, to a set of places like work and shops with
which I have no concern. I have more than a purely utilitarian desire to satisfy personal
wants. I believe that urban liveliness, rather than the heartlessness of many places,
matters and that our urban settings should not be places from which I retreat homeward
into the only realm capable of satisfying my personal need for quality and distinct self
definition.
The broad civic place in which I live means something to me and my family and my
friends and my neighbours. It is more than a disconnected series ofland uses. I
participate in decisions and processes that affect the wider public realm beyond my own
home because ultimately my sense of who I am is at least partially. a function ofthe place
in which I live. I agree with the conclusion of one observer that many older people who
retire and leave an area discover, too late, that they really are indigenous to their
hometown. Outside of that geographic radius life makes no sense.
2. Participating in BowmanvilIe's Future
In my case that involvement currently includes those processes underway to support the
quality of the downtown core (as a member of the Community Focus Group oflhe
Community Improvement Plan); as a community representative on the larger commercial
study of the greater Bowmanville area (of which the potential development in
Bowmanville west end is a part); as a member of the committee examining heritage
designation for the Old Bowrnanville Neighbourhood; as a member of the Valleys 2000
CoIDrnittee responsible for the future of the Bowmanville and Soper creeks; and as a
member of the Clarington Sports Hall of Fame CoIDrnittee and the associated Brian
McFarlane Museum project.
Over the years my involvement has included presidency of the Visual Arts Centre (of
what was then the Municipality of Newcastle) in the mid 1970s; producing design ideas
for a cycling route for the LACAC architectural heritage committee in the early 1980s; as
a member of the Municipality's Community Services Planning Board in the mid 80s;
coaching children's soccer and baseball teams in the late eighties and through the 1990s;
and writing books on Bowmanville (A Small Town at the Edge, Natural Heritage,
1997), and on the centennial of a local town school, Central Public.
My participation and interest in these issues is long term and genuine.
3. Concerns About the Process
The issue of what design should inform the development of the Bowmanville west end is
really about who decides how a community grows, is presented, and performs. Should
that be the short term and inflexible needs of the development industry or the qualitative
and long-term needs of the community?
At the meeting on 20 April 2005 to consider alternative design ideas for the west end
there were a variety of opinions ranging from the view that shoppers want maximum
efficiency to drive their cars to a site where they buy their goods and get out as quickly as
possible, to a view that such places should have the quality of a destination, that they be
places in which people want to spend time, and that they be integrated within the larger
urban fabric. This latter view says they should respect a variety of different users (as well
as shoppers) and a variety of means of moving about the area (cars, but also pedestrians,
those using public transit, and other self propelled means of mobility including cyclists or
the disabled using motored wheelchairs).
The developers (including land owners, big box representatives, and their legal and
planning consultants) attended in significant nmnbers though they were in the minority
given the large public turnout. Unfortunately by occupying at least two of the four tables
available for public commentary, while others had to sit off to the side, their points of
view received undue recognition against a broad based desire of many citizens for a more
dynamic building process.
4. The Cballenge of Formula Shopping Places
Formula shopping corporations promote "big box" shopping solutions for broadly
structured "urban" places. Such stores, as opposed to smaller long term enterprises in
town tend not to re-invest to the same degree in the charitable and social needs of the
community, nor to re-invest in other local product expenditures, nor to particularly care
about the broader issues of public infrastructure, i.e. built form, impact on local roads,
broader storm water issues, other than those immediately within their purview or for
which they are required to pay. Their buildings and associated infrastructure services
(everything from building form, to parking spaces and landscaping) are built according to
a proscribed formula regardless of location or the peculiar needs of that community. The
landscapes created are generally dreary, miserable places with no architectural merit.
Against this are the interests of our local community that, through the offices of the
Municipal staff and representatives, has a broader vision of how it would like to look,
perform and be built for the future.
5. Threats to Long Term Planning
A reasonable person might argue that the fonnula shopping enterprises are welcome to
build here as long as they do so within the broader performance objectives for new
community design and retail diversity as set out by the Municipality and its citizens.
Unfortunately this has seldom been the accepted pattern of behaviour of such formula
retailers. Instead local citizens are threatened with several possibilities.
(a) Threats to Pullout
Some potential big box developers threaten to pull up stakes, thus depriving local citizens
of their cheap products. Such threats are ultimately hollow. This issue was at first raised
in this Municipality as far back as the early 1990s.
At that time, in attempting to ameliorate the impact of new retail development on
Bowmanville's west end fringe, the Town of Newcastle (whose name would shortly
change to Clarington), supported plans to provide at least some form of visual connection
and identity between the proposed development on Highway 2 and that of the older
business core. Council directed Zellers to build a facility, which fronted on the street with
parking hidden in the back. According to an editorial in the now defunct Oshawa Times
(8 May 1993), the company used ".. .their fmancial muscle to blackmail council." The
Times reported that the Mayor of Newcastle appeared willing to cave in to the
developer's request for a traditional strip mall development and not one intended to
preserve and extend Bowmanville's downtown with new development of architectural
value and consistent appearance with the existing urban fabric.
The Oshawa Times editorial angrily declared, "Newcastle [today's Clarington) doesn't
have to do whatever Zellers or Markborough Properties tells it to. Bowmanville is one of
the richest little towns in Canada - a community of home owning, two car, two-income
families. Zellers investment in the community is not dependent on trashing the town's
plans with another ugly strip mall destined to get uglier as time goes by. Zellers interest
in Bowmanville is predicated on the market, not the parking. Zellers needs markets like
Bowmanville, and [Mayor Diane] Hamre can play hardball with the chain. If Newcastle
[today's Clarington) caves in to demands for strip malls, it will get exactly what it
bargained for - second-rate, permy-ante, ugly development, and limited opportunities for
first-class developers who are looking for a first-class environment for their investment."
With real passion, the editorial noted that, many small towns had flourished by
preserving their history and character. "Bowmanville has that same opportunity. If it
sticks to its principles it could attract investment that will sustain itself for generations.
Or it could become an anonymous little tract that reproduces the ambience of Ellesmere
Road in Scarborough."
Unfortunately the parking lot dependent model, bereft of streetscape human scale,
preferred by Zellers won the day. It left us with a functional, but generally dull greyfield
now on the site.
It is reasonable to conclude that if formula shopping interests are unwilling to conform to
the community's vision then they can leave the market open to those prepared to conform
with it.
(b) Supposed Concern for the Low Income Consumer
Another strategy is to imply that if they don't get their way the low-income person will
suffer at the hands of the town's elite.
The usual tact at such times is to resort to a defense of the hapless and poor consumer
who wants to be able to purchase cheaper goods to meet restricted family budgets.
There is tremendous irony in this appeal given that many of these big boxes have in
recent years been sited for many of the following abuses - forcing staff to work unpaid
hours, refusing in the United States to provide health care benefits, preventing any
unionization of their buildings by shutting down the operation as was done recently in
Quebec, discriminating against female employees through restricted advancement
opportunities, hiring illegal workers and paying them at fates below minimum wage,
continually seeking offshore producers and in doing so eroding the manufacturing
productivity of the countries within which they operate. Their business practices in other
words are contrary to the interest ofthe very people for whom they claim to be its
benefactors.
(c) Contempt for the Democratic Process
Finally and most perniciously they often operate with contempt for local democratic
opinion. Often the intent oflocal ordinances such as regulations limiting store size have
been cynically bypassed in American jurisdictions by one big box interest simply
building two of its stores next to each other, both of which narrowly fall under the size
limitation. In Guelph, one big box developer simply refused to take no for an answer and
continued to promote its own self-interest until a more favourable council has been put in
place. Unable to tolerate even this delay some resort to agencies such as the Ontario
Municipal Board to counteract the Municipality's design objectives and process.
As part of a citizen process for both the downtown area and the larger commercial
process throughout Clarington, I found disturbing a plan promulgated and brought
forward for Council approval for a retail site in the area of Bennett Road and Highway
401. This was done without regard to the long-term process developed by the
Municipality to involve citizens and those with an interest in Bowmanville's commercial
future. As a citizen I found the developer's request not only contemptuous of this public
participation, but also disturbing in its assumption that commercial interests trump all
others regardless of their impact on our roads, our downtown core, and a legitimate
process.
While that development may be outside the purview of the debate about Bowmanville's
west end, it is still an important part of a larger discussion because ultimately, and often
before the process is complete, these matters are referred to the Ontario Municipal Board.
I would hope that the Board in dealing with such appeals from developers of formula
retail at either location would respect the wishes of its citizens and its Municipal officials.
If not then the essence of democracy as represented by the willingness of citizens such as
myself to invest hundreds of non- paid volunteer hours in making my community a better
place, will have proven to be a cruel farce. It would run against the process of community
consultation already undertaken, by turning its back forever on the historic pattem of
development and values, which have informed community growth to date.
6. Urban Myths About Formula Retail
In talking with my fellow citizens I am occasionally concerned that they too easily accept
the self-fulfilling prophecy of the formula retail developers that ugly miserable places are
the unfortunate cost of cheap shopping places in which acres of dead parking space are
necessary because oftime sensitive lives. People often feel this way because they have
not considered the deliberate way in which one type of design forces only one option.
Because we are forced to drive to existing shopping centres, it follows according to this
logic that they should be dominated by parking lots (for the presumed 100 year shopping
event), that all roads must lead into the place, and that the street should be a pedestrian
wasteland. Sitting at the back of a giant parking lot far from the public street is a big box
with limited entry points and blank walls along most of its perimeter.
It is also argued that formula shopping cannot be built near the street because of issues of
public safety. According to this argument, at night people will not use the parking space
if it is behind the building. This argument is essentially dishonest. The perception is that
parking in front is safer because presumably there are lots of eyes on people getting into
and out of their car. But because these parking places are essentially dead spaces with
few if any pedestrians on nearby streets there are potentially fewer eyes watching out for
other people at the front of a building.
By putting the building, rather than parking, at the front of the street there is not only the
opportunity for more human scale in the relation of the individual to the building, the
roadway and the public space of sidewalk and verge, but as with early department stores
retailers might eventually make the front of their buildings more attractive to pedestrians
and other users. Through design, the back of the building could be more searnlessly
integrated within the broader urban fabric so that it connects to nearby residences and
other land uses. Appropriately placed doors and windows on that building side would
ameliorate safety issues by increasing the eyes on the potential shopper. The unintended
consequences of good urban design might actually result in greater business for the
retailer.
7. The Municipality's Urban Themed Development Plan
The Municipality has proposed a design future for the west end, which respects three
essential features:
(a) Mixed Use
As described in its urban design altemative, mixed uses are possible either immediately
or in the mid to long-term, in close proximity to each other. They are positioned to take
advantage of a fuller experience of urban living open to all forms of mobility (including
the car but also public transit, the pedestrian, and the self propelled). Mixing places of
worship, school, recreation, shopping, and homes puts more eyes on the streets and
increases public safety. There is really no need to screen apparently offensive uses when
they are more seamlessly integrated with surrounding land uses through principles of
good design. Such principles are well known and have influenced good urban form for
hundreds of years, in spite of the more recent impact of the private automobile.
(b) Connectivity
Increased cormectivity of the road network is recommended. It allows for greater
integration ofland uses with the surrounding residential and mixed use development. It
effectively disperses traffic and therefore ironically allows for increased volume. It
actually promotes a moderation and similarity in traffic speeds unlike the suburban
pattern of fast speed arterials and low speed dead ends in close proximity to each other.
These endanger those such as children, seniors, and animals unprepared for the dramatic
escalation in car speed from one type to another.
As those currently redeveloping Regent Park in Toronto have noted, places connected to
the rest of the urban fabric are generally safer places by virtue of the constant flow of
people, as opposed to those spaces providing a dead end, poorly monitored (by virtue of
there being so few eyes on the street) oasis for crime.
Connected multiple roadways also allow for reduced road widths due to more than one
entry way and exit for emergency vehicles, along with reduced storm water management
needs. They minimize the cost of public investment in roads (because they are narrower)
such as the Municipality discovered when it rebuilt Concession Street, west of Liberty
Street in Bowmanville. They support public transit by allowing better access for these
vehicles and shorter walks to bus stops, etc. Finally they promote more intriguing human
scale streetscapes with identifiable destinations in view and so attract pedestrians and
users other than cars.
(c) Flexible Future
A more flexible future is possible. Formula retail is only the most recent form of
shopping which over the past 100 years has included department stores, strip malls,
shopping plazas and now big boxes. This recent type of retail will eventually change and
an urban form driven by the short term exigencies of this limited historic form will be ill
adapted to meet other community needs. A mixed use connected urban framework can be
adapted to other needs at greatly reduced public cost than one that has to be totally
retrofitted. It also allows for emerging recognition of the medical cost associated with
non active forms of living, the public health consequences of car exhaust and death by
road fatalities, and increasing climate change challenges, by respecting a design which
responds to more than the private automobile.
It is in line as well with the new urban paradigm of city region development, which is
reflected in approaches such as:
. New urbanism and neo-traditional development espoused by international
organizations like the United States-based Congress of the New Urbanism and the
European-based International Network of Traditional Building, Architecture, and
Urbanism (INTBAU), the latter associated with the Prince's Foundation in the
United Kingdom,
. The Green Building Council's promotion of green buildings through its LEED
(Leadership in Energy and Environmental Design) standards and its soon to be
released new community/neighbourhood design,
. The work of Smart Growth Coalitions throughout North America, and the
attention they are attracting in jurisdictions from Vancouver to Miami, as well as
at state and provincial levels, such as Ontario,
. Increasing emphasis on greater urban sustainability in which social and economic
imperatives operate within an environmental framework acknowledging the value
of eco-services to business (reflected in the just released multi-national
Millennium Ecosystem Assessment Synthesis Report), and the United Nations
Decade for Education for Sustainable Development (2005-2014) under the
leadership of UNESCO,
. The province of Ontario's recently enacted Green Belt Plan, and the federal
government's Project Green: A Plan for Honouring our Kyoto Commitment
(2005).
These all reflect a direction away from a model of suburban style development and
profligate use ofland, water, and air resources, popular since the end of the Second
World War. Not only can we not afford this development lifestyle but also its one-
dimensional character leaves the public poorly positioned in attempting to rectify their
deficiencies.
With the exception of the Municipality's staff and associates, it was particularly
dispiriting at the public meeting to witness, from so many professionals such as lawyers,
urban plarmers, and the development industry, such a paucity of new ideas, such an
insensitivity to local concems, and such a lack of imagination to identify with the
emerging new paradigm of urban development described above.
Apparently the Municipality itself will be left with the task of advocating a relevant
response to the challenge of urban growth, limited public resources, and healthy 21st
century living.
8. Conclusion
Bowmanville has a distinct place-based look. Its historic core is distinguished from
virtually all new suburban development, which lacks this sense of place and in which a
sense of public commitment is therefore threatened. Perhaps this is one reason people
move so often because it really matters little when one lives in places no different from
each other. Perhaps this is why many people fear to send their children out to play or
walk to school because recently built urban settings have become so alien and unfamiliar
and are not to be trusted.
This should be a concern to public policy makers at a time when there is a need to attract
doctors, appeal to members of the creative class who drive so much of our contemporary
economy, and support young people in their wish to come back home rather than
permanently leave for the big city, a movement in full force across Canada.
A successful town is more than a retreat into the privacy of residence, or somewhere to
purchase goods in a barely discernible public realm. Good public places that people want
to invest in, care for, and participate in their future, are those with a sense of destination
and distinction.
This new place in Bowmanville's west end should mimic the distinction of old
Bowmanville and declare itself a place in which people want to linger, to enjoy multiple
experiences, and not be afraid for the safety of those children, older members, and other
citizens who choose to use it. It should celebrate the best of urban living by being a place
that people want to be.
Mr. T. Gribbon
29 Centre Street
Bowmanville
LlC 2Yl
r.1~lEaITWLEIIDl
I KW <\ 2005 I
, !
i ..':,iCIPWTY OF GlAHINGTON I
L. 2LI\NNING DEPARTfv~NT_l
Mr. D. Crome,
Director of Planning Services
Municipality ofClarington
40 Temperance Street
Bowmanville
LlC 3A6
RE: Municipality of Clarington Bowmanville West Main Central Area Secondary
Plan Review
April 29, 2005
Dear Mr. Crome:
/
I wanted to write and express my thoughts regarding the Municipality of Clarington
Bowmanville West Main Central Area Secondary Plan Review Workshop, which
occurred on April 20, 2005.
Firstly, I wanted to thank you for taking time following the meeting to speak with me
directly regarding my concerns and reflections. I appreciated the personal touch.
Secondly, I was pleasantly surprised that our municipality was engaged in a process of
shaping its commercial and residential landscape to support a vision of community.
Thirdly, I valued the opportunity to have input regarding the process of deciding what is
the best way forward for the proposed Clarington Bowmanville West Main Central Area
development. And [mally, I wanted to express my gratitude for the hard work that you
and your sta.+Y have already invested in this process and will continue to in the near and
distant future. I know that you have the community's best interest in mind and will
advocate on our behalf during the forthcoming negotiations with developers - a balancing
act of paramount importance.
"
My family and I are excited about the ongoing growth of Clarington, specifically
Bowmanville. The residual effects of such economic growth can be beneficial to all
stakeholders if sustained and controlled in a positive manner, embracing the idea of
community. The concept of community must be communicated prior to and during the
process of every decision in the course of the growth in the area. Street configurations
and building designs must embrace the notion of community. For example, I would be
very interested to know how the "landmark building" will be designed to/express
community. As a cornerstone structure, this building and its intent would serve as the
foundational tool in embracing and communicating the idea of community. It will also
serve as a gathering point in reaching out to individuals and encouraging them to
participate and invest in supporting the community. I would strongly encourage you to
be as persistent as possible during your negotiations regarding this idea. For, the design
momentum generated from this building will focus subsequent building and landscape
design decisions.
The opportunity to establish a desired 'feel' to the Clarington Bowmanville West Main
Central Area must not be overlooked. The task that befalls you is onerous, indeed. Yet,
your determination; your dedication; your perseverance and patience are paramount in
this regard. I am confident, however, that you will be adanlant in supporting the idea of
community during your negotiations.
Yours truly,
~~.
Todd C. Gribbon
'"
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Home Depot of Canada Inc.
900-1 Concorde Gate .Toronto, Ontario, M3C 4H9
(416) 609-0852
May 4, 2005
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Mr. David Crome
Director of Planning
Municipality of Clarington
40 Temperance Street
Bow manville, Ontario
L1 C 3A6
Dear Mr. Crome:
RE: PROPOSED HOME DEPOT
HALLOWAY HOLDINGS LIMITED SITE, HIGHWAY 2 & CLARINGTON BOULEVARD
BOWMANVILLE .
Home Depot of Canada Inc. has entered into a purchase and sale agreement with Halloway Holdings Limited
for lands located at Highway 2 and Clarington Boulevard. Halloway Holdings Limited is currently pursuing
approvals to locate a Home Depot store on their lands.
lam writing to confirm that it is Home Depot's intention to locate a store within the Bowmanvllle market and
specifically on the Halloway Holdings Limited site. The Halloway site is within the Bowmanville market, is in
close proximity to existing and proposed retail users, and is viable from a business model perspective. Toese
factors are critical to the success of locating our retail store in Clarington.
It has been suggested that Home Depot locate elsewhere in the Municipality, either within a Highway
Commercial area or an Industrial Area. Specific reference has been made to sites at Regional Road 57 I
Highway 401 and Bennett Road I Highway 401. I wish to confirm to you that these alternative sites are not
suitable for Home Depot. I also wish to confirm that should the Halloway Holdings Limited site not be
approved with permissions for a Home Depot store, Home Depot will not be pursuing an alternative location
within the Municipality of Clarington. We will instead rely upon our existing stores in other municipalities to
capture sales from the Bowmanville market.
Home Depot of Canada is a good corporate citizen, which invests in the communities where their stores are
located. We wish to start our relationship with the Municipality of Clarington on a positive and proactive basis.
I trust that you understand our company's pOSition and we hope to work with Council and staff to make the
Halloway Holdings Lirnited site a successful venture for ail parties.
Thank you.
Yours truly,
HOME DEPOT OF CANA
-~~
Sylvain Rivet,
Real Estate Manager
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CC: Mayor John Mutton
SE~NAS ASSOCIATES
R mfim/Jer of The Ser,111~ Bro!I(J file.
110 Scotia Court T .905.686.6402
Unit 41 F .905-432.)877
Whitby. ON sernas.com
UN 8Y1
May 11, 2005
Municipality of Clarington
40 Temperance Street
Bowmanville, Ontario
L1 C 3A6
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Attention: Mr. Carlo Pellarin
,'AUTY OF CI_~RINGTON
:;r,G DEPAHTMENT
Dear Sir:
Water H€SGurCfJS Enginef:ring
Bowmanville West Main Central Area
Secondary Plan Review
Public Open House - April 20, 2005
Development Options
Comments of Behalf of Valiant Property Management
Municipality of Clarington
Our Proiect No. 02092
Land Development Engineering Re:
Land Development ~~Ianning
Municipal Engine6r!n(J Services
Transr'fortEition &- Transit P"lanning
Utility lnfnistmcture Design
We are providing herewith comments on behalf of Vaiiant Property Management
with regard to the Development Options presented at the public open house on
April 20, 2005.
As an overall comment, we note that there was significant discussion by
Clarington's consultant team with regard to creating a downtown urban framework
for the development of the north-west sector of the Bowmanville West Main
Central Area. This direction, we feel, is fundamentally at odds with market reality
and the practicel and logical role of the Bowmanville West Main Centrai Area.
This area is a desirable and viable commercial area because, unlike the
downtown, it has large blocks of undeveloped land suitable for large format
retailers. The interest in expanded commercial uses to meet Clarington residents'
unmet commercial needs is from large format tenants. And, large format users
have the least potential to compete with existing small scale specialty stores
within the downtown.
It is, therefore, counter-productive to try to create an urban. quasi-downtown
street-related commercial area in the Bowmanville West Main Central Area
because:
1. It is not what those retail commercial tenants seeking to locate in Bowmanville
need to meet their operational needs;
2. It will deny Clarington residents the shopping choices available to residents of
almost all other GT A municipalities; and
3. It will not stem the outflow of expenditures currently leaving Clarington to
centres such as Oshawa and Whitby where Hope Depot currently operate
large format home improvement centres.
...2f
..~
Municipality of Clarington
Mr. Carlo Pellarin
May 11, 2005
Page 2
Instead, the land use and urban design framework for the Bowmanville West Main
Central Area Secondal)l Plan should acknowledge that this area wiillikely be, first
and foremost, a large format retail area. Given this fundamental premise, the land
use and urban design policies should be aimed at employing the best urban
design approaches available for such areas.
This is not to say that the Secondal)l Plan cannot set the ground work for future
intensification and urban redevelopment. However, it should not impose an urban
form on a suburban context (both in terms of development form and retailing
realities). As Bowmanville becomes more urban over time, the West Main Central
Area may also evolve in the same fashion. The imposition of an urban form at this
time, will only ensure that the lands remain undeveloped.
A second overail comment is that, contral)l to comments received from the
Director of Planning and the Commercial Policy Review Consultant, the Home
Depot is not a "quasi-Industrial" use. Home improvement centres are not
permitted in Clarington's Industrial Areas. Although they are permitted in Highway
Commercial areas, the Commercial Policy Review is recommending that, except
for existing zoned Highway Commercial Areas, new Highway Commercial Areas
be deleted from the Official Plan. There is no current policy which prohibits home
improvement centres from locating in Retail Commercial Areas.
While a Home Depot facility may be as large as some industrial uses and may
have loading docks, there is no question whatsoever that it is a retail commercial
use open to the public. Just because it is frequented by contractors who take
materials to job sites does not make Home Depot a wholesale or industrial use. It
is similar in function and form to the existing Canadian Tire store, a Wal-Mart
store or a new format Loblaws store, where trucks make deliveries, where people
attend to purchase large and small items, and where there are seasonal outdoor
garden centres.
It is ironic that Clarington is taking the position that Home Depot is an industrial
use when Home Depot has experienced significant resistance from other Ontario
municipalities in allowing it to locate in industrially zoned areas.
Home Depot prefers to locate in commercial areas to create and take advantage
of the synergy generated between other retail uses. In Durham Region, the
location of Home Depot stores in Central Areas is the rule rather than the
exception.
...3/
Municipality of Clarington
Mr. Carlo Pellarin
May 11, 2005
Page 3
A third general observation relates to how the Open House was conducted. We
have not yet seen a summary of the comments presented at the open house
meeting. However, we note that, in our view, the workshop session was highly
manipulated by the Municipality's urban design consultants. At the tables where
Valiant and Home Depot representatives sat, the participants were being pushed
to adopt the design consultant's perspective. Of even more interest was the fact
that, based on our observations, the roundtable participants were having nothing
of it. They expressed a strong desire to have Home Depot at this location and
they resisted many notions advocated by the design consultants. We don't
understand why representatives of the Municipality would say to workshop
participants "push the developers and retailers as hard as possible to see how
much they will bend - they need their approvals and they will bend". We view this
as highly confrontational and adversarial and we do not believe that it represents
the public interest.
Within the context described above, our comments on the options presented at
the public open house are provided below.
Option B - Urban Framework
This option introduces two land use concepts on the Valiant Property
Management site that are unacceptable. The first is a Loblaws store (which is
committed to another site) in lieu of the Home Depot store (which is committed to
the Valiant Property Management site). The second is what appears to be a park
at the intersection of Street 'H' and Uptown Avenue. There is no justification for
this park or a mechanism by which the Municipality can compel its dedication. Our
Client is in no way interested in selling a valuable parcel of commercial land to the
Municipality for park purposes. Further, this scenario leads to the question as to
why Home Depot is considered an industrial use, when Loblaws, of similar size
with similar loading and trucking requirements, and similar outdoor features such
as a seasonal garden centre, is considered to be acceptable, presumably as a
retail use.
Another land use concept introduced in Option B is the designation of commercial
uses on the north-east comer of Green Road and Uptown Avenue, presumably on
the two residential lots which have been isolated by the new High School. Our
Client has no objection to this land use change provided the f100rspace allocation
to these parcelS does not reduce the allocation to the Valiant Property
Management site.
...4/
Municipality of Clarington
Mr. Carlo Pellarin
May 11, 2005
Page 4
The proposed alignment of Uptown Avenue which curves through the Valiant
Property Management site will preclude the Home Depot store. This road will also
create awkward, inefficient development parcels, take up valuable development
land and may introduce sight line restrictions. It is contrary to the principles of
intensification and of using land more wisely. At the same time, traffic studies
have confirmed that this road in a curvilinear alignment provides little traffic relief
to Highway NO.2. The same traffic studies have concluded that this road's
intersection with Clarington Boulevard is too close to Highway No. 2 if it was to
carry enough traffic to be signalized.
The commentary attached to Option B notes a number of "key opportunities"
associated with it. We take a contrary position with two of them.
1. The only new east/west road connection which provides additional east/west
capacity and potential for relief to the Highway No. 2 corridor is proposed
Brookhill Boulevard. This road is common to all options and therefore not an
opportunity exclusive to Option B.
2. The irregular block east of Green Road (on the Valiant Property Management
site), far from being an opportunity, creates a significant constraint to efficient
development.
In short, Option B represents a case where urban design principles come first and
functionality and the wise use of land comes a distance second. Urban design
should not be a principle which drives land use, but instead should be a tool to
ensure that good land use decisions are appropriately implemented in the public
interest.
Option C - Hvbrid Option
The commentary on this Option indicates that "all roads internal to proposed retail
development areas are to be retained in private ownership". If this is intended to
include Uptown Avenue through the Valiant site, the concern over the waste of
land created by a municipal road allowance would be eliminated. However, the
alignment of this private road still creates inefficient development parcels. There is
no reason why the private roads on the Valiant Property Management site should
not form a grid as is proposed on the lands west of Green Road.
Many of the concerns expressed above relative to Option B apply equally to
Option C.
...5/
Municipality of Clarington
Mr. Carlo Pellarin
May 101 2005
Page 5
Option A - Application Scenario
In our opinion, there is no reason to assume that the Application Scenario cannot
be adapted to obtain the urban design goals enunciated by the Municipality's
consultants at the open house. In addition, we take exception to a number of the
"key design issues" which were identified as being associated with Option A.
1. The Valiant Property Management site is surrounded by public roads. The
loading areas will, therefore, by necessity have to face either a public road or
the parking areas through which drivers and pedestrians move to access the
commercial uses. The larger stores on the Valiant Property Management site
are proposed to have their loading areas face Uptown Avenue, the lowest
profile road of the four which surround the site. Also, the land use opposite the
loading areas will be commercial uses (as proposed in Options Band C) and
a High School which is hardly a benign use. Further, the grade differential will
assist with appropriate screening measures.
2. The Valiant Property Management proposal does not limit opportunities for
pedestrian connections with future residential areas to the north any more
than do Options Band C.
3. We assume the reference to the "disjointed" road network south of Street 'Q'
refers to our proposed alignment for Uptown Avenue.
It should be clear that Valiant Property Management's desire is to have Uptown
Avenue run straight along the existing concession road allowance from Green
Road to Regional Road 57. In this alignment, Uptown Avenue may be able to
provide some relief to Highway No.2. In this alignment it would also make sense
to route transit between Regional Road 57 and Green Road, thereby also serving
the High School. However, if Uptown Avenue is not to follow this alignment and is
to continue to take a curvilinear alignment closer to Highway No.2, it no longer
has the same traffic or transit function. Therefore, there is no reason for it to be
continuous and there is no issue with the road alignments being "disjointed".
CONCLUSION
It has been emphasized a number of times throughout the Commercial Policy
Review and the Bowmanville West Secondary Plan Review that the outcome of
both processes should integrate market, urban design and transportation issues.
This fundamental premise was repeated by the Commercial Policy Review
Consultant at the Open House. In our view, Options Band C completely ignore
market reality (by not accommodating the types of commercial facilities needed)
and transportation needs (by imposing an alignment of Uptown Avenue which
does not fulfill any real traffic function) in order to pursue one particular set of
urban design objectives.
...6/
Municipality of Clarington
Mr. Carlo Pellarin
May 10,2005
Page 6
Options Band C, therefore, do not integrate and balance market, urban design
and transportation considerations. As noted above, Option A properly addresses
market and traffic considerations. If constructive input were to be provided by the
consultant team, we are confident that a satisfactory urban design solution can be
integrated into this option.
These are our comments at this time on the Options presented at the Open
House, as well as the general direction this study process is taking.
Yours truly,
SERNAS ASSOCIATES
BLJ/br
cc: Meridian Planning, Altn: Mr. R. Lehman
Brook Mclllroy, Altn Ms. A. Mclllroy
Valiant Property Management, Altn: Mr. R. Hann
MHBC Planning, Altn: Mr. B. Clarkson
Marshall Macklin Monaghan, Altn: Ms. G. Kozorys-Smith
Ms. Lynda J. Townsend Renaud
THe LAw OFFiCE OF LYNDA TOWNSEND RENAUD
May 12, 2005
Municipality of Clalington
40 Temperance Street
Bowmanville, Ontario
LlC 3A6
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Attention: Mayor and Members of Council
Dear Sirs and Mesdames:
Re: Valiant Property Management
Green Road, King Street, Clarington Blvd., Unopened Road Allowance
6.35 hectares
You will recall that I recently appeared at General Purpose and Administration
Committee (May 9, 2005) when Committee held a public meeting for A YT Corporation
(Highway 40 1 /Bennett Road). I indicated that Valiant has entered into an agreement to
lease with Home Depot. We understand that a recommendation will be brought to you by
staff in June to refuse this use on the property. I advised you that I would send you a
further submission addressing two issues that have been raised wit1) this use.
URBAN DESIGN
Attached you will find nine photographs showing design details for various Home Depot
locations. Both Valiant and Horne Depot are prepared to work with staff and Council to
achieve good urban design as part of the site plan process. \Ve believe these photographs
are evidence of some of the design features that can be used to create a pleasing street
front on Clarington Blvd. and internally within the parking area.
TRANSPORTATION
The alignment of Uptown A venue has been raised as 311 issue by staff. They take the
position (and we agree) that Brookhill Road will act as a continuous cOlmection from
Boswell to Regional Road 57 t(l provide relief for King Street. They wish that the road
netwOll on the Valhll1t site cater to pedestrians.
SUITE 2, 1400 CORNWAll ROAD. OAKVILlE, ONTARIO l6J 7W5
PHONE: 905 829 8600 . FACSIMilE: 905 829 2035
Iyn. townsend@on.albn.com
Uptov.'l1 can perfonn one of two functions. It can either:
1. Provide direct continuous access ii'om Regional Road 57 to and through the
Meuus site as relief for King Road, or
2. Provide discontinuous internal site access which minimizes flow-through traffic
and allows for a more pedestrian oriented development.
Staff and the consultants propose the following continuous alignment:
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In our view:
1. This defeats the objective of creating a road network that is pedestrian friendly.
2. Creates an unusable parcel ofland for commercial purposes.
3. Causes queuing problems at tlle intersection ofClarington and Uptown (see
Marshall Macklin Monaghan report).
The Valiant plan proposes the following:
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This option:
1) Preserves the ability to extend Uptown to Regional Road 57 should Council
choose to do so in the future in order to provide a continuous link between the
Metrus site at Green Road to Regional Road 57.
2) Is pedestrian friendly.
3) Eliminates backlogs at intersections on Clarington Blvd. which would occur with
the staff alternative set out below (see Marshall Macldin Monaghan report
prepared for Valiant).
4). Accommodates internal site movements and separates them from through traffic.
There is clear technical and design support for the Valiant solution. No technical
disagreement with our consultants' conclusions has been advanced. We understand the
option preferred by staff is dliven by matters of urban design.
CONCLUSION
In conclusion, we ask:
. For your support for the Home Depot use on this site and for locating UptoVIl1 in
the location depicted by Valiant
. Work with us through the site plan process to address matters of urban design
Yours truly,
LYNDA TOWNSEND RENAUD
LAW OFFICE
C-V'-O-~--:::4
....-.,' ~-- -----~
\PI Lyn Townse~naud
c: Mr. R. Hann
Mr. D. Crome
Mr. B. Jordan
Mr. B. Clarkson
3
9J& BOUSFIELDS
INC.
Project No. 0147
May 13, 2005
Mr. Carlo Pellarin
Manager, Community Planning and Design
Planning Services Department
Municipality of Clarington
40 Tempera nce Street
Bowmanville, Ontario L1C 3A6
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Dear Mr. Pellarin:
Re: Bowmanville West Main Central Area Secondary plan Review
Proposed Brookhill Boulevard
Further to our meeting on April 18th and the April 20th workshop, we have
examined the Consulting Team's proposal forthe introduction of a new east-west
collector road north of Uptown Avenue (referred to as Brookhill Boulevard). Based
on our review, we would recommend that the Consulting Team consider an
alignment for the new road as shown on the attached sketch,
The alignment we have recommended is intended to address the following
considerations:
1) The development block which wouid be created between Brookhill Boulevard
and the north limit of the proposed commercial site should be appropriately
configured (i.e. generally rectangular, rather than triangular) and should be
large enough to allow for effective site plan planning for the intended land
uses.
2) The road alignment should avoid the two residential properties under
separate ownership on the west side of Green Road, in order to allow for ease
of implementation.
J Church Street, Suite 200 Toronto, Ontario MSE ,M2 T 4,6.947.9744 F 416.947.078,
2
cjb BOUSFIELDS lNC.
3) Following from consideration #2 above, the intersection of Brookhill
Boulevard and Green Road should be located a sufficient distance to the north
of the north limit of the high school property so as to create a useable
development block on the east side of Green Road, south of Brookhill
Boulevard. In this regard, it is noted that the lands on the east side of Green
Road are currently included in the Main Central Area and are designated
Special Policy Area 1, which would permit medium density residential uses.
We understand that, should the Consulting Team and staff recommend expansion
of the Main Central Area boundaries to the west of Green Road, the lands
between the commercially-designated lands and Brookhill Boulevard could be
included within the Main Central Area as well and designated for multiple
residential purposes. If this is the recommended approach, we would respectfully
reguest that the public meeting notice for the June 13th meeting specifically
include reference to the multiple residential uses that are to be included within
the Main Central Area west of Green Road.
Should you have any guestions or reguire any clarification regarding any of the
foregoing, please call.
Yours truly,
Bousflelds Inc.
Peter F. Smith B.E.5. MClP, RPP
cc: Bob Lehman - Meridian
Anne Mcilroy - Brook Mcilroy
Will McCrae - Totten Sims Hubicki
Robert DeGasperis - Metrus
Bruce Fischer - Metrus
Roz Houser/Rob Howe - Goodmans
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ATTACHMENT 4
AMENDMENT NO.44
TO THE CLARINGTON OFFICIAL PLAN
May 31, 2005
PURPOSE: To implement the recommendations of the Commercial Policy Review and
the Bowmanville West Main Central Area Secondary Plan Review
including the renaming of this Main Central Area to the Bowmanville West
Town Centre, expanding the boundaries of the West Town Centre, and
designating additional lands for commercial development
LOCATION: This amendment applies to lands in Lots 14 to 17 Concessions 1 and 2
former Town of Bowmanville and former Township of Darlington bounded
generally on the south by the St. Lawrence and Hudson (CP) railway and
to the north by the Brookhill tributary to the Bowmanville Creek and a
future road to be known as Brookhill Boulevard.
BASIS:
This Amendment is based on the C/arington Commercial Policy Review:
Final Report - Recommended Policy Changes dated May 30, 2005 and
the Bowmanville West Main Central Area Secondary Plan Review dated
May 30,2005 prepared by Meridian Planning Consultants Inc., the
supporting analysis by market, urban design and transportation and
engineering sub-consultants and further review by municipal staff.
ACTUAL AMENDMENT:
The Bowmanville West Main Central Area Secondary Plan is hereby
amended as follows:
1. By renaming the Bowmanville West Main Central Area Secondary Plan as
the "Bowmanville West Town Centre Secondary Plan",
2. By deleting all references to the "Bowmanville West Main Central Area"
and replacing them with references to the "Bowmanville West Town
Centre" and by deleting all references to the "Bowmanville East Main
Central Area" and replacing them with references to the "Bowmanville
East Town Centre".
3. In Section 1.1,
a) by deleting the figure "55" and replacing it with the figure "74"
b) by deleting the words "Martin Road (Regional Road 57) and Green
Road" and replacing them with the words "the CP Rail overpass
and the east limit of the Urban Boundary."
4. By adding a new Section 1.3 as follows:
"1.3 In preparation and implementation of this Plan, urban design, land
use, market, and transportation objectives will be considered
comprehensively."
1
5. In Section 3.1.7, by deleting the word "control" and replacing it with the
word "phase", and by deleting the words "beyond the initial allocation in
order" .
6. By renumbering Sections 3.3.1 and 3.3.2 as Sections 3.3.3 and 3.3.4,
respectively and adding new Sections 3.3.1 and 3.32 as follows:
"3.3.1 To promote and enhance the function of King Street/Highway 2 as
the Main Street of the Bowmanville West Town Centre.
3.3.2 To provide a connected grid of public and private streets to
enhance movement and access options, reduce congestion and
improve emergency access."
7. By deleting Sections 3.4.1 and 3.4.2 and replacing them with the following
new sections:
"3.4.1 Distinct 'Sense of Place' - to create an urban character through high
quality architectural treatments and site planning that provides visual
interest at a pedestrian scale.
3.4.2 Connective Street Network - to provide an efficient grid street
network as the basic organizational structure for the area. The grid
street network should define an urban block pattern, provide
maximum pedestrian, bicycle, and vehicular connectivity and route
choices, and facilitate access to existing and proposed transit
services.
3.4.3 Pedestrian Access - to ensure direct, safe and efficient pedestrian
access supported by sidewalks situated along all roads and drive
aisles, walkways located within parking areas, and designated
crosswalks.
3.4.4 Urban Street Edge - to ensure development provides physical
definition to streets and public spaces through appropriate placement
and design of buildings, parking areas and landscaping, particularly
at Highway 2, Clarington Boulevard, and Green Road.
3.4.5 Plan for Infill - to ensure that development initially permitted in
accordance with this Secondary Plan is designed in such a way so
as to facilitate redevelopment at greater intensity in the longer term.
Block patterns for development should be designed to ultimately
accommodate denser, mixed-use development.
3.4.6 Environmentally Sustainable - to ensure that development is
designed to achieve a high degree of environmental sustainability."
8. In Section 4.1, by replacing the figure "9" with the words and figures "11
and the urban design policies of Section 13".
9. By deleting Section 4.2 and replacing it with the following:
2
"4.2 No expansion to the limits of the Bowmanville West Town Centre
and no redesignation of additional lands for General Commercial or
Street-Related Commercial is permitted prior to a comprehensive
review of the Official Plan after 2011".
1 O. By deleting Section 4.3 and replacing it with the following new Section 4.3:
"4.3 Retail Thresholds
a) In order to ensure that retail development proceeds in a fashion
that sufficient population exists to support the continued viability
of Town and Village Centres and to ensure ongoing
redevelopment potential within the Bowmanville East Town
Centre, new retail development in the Bowmanville WestTown
Centre will be linked to the growth of population in the
Municipality of Clarington.
.
b) The development of retail and service floor space in the
Bowmanville West Town Centre will proceed in an incremental
fashion not to exceed the following thresholds of supportable
retail and service floor space.
85,000
91,000
Beyond 91 ,000
T.llllllllllld SIIVIClmnslllldS
(grISS...... ana lRamJ
65,000
75,000
CIRillO PlDUlldDD
Subject to Comprehensive Plan Review
For purposes of calculating these thresholds, retail and service
floor space includes the following: department stores, food
stores, general and specialty retail stores, convenience retail
stores, video stores, retail liquor stores, restaurants, taverns,
barber shops, beauty salons, dry cleaners, shoe repair, travel
agencies, and art studios. It does not include other services
such as financial institutions, medical offices, business,
professional or administrative offices, service stations,
automotive sales and services, corporate offices, government
offices, hotels, movie theatres, bowling alleys and other places
of entertainment and community facilities.
c) The following allocation of gross leasable retail and service floor
area is made:
i. 18,600 square metres for the lands bounded by Clarington
Boulevard, Prince William Drive, Green Road and Highway
2;
3
ii. 8,000 square metres for the lands bounded by Clarington
Boulevard, Prince William Drive, Pethick Street and Highway
2;
Iii. 900 square metres for the lands east of Clarington
Boulevard, north of Highway 2
iv. 16,000 square metres for the lands bounded by Clarington
Boulevard, the unopened road allowance between
Concession 1 and 2; Green Road and Highway 2.
v. 25,000 square metres for the lands north of Highway 2
between Green Road and Boswell Drive extension, provided
that no more than 23,000 square metres is permitted in the
General Commercial Area.
For the purpose of the allocations above, the definition of "retail
service" floor space in Sub-section b) applies, with the exception
that financial institutions, medical offices and business professional
or administrative offices should be included in the definition.'
d) Development of land will be released through site specific
amendments to the Zoning By-law in accordance with the
allocations in Section 4.4 c) and the retail thresholds in 4.4 b), and
shall be subject to the fulfillment of the provisions of Subsection e)
below.
e) In addition to any other appropriate planning studies, prior to any
further development for retail and service uses beyond those
allocations specified in Subsection b) above, the Municipality shall
conduct an independent market analysis, at the expense of the
applicant for such permission, which addresses the following:
. the impact of development that has occurred in the Bowmanville
West Town Centre since 2005 on the Bowmanville East Town
Centre, including the historic downtown, and other designated
Town and Village Centres in Clarington;
. changes in consumer expenditure patterns from the pattems
documented in previous studies; and
. the anticipated impact of the proposed development(s) on the
viability of existing retail uses in Clarington and the planned
growth and function of Town and Village Centres.
11. By renumbering Section 5.2.4 as 4.3.
12. by renumbering Sub-section 5.2.5 e) as Section 4.5 and:
a) by deleting the words "Retail Commercial" and replacing them with the
words "General Commercial and Street-Related Commercial';
b) by deleting the word "personal" from in between the words "and" and
"service"; and
4
c) by deleting the words and numbers "Section 5.2.4" and replacing them
with the words and numbers "Section 4.4".
13. By adding a new Section 4.6 as follows:
"4.6 Notwithstanding any other provision of this Plan, only two full-
service banks or financial institutions are permitted in the
Bowmanville West Town Centre."
14. By adding a new Section 4.7 as follows:
"4.7 For the purpose of Section 10.9.3 of the Official Plan and in
consideration of land use and urban design objectives of this Plan,
the intersections of King Street/Highway 2 with Regional Road 57,
Clarington Boulevard and Green Road are prominent intersections,
which Council deems to have important visual significance."
15.ln Section 5, by changing the Section title from "Retail Commercial" to
"General Commercial".
16.ln Section 5.1, by deleting the words "Retail Commercial" and replacing
with "General Commercial", by adding the words "larger format" after the
words ''to concentrations of', and by deleting the second sentence in its
entirety.
17.ln Section 5.2.1:
a) in Sub-section a):
i) by deleting the word "personal" between the words "and" and
"service";
ii) by deleting the words "provided that: i) a general merchandise
store, a food retail warehouse, clothing retail warehouse and a drug
retail warehouse shall not be permitted"; and
iii) by adding a second sentence as follows:
"For the purpose of clarity, retail and services uses do not include a
large format home improvement centre."
b) by deleting of Sub-sections b) and e) and renumbering Sub-sections c)
and d) as Sub-sections b) and c), respectively.
c) in renumbered Sub-section b) by inserting the words "business or
training schools" between the words "cultural facilities," and the words
"day care"; and
d) in renumbered Sub-section c) by deleting the words "provided that, on
the parcel of land bounded by King Street, Clarington Boulevard,
Bowmanville Boulevard and Green Road, up to 929 square metres
may be located on the ground floor."
18.ln Section 5.2.2, by deleting the word "Retail" and replacing it with the
word "General".
19. By deleting Section 5.2.4 and replacing it with the following:
5
"5.2.4 Council will consider limitations on the size of large format stores
with the objective of encouraging compact built form and energy
efficient buildings."
20.ln Section 5.2.5:
a) by deleting the word "Retail" and replacing it with the word "General"
and by deleting all references to "Bowmanville Boulevard" and
replacing them with references to "Prince William Boulevard";
b) by deleting Sub-section a) and replacing it with the following:
"a) Development will comply with the applicable Urban Design policies
of Section 13."
c) by deleting Sub-sections 5.2.5 c), g) and h) and renumbering Sub-
section 5.2.5 d) as Sub-section 5.2.5 c);
d) by numbering the second paragraph of the newly numbered Sub-
section c) beginning with the words "In order to facilitate" as a new
Sub-section d); and by adding thereto the words and numbers "and the
policy contained in Section 15.2.3" after the words "implementation of
this policy";
21. By renumbering the original Sub-section 5.2.5 f) as a new Section 4.8.
22. By renumbering Section 5.2.6 as a new Section 6.2.3
23. By adding a new Section 6 titled "Street-Related Commercial" as follows:
"6. STREET-RELATED COMMERCIAL
6.1 PURPOSE
Lands designated Street-Related Commercial on Map A of this
Secondary Plan are intended to provide specific areas dedicated to
smaller scale, pedestrian-oriented retail and personal service uses,
in particular uses that contribute to an active street life such as
cafes, restaurants and smaller shops.
6.2 POLICIES
6.2.1 The permitted uses shall be:
a) Retail and service uses, including: specialty food stores,
general retail stores, convenience retail stores, video
stores, retail liquor stores, restaurants, taverns, barber
shops, beauty salons, dry cleaners, art studios, travel
agencies and financial institutions provided that:
i. anyone store has a maximum leasable floor area of
800 square metres; and
ii. no drive-through facility is permitted;
b) community uses, including social, recreational and
6
cultural facilities; business or training schools, day care
and nursery facilities;
c) medical offices, business, professional and/or
administrative offices provided they are located on the
second or upper levels above ground floor; and
d) residential dwelling units provided they are located on the
second or upper levels above the ground floor.
6.2.2 The following policies shall apply to the development of lands
designated Street-Related Commercial in the Bowmanville
West Town Centre:
a) Clarington Boulevard shall provide a focus for
commercial development in the Bowmanville West Town
Centre. The implementing Zoning By-law and the Urban
Design policies provide direction regarding the
relationship of buildings to the street, landscape
treatment, and parking areas as required to achieve a
high quality pedestrian retail environment.
b) Buildings shall be designed to be located generally at
grade with the adjacent sidewalk on the public or private
street.
c) Access to parking and loading facilities shall be
established which will minimize disruption to the
pedestrian use of the streets. Adequate, well-designed
off-street parking, loading and service areas shall be
required on the site of each commercial development.
d) Development will comply with the applicable Urban
Design Policies of Section 13."
24. By renumbering Sections 6, 7, 8, 9 and 10 to Sections 7, 8, 9, 10 and 11,
respectively.
25. By deleting the word "personal" in the first and last sentences of
renumbered Sub-section 7.2.1 d).
26. By deleting renumbered Sub-sections 7.2.1 f) and g).
27. By deleting the word "personal" in the last sentence of renumbered
Section 7.2.2.
28.ln renumbered Section 8.1,
a) by deleting in the second paragraph the "A" before the word "High"
from the first sentence and replacing it with the words "The Mid
Rise"; and
b) by deleting the words "as well as the parcel abutting King Street"
from the first sentence of the second paragraph and replacing them
with the words "whereas a Low Rise High Density designation is
7
provided for on lands north of the General Commercial, west of
Green Road"
29.ln renumbered Section 8.2.1 c), by deleting the word "uses" and replacing
it with the word "facilities".
30. By deleting renumbered Section 8.2.2.a) and replacing it with the
following,
"8.2.2 a)
Development on lands designated Medium Density
Residential shall be a minimum of 31 and a maximum of 60
units per net residential hectare."
31. By inserting a new Section 8.2.3 as follows and renumber accordingly:
"8.2.3 Low Rise High Density Residential
a) Development on lands designated Low Rise High Density
Residential shall be a minimum of 50 and a maximum of 80 units
per net residential hectare.
b) Apartment buildings may be up to six (6) storeys in height."
32.ln renumbered Section 8.2.4:
a) by adding the words "Mid Rise" before the words "High Density
Residential" in the title of the section;
b) by deleting renumbered Sub-sections 8.2.4 a) and b) and replacing
them with the following,
"a) Development on lands designated Mid Rise High Density
Residential shall be a minimum of 50 and a maximum of 150
units per net residential hectare.
Apartment buildings may be up to twelve (12) stories in
height."
33.\n renumbered Section 8.2.5,
a) by renumbering Section 8.2.5 as Sub-section 8.2.5 f)
b) by adding the following at the beginning of the section:
"The following policies shall apply to the development of lands
designated for residential purposes in the Bowmanville West Town
Centre.";
c) by inserting the letter and parenthesis "a)" before the words "A
minimum of 30%" to begin a new sub-section; and
b)
d) by adding new Sub-sections b), c), d) and e) as follows:
"b) Residential development should incorporate architectural
design elements to create a positive street image. The
mass, scale, and architectural elements of residential
buildings should be sensitive to adjoining areas. Design
8
elements height, mass, and architectural features should
complement the overall neighbourhood character. Context
sensitive design will support the creation of a unique sense
of place that respects local cultural and natural
environmental features.
c) Taller and higher density buildings should be located at
major road intersections or neighbourhood 'nodes' and
preferably adjacent to public open space. Buildings should
reinforce the prominence of these locations through
appropriate massing, setbacks, building design, and open
space treatments.
d) Building entrances should be easily identifiable and should
incorporate weather protection in the form of awnings,
canopies and arcades, as well as entry landscaping.
e) Appropriate separation from the railway corridor is necessary
through:
. the creation of a 30 metre setback as required by the CP
Rail guidelines;
. the inclusion within that setback of a 10 metre
landscaped zone adjacent to the railway corridor to
include landscape elements, and permit public or private
rights-of-way for access to adjacent development; and
. the design and siting of buildings so as to minimize visual
and noise impacts from the railway corridor."
34.ln renumbered Section 10.2.2, by adding the words "Brookhill Tributary of
the" before the words "Bowmanville Creek".
35.By renumbering Section 10.2.4 as Section 10.2.5 and by adding a new
Section 10.2.4 as follows:
"10.2.4 It is the Municipality's policy to have a small publicly accessible
square established at an appropriate location on the north side of
Highway 2 between Clarington Boulevard and Green Road. This
may be considered in conjunction with any arrangements to close
and convey portions of the unopened road allowance between
Concessions 1 and 2."
36.ln renumbered Section 11.2.2, by adding the word "Rail" after the word
"GO" and by adding the words "and transit terminal" after the word
"Station" .
37. By deleting the renumbered Section 11.2.3.
38. By deleting original Section 11 titled "Special Policy Area No.1" in its
entirety and renumbering the following Sections accordingly.
39.By deleting renumbered Section 13 in its entirety and replacing it with a
new Section 13 as follows:
9
"13. Urban Design Policies
13.1 Purpose
Achievement of the Municipality's urban design vision for
Bowmanville West Town Centre is of the highest priority. In order
to ensure this vision is achieved the Plan provides four levels of
design policies:
a) Urban Design Objectives, found in Section 3.4 of the Plan
are broad statements of the intent and key aspects of the
design policies;
b) Detailed Site Design Policies in Section 13.3 relate to a
variety of site development issues including parking,
buffering, landscaping, pedestrian access, service areas and
signage;
c) Building Design Policies in Section 13.4 deal with elements
of building form and design; and
d) A Demonstration Plan in Schedule A is a plan for the
Bowmanville West Town Centre demonstrating an
application of the principles, criteria and policies. This plan
is intended to be exemplary rather than regulatory in that
they provide explanations or examples of the application of
the urban design policies.
Urban design principles, detailed site design criteria and building
design policies are provided by this Plan in order to assist in the
evaluation of development proposals through the integration of
rezoning and site plan processes.
13.2 Detailed Site Design Policies for Commercial Development
10
13.2.1
Street and Pedestrian Network
. An open grid of public and private streets, and major private
lanes will form the basic organizational structure for the area an
should define an urban block pattern, provide maximum
pedestrian, bicycle, and vehicular connectivity and route
choices, and facilitate access to existing and proposed transit
services.
. The street network will form a key componEmt of the public
realm and should be characterized by high quality streetscaping
and landscape treatments.
. Where commercial uses front on a public or private streetline,
sidewalks should continue to the building face.
. Sidewalks in major pedestrian zones on both public and private
streets including Highway 2/King Street, Clarington Boulevard,
Uptown Avenue, and Green Road should be at least 3.0m wide.
. Sidewalks will be provided on both sides of all public streets and
a minimum of one side of all private streets,
. Sidewalks should promote active and safe pedestrian activity
and stimulate visual interest. All sidewalks fronting commercial
uses will include in-ground trees planted 6.0 to 9.0m on centre
(minimum 70 mm calliper), pedestrian scale lighting, and street
furnishings such as garbage receptacles, and possible outdoor
merchandise displays and selling areas.
. All sidewalks fronting other non-commercial uses should include
in-ground trees planted 6.0 to 9.0 m on centre (minimum 70 mm
calliper) within the grassed landscape boulevard, pedestrian
scale lighting, and street furnishings such as garbage
receptacles.
. The use of special paving treatment is encouraged at focal
points including building entrances, squares, and through block
connections.
. Clearly designated pedestrian crossings should be provided at
the intersection of all public and private streets and major
private laneways. Pedestrian crossings should be marked with
line painting or surface material variation and should be at least
3.0 m wide.
11
. Private streets must be designed according to municipal road
standards and function as an extension of the overall public
street network. The municipal street lighting design standard for
public streets in the Bowmanville West Town Centre will be
used on private streets.
13.2.2 Building Orientation and Site Layout
. Buildings will be organized to define and frame abutting streets,
major private laneways, intemal drive aisles, sidewalks, parking
and amenity spaces.
. The large format "super block" will be broken into functionally
and visually smaller units by major private laneways and internal
drive aisles, a network of connected walkways, and
landscaping.
. Building setbacks shall be reduced to minimize distances
between building entrances and abutting public street
sidewalks; to establish a consistent built form edge; and to allow
for the development of a significant streetscape contributing to
the identity and amenity of the area. Maximum building
setbacks from the property line on public streets are as follows:
. Highway 2: 3.0 m
. Clarington Boulevard: 2.0 m
. Uptown Avenue: 2.0 m
. Definition of the street edge is apriority. At least 60% of the
total street frontage shall be occupied by buildings on Highway
2, Clarington Boulevard, and Green Road. The zoning by-law
will establish mandatory limits for total street frontage of
buildings.
13.2.3. Surface Parking Areas
. Internal vehicular routes will be clearly defined by raised and
curbed landscape islands planted with trees and low level
vegetation. Internal drive aisles will be a minimum 6.0 m in
width.
. Parallel parking spaces should be provided on private roads at
store fronts with appropriate bump-outs at periodic intervals
where high pedestrian activity is anticipated.
12
. Parking aisles should not exceed 30 contiguous spaces in
length and should have a consistent design angle perpendicular
to primary building entrances.
. A landscaping island should be provided at the mid point of the
parking aisle, and/or every 15 parking bays (whichever provides
a greater number of islands). The landscaping island should be
a minimum width of 2.5 m and include a minimum of one tree
(minimum 70 mm calliper) per parking row.
. Surface parking areas may be lowered by 0.5 m from the
adjacent street grade to reduce visual prominence.
. Appropriate lighting levels and consistency of coverage will be
provided in parking area to assist both pedestrian and vehicular
circulation. The height and intensity of light standards should be
sensitive to adjacent land uses minimizing light spillover, glare
and impact on night skies. Full cut-off fixtures are to be used.
. Designated handicapped and mobility impaired parking spaces
should be located as close as possible to building entrances
and be clearly identified by signs or markings.
13.2.4. Landscape Buffers
. High quality landscaping treatments will be used to define site
boundaries, provide buffers between adjoining developments,
and screen storage and utility areas.
. Landscaped areas adjacent to the streetline will be a minimum
of 3.0 m wide adjacent to parking areas.
. Trees at the perimeter of parking areas will be planted every 6.0
to 9.0 m on centre (minimum 70 mm calliper).
. To ensure opportunities for surveillance from adjacent areas,
perimeter hedge and shrub screening should not exceed 1.0 m
in height.
. Selection of plant material should consider the foliowing:
. Year-round appearance;
. Seasonal variety;
. Hardiness and resistance to disease;
. Maintenance requirements;
. Tolerance of plant materials to salt; and
. Urban conditions.
13
13.2.5. Pedestrian Access
. Pedestrian walkways shall be contiguous to major private
laneways and opposite primary building entrances to enable
safe and direct pedestrian movements.
. An internal pedestrian walkway network will visually and
functionally define smaller parking "courts".
. Walkways should be a minimum of 1.5 m wide, with a
landscaping zone on one side that is 2.0 m in width.
. Walkways will include pedestrian-scaled amenities wherever
possible, such as benches, trash receptacles and lighting.
. Drive aisle crosswalks should be signed and constructed of
materials that are different to the drive aisle, such as
interlocking brick paving.
13.2.6. Pedestrian Entrances
. Main entrances to buildings shall be emphasized through
canopies, awnings. towers or similar taller, non-habitable
building structures. The volume and height of such structures
emphasize the prominence of entrances particularly at a corner
location.
. Each store, commercial unit, or building will generally provide an
entrance facing the adjacent street.
. Building entrances shall be identifiable and accessible to the
disabled. High quality streetscape and landscaping treatment is
encouraged at all building entrances.
. Windows should be coordinated with the location of pedestrian
walkways to provide interest and improve security along these
routes.
. Pedestrian access from adjacent neighbourhoods should be
provided by walkways where insufficient access is available
from street sidewalks.
13.2.7. Parking Area Landscaping
14
. Internal landscaping elements will define visually and
functionally smaller parking "courts" and reduce the overall
impact of surface parking areas and heat island effects.
. A landscaped island should be located at each end of every
parking aisle and will be located at the end of every aisle greater
than 20 spaces in length. Landscaped islands should be a
minimum width of 2.5 m wide and include one tree, minimum 70
m calliper, per parking row.
. Planting beds and landscaped islands should include a 4-inch
curb to prevent damage caused by vehicular movements and
snow clearing.
. Where possible, internal landscaping should incorporate
existing vegetation and significant tree planting.
13.2.8. Amenity Access
. Amenities may include terraces, parkettes or squares, water
features, public art, outdoor dining areas and transit shelters.
. Customer and visitor amenities should be located in close
proximity to building entrances.
. Amenities are particularly important in the Street-Related
Commercial Areas.
. Bicycle parking facilities shall be provided to encourage
alternative modes of transport, particularly for employees and
consumers with small purchases.
. Amenity areas shall be located within landscaped, pedestrian
spaces, and provide seating.
13.2.9. Service Areas
. Service areas will not be visible from public roads, major
pedestrian or residential areas. It is preferable to locate service
areas off side streets or service driveways.
. Service areas should be an integral part of the building and/or
site design and not separate stand-alone structures. Storage of
goods or garbage will be internal to the main buildings,
wherever feasible. Alternatively, garbage will be stored in a
15
building of similar architectural character to the principal building
with a full roof and steel doors.
. Service areas for delivery, loading and garbage pick-up will be
coordinated to reduce vehicular interruptions along the public
street and within parking areas.
. Screening will use building materials and/or landscape
treatments similar to those used for the principal buildings.
. Where solid screens are provided, the materials should be
similar to or compatible with those of the building's exterior
finishes.
13.2.10. Transit Facilities
. Building entrances and bus stops should be arranged to provide
convenient access to the buildings by public transit passengers.
. On sites adjacent to or near a bus stop, conveniently located
walkways will be provided to cross and connect individual sites
is encouraged in order to provide pedestrians the most efficient
route to and from transit stops.
13.2.11. Signage
. Pylon signs for private development should be oriented to
address the street frontage, street intersections and primary
access driveways. Pylon signs should be compatible with the
associated building design in scale, material and colour, and
should be set within a landscaped setting.
. Building identification signs should be incorporated on the front
fagade, and should be compatible with the building design in
scale, material and colour.
. Externally lit signs are encouraged, particularly those that face
the public street or parallel a pedestrian walkway.
. Building identification signs should be applied as large scale
building elements, including awnings and banners signs to
contribute to an artful and dynamic building presence that will be
attractive and visible to passing pedestrians and motorists.
. Directional signs should be provided for pedestrian walkways,
parking and service areas. The graphic quality of directional
16
signs should be clear and distinct and be coordinated with the
image of the development.
13.3 Building Design Policies
13.3.1 Building Materials and the Location of Buildings on a Property
. Blank or single material facades that extend the entire length
of the building parallel to the public street will incorporate
additional architectural detailing and, where appropriate, signs,
murals, sculptural or graphic design.
. Facades longer than 25 metres shall be subdivided through a
combination of windows and projections and recessions in the
building wall to create a consistent rhythm across the fac;:ade
and establish divisions that express a hierarchy of entrances
and identify individual businesses, where applicable.
. At least 60% glazing shall be provided on the at-grade primary
building facades and areas that have public activity. Glazing
should be actively used to provide storefront windows or
merchandise displays.
. Corner buildings at the intersections of King Street/Highway 2
with Regional Road 57, Clarington Boulevard, Green Road
and Boswell Drive, or at gateway locations shall include
articulated building elements in the form of towers, bays or
other details that emphasize the focal nature of these buildings
and wall projections, recessions, materials and other details
that enhance the visibility of these locations.
. Building materials recommended for new construction include
brick, stone and wood frame. Materials such as aluminium,
steel and metal panels may be used provided they are used
within an appropriate context.
. Rooftop mechanical equipment and fume extractor vents
should be integrated with the building design and rooftop units
and vents will be screened using materials complementary to
the building. Where appropriate, parapets should be used to
screen rooftop mechanical units.
13.3.2 The following design guidelines shall be considered with the
location of a drive-through facility:
17
. Any drive-through facility must be located on a lot greater than
3.000 sq. m;
. All buildings containing drive-through facilities shall be
oriented to the primary street frontage with a setback not to
exceed 3.0 m. No portion of the stacking lane and no parking
spaces or drive aisle shall be located within the setback area;
. Drive-through facilities (including the stacking lane, order
board. loud speaker, pick up window, or banking machine)
shall not be located within 12 m of properties zoned for or
containing residential uses;
. Speakers and order-boards associated with a drive-through
facility shall be oriented away from a residential use and their
sound levels should be minimum so as not to create sound
disturbance. Screening from headlights must be provided;
. Drive-through facilities located adjacent to properties zoned to
permit residential uses shall construct opaque fencing at least
1.8 m in height, between the uses; and
. Landscape buffers adjacent to a property zoned to permit
residential uses should be a minimum of 2.0 m wide and
include ample coniferous trees (minimum of 2.4 m height), and
deciduous trees (minimum 70 mm calliper).
13.3.3 The following design guidelines shall be considered when
reviewing the stacking lanes at a drive-through facility:
. 1.5 metre wide direct pedestrian walkway to the building
entrance which does not intersect with or cross the stacking
lane shall be provided and maintained on the lot from the
primary street frontage;
. Stacking lanes shall have a minimum width of 3.0 m;
. For a restaurant with a drive-through facility a stacking lane
length of a minimum 12 vehicle queuing spaces (one vehicle
queuing space is defined as 6.0 m in length) shall be provided.
At least 4 queue spaces shall be located between the pick-up
window and the order board station;
. For all other drive-through facilities a stacking lane length of a
minimum 4 vehicle queuing spaces (one vehicle queuing
space is defined as 6.0 m length) shall be provided;
18
. The entrance to a required stacking lane may not be located
within 18 m of a site access to a public street;
. The required stacking lane must not interfere with or block
access to required parking spaces;
. A required stacking lane should not be crossed or bisected by
a driveway, or access to a loading space access or service
area;
. The full length of the stacking lane must be demarcated by
concrete curbs, and the use of soft and hard landscape
featu res;
. Stacking lanes should be linear and straight, with a minimum
number of curves or turning movements and should not
interfere with traffic on public streets; and
. Double drive-through facilities on a site should be avoided.
Where a double drive-through condition cannot be avoided the
landscaping and decorative pavement shall be increased on-
site.
13.4 Demonstration Plans - Schedule A of this Plan, the Demonstration
Plan, shows one scheme for the development of the area that
successfully implements the urban design, land use and
transportation objectives of this Plan. The Illustrated Urban Design
Policies in Schedule B of this Plan provides examples and
precedents of the application of the urban design policies of the Plan.
Schedules A and B are intended to be exemplary rather than
regulatory."
40.ln Section 14.1,
a) by deleting Sub-section b) and replacing it with the following:
"b) provides increased densities in the Bowmanville West Town
Centre and structured parking wherever feasible:";
b) by renumbering Sub-section c) as Sub-section d):
c} by adding a new Sub-section c) and renumbering accordingly:
"c) encourages walking and biking as alternative means of
transportation; and"
d) in renumbered Sub-section d), by replacing the word "surface" with
the word "bus".
41. By deleting Section 14.2 and replacing it with the following;
19
"14.2 The siting and design of buildings will consider concepts to
maximize the potential energy savings including:
a) orientation for maximum passive solar gain in winter;
b) the construction of new buildings to meet the LEED Rating System;
c) green roof design and the provision of well-designed landscaping of
parking areas to minimize heat island effects;
d) renovations of existing buildings for energy and water conservation
will be encouraged; and
e) the use of alternative sustainable energy sources, such as solar."
42.ln the third sentence of the renumbered Section 15.2.1:
a) by deleting the word "These" from the beginning of the third
sentence and replacing it with the words "Those roads"; and
b) by deleting the words "which is intended" and replacing with the
words "which are intended".
43.ln renumbered Sub-section 15.2.3 a):
a) by adding the words "transfer to and" before the word "assumption";
b) by adding the words "as public streets" before the words "at some
future date"; and
c) by adding the words "by the Municipality" to the end of the sentence
after the word "necessary".
44.ln renumbered Section 15.2.5, by deleting the words "appropriate road
authority" and replacing them with the words "Region of Durham".
45.By adding a new Section 15.2.6 as follows:
"15.2.6 Critical components of the grid street system are required as a
precondition of further development and/or lifting of a holding
symbol for certain lands in the Bowmanville West Town Centre as
follows:
a) for the lands north of Highway 2 between Green Road and the
proposed extension of Boswell Drive, the following road
improvements are required:
i) the proposed extension of Boswell Drive from Highway 2 to
the proposed Brookhill Avenue as identified on Map A; and
ii) the construction of the future Brookhiii Boulevard identified
on Map A from Regional Road 57 through to the Boswell
Drive extension as a public road or the construction of
Uptown Avenue from Regional Road 57 through to the
Boswell Drive extension as a combination of a public and a
private road as identified on Map A.
20
b) for the lands north of Highway 2 between Green Road and
Clarington Boulevard, the construction of Uptown Avenue
between Green Road and Clarington Boulevard.
c) for the lands on the southwest corner of Regional Road 57
and Highway 2 the construction of Prince William Boulevard
easterly from Pethick Street to Regional Road 57."
46. By changing the title of renumbered Section 15.3 from "Public
Transportation Policies" to "Public Transit Policies".
47. By deleting renumbered Section 15.3.1 and replacing it with the following;
"15.3.1 The Municipality, in conjunction with the Region of Durham
and GO Transit shall endeavour to enhance public transit
use and access in the Bowmanville West Town Centre."
48. By adding new Sections 15.3.2 and 15.3.3 as follows:
"15.3.2 The Municipality will encourage the development of the
Bowmanville West Town Centre as a transit node by:
a) encouraging a high level oftransit service from transit
providers;
b) providing sidewalks and high quality streetscape in pedestrian
activity areas in accordance with Section 15.4 and the urban
design policies of Section 13;
c) considering the development of structured parking facilities in
partnership with private landowners; and
d) when the Municipality is proposing public works in the West
Town Centre, the public authority will consider opportunities to
improve the pedestrian and cycling environment, bus stops
and shelters and streetscape enhancements.
15.3.3 Development in the West Town Centre will be transit-supportive
through:
a) providing for street-oriented development with no large parking
areas between the adjacent primary public street and
buildings;
b) developing at higher densities;
c) providing frequent pedestrian linkages from streets to stores,
between buildings and through parking areas;
d) contributing to a high quality public streetscape through
landscape treatment along the streetline; and
e) providing for compact development through shared parking
where appropriate, and parking structures."
21
49.ln renumbered Section 15.4.4:
a) by deleting the words "Future Streets" and replacing them with the
words "Private Streets";
b) by deleting the words "Subsection 5.2.5(d)" and replacing with the
words "Subsections 5.2.5(b) and 15.2.3".
50. In renumbered Section 15.4.5 by deleting the words and punctuation "shall
be identified in the Urban Design Guidelines. These areas".
51.ln renumbered Section 16.2.4,
a) by replacing the words "Master Drainage Plan" with the words
"Subwatershed Plan"; and
b) by removing the words "or subwatershed" after the words
"Bowmanville Creek";
c) by deleting the second and third sentences and replacing them with
the following "All developments within the Bowmanville Creek
watershed will be undertaken in accordance with the policies of the
Brookhill Tributary Subwatershed Plan."
52.ln renumbered Section 16.2.5. by adding the words "or Subwatershed
Plan" to the end of the last sentence.
53. In renumbered Section 17 .2.1 b),
a) by adding the words "or any commercial development with loading,
refuse pick-up or drive-through facilities within 60 metres of a
sensitive use" to the end of the first sentence; and
b) by adding the words "as appropriate" to the end of the last
sentence.
54. In renumbered Section 17.2.2, by adding the following new sentence to
the end of the Section; "In the event of a comprehensive review, Rezoning
By-laws may be considered in advance of a site plan but will be subject to
holding provisions in accordance with the policies of Section 24 of the
Official Plan and Section 17.2.3 and 17.2.4 of this Plan."
55. By adding new Sections 17.2.3 and 17.2.4 as follows:
"17.2.3 In addition to the provisions of Section 23.4.2 of the Official Plan,
Holding Symbols may be used to ensure achievement of the
policies of this Secondary Plan by establishing conditions linking
the development to new retail space to population growth in
Clarington, the achievement of urban design policies and
objectives through site plan agreements and agreement on the
provision of infrastructure.
17.2.4 In addition to provisions of Section 23.4.3 of the Official Plan, prior
to the lifting of a Holding Symbol, the following provision apply in
respect to the Secondary Plan Area:
22
a) plans for the proposed development show that the proponent
has successfully implemented the Urban Design Policies
contained in Section 13 and the results of studies required
under Section 17.2.1, and the market, land use and
transportation objectives of this Plan to the satisfaction of the
Municipality;
b) in the case of development of land designated for General
Commercial or Street-Related Commercial uses located north
of Highway 2 to the west of Green Road to the proposed
extension of Boswell Drive:
i) arrangements have been made satisfactory to the
Municipality for the construction and dedication as a public
highway of:
. the proposed extension northward of Boswell Drive from
Highway 2 to the proposed Brookhill Avenue;
. the proposed Brookhill Avenue from Green Road to the
proposed extension northward of Boswell Drive;
. either proposed Brookhill Avenue from Regional Road
57 to Green Road or the construction of Uptown
Avenue from Clarington Boulevard to Regional Road 57
as a public street, or both, determined by the
Municipality.
Ii) arrangements have been made satisfactory to the
Municipality for the construction of Uptown Avenue from
Green Road to Boswell Avenue as a private road and its
future dedication as a public street if the Municipality
requires its dedication in the future;
c) in the case of development of land designated for General
Commercial or Street-Related Commercial uses located to the
north of Highway 2 between Green Road and Clarington
Boulevard, arrangements satisfactory to the Municipality have
been made for the construction and dedication of the proposed
extension of Uptown Avenue from Clarington Boulevard to
Green Road as a public street:
d) in the case of development of land on the south-west corner of
Highway 2 and Regional Road 57 arrangements have been
made satisfactory the Municipality for the construction and
dedication of the extension of Prince William Drive easterly
from Pethick Street to Regional Road 57; and
e) in the case of land which abuts or includes any part of the
proposed allowance for the extension of Prince William Drive
easterly to Regional Road 57 or westerly to Green Road, that
arrangements have been made satisfactory the Municipality for
23
the construction and dedication of the extension of Prince
William Drive."
56. In renumbered Section 17.4, by renumbering the text as Section 17.4.1
and,
a) by deleting the words "regard shall be had for" and replacing them
with the words "shall comply with"; and
b) by inserting the words "policies of this Plan and any Urban Design"
between "Urban Design" and "Guidelines".
57. By adding a new Section 17.4.2 as follows:
"17.4.2 Where a proponent submits a proposal for the development of
land, the Municipality will require that the proponent demonstrate
how the proposed design and organization of the site and
buildings:
a) Addresses the policies of this Plan, in particular the urban
design policies of Section 13;
b) Contributes to a compact, urban. pedestrian-oriented form and
function. that enhances pedestrian accessibility, strengthens
walking as the preferred means of getting from place to place
and adds pedestrian amenities such as textured paving.
seating benches and landscaped areas;
c) Provides for access from transit stops;
d) Contributes physical links into and integrates with the adjacent
community;
e) Contributes to the continuity of building fa9ade along the
street;
f) Orients such elements as public entrances, display windows,
canopies, and signage to the street; and
g) Locates parking areas so as not to interrupt the continuity of
building fa9ade along the street and the creation of a street
edge of buildings."
58. In renumbered Section 18.
a) by adding the Section number 18.1 in front of the first sentence;
b) by adding the Section number 18.2 in front of the last sentence that
begins liThe policies of the Plan";
c) by adding the following words to the end of Section 18.2; "In the
event of a conflict between the provisions of the Official Plan and
this Plan. the Secondary Plan shall prevail."
59. By adding a new Section 18.3 as follows:
"18.3 Definitions
24
a) Department Store
"department store" shall mean a retail store containing a minimum
of 5,000 square meters of gross leasable floor space organized into
a number of individual departments and primarily engaged in the
sale of a wide variety of commodities which shall include clothing,
hardware, home furnishings and household appliances.
b) LEED Rating System
"LEED Rating System" shall mean the Leadership in Energy and
Environmental Design Green Building Rating System established
by the Canada Green Building Council as amended from time to
time."
By amending Map A - Land Use as shown on Exhibit "A"
25
EXHIBIT "A" To Official Plan Amendment No. 44
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ATTACHMENT 5
Modifications to Amendment 44 as Published on May 30th
1. Item 4
Delete proposed policy 1.3 and replace with a new goal 2.4 as follows:
"2.4 To consider comprehensively land use, market, urban design and
transportation objectives in the consideration of any application for
the development of land in the Bowmanville West Town Centre"
2. Item 10
a) Modify the proposed new Subsection 4.3 d) by deleting the words ",and
shall be subject to the fulfillment of the provision of Subsection e) below" .
b) Modify the proposed new Subsection 4.3 e) by deleting the words "those
allocations" and replacing them with the words "beyond the thresholds".
3. Item 11
Delete the text and replace it with the following:
"By deleting Sections 4.4 and 5.2.4"
4. Item 12
Modify Subsection 4.5 c) by deleting "Section 4.4" and replacing it with
"Section 4.3"
5. Item 39
a) Modify new Section 13.1 b) by deleting "Section 13.3." and replacing it
with "Section 13.2"
b) Modify new Section 13.1 c) by deleting "Section 13.4 and replacing it with
"Section 13.3"
c) Modify Section 13.2.8 by changing the title from "Amenity Access" to
"Amenities"
d) Modify the second bullet of Section 13.2.10 by deleting the words "is
encouraged".
6. Item 42
Modify by deleting the words "the renumbered"
7. Item 43
Modify the first line by deleting the word "renumbered".
8. Item 44
Modify the first line by deleting the word "renumbered".
9. Item 46
Modify the first line by deleting the word "renumbered"
10. Item 47
Modify the first line by deleting the word "renumbered".
~-
. ...,
11.ltem 48
Modify the first line by adding at the begin-ning the following:
"By renumbering Section 15.3.2 as Section 15.3.4 and"
12. Item 45
a) Modify new Subsection 15.2.6 by deleting the first four lines and replacing
them with the following:
"As a precondition of development of certain lands in the Bowmanville
West Town Centre, appropriate arrangements shall be made for the
following critical components of the grid street system:
b) Modify new Subsection 15.2.6 a) by deleting clause 2 and replacing it with
the following:
"ii) the construction of proposed Brookhill Avenue as a public street from
Boswell Drive extension to Regional Road 57 as identified on Map A."
c) Modify new Subsection 15.2.6 b) and c) by adding at the each of them "as
a public street".
13. Item 49
Modify sub-item b) of Section 15.4.4 by deleting "Subsection 5.2.5 b) and
15.2.3" and replacing it with "Subsection 5.2.5.b) and c) and Subsection
15.2.3".
14.ltem 55
a) Modify the first bullet of clause i) of Subsection 17.2.4 b) to change
reference from "Brookhill Avenue" to "Brookhill Boulevard"
b) Deleting second bullet and third bullet of clause i) of Subsection 17.2.4 b)
and replacing it with the following:
. the proposed Brookhill Boulevard from the proposed northerly
extension of Boswell Drive to the easterly limit of Lot 16 in the former
Township of Darlington."
c) By adding a new clause iii) as follows:
"iii) arrangements have been made satisfactory to the Municipality for
the construction of a private road from Highway 2 to the Uptown
Avenue extension and its future dedication as a public street if the
Municipality requires its dedication in the future."
d) adding a new subsection 17.2.4 b) iv) as follows:
"iv) arrangements have been made satisfactory to the Municipality for
deposit with it of securities sufficient to cover the costs of
construction of Brookhill Boulevard from the easterly limit of Lot 15 to
Regional Road 57."
e) Modify Subsection 17.2.4 c) by adding to the end of it the following:
"and arrangements have been made satisfactory to the Municipality for the
construction of a north-south road connecting Highway 2 to Uptown