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Report To: Planning and Development Committee
Date of Meeting: December 5, 2016
Report Number: PSD-068-16 Resolution Number:
File Numbers: COPA 2016-0003,
ZBA 2016-0021,
SPA 2016-0028 By-law Number:
Report Subject: An Application by Excelsior Financial
To Permit a Mixed Use Development at the South East Corner of
Bloor Street and Townline Road South in Courtice
Recommendations:
1.That Report PSD-068-16 be received;
2.That the applications to amend the Official Plan and Zoning By-law 84-63 submitted by
Excelsior Financial to permit a mixed use development continue to be processed and
that a subsequent report be prepared; and
3.That all interested parties listed in Report PSD-068-16 and any delegations be advised
of Council’s decision.
Municipality of Clarington
Report PSD-068-16 Page 2
Report Overview
An application has been submitted by Excelsior Financial Group to develop the lands located
at the southeast corner of Bloor Street and Townline Road South in Courtice.
This proposal consists of a mix of residential and commercial uses including a retail
commercial plaza, a motor vehicle fuel bar and two residential apartment buildings.
The purpose of this report is to provide information on the proposal and receive public
comments.
1. Application Details
1.1. Owner: Hannu Halminen
1.2. Applicant: Excelsior Financial
1.3. Area: 1.9 hectares (4.6 acres)
1.4. Proposal: To permit the development of a commercial and residential
mixed use site which would include:
Two 6-storey residential buildings – 112 two-bedroom units
and 16 three-bedroom units.
Total commercial floor area – 3,880 square metres (41,750
square feet) including: a fuel bar, car wash, oil changer and
a drive-thru restaurant.
Floor Space Index (FSI) – 1.05.
Density – 68 units per hectare (27 units per acre).
1.5. Location: Southeast Corner of Bloor Street and Townline Road South,
Courtice.
1.6. Within Built Boundary: Yes
2. Background
2.1 A Pre-consultation Meeting was held with Excelsior Financial on August, 18, 2016, where
Municipal staff and agencies offered feedback on the development proposal.
2.2 The necessary development applications were submitted on October 7, 2016, to permit a
mixed use development at the southeast corner of Bloor Street and Townline Road
South. The applications were deemed complete on November 4, 2016.
Municipality of Clarington
Report PSD-068-16 Page 3
2.3 Several reports and studies were submitted in support of these applications. An overview
of those documents is included in Section 7 of this report.
2.4 The Applicant hosted an Open House at the South Courtice Arena on November 22,
2016, to present the development proposal to the neighbours. Further discussion of the
Open House is included in Section 8 of this report.
3. Land Characteristics and Surrounding Uses
3.1 The subject lands are located at the southeast corner of Bloor Street and Townline Road
South on land that is currently vacant. See Figure 1. The subject property was part of a
larger parcel of land that has been partially developed. That development included 13
single detached dwellings on the north side of Gord Vinson Avenue and the “Villas of
McLaughlin Heights” – a stacked townhouse development. The remaining portion of the
land has its primary frontage onto Bloor Street. The subject site has remained as
agricultural land. Portions of this land have been regarded in the context of earlier
development projects.
3.2 The property slopes from north to south placing it level with Bloor Street but significantly
raised above the townhouse development currently under construction immediately to the
south. See Figure 2 and 3.
Figure 1: The subject site and the surrounding neighbourhood
Municipality of Clarington
Report PSD-068-16 Page 4
Figure 2: The subject site viewed from Bloor Street facing south. Townhouse
development to the south can be seen in the background.
Figure 3: Boundary between subject site and the townhouse development to the south
viewed from Townline Road South, facing east.
Municipality of Clarington
Report PSD-068-16 Page 5
3.3 The surrounding neighbourhood includes:
North - Bloor Street, detached homes and Grandview Children’s Centre
South - Two-storey, stacked townhouses
East - One detached dwelling, barns and pasture land
West - Townline Road South and detached homes
4. Provincial Policy
4.1 Provincial Policy Statement
The Provincial Policy Statement identifies settlement areas as the focus of growth. Land
use patterns shall be based on densities and a mix of land uses that efficiently use land,
resources and infrastructure.
Opportunities for redevelopment and intensification must be promoted. Municipalities
must provide a variety of housing types and densities and a range of housing options that
are affordable to the area residents.
Healthy and active communities should be promoted by planning public streets to be
safe, meet the needs of pedestrians, foster social interaction and facilitate active
transportation and community connectivity. Compact and diverse developments promote
active modes of transportation such as walking and cycling.
4.2 Growth Plan for the Greater Golden Horseshoe
The subject lands are within the defined Built Boundary. Population and employment
growth will be accommodated by directing 40% of growth annually to the Built Up Areas
through intensification and efficient use of existing services and infrastructure. The
development of complete communities is encouraged by promoting a diverse mix of land
uses, a mix of employment and housing types, high quality public open space and easy
access to local stores and services. New transit-supportive and pedestrian-friendly
developments will be concentrated along existing and future transit routes. The Growth
Plan establishes minimum targets for residential development occurring annually within
each upper tier municipality to be within the built up area.
5. Official Plans
5.1 Durham Regional Official Plan
The Durham Region Official Plan (Regional Plan) designates the subject property as
“Living Areas” with a “Regional Corridor” overlay. It is located beside Bloor Street which
is a Type “A” Arterial Road and also a “Transit Spine”.
Municipality of Clarington
Report PSD-068-16 Page 6
Regional Corridors shall be developed as higher density, mixed-use areas that support
transit services and pedestrian-orientation. Regional Corridors with an underlying “Living
Area” designation shall support an overall, long-term density target of at least 60 units per
gross hectare and a floor space index of 2.5 across the entire corridor. The building form
should include a wide variety of formats, generally mid-rise in height, with some higher
buildings, as detailed in area municipal Official Plans.
In addition, Provincial policy directs the Region of Durham to achieve a minimum of 40%
of all new residential development on land within the Built Boundary on an annual basis.
The Region of Durham has identified that, within Clarington, 32% of all new residential
development should be on land within the Built Boundary on an annual basis.
Living Areas shall be used predominantly for a wide variety of housing types, sizes and
tenures. Living Areas shall be developed in a compact form through higher densities and
by intensifying existing areas. Land uses within this designation are to incorporate good
urban design and promote pedestrian oriented development with access and connections
to transit routes.
5.2 Clarington Official Plan
The Clarington Official Plan designates the subject site “Medium Density Residential”.
This designation allows for residential uses but not commercial uses. Lands designated
residential area are intended to consist primarily of housing. Other uses may be
permitted subject to activity, scale, design and compatibility.
Sites specifically designated “Medium Density Residential” are to have a density between
31 and 60 units per hectare. Predominant housing forms will include: townhouses,
triplex, quadruplex, low-rise apartments and mixed-use developments with a maximum
height of 4-storeys.
Based on the Official Plan designation currently in effect for this site, the Applicant’s
proposal requires an Official Plan Amendment to permit commercial uses and address
the increase in height and density. However, OPA 107 would permit this development.
See Section 5.3 below.
Bloor Street is designated as a “Type A Arterial” road and Townline Road South is
designated as a “Type B Arterial” road. These roads are intended to move significant
volumes of traffic.
The intersection of Bloor Street and Townline Road South is also designated as a
“Prominent Intersection”. At these locations, buildings shall provide:
Massing and height sufficient to emphasize the significance of the intersection;
High quality building materials and building articulation on both street frontages;
Significant areas of transparent glass;
Provide direct access to the buildings from the street; and
Municipality of Clarington
Report PSD-068-16 Page 7
Landscaping, street furniture and where appropriate, public art elements to
complement the intersection and the building design.
5.3 Clarington Official Plan as amended by Amendment 107
On November 1, 2016, Council adopted Official Plan Amendment 107 which brought the
Clarington Official Plan into conformity with the Regional Official Plan and provincial
policies.
Under Official Plan Amendment Number 107 the land use designation of the subject site
has adopted the “Regional Corridor” designation. Regional Corridors are identified as
Priority Intensification Areas. Priority Intensification Areas will accommodate the majority
of growth, and will contain the greatest mix of uses, heights and densities. The
Municipality’s target for intensification is 32% between 2015 and 2021 and 40%
thereafter.
Corridors shall be comprehensively developed to provide for:
Residential and/or mixed use developments with a wide array of uses in order to
achieve higher densities, and transit oriented development;
Other uses that are complementary to the intended function of the Corridor; and
Site design that is sensitive to the existing neighbourhoods.
All new Commercial Development within Regional Corridors shall be a minimum height of
two storeys.
Regional Corridors are to achieve a minimum density of 60 units per hectare and a target
floor space index of 2.5. Minimum and maximum building heights shall be 3-12 storeys,
unless otherwise shown in a Secondary Plan.
In compliance with Provincial policy, The Municipality will achieve a target of at least 32%
of all new residential units within the Built-up Area
5.4 South West Courtice Secondary Plan
Within the South West Courtice Secondary Plan (Secondary Plan), this site is further
designated “Medium Density Residential”. The goal for this area is to provide a broad
range of housing forms to meet evolving needs of current and future residents.
The Applicant’s proposal requires an amendment to the Secondary Plan to permit
commercial development.
6. Zoning By-law
6.1 The subject property is currently zoned “(Holding) Urban Residential Type One ((H) R1)”
in Zoning By-law 84-63. The current zoning will need to be amended to permit the variety
of land uses proposed by these applications. The Zoning By-law also provides a variety
Municipality of Clarington
Report PSD-068-16 Page 8
of regulations for the size of properties, placement and size of buildings as well as the
amount of parking that must be provided. The proposed regulations will be included with
the recommendation report for Council’s consideration.
7. Summary of Background Studies
The Applicant has submitted several reports in support of these applications. Staff have
reviewed the reports and are continuing to work with the Applicant and their consultants
to correct and revise the information that has been submitted. It is expected that further
revisions to these technical documents will be required before a recommendation report
can be prepared.
An overview of those reports is included below.
7.1 Existing Conditions
7.1.1 Archaeological Assessment
A Stage 1 and 2 Archaeological Assessment, conducted on this site in late Fall 2015 did
not result in the discovery of any material of cultural significance. The Ministry of
Tourism, Culture and Sport is satisfied with the conclusions of the Archaeological
Assessment that no further investigation is required.
7.1.2 Phase One Environmental Site Assessment
There are no areas of potential environmental concern within the subject site.
Therefore, no further investigation is warranted and the site is suitable to accommodate
the proposed commercial and residential land uses.
7.1.3 Geotechnical Investigation Report
An analysis was completed in October of 2012 to evaluate the property’s potential for
development of low-rise commercial and residential uses. Since that time the
development proposal has changed to include the two, 6-storey residential buildings.
Further subsurface exploration is required to assess the soil properties in relation to
buildings that are taller than two storeys in height.
7.2 Infrastructure
7.2.1 Functional Servicing Report
Municipal water, sanitary sewer and storm sewers are available at sufficient capacity to
service all of the proposed land uses. However, the applicant still needs to provide more
information about how the servicing within the site will work.
Municipality of Clarington
Report PSD-068-16 Page 9
7.2.2 Stormwater Management Report
All stormwater will be managed on-site to accommodate water levels up to those
anticipated by a 100-year storm event. The quality of the stormwater management
approach will be designed to provide an “enhanced” level of protection before it
discharges into the Municipal storm sewer.
7.2.3 Traffic Impact Study (TIS)
Regarding traffic impacts off-site, the TIS concludes that the resulting commercial and
residential traffic generated by this development will not require any traffic and/or road
infrastructure improvements.
Regarding traffic impacts within the site, the TIS notes that the loading bays for service
and delivery vehicles are less than ideal and recommends that the location and design
of the loading bays be further reviewed and modified through the Site Plan process.
The TIS does not mention the site’s impact on, and contribution to, active transportation
(i.e. walking, cycling and public transit). It is expected that this site’s location on a
Regional Corridor and a Regional Transit Spine will mean that future travel to and from
this site will be supported by transit.
7.3 Project Design
7.3.1 Parking Study
The Parking Study did not use Clarington parking ratios in its analysis. In addition, the
analysis does not take into account the proximity of the site to a Regional transit spine
or offer comment on the impact to parking based on complementary visits to different
merchants, services or residents within this site.
7.3.2 Urban Design Report
The purpose of an Urban Design Report is to evaluate the proposal to ensure that the
development blends with the neighbourhood. It should illustrate the proposed building
massing and articulation to show the relationship between the building and the street,
pedestrian and transit linkages, landscape areas and outdoor amenity areas, and
lighting.
The Report should also demonstrate how the impacts on adjacent sites are mitigated.
The Urban Design Report that has been submitted only offers a broad overview of the
development proposal. Further detailed information is required.
Municipality of Clarington
Report PSD-068-16 Page 10
7.3.3 Energy Conservation and Sustainability Plan
The purpose of the Energy Conservation and Sustainability Plan is to demonstrate how
the development will achieve high quality design centred on resource conservation,
efficiency and environmental sustainability. A preliminary assessment of these has
been completed but further information will be required as the proposal proceeds to Site
Plan approval.
7.3.4 Noise Study
The Noise Study states that the traffic noise from the surrounding streets will exceed the
MOE guidelines. As a result, MOE guidelines require that appropriate warning clauses
must be included in the purchase or tenancy agreements for units within the proposed
residential buildings. In addition, it is recommended that these units be equipped with
central air conditioning.
7.4 Policy
7.4.1 Planning Justification Report (Planning Report)
The Planning Report provides an analysis of the proposal in relation to Provincial,
Regional and local planning policies and regulations.
The conclusion of the Planning Report is that this proposal will conform with Provincial
and Regional policies by:
Utilizing existing municipal services;
Providing a transit-supportive development along a Regional transit spine;
Increasing the variety of housing supply; and
Contributing to intensification by providing a higher density within the Provincial Built
Boundary.
The Planning Report also states that this proposal will conform with the Clarington
Official Plan and Secondary Plan by:
Proposing buildings which are compatible with the surrounding neighbourhood;
Providing higher densities and a mix of uses without negatively impacting either the
road system or the existing services; and
Offering a building and site design that includes high quality design, a pedestrian-
friendly environment and an attractive streetscape.
Overall the Planning Report concludes that the proposed development will assist in
transforming this segment of Bloor Street, will achieve the policies for Regional Corridors
and represents good planning.
Municipality of Clarington
Report PSD-068-16 Page 11
8. Public Notice and Submissions
8.1 Public notice for these applications were given by mail to each landowner within 120
metres (400 feet) of the subject property. Two “Notice of Public Meeting” signs were
installed on the property (see Figure 4). The public notice was also posted:
In the “Clarington This Week” newspaper;
On the Municipal website; and
In the Planning Services electronic newsletter.
Figure 4: Public Notice sign viewed from Bloor Street
8.2 As of the writing of this report, Staff had received four inquiries from members of the
public about this project.
8.3 Two of the inquiries requested further details about the application but expressed no
concerns.
8.4 One of the inquiries expressed support for higher density housing. This resident is
expecting to sell their home in the next few years and would like to find a smaller unit in
the local area.
8.5 One of the inquiries expressed support for the proposed fuel bar but was concerned
about the impact of the higher density housing if the apartment buildings are rental vs.
condominium.
Municipality of Clarington
Report PSD-068-16 Page 12
8.6 At an Open House hosted by the Applicant, on November 22, 2016 the neighbours had
an opportunity to learn more about the proposal and provide feedback. Many of the
residents at the meeting expressed concerned with the existing traffic conditions
including: rush hour volume, speeding and noise. In fact, the primary concern raised at
the meeting by the neighbours was how the proposal would impact traffic in the area.
This included the impact of adding 128 households as well as providing commercial
services (i.e. fuel bar and drive-thru restaurant) which would bring even more traffic to the
area.
In addition to traffic, the most common concerns raised at the Open House were:
The impact of the proposed development on the local K-6 school (Dr. G. J.
MacGillivary Public School); and
The massing of two 6-storey buildings in this neighbourhood.
9 Agency Comments
9.1 Regional Municipality of Durham
As of the writing of this report, formal comments had not yet been received from the
Region of Durham.
9.2 Conservation Authorities
Central Lake Ontario Conversation Authority has no objections to the requested Official
Plan Amendment and Zoning By-law Amendment. However, the Applicant will be
required to address a number of technical requirements prior to their support of the Site
Plan application.
9.3 City of Oshawa
As of the writing of this report, formal comments had not yet been received from the City
of Oshawa.
10 Departmental Comments
10.1 Engineering Services
The Engineering Services Department has completed their initial review of the proposed
applications. However, the reports submitted in support of these applications do not
include all of the information required to provide a comprehensive analysis of the
proposal at this time. Staff are continuing to give direction to the Applicant to correct and
revise the reports that have been submitted. Revision of these technical documents is
required before a comprehensive analysis can be completed and before a final
recommendation can be provided.
Municipality of Clarington
Report PSD-068-16 Page 13
10.2 Emergency and Fire Services
The Emergency and Fire Services Department has no concerns with the Official Plan
Amendment and Zoning By-law Amendment applications. Technical comments will be
provided through the review of the Site Plan application.
10.3 Operations Department
A municipal sidewalk, the Operations Department notes, will need to be provided across
the Bloor Street frontage of this site.
10.4 Finance Department
The Finance Department confirms that the property taxes for this site have been paid up-
to-date.
11. Discussion
11.1 Land Use
Properties along Regional Corridors are intended to include a mix of uses with a focus on
higher density to support the successful development of complete communities.
Developments along corridors must be transit-supportive, providing sufficient housing and
jobs to make transit a viable mode of transportation.
The proposed development will contain many components that will contribute to the
Municipality’s objective of transforming the Bloor Street corridor into a higher-density,
mixed-use, transit supportive and pedestrian friendly environment. The density and mix
of uses proposed by this application will support future transit service along Bloor Street
by bringing a concentration of both residents as well as shopping and services in close
proximity to an existing transit line. The details of the proposed development will need to
be carefully reviewed.
11.2 Urban Design
New development must conform with the urban design policies of the Official Plan which
includes:
Locating buildings near the street;
Providing main building entrances that are visible and directly accessible from the
public sidewalk; and
Designing active ground floor uses.
11.3 Traffic
Traffic issues were highlighted in the meeting with area residents. This issue will be
carefully reviewed in the context of the traffic reports being finalized.
Municipality of Clarington
Report PSD-068-16 Page 14
12. Concurrence
Not applicable.
13. Conclusion
This report provided background information for the Public Meeting on the request to
permit a mixed use development as submitted by Excelsior Financial. Staff will continue
processing the application and prepare a subsequent report once all comments have
been received and all potential issues have been satisfactorily addressed.
14. Strategic Plan Application
This proposal will support the objectives of the Strategic Plan by:
Providing a walkable, mixed-use development; and
Supporting a variety of affordable, mixed housing types and community design
attributes that support our residents at every stage of life and across all abilities.
Submitted by: Reviewed by:
David J. Crome, MCIP, RPP Curry Clifford, MPA, CMO
Director of Planning Services Interim CAO
Staff Contact: Paul Wirch, Planner II, 905-623-3379 extension 2418 or pwirch@clarington.net
Carlos Salazar, Manager, 905-623-3379 extension 2409 or csalazar@clarington.net
List of interested parties to be notified of Council's decision is on file in the Planning Services
Department.
Attachments:
Attachment 1 – Proposed Site Plan
PW /COS/tg
I:\^Department\LDO NEW FILING SYSTEM\Application Files\ZBA Zoning\2016\ZBA2016-0021 Bloor & Townline\6-Reports\PSD-066-16
Public Meeting Report v.2.docx
Attachment 1 to
Municipality of Clarington Report PSD-068-16