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Report To: Planning and Development Committee
Date of Meeting: January 30, 2017
Report Number: PSD -009-17 Resolution Number: 3'
File Number: COPA2016-0004 & ZBA2016-0024 By-law Number:
Report Subject: Applications by High Street Courtice Inc. to amend the Clarington
Official Plan and Zoning By-law to permit a 442 unit residential
development along Courtice Main Street
Recommendations:
1. That Report PSD -009-17 be received;
2. That the applications submitted by High Street Courtice Inc. for a Clarington Official Plan
Amendment (COPA2016-0004) and Rezoning (ZBA2016-0024) continue to be processed
including the preparation of a subsequent report; and
3. That all interested parties listed in Report PSD -009-17 and any delegations be advised of
Council's decision.
Municipality of Clarington
Report PSD -009-17
Report Overview
Page 2
This is a public meeting report to provide an overview of the applications by High Street
Courtice Inc. The proposed multi -unit residential development would introduce a total 442 units
along the Courtice Main Street, south of Highway 2 and east of Darlington Boulevard. The
proposal includes 363 apartment units in three buildings, 75 townhouse units and 4 single
detached dwellings.
1. Application Details
1.1. Owner/Applicant: High Street Courtice Inc.
1.2. Agent: Weston Consulting
1.3. Proposal: Application to amend the Clarington Official Plan and
Courtice Main Street Secondary Plan:
To permit townhouse development (up to 3 storeys) on lands
designated Low Density Urban Residential; and,
To allow a reduction in the minimum height required by the Mid -
Rise High Density Residential designation from 6 storeys to 2
storeys for the townhouse development.
Application to Amend the Zoning By-law:
To permit a multi -unit residential development containing a total
of 442 dwelling units:
Building 1: 126 apartment units (10 storeys)
Building 2: 100 apartment units (9 storeys)
Building 3: 137 apartment units (8 storeys)
Townhouses: 75 units (up to 3 storeys)
Single Detached Dwellings: 4 units (up to 3 storeys)
1.4. Area: 9.8 hectares
1.5. Location: Part of Lot 34, Concession 2, former Township of Darlington 13
and 15 Darlington Boulevard and 1475 - 1495 Highway 2
1.6. Roll Number: 1817 010 070 03690; 1817 010 070 04325;
1817 010 070 05300; and 1817 010 070 05200
1.7. Within Built Boundary: Yes
Municipality of Clarington
Report PSD -009-17 Page 3
2. Background
2.1 The subject applications were deemed complete on November 28, 2016. The original
submission proposed a total of 531 units (452 apartments, 75 townhouse units and 4
single detached dwellings). Shortly after receiving the initial submission, the applicant
revised the application by reducing the number of apartment units by 82 units, resulting in
a total unit yield of 442 units (363 apartments, 75 townhouse units and 4 single detached
dwellings. The notice for the Public Information Centre and Public Meeting reflected the
revised application.
2.2 A key map is included in this report as Figure 1 and a preliminary site plan is included as
Figure 2.
Figure 1: Area of Development
ZdA 2016-0024'
COPA 2016 N04
Municipality of Clarington
Report PSD -009-17
Figure 2: Preliminary Site Plan
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Municipality of Clarington
Report PSD -009-17
Page 5
2.3 The current proposal includes the dedication of 0.19 hectares of developable tableland to
the Municipality of Clarington to create additional parking for Tooley's Mill Park.
2.4 The subject development application also requests the transfer of 0.18 hectare of land
owned by the Municipality of Clarington back to the developer. These were previously
dedicated as lands for a stormwater management facility and open space. The
stormwater management pond is no longer needed to service the subject lands. The
location of the requested lands are shown on Figure 1.
2.5 The subject lands have been the subject of previous development approvals that did not
proceed. These parcels are depicted on Figure 3.
x Former "Residences of Farewell" lands
In 2009, amendments to the Clarington Official Plan and Zoning By-law were
approved for a proposed 177 unit apartment building and 6 townhouse blocks. A site
plan application was never received and the development did not proceed. However,
the Open Space lands and lands identified for a stormwater pond were dedicated to
the Municipality of Clarington.
x Former "Pointe of View" lands
These lands were placed in the R4-7 zone in 1988 which permits up to four, 12 storey
apartment buildings and up to 333 dwelling units. In 2007, a site plan application was
processed for 184 apartment units in three 4 -storey buildings. The site plan
application was never finalized and the development did not proceed.
2.6 An application for adjacent lands, referred to as the "Shoppes of Farewell" was zoned
(H)C1-39 in 2005 to allow for 2,650 square metres of retail commercial and office uses.
At the time, an LCBO was contemplated for the site, however development did not
proceed. The design of this site will be reviewed for shared services and access at a
conceptual level. The "Shoppes of Farewell" lands are shown on Figure 3.
2.7 Lands to the south on Darlington Boulevard, having a municipal address of 43 Darlington
Boulevard, were once a contiguous parcel with the "Residence of Farewell" lands. With
the dedication of the Open Space lands to Municipality of Clarington, these lands have
become a separate parcel and are under separate ownership. Future development of 43
Darlington Boulevard would require assembly of additional lands from existing lots along
Darlington Boulevard. The Official Plan designates these lands low density residential.
Planning Act applications are required for any proposed development, including a
separate public meeting. The lands referred to as 43 Darlington Boulevard are shown on
Figure 3.
Municipality of Clarington
Report PSD -009-17
Figure 3: Context of Previous Development Approvals
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Page 6
Municipality of Clarington
Report PSD -009-17
Page 7
2.8 The following studies were submitted in support of the applications and circulated for
comments. A detailed analysis of the supporting documents will be provided in a future
report:
x Planning Justification Report;
x Functional Servicing/Stormwater Management Report;
x Environmental Impact Study;
x Hydrogeological Report;
x Soil Investigation;
x Geotechnical/Slope Stability Reports;
x Traffic Study;
x Urban Design Report;
x Stage 1 Archaeological Assessment; and
x Phase 1 Environmental Site Assessment.
2.9 A Public Information Centre was held on January 11, 2017 at Faith United Church.
Approximately 100 individuals attended the Public Information Centre. An overview is
provided in Section 7.3 of this report.
3. Land Characteristics and Surrounding Uses
3.1 The subject lands are currently vacant, except for 2 single detached dwellings located at
13 Darlington Boulevard and 15 Darlington Boulevard. These would be demolished to
facilitate the development. The subject site has the Farewell Creek and valley system
traversing the lands in a southwesterly direction, on the east side of the site. The site has
regenerated over time.
A Regional Easement (9 meters) wide and Sanitary Trunk Sewer crosses the site, while
stormwater from Highway 2 currently crosses the site and must be accommodated in the
development of the subject lands. (See Figure 1).
3.2 The surrounding uses (see Figure 3) are as follows:
North: Single detached residential lots along Cherry Blossom Crescent; existing
commercial and institutional uses along Highway 2 corridor
South: Farewell Creek valleylands and single detached residential units along
Darlington Boulevard
East: Tooley's Mill Park and Farewell Creek valleylands; single detached residential
lots along White Cliffe Drive and White Cliffe Court
West: Single detached dwellings along Darlington Boulevard and Foxhunt Trail; existing
commercial and retail uses along Highway 2 corridor
Municipality of Clarington
Report PSD -009-17
4. Provincial Policy
4.1 Provincial Policy Statement
Page 8
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 Provincial Growth Plan
The subject lands are within the defined Built Boundary. Population and employment
growth will be accommodated by directing a significant portion of new growth 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. A minimum of
40 percent of all residential development occurring annually within each upper tier
municipality will be within the built up area.
5. Official Plans
5.1 Durham Regional Official Plan
The Durham Region Official Plan designates the subject lands as a Regional Corridor.
Highway 2 is an arterial road and also functions as a transit spine. The Farewell Creek
and valley system is identified as part of the Natural Heritage system.
Living Areas shall be developed in a compact form through higher densities and by
intensifying and redeveloping existing areas, particularly along arterial roads, and develop
with particular consideration for supporting and providing access to public transit.
Regional Corridors are targeted for higher densities and mixed uses, supporting higher
order transit services and pedestrian oriented development. Regional Corridors support
an overall, long-term density target of at least 60 residential units per gross hectare, and
a floor -space index of 2.5.
Municipality of Clarington
Report PSD -009-17
Page 9
By 2015, and each year thereafter, urban areas across the Region shall be planned to
accommodate a minimum 40 percent of all residential development occurring annually
through intensification within built-up areas. The Durham Regional Official Plan requires
a minimum intensification target of 32%for lands within the built boundary in Clarington.
Transit Spines facilitate inter -regional and inter -municipal transit services along arterial
roads (GO Transit), and intersect with local transit services (Durham Regional Transit).
Development along Transit Spines shall provide for complimentary higher densities and
mixed uses in accordance with the Regional Corridor policies.
Since the site is along Highway 2, noise impacts from the arterial road must be mitigated
in accordance with Ministry of Environment guidelines.
5.2 Clarington Official Plan
The lands, save and except for 13 Darlington Boulevard and 15 Darlington Boulevard, are
designated Mid -Rise Residential and are located along a Corridor and within the Courtice
Main Street Secondary Plan area. The Courtice Main Street has a housing unit target of
2000 intensification units and a population target of 4000 people. The lots fronting onto
Darlington Boulevard are designated Low Density Urban Residential.
Corridors are linkages between centres. Development must fulfill objectives for
intensification, and pedestrian/transit supportive development. Corridors support higher
densities. Density must be functional, balanced with compatibility and urban design and
create a distinctive community image.
The site must satisfy the Official Plan's comprehensive Urban Design policies that
encourage a high quality public realm, and give priority to sustainable design, including
environment -first principles, walkability, land efficiency, compact and connected
communities and resource and energy efficiency. Attractive and safe communities are
encouraged to create a sense of place and a diversity of built form. The built form should
facilitate active transportation and public transit.
Highway 2 is identified as an arterial road consistent with the Durham Regional Official
Plan.
5.3 Clarington Official Plan as Amended by Amendment 107
The Clarington Official Plan, as amended by Official Plan Amendment 107 designates the
lands predominantly the Regional Corridor. The lots fronting Darlington Boulevard are
residential internal to the neighbourhood. The amended Clarington Official Plan
establishes urban structure typologies and built form directives for Centres, Corridors,
Transportation Hubs, Waterfront Places, Edge of Neighbourhoods, Along Arterial Roads
and Internal to Neighbourhoods. Mixed use building and apartments are permitted with a
height between 3 and 12 storeys, and minimum net density of 85 units per hectare.
Proposals for multi -unit residential must consider appropriateness of the site,
compatibility, provision of suitable access points, traffic and parking impacts, massing
and urban design policies.
Municipality of Clarington
Report PSD -009-17
Page 10
Amendment 107 added a conceptual trails map which includes a trail along the Farewell
Creek Valley.
5.4 Courtice Main Street Secondary Plan
The lands within the Courtice Main Street Secondary Plan area are designated as Mid -
Rise High Density requiring buildings to be a minimum of six storeys and a maximum of
ten storeys.
The Secondary Plan also identifies a trail system and a network of private lanes to be
considered during the review of the applications.
The Secondary Plan provides detailed urban design policies to ensure street oriented
buildings and an attractive streetscape along the Courtice Main Street. Development
must meet the needs of pedestrians, cyclists and transit users as well as automobiles.
Views and connections to natural heritage features shall be preserved and enhanced.
6. Zoning By-law
Zoning By-law 84-63 has several zones (see Attachment 1) applicable to the site as
follows:
x The R1 Zone permits single detached and semi-detached dwellings.
x The R4-30 Zone permits 177 apartment units in an eight storey building and six
townhouse units — See "Residences of Farewell" lands on Figure 2.
x The R4-7 Zone permits up to 333 apartment units in four, 12 -storey apartment
buildings.
x A narrow strip of lands zoned C1-39 lies between the "Shoppes of Farewell" lands
and the proposed townhouses.
The Holding (H) Symbol remains in place on the majority of the subject lands as previous
development approvals did not proceed.
The rezoning application proposes to establish amended zones and regulations to reflect
the revised development plan.
7. Public Notice and Submissions
7.1 A combined notice of the Public Information Centre and Public Meeting was mailed on
December 22, 2016. Details of the application were also included in the Planning
Services Department E -update. Details of the application, including copies of supporting
material and drawings, were posted to the development application page on the
Municipality of Clarington website.
7.2 The applicant hosted a Public Information Centre on January 11 at Faith United Church in
Courtice, and approximately 100 people attended.
Municipality of Clarington
Report PSD -009-17
Page 11
7.3 In addition to providing comments at the Open House, several individuals contacted staff
seeking additional information, and many have submitted written comments. At the time
of writing this report, concerns raised relate to:
x Development is too dense; high density not wanted or needed
x Insufficient parking provided
x Traffic and access — existing concern regarding traffic using Darlington Boulevard,
Foxhunt Trail as a shortcut to Oshawa and Highway 401 via Olive Street and
Harmony Road; traffic from this development exiting Darlington Boulevard should be
forced to travel north to the signalized intersection
x Timing of light changes at signalized intersection; capacity of intersection
x Condition of Darlington Boulevard; lack of sidewalks
x Safety of pedestrians/children
x Impacts to property values
x Development will make area unattractive; ruin country feel
x Building height should be reduced; six or seven storeys
x Compatibility with existing development in area
x Strain on health care, schools and other social/community services
x Construction traffic
x Timing of trail or walkway to creek
x Development impacts to Farewell Creek and valley system
x Increased noise impacts from rooftop mechanical systems
x Vandalism, crime, privacy, and pollution.
7.4 Staff have also been contacted by individuals with an interest in purchasing or renting
units within the development.
8. Agency Comments
8.1 At the time of writing this report comments from Regional Planning and the Central Lake
Ontario Conservation Authority have not been received.
8.2 Kawartha Pine Ridge District School Board
Kawartha Pine Ridge District School Board offered no objection to the proposal and
advised students generated by this development would attend S.T. Worden Public School
and Courtice Secondary School. School Board staff request consideration be given to
sidewalk routes and pedestrian connections to allow safe access for students.
8.3 Other Agencies
Enbridge, Rogers and Canada Post have no objections to the proposed applications.
Municipality of Clarington
Report PSD -009-17
9. Departmental Comments
9.1 Engineering Services
Traffic and On -Site Parking
Page 12
The applicant has submitted a Transportation Impact Study in support of this
development. Staff note that the study does not adhere to the Municipality of Clarington
nor the Durham Region Traffic Impact Study Guidelines.
The analysis did not sufficiently address the volume of traffic that will be generated by the
development of this site and potential traffic infiltration from the site to the adjacent
residential neighbourhood southwest of the site. These items must be addressed in
subsequent submission(s) of the Transportation Impact Study.
The Transportation Impact Study includes an analysis of onsite parking. The first
submission is deficient in onsite parking according to current Zoning By-law requirements.
The consultant provides some rationale for decreasing the number of spaces required
including reliance on "aggressive transportation demand management" ie. proximity to
transit. Engineering Staff do not accept the recommendations of the parking study at this
time.
Staff will continue to work with the developer's traffic consultant to address all
deficiencies and to finalize a study that is acceptable to both the Director of Engineering
Services and the Region of Durham.
Slope Stability Assessment and Environmental Impact Study
The applicant has submitted a Slope Stability Assessment, EIS and related studies to
determine the development limit. The development limit will be finalized once these are
reviewed and finalized by municipal staff and the Conservation Authority.
Functional Servicing Report
The applicant has submitted a Functional Servicing Report which addresses site grading,
servicing and stormwater management. The Report is generally satisfactory for the
purpose of supporting the Official Plan Amendment and the Rezoning. Grading and
servicing details will be further implemented through the review of the subject applications
and site plan approval.
Reconstruction of Darlington Boulevard
Darlington Boulevard is currently built to a rural cross-section, and is serviced with water
and streetlights. This development is premature until the Municipality has approved the
expenditure of funds for the reconstruction of Darlington Boulevard to a full urban standard
including curb and gutter, storm sewers, sidewalks and any other works deemed necessary
by the Director of Engineering Services. The applicant will be required to co-ordinate the
construction of the development with the Municipality's future capital project.
Municipality of Clarington
Report PSD -009-17
Phasing
Page 13
Phasing of the development including the construction of access points require further
review. Consideration must be given to commencing development closest to Highway 2
initially with entrances via Highway 2 constructed with the first phase.
The Municipality will require a concept plan for the remaining residential lands between
the existing commercial site and the entrance via Darlington Boulevard. Lands adjacent
to Darlington Boulevard may be frozen until the concept for future phases is finalized.
Pedestrian Connectivity from Darlington Blvd. to the Farewell Creek Valley
The applicant will be responsible to provide a public pedestrian connection from
Darlington Boulevard to the Farewell Creek valley to the satisfaction of the Directors of
Engineering Services and Planning Services. Further discussion with the applicant will be
required.
9.2 Emergency and Fire Services
Emergency and Fire Services have no objection in principle to the proposed
development. However, they provided comments to be addressed through the Site Plan
Approval. Fire routes having a minimum width of six metres must be provided throughout
the development and signed "No Parking Fire Route". Private fire hydrants are to be
painted red to be highly visible. If buildings are sprinklered, distance from fire department
connection to fire hydrant shall not exceed 45 metres.
9.3 Operations Department
Operations Department has no objection to the Official Plan Amendment and Zoning By-
law Amendment and provided comments for consideration through the Site Plan
Approval. Internal roadways and infrastructure will be maintained by the condominium
corporation. The site plan must identify dedicated snow storage areas. Measures will be
required to guard against any mud tracking from the site onto the area roadways for the
full period of construction.
10. Discussion
10.1 The subject lands are located along the Courtice Main Street which has been identified
as a priority area to accommodate growth. The lands have a lengthy history of
development review and approvals and the development has the potential to significantly
contribute to density and intensification targets along the principal transit spine in the
community. A 3-D visualization of the proposed development is shown on Attachment 2.
10.2 The development proposes 442 units on a net area of approximately 4.2 hectares
resulting in net density of 105 units per hectare which satisfies the Regional Official Plan
and Clarington Official Plan minimum density targets for this location. However, with a
Floor Space Index of approximately 1.2, it is well below the target Floor Space Index of
2.5.
Municipality of Clarington
Report PSD -009-17
Page 14
10.3 The proposed development presents many complex issues to review and resolve prior to
bringing forward a recommendation:
x Traffic impacts
x Connecting the neighbourhood along Darlington Blvd. to the Farewell Creek valley
and trail system
x Parkland dedication & transfer of municipally owned lands to developer
x Developing appropriate zone regulations for the development
x Integration with the Commercial block and adjacent residential neighbourhood
redevelopment
x Internal road standards and parking
x Phasing
x Stormwater Servicing
x Establishing the development limit and mitigating impacts
x Determining Community Improvement Plan Incentives.
10.4 The purpose of the public meeting is to provide an opportunity for further public input.
These public comments will be compiled, discussed with the applicant and addressed in
a subsequent staff report.
10.5 Once the principle of development can be supported, amendments to the Clarington
Official Plan and Zoning By-law would be brought forward for Council's consideration.
Following which, site plan approval would be required to finalize the details of the
development.
11. Concurrence
Not applicable
12. Conclusion
The purpose of this report is to provide background information on the 442 multi -unit
residential development submitted by High Street Courtice Inc. for the Public Meeting
under the Planning Act. Staff will continue processing the application including the
preparation of a subsequent report upon resolution of the identified issues.
13. Strategic Plan Application
Not applicable.
Municipality of Clarington
Report PSD -009-17
Submitted by:
David J. Crome, MCIP, RPP
Director of Planning Services
Reviewed by:
Page 15
Curry Clifford, MPA, CMO
Interim CAO
Staff Contact: Anne Taylor Scott, Senior Planner, 905-623-3379 ext. 2414 or
ataylorscott anclarington.net
Attachments:
Attachment 1 - Zoning of Subject Lands
Attachment 2 - 3-D Model of Proposed Development
List of interested parties can be obtained through the Planning Services Department.
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Attachment 1 to
Municipality of Clarington Report PSD -009-17
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Municipality of Clarington Report PSD -009-17