HomeMy WebLinkAboutPSD-022-17Planning Services
Public Meeting Report
If this information is required in an alternate accessible format, please contact the Accessibility
Coordinator at 905-623-3379 ext. 2131.
Report To: Planning and Development Committee
Date of Meeting: April 3, 2017
Report Number: PSD-022-17 Resolution Number: PD-071-17
File Number: COPA 2017-0002 and ZBA 2017-0002 By-law Number:
Report Subject: An Application by Newcastle Lodge for Senior and Family Dwellings
to Construct a Six Storey, Mixed-Use Building Addition on King
Avenue East, Newcastle
Recommendations:
1.That Report PSD-022-17 be received;
2.That the applications to amend the Clarington Official Plan and Zoning By-law 84-63,
submitted by Newcastle Lodge for Senior & Family Dwellings to construct a six storey,
mixed-use building addition continue to be processed and that a subsequent report be
prepared; and
3.That all interested parties listed in Report PSD-022-17 and any delegations be advised of
Council’s decision.
Municipality of Clarington
Report PSD-022-17 Page 2
Report Overview
The Municipality is seeking public’s input on a proposed six storey, mixed use building
addition to the existing two storey Newcastle Lodge building situated at 165 King Avenue
East. Newcastle Lodge for Senior & Family Dwellings submitted applications for a Clarington
Official Plan Amendment and a Rezoning. The proposal will have a building along the King
Avenue frontage and would include:
• 91 residential units (57 one bedroom units and 34 two bedroom units) in addition to
the existing 43 units at 165 King Avenue East.
• 124 square metres of ground floor retail space.
• Floor Space Index (FSI) – 1.21.
The purpose of this report is to provide information on the proposal and receive public
comments.
1. Application Details
1.1. Owner/Applicant: Newcastle Lodge for Senior & Family Dwellings (known as
Parkview Lodge)
1.2. Agent: Robert Reimers Architect Ltd.
1.3. Proposal: To permit the construction of a six storey, mixed-use building
through amendments to:
i) The Clarington Official Plan;
ii) The Newcastle Village Centre Secondary Plan; and
iii) Zoning By-law.
1.4 Area: 0.79 ha
1.5 Location: 153 and 165 King Avenue East, Newcastle
1.6 Within Built Boundary: Yes
2 Background
2.1 The subject lands are comprised of two properties:
• 153 King Avenue East – Contains a one and a half storey detached dwelling
converted to three (3) rental units; and
• 165 King Avenue East – Contains the existing two (2) storey Parkview Lodge.
Municipality of Clarington
Report PSD-022-17 Page 3
2.2 On December 1, 2016 the Parkview Lodge team attended a pre-consultation, where
Municipal staff and agencies offered feedback on the development proposal.
2.3 On February 3, 2017 Parkview Lodge submitted an application for a proposed Zoning
By-law Amendment. The applicant submitted the Official Plan Amendment on
February 17, 2017. Both applications were deemed complete on February 24, 2017.
2.4 The Municipality has received the following reports in support of these applications:
• Traffic Impact Assessment and Parking Justification Study
• Servicing and Functional Review
• Heritage Impact Assessment
• Design Rationale Report
• Shadow Study
3. Land Characteristics and Surrounding Uses
The subject lands are located on the south side of King Avenue East and currently used
for residential uses. See Figures 1-3. The topography is generally flat with a number of
mature urban trees framing the street and existing buildings.
Figure 1: The subject site and the surrounding neighbourhood
Municipality of Clarington
Report PSD-022-17 Page 4
Figure 2: Existing single detached dwelling to be demolished
Figure 3: Existing Parkview Lodge buildings and mature urban trees
3.1 The surrounding uses are as follows:
North - The Clarington Public Library Newcastle Branch across the street.
South - Single family homes
East - Two storey commercial building across the walkway
West - One detached one storey dwelling and commercial uses (Foodland) and
proposed five storey mixed use building.
Municipality of Clarington
Report PSD-022-17 Page 5
4. Provincial Policy
4.1 Provincial Policy Statement
The Provincial Policy Statement (PPS) promotes efficient land use and development
patterns that accommodate an appropriate range and mix of residential uses. These
patterns contribute to create sustainable communities with affordable housing and
housing for older persons and commercial uses.
Development is supported within existing settlement areas and where infrastructure and
public service facilities are available to support needs. The Provincial Policy Statement
promotes opportunities to create development through intensification and redevelopment
at a higher density that existing today.
The Provincial Policy Statement states that long-term economic prosperity will be
supported by maintaining and, where possible, enhancing the vitality and viability of
downtowns and main streets. Long-term economic prosperity will also be supported by
encouraging a sense of place, by promoting well-designed built form and by conserving
features that help to define the character.
4.2 Provincial Growth Plan
The Growth Plan promotes building compact, transit-supportive and pedestrian-friendly
communities. The subject properties are located within the “Built Boundary” for the
Newcastle Urban Area. The intent of the Growth Plan is to direct a significant portion of
new growth to built-up areas. Focusing intensification areas to optimize existing land
supply and better utilize existing municipal services. The policies of the Growth Plan
establish that intensification areas will be planned and designed to achieve an
appropriate transition of built form to adjacent areas.
The Growth Plan encourages development of complete communities with a diverse mix
of land employment and housing types and easy access to local stores and services. A
priority of the Plan is to manage growth in a manner that will optimize existing
infrastructure, support a strong economy and create complete communities.
5. Official Plans
5.1 Durham Regional Official Plan
The subject sites are located within the "Regional Centre" designation in the Regional
Official Plan. Regional Centres shall be planned and developed as the main
concentrations of urban activities, providing a fully integrated array of institutional,
commercial, major retail, residential, recreational, cultural, entertainment and major office
uses.
The Regional plan encourages development of high quality design which places
pedestrians and connections in close proximity to transit as a top priority. The overall,
long-term density target of the Regional Official Plan for this area is at least 75 residential
units per gross hectare and a floor space index (FSI) of 2.5.
Municipality of Clarington
Report PSD-022-17 Page 6
5.2 Clarington Official Plan
Current Clarington Official Plan/Secondary Plan
The Clarington Official Plan designation for the subject properties is Village Centre.
Within the Newcastle Village Centre Secondary Plan these lands are designated as
follows:
• 153 King Avenue East – “Mixed Use Area”; and noted as a Heritage Building on Land
Use Map A;
• 165 King Avenue East – “Medium Density Residential”.
“Mixed Use Area” and “Medium Density Residential” permit the mixed use building that is
proposed by this application. However, development is currently limited to four storeys in
height with a maximum floor space index of 0.75.
As a result, the applicant is requesting to amend the Clarington Official Plan for the
following items:
• Increase the maximum height limit in this location from four to six storeys.
• Increase the maximum floor space index from .75 to 1.21.
Clarington Official Plan (OPA 107) adopted by Council on November 1, 2016
The policies of the new Clarington Official Plan (OPA 107 adopted by Council on
November 1, 2016) establish a target Floor space Index of 1.0 measured over the entire
Village Centre. The proposal has a Floor Space Index of 1.21 which will contribute
towards the long range Floor Space Index targets; The Village Centre designation will
allow building heights between two and six storeys. The proposed building height of six
storeys conforms with OPA 107.
The Official Plan amendment application is consistent with the policies of the new OPA
107 but it has not been approved by the Region of Durham at this time, therefore this
proposal requires an official plan amendment application.
5.3 Urban Design Policies and Guidelines
Urban design policies of the Clarington Official Plan for Village Centres require buildings
sited near the street with direct access to the street. Buildings are to be designed to:
• Recognize the historic context;
• Provide active ground floors and avoid blank facades;
• Enhance the built environment with attention to massing, building articulation, exterior
cladding, architectural detail, the use of local materials and styles;
• Enhance the pedestrian environment with awnings, pedestrian scale lighting,
landscaping, benches and other street amenities;
• Provide transition in scale to areas of lower density;
• Provide adequate light and privacy for the occupants of new development and the
Municipality of Clarington
Report PSD-022-17 Page 7
occupants of adjacent properties;
• Minimize adverse shadow and wind impacts on neighbouring properties or the public
realm;
• Enclose or screen roof top mechanicals, including the incorporation of
telecommunications equipment within the building;
• Contain all refuse internal to the principal building; and
• Design parking areas to minimize the impact on the pedestrian environment.
The Newcastle Village Centre Urban Design Guidelines were prepared under the existing
Secondary Plan. They provide direction for how new development can effectively blend
into the existing built form of downtown Newcastle. These Guidelines shall be used in
conjunction with the urban design policies of the Official Plan and other site specific
requirements. These include:
• Locating the building at the average setback from the adjacent buildings along King
Avenue East;
• Buildings will contain a distinctive base or podium along the street frontage with
upper floors stepping back, and a middle and upper sections;
• Provide transition in mass such as stepped building forms to provide a more
compatible relationship with adjacent buildings;
• No less than 75% of the ground floor surface area dedicated to windows and door
openings;
• A contemporary building design and not a heritage replica;
• Use horizontal and vertical articulation to break up large facades and roofline;
• Utilize materials that contribute to the character of the Village Centre;
• Rooftop mechanical and HVAC equipment which are integrated into the design of the
building;
• Landscape buffers and/or screening between any parking lot and the sidewalks,
walkways as well as adjacent sensitive uses;
• Preserve and incorporate existing trees within development and street trees; and
• Provide public art or design elements that reinforce place character.
The use of angular planes measured from the property lines to define setbacks, may be
considered to protect the privacy, light and views of adjacent properties. Should the
current application be approved, future application for site plan will be reviewed for
conformity with these policies and guidelines.
6. Zoning By-law
Zoning By-law 84-63 zones the subject lands as follows:
• General Commercial (C1) Zone – 153 King Avenue East; and
• Urban Residential Type Exception (R4-2) Zone – 165 King Avenue East.
A site specific zoning by-law amendment is necessary to implement the proposed
mixed use building addition.
Municipality of Clarington
Report PSD-022-17 Page 8
7. Summary of Background Studies
The following provides a summary of the studies received in support of the application. A
detailed analysis will be contained in the future staff report.
7.1 Traffic Impact Assessment and Parking Justification Study
The study findings concluded that all intersections are projected to operate at an
acceptable level of service with no significant delay or queue. The study also concluded
that auxiliary turning lanes are not required to support the proposed development.
The parking study concluded that the proposed parking supply of 88 parking spaces
based on approximately 0.65 parking spaces per unit will serve the proposed
development based on the fact that the future senior tenants will be in close proximity to
transit services and many of the necessary services and shops. The study recommended
a Parking Management Strategy which includes allocating 0.5 spaces per unit or 65
parking spaces allocated between market and subsidized rental unit for residents and 23
parking spaces or 0.15 spaces per unit be allocated for the visitors.
7.2 Servicing and Functional Review
Servicing and Functional Review concludes that the proposal can be serviced by the
existing sanitary connection. The expansion will require the removal and replacement of
the existing water servicing to include both domestic and fire protection lines to the
building.
The existing stormwater system will require improvements to include controlling quantity
and quality of stormwater leaving the site. The consultant has identified challenges with
the building design and site plan given the existing service locations and site plan
requirements.
7.3 Heritage Impact Assessment
153 King Avenue East is listed on Clarington’s Cultural Heritage Inventory due to its
architectural style and association with the Atkinson family. The Heritage Impact
Assessment Report states that the property has lost much of its original character with
the application of vinyl siding over the original clapboard. The Heritage Impact
Assessment recommends removing the building indicating it would not be a significant
loss to the fabric of the village. The building concept incorporates architectural elements
from the dwelling.
The Parkview Board considered several scenarios for the proposed development and
opted for acquiring additional property to provide sufficient space for the proposed
building addition.
Municipality of Clarington
Report PSD-022-17 Page 9
7.4 Design Rationale Report
The Design Rationale that has been submitted provides a broad overview of the
development proposal. It provides a high level policy conformity review and municipal
guideline review. It also discusses accessible design components of the project. Further
detailed information is required.
7.5 Shadow Study
The shadow identifies shadows at various times of the day, through the year of existing
and proposed building. No analysis was included with the shadow drawings.
8. Public Notice and Submissions
8.1 Public notice was given by mail to each landowner within 120 metres of the subject site
and one public meeting notice sign was installed on the site facing King Avenue East.
The public notice was also posted on the Municipal website and in the Planning Services
electronic newsletter.
8.2 As of the writing of this report, the Applicant has forwarded six letters in support of the
application from the following associations and businesses:
• Newcastle Village and District Historic Society;
• Newcastle/Bond Head Ratepayers Association;
• The Catholic Women’s League of Canada;
• A Gift of Art, The Clarington Artist & Artisan’s Outlet;
• Newcastle & District Chamber of Commerce; and
• The Lions Club of Newcastle.
9. Agency Comments
9.1 Regional Municipality of Durham
The Region has no objection to the proposed applications.
Regional Planning Department finds the proposed use is consistent with provincial
planning policies and generally conforms to the Region of Durham Official Plan (ROP).
The subject lands front on to King Avenue East, a designated Type ‘A’ arterial road in the
ROP. A Noise Impact Study will be required to identify noise levels for units adjacent to
the arterial road. The proponent will be required to implement in a Site Plan Agreement
noise attenuation measures and warning clauses for the development to the satisfaction
of the Region.
Water supply and sanitary servicing are available from the existing connections on King
Avenue East.
Municipality of Clarington
Report PSD-022-17 Page 10
Municipal waste collection services can be provided on-site subject to compliance with
standards and specifications on the Region’s Waste By-law.
Regional Works has reviewed the Traffic Impact Assessment and Parking Justification
Study. The Region agrees with the conclusions of the Traffic Impact Assessment. The
site design will need to consider accessibility of the development for non-car modes of
travel.
Durham Region Transit requires that the site plan provide accessible pedestrian
connections between building access points, sidewalk network and transit stops.
9.2 Other Agencies
Veridian, Enbridge, Rodgers and Canada Post have provided no objections. Technical
comments related to the future site plan application have been forwarded to the applicant.
Veridian raised a concern that the horizontal clearance from the building including
balconies, from their high voltage equipment, must not be less than 4.8 metres.
10. Departmental Comments
10.1 Engineering Services
The Engineering Department has no objection to the proposed applications.
The Engineering Services Department has reviewed the Traffic Impact Assessment
Report and Parking Justification Study. Engineering is satisfied with the Traffic Impact
Assessment Report recommendations, but identified concerns with the proposed parking
reductions. Further discussions with regards to parking reductions will be required.
A Civil Engineering Servicing and Functional Servicing Review has been submitted for
review. Engineering agrees with the review’s approach.
Additional details/plans will be required at site plan stage to ensure specific impacts are
dealt with including:
• A Truck Turning Movement Plan which confirms the type of trucks accessing the
site and the turning area required to manoeuvre on-site;
• A Master Drainage and Grading Plan which addresses storm sewer flows and
demonstrates that there will not be any adverse effects under the 100 year storm
and sewer conditions;
• Functional Servicing Report which implements the recommendations of the
Engineering Servicing and Functional Servicing Review; and
• Soil Management Report which addresses site alterations.
10.2 Emergency and Fire Services
The Emergency and Fire Services Department has no objection to this application.
Municipality of Clarington
Report PSD-022-17 Page 11
10.3 Operations
The Operations Department has no objection and provided comments that can be
implemented at the site plan approval stage should the applications be approved.
10.4 Building Division
The Building Division has no objections.
11. Discussion
11.1 Proposed Intensification Project helps to meet Municipal Objectives
The proposed redevelopment will be an intensification project in downtown Newcastle. In
addition to this proposal, the Municipality has also received and is processing an
application for the abutting property to the west to relocate a previously approved five
storey, mixed-use building away from Beaver Street to the middle of the property. This
application is also in this Planning and Development Committee Agenda.
Figure 4 below shows a three dimensional image of the future context for this area
consisting of a six storey building along King Avenue East and a five storey mixed-use
building visible from King Avenue East, as currently proposed.
Figure 4 – Three dimensional image of the future context
The proposed redevelopment application submitted by Parkview Lodge is a form of
development encouraged by Provincial, Regional and Municipal policy. The proposed
application will increase housing diversity and affordability. It will also enliven the area
and support the long term viability of the downtown (see Figure 5).
Municipality of Clarington
Report PSD-022-17 Page 12
Figure 5 – Building Rendering
11.2 Heritage Property
The building located at 153 King Avenue is a one and a half storey frame Regency
cottage. Where a building is recognized on the cultural heritage inventory, the
Municipality discourages the demolition or inappropriate alteration of a cultural heritage
resource. The applicant is requesting to demolish the building on 153 King Avenue to
allow the proposed addition. The Heritage Impact Assessment notes that the property
has lost much of its original character. The Clarington Heritage Committee reviewed the
proposal at their meeting of March 21, 2017. Their comments and recommendations will
be addressed in a further report.
11.3 Parking Provisions
The Parking Justification Study states that the proposed 88 parking spaces for the
proposed and existing units will serve the development well due to its location, transit
proximity and proposed tenancy.
The existing Parkview Lodge operates a two storey, 43 unit senior rental apartment with
36 parking spaces. The proposal would yield 134 units in total. Based on the Zoning By-
law provisions, the proposed development would require 144 spaces.
Further discussion is required with the applicant and consultant to finalize the appropriate
number of parking spaces required for the additional units, recognizing the demographics
of residents that would occupy these units and the staffing needs.
Municipality of Clarington
Report PSD-022-17 Page 13
11.4 Urban Design
The design of the proposed development is to meet the intent of the urban design policies
of the Clarington Official Plan, the Newcastle Village Centre Secondary Plan and the
Newcastle Village Urban Design Guidelines. These documents provide policies, general
urban design principles and site development criteria for development within the
Newcastle Village Centre, and can be summarized within the following themes.
Building Design and Streetscape
Proposed buildings will enhance the built environment with attention to massing, building
articulation and architectural detail. Building design should integrate the mechanical units
into the design of the roof. The form and siting of proposed buildings will provide
transition in scale to areas of lower density.
Buildings will be aligned to the average setback and incorporate well-defined base or
podium along the street frontage with upper floors stepping back. Building façades will be
designed to animate the pedestrian environment with awnings and pedestrian scale
lighting. The elevations will be designed to avoid blank walls.
Parking Areas and Landscape Treatment
Development will incorporate parking areas to minimize the impact on the pedestrian
environment. Active transportation will be encouraged by locating secure bicycle parking
and storage areas for short term and long term visits. Design will promote existing tree
preservation, and natural landscape features within development.
Impact Mitigation
The building form, setbacks and building heights will be designed to maintain a
pedestrian related scale and to provide adequate light and privacy for the occupants of
adjacent properties.
Should the zoning by-law amendment for this site be approved by Council, staff will work
with the applicant to ensure detail design better aligns with the above polices and
guidelines.
11.5 Residence at 149 King Avenue East
The proposal has the unfortunate effect of creating an orphan site which would be difficult
to redevelop and will compromise the existing single detached residence. It would be
surrounded by blank walls on the west and a six storey building located 2.0 metres from
the property line on the east. It will be very difficult to redevelop in the future as a mixed
use multi-storey project and in all likelihood, the Municipality would see sub-optimal
redevelopment, possibly within the existing house.
Municipality of Clarington
Report PSD-022-17 Page 14
Figure 5 – Residence to the west at 149 King Avenue East
It would be preferred to incorporate this site into the redevelopment proposal which
could have the effect allowing for additional units, additional parking and potentially
eliminating the need for the two-storey drive-through portal (See Figure 6) supported by
columns.
Figure 6 - Building drive-through portal supported on columns
12. Conclusion
Report PSD-022-17 is prepared to provide background information and to solicit public
comments on the proposal submitted by Parkview Lodge. Staff will continue processing
the application which will lead to the preparation of a future recommendation report.
Municipality of Clarington
Report PSD-022-17 Page 15
13. Strategic Plan Application
Not applicable.
Submitted by: Reviewed by:
David J. Crome, MCIP, RPP (for)Curry Clifford, MPA, CMO,
Director of Planning Services Interim CAO
Staff Contact: Ruth Porras, Senior Planner/Urban Designer, 905-623-3379 ext. 2412 or
rporras@clarington.net
List of interested parties to be notified of Council’s decision:
Parkview Lodge (c/o Joyce Kufta and Theresa Vanhaverbeke)
Robert Reimers Architect Ltd.
Newcastle Village and District Historic society
Newcastle/Bond Head Ratepayers Association
The Catholic Women’s League of Canada
A Gift of Art, The Clarington Artist & Artisan’s Outlet
Newcastle & District Chamber of Commerce
The Lions Club of Newcastle
RP/CP/av/df
I:\^Department\LDO NEW FILING SYSTEM\Application Files\ZBA Zoning\2017\ZBA2017-0002 Newcastle Lodge\Staff Report\PSD-022-17.docx