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Report To: Planning and Development Committee
Date of Meeting: June 26, 2017
Report Number: PSD-047-17
File Number: ZBA 2017-0016
Resolution Number: PD-136-17, C-214-17
By-law Number:
Report Subject: An Application by SmartREIT to rezone the subject lands to
accommodate a 25,360 square metre retail outlet centre, Baseline
Road, Bowmanville
Recommendations:
1.That Report PSD-047-17 be received;
2.That staff consider the public comments received in the further processing of the
application for rezoning (ZBA 2017-0016) including the preparation of a subsequent
report; and
3.That all interested parties listed in Report PSD-047-17 and any delegations be advised of
Council’s decision.
Municipality of Clarington
Report PSD-047-17 Page 2
Report Overview
The Municipality is seeking public input on a proposal for a 25,360 square metre (273,000
square feet) retail outlet centre.
SmartREIT is proposing to build a retail outlet centre across three properties located near the
southeast corner of Waverley Road and Baseline Road West. The project will involve
demolishing the vacant RONA building and using a cut and fill plan to replace the flood storage
capacity required in the floodplain of the Bowmanville Creek.
The Applicant has submitted several technical studies to support their proposal and
demonstrate their conformity with the land use planning requirements of the Province, the
Region of Durham and Clarington.
1. Application Details
1.1. Owner: Bowmanville Creek Developments Inc.
4246551 Canada Inc. & 220 Real Estate Limited Partnership
Municipality of Clarington
1.2. Applicant: SmartREIT
1.3. Agent: MHBC Planning Limited
1.4. Proposal: To rezone the subject lands to accommodate a 25,360 square
metre (273,000 square feet) retail outlet centre.
1.5. Area: 33.3 ac.
1.6. Location: 205 Baseline Road West, Bowmanville (site of the vacant
RONA building and the surrounding lands).
1.7. Roll Number: 020-120-20705, 020-120-20650, 020-120-20750, 020-120-20600
1.8. Within Built Boundary: Yes
Municipality of Clarington
Report PSD-047-17 Page 3
2. Background
2.1. The land at the southeast corner of Waverley Road and Baseline Road West have been
planned for commercial development for over 30 years. The site is comprised of three
properties (see Figure 1). 4246551 Canada Inc. owns the 3.75 ha property in the middle
of the site that is occupied by the vacant RONA building. The second property wraps
around the RONA property on three sides (west, south and east) and is owned by
Bowmanville Creek Developments Inc. (BCD Inc.). It was intended that a RONA home
improvement store would be the large retailer that would anchor the smaller retail and
restaurant development on the rest of the site. The third property, along the east side of
the site, is currently owned by the Municipality. In conjunction with this development
proposal, the Applicant has requested that the Municipality consider deeming this land
surplus and make it available for purchase.
Figure 1 – The three properties within the proposed development site
Municipality of Clarington
Report PSD-047-17 Page 4
RONA Property
2.2 In the fall of 2006, Site Plan approval was given for a 7,511 square metre (80,850 square
foot) home improvement store. The current RONA building was constructed in 2008 but
the building was never occupied. The Bowmanville store opening (along with three other
RONA stores) was initially delayed due to the 2008 recession.
2.3 In July 2009, RONA made the decision to list the property and building for sale or lease.
Over the past eight years municipal and Clarington Board of Trade staff have received
numerous inquiries from prospective tenants and purchasers. However, the zoning
regulations limited the types of businesses that could occupy the existing building. A
Minor Variance application was submitted in September of 2016 to expand the list of
businesses that could operate from the RONA property and building. The approved
Minor Variance expanded the permitted uses from building supply and large product
retailers to include other forms of retail sales.
Bowmanville Creek Development Inc. Property
2.4 Development applications were also received to develop the lands surrounding the
RONA store that are owned by Bowmanville Creek Developments Inc. (BCD Inc.). Final
Site Plan Approval was granted by the Ontario Municipal Board in August of 2006. This
approval was for 11,678 square metres (125,700 square feet) of commercial floor area.
However, without an anchor tenant occupying the RONA building, no development has
taken place on the BCD Inc. property.
Municipality of Clarington Property
2.5 The lands to the east of the RONA and BCD Inc. properties is located within the
floodplain of the Bowmanville Creek. In its current state, this land is environmentally
protected. Through detailed consultations with the Municipality and Central Lake Ontario
Conservation Authority the Applicant has put forward a cut and fill plan to reallocate a
portion of the flood storage capacity to an approved location in the Bowmanville Creek
watershed. By placing fill on the Municipal land the Applicant is proposing to bring this
land out of the floodplain and make it suitable for development.
Current Proposal
2.6 A Pre-consultation Meeting was held with the Applicant and their consultants on May 11,
2017. Following that meeting, SmartREIT submitted an application to rezone the subject
lands to accommodate a 25,360 square metre (273,000 square feet) retail outlet centre
on May 26, 2017. A conceptual site plan is shown in Figure 2.
Municipality of Clarington
Report PSD-047-17 Page 5
2.7 Outlet centres are generally characterized by the following key attributes:
• They contain retail tenants that sell their brand‐name goods at discounted prices;
• They typically have much larger trade areas than traditional retail centres, extending
as far as 50‐60km or more in many cases;
• They often do not have traditional anchor tenants, rather a collection of several
major retailers that function as large ‘draws’ or attractions;
• They are generally located along major well‐travelled highways, and in close
proximity to significant tourist destinations, and/or with access to major consumer
markets; and
• They generally range in size from 4,600-37,000 square metres (50,000‐400,000
square feet) in gross leasable area.
(source: urbanMetrics)
2.8 The application was deemed complete on June 9, 2017.
Figure 2 – Conceptual Site Plan (Source: SmartREIT)
Municipality of Clarington
Report PSD-047-17 Page 6
2.9 Should this rezoning application be successful, the tentative timeline for this project is as
follows:
• Development approvals – Fall of 2017
• Earth works to implement the cut and fill plan – 2018
• Building Construction – 2019
• Opening Day – Summer of 2020
3 Land Characteristics and Surrounding Uses
3.1 The subject site is located in the south end of Bowmanville, near the southeast
intersection of Waverley Road and Baseline Road West. The site is comprised of vacant
land and an unoccupied home improvements store.
Figure 3 – Development site and surrounding lands
Municipality of Clarington
Report PSD-047-17 Page 7
3.2 The surrounding uses include:
North - Low density, residential neighbourhood (see Figure 4)
South - Highway 401
East - Bowmanville Creek and TSC store
West - Shell fuel bar, Waverley Road interchange
Figure 4 – Homes on Lockhart Gate
4. Provincial Policy
A few of the objectives of the Provincial Policy Statement and the Growth Plan for the
Greater Golden Horseshoe is to ensure that new development occurs within existing
settlement areas and takes advantage of existing municipal infrastructure. The subject
site is located within the “Built Boundary” of the Bowmanville Urban Area. A significant
portion of new growth must occur inside of the built boundary (existing neighbourhoods).
In addition, development should not prevent the future expansion of the community.
Development should be coordinated to ensure a balance between promoting economic
prosperity and efficiently managing the natural environment. Maintaining the vitality and
viability of downtowns and main streets is also a key objective of Provincial policy.
Development shall generally be directed outside of hazard areas (such as floodplains) or
areas of environmental sensitivity. However, Provincial policy also sets the broad
conditions that must be satisfied before development can proceed in these areas. The
detailed application of the Provincial policies is reflected in the policies of the Durham
Regional Official Plan and the Clarington Official Plan.
Municipality of Clarington
Report PSD-047-17 Page 8
5. Official Plans
5.1 Durham Regional Official Plan
The Durham Region Official Plan designates the subject site as “Living Areas” to the west
and “Major Open Space Areas” to the east.
“Living Areas” are intended to be used for housing purposes as well as limited office and
retail in appropriate locations provided that the functions and characteristics of other
commercial areas such as Town Centres (now known as Urban Centres in Clarington
OPA 107) are not adversely affected. In addition, local centres and corridors, major retail
uses and certain Employment Area uses may be permitted, provided appropriate
designations and policies are included in the municipal official plan.
The “Major Open Space Areas” matches the area of the site that is currently within the
floodplain of the Bowmanville Creek. A “Key Natural Heritage and Hydrologic Feature” is
also identified as crossing the eastern part of the development site.
Development and site alteration is not permitted within areas subject to flooding hazards.
However, development may be considered in these areas identified, in accordance with
relevant Provincial policies and regulations.
Baseline Road West and Waverly Road are identified as Type “A” Arterial Roads.
On May 3, 2017, Durham Regional Council received a report on the transportation
improvements required to the Highway 401 interchange at Waverley Road. The report
provided the following evaluation of the proposed outlet centre.
“The development of the SmartREIT site supports employment growth in the Region
and conforms to the Living Area designation in the Regional Official Plan. The
proposed development represents a significant new private investment and would
create new local jobs, attract visitors and could be a catalyst for other new
development. In particular, the Regional Official Plan recognizes that the Region will
have an interest in commercial planning if a commercial proposal is 56,000 square
metres (602,800 square feet) or larger in size, or if the proposal would have the
potential to negatively impact the planned functions of a Regional Centre. The
SmartREIT proposal, at 25,362 square metres (273,000 square feet), does not
exceed / compromise either of these tests (Report #2017-COW -100).”
5.2 Clarington Official Plan
The Clarington Official Plan (Official Plan) currently designates the subject site as
“Highway Commercial” to the west and “Environmental Protection Area” to the east.
Businesses within the “Highway Commercial” designation are intended to serve the
specialized needs of residents on an occasional basis. They generally require large
parcels of land to accommodate large format stores and benefit from exposure to
highway traffic. Retail and service commercial uses are permitted within this designation.
Municipality of Clarington
Report PSD-047-17 Page 9
The east side of the development site is located within the floodplain of the Bowmanville
Creek. As a result, these lands are designated “Environmental Protection Area”. The
boundaries of the Environmental Protection Area are based on the limits of the floodplain.
No new buildings or structures are permitted on lands identified as natural hazards such
as floodplains. The Official Plan permits minor deviations to these designation
boundaries, without amendment, provided such deviations do not alter the intent of this
Plan.
The Applicant is proposing to compensate for the floodplain storage capacity within the
development site on other lands. This will be done by placing fill in the area of the site
that is within the floodplain. An Environmental Impact Study and a Cut and Fill Plan have
been submitted by the Applicant to determine the amount of fill that must be brought on
site and where the new floodplain boundary should be located. This matter will be
reviewed carefully.
5.3 Clarington Official Plan as amended by Amendment 107 (OPA 107)
The subject site is designated “Gateway Commercial” to the west and “Environmental
Protection Area” to the east under OPA 107.
The “Gateway Commercial” designation is intended to serve the specialized needs of
residents and attract tourists and visitors to the Municipality. They generally require large
parcels of land to accommodate large format stores and benefit from exposure to
highway traffic. Retail and service commercial uses are permitted within this designation.
In addition to the floodplain of the Bowmanville Creek, the policies of OPA 107 also
identify parts of the development area as being part of a Natural Heritage System. The
“Environmental Protection Area” policies in OPA 107 are the same as those contained in
the current Official Plan as outlined in Section 5.2 of this report.
6. Existing Zoning Rights and Changes Requested
6.1 The western part of the development site is zoned “Special Purpose Commercial (C5)”
(the RONA property) and “Special Purpose Commercial Exception (C5-14)” (the majority
of the BCD Inc. property). Both zones permit a variety of commercial uses including retail
commercial uses. The combined floor area that has already been approved on the
development site is 19,189 square metres (206,500 square feet). There is no limit on the
maximum floor area in either zone. However, the “C5-14” zone does include limits on
individual unit sizes.
6.2 The eastern part of the site is zoned “Environmental Protection” (the Municipal property)
and “Environmental Protection Exception (EP-16)” (the balance of the BCD Inc. property).
This part of the site is located within the flood plain of the Bowmanville Creek.
6.3 The Applicant has requested that a number of changes be made to the existing zoning
requirements to accommodate a 25,360 square metre retail outlet centre. An outline of
the requested changes is included in Table 1 below.
Municipality of Clarington
Report PSD-047-17 Page 10
Table 1 – Requested Zoning Changes
Zoning Requirement Existing Zoning By-law Proposed Zoning
Amendment
Retail Outlet Centre Not defined Proposed definition –
Retail Outlet Centre: shall
mean an open-air and/or
enclosed centre
that comprise retail
commercial establishments
typically selling brand-
name goods at a discount. In
addition uses such as eating
establishments, personal
service shops, places of
entertainment,
fitness centres and other
uses are incorporated to
compliment the
retail commercial
establishments.
Personal Service Shop Not permitted Permit Personal Service
Shop
Fitness Centre Not permitted Permit Fitness Centre
Limits on total floor area
None None
Limits on individual unit sizes Only a limited on the number
of individual units under 465
square metres (5,000 square
feet) are permitted
Delete all individual unit size
limits
Maximum Height for Non-
Hotel Buildings
10 metres 20 metres
Front Yard Setback
15 metres 6 metres
Exterior Side Yard Setback
10 metres 6 metres
Minimum parking
requirements
No parking ratio for retail
outlet centres
Retail Outlet Centre =
1:20 square metres
Municipality of Clarington
Report PSD-047-17 Page 11
7. Background Studies Submitted by the Applicant
7.1 Planning Justification Report
The Planning Justification Report provides a list of all items requested by this rezoning
application. It describes a retail outlet centre as high-end and brand name retailers
selling merchandise at discounted prices. These will typically be apparel retailers rather
than household goods, grocery or home improvement retailers.
According to the Planning Justification Report, the requested rezoning and the proposed
outlet centre development are consistent with:
• The Provincial Policy Statement;
• The Growth Plan for the Greater Golden Horseshoe;
• The Durham Regional Official Plan;
• The Clarington Official Plan; and
• The Clarington Official Plan as amended by OPA 107.
In addressing the restrictions on individual unit sizes, the Planning Justification Report
states:
“Over the years, the Municipality has instituted individual unit size restrictions on
various retail commercial developments outside of the Downtown, including on the
subject site. The intent and purpose of unit size restrictions was to avoid
unacceptable market impacts to merchants in Downtown Bowmanville. As
Downtown Bowmanville has continued to prosper and maintain viability, the need
for restrictions on unit sizes has lessened considerably (as previously identified
through the urbanMetrics Report completed for the Municipality). As a result,
Municipal staff have supported the removal and / or lessening of unit size
restrictions on commercial developments in other areas of Bowmanville (Planning
Report, page 7).”
Building on the comments made in the urbanMetrics Report commissioned by the
Municipality, the Planning Justification Report states that the proposed development “will
act as a major regional draw, bringing visitors from outside of the Bowmanville and
beyond Durham Region. Given this, the proposed retail outlet centre is not anticipated to
have undue retail market impacts on established retailers in Downtown Bowmanville.”
The Planning Report goes on to point out that the proposed development will create a
viable use for the vacant lands and will provide a number of short-term and long-term
employment opportunities for the Municipality thereby enhancing its economic base.
Municipality of Clarington
Report PSD-047-17 Page 12
It is the conclusion of the Planning Justification Report that the proposed development
will permit a development which is compatible with adjacent land uses. The proposed
development will support the environmental policies of the Clarington and Durham
Regional Official Plans by restoring and enhancing the Bowmanville Creek floodplain and
associated wetlands through a comprehensive cut and fill plan and restoration plan which
will result in restored and enhanced areas to the south of Highway 401.
7.2 Traffic Impact Study
The Traffic Impact Study (TIS) provides a preliminary review of the key transportation
impacts of the proposed outlet centre. The transportation analysis provided includes a
forecast of traffic volume in 2020, when the outlet centre opens, and traffic volume in
2030, ten years after the outlet centre has been open. Improvements will be required to
Baseline Road, the intersection of Waverley and Baseline Road and to the Highway 401
interchange. A more detailed TIS will be prepared based on the comments received as
part of this initial review process.
7.3 Functional Servicing Report
The purpose of the Functional Servicing Report (FSR) is to show that the development
can be graded and serviced in a way that meets the design standards of Clarington,
Durham Region and CLOCA. While detailed design work will be completed as part of the
Site Plan review process, the FSR confirms that existing and proposed infrastructure
(water, sanitary sewer and stormwater sewers) will be sufficient to accommodate the
proposed outlet centre development.
7.4 Floodplain Cut and Fill Plan
The purpose of the Cut and Fill Plan is to determine how much fill must be moved onto
the east side of the subject site in order to raise that part of the land out of the Regional
floodplain. The Cut and Fill Plan goes on to demonstrate that all of this fill can be
acquired from the Municipal property located on the south side of Highway 401 between
Waverley Road and Liberty Street (see Figure 5). The existing storage capacity of the
floodplain will be maintained.
Municipality of Clarington
Report PSD-047-17 Page 13
Figure 5 – Lands to be cut and lands to be filled
7.5 Environmental Impact Study (EIS)
The EIS provides an outline of the proposed development plan, identifies potential effects
to the existing natural features, and recommends appropriate mitigation measures.
Existing wetlands and natural vegetation that will be removed as a result of the proposed
development, will have to be recreated after the completion of the cut and fill plan.
CLOCA will assist in reviewing and approving this compensation work prior to the
beginning of construction.
Municipality of Clarington
Report PSD-047-17 Page 14
8. Preliminary Market and Impact Assessment (urbanMetrics
Report)
In advance of receiving this application, the Planning Services Department commissioned
a preliminary report by urban Metrics to provide background on the operation of retail
outlet centres and the potential impact of an outlet centre on the Bowmanville market.
The urbanMetrics report may be updated in the future based on the public comments
received and/or analysis of the application. The conclusions of the preliminary report
were as follows:
Limited Impact on Existing Retail Stores
The retail outlet centre proposal will likely be focused on a different range of merchandise
then is currently found in the Bowmanville, Clarington and Durham Region market. This
will draw customers from a much broader regional area. As such, it is not expected to
compete directly for sales with existing Clarington businesses. However, it is possible
that some existing apparel stores could experience some impact on their sales
performance.
Opportunity for Cross-Shopping
The proposed retail outlet centre could ultimately provide new opportunities for cross-
shopping promotion. The outlet centre is expected to attract customers from other parts
of the Region and Province that would not otherwise have visited, stayed and shopped in
Clarington. If successful, the outlet centre could raise the profile of Bowmanville as a
shopping-tourism destination. The customers it attracts can then be enticed to also shop
at existing retail establishments in Bowmanville.
Economic Benefits to the Community
The proposed retail outlet centre could create approximately 610 jobs on a full-time
equivalent basis. The annual property tax revenue from this project is estimated to be
$3.6 million.
Existing Vacancy Rates are Indicative of a Healthy Downtown
The commercial vacancy rate in Clarington is estimated to be 6.7%. This estimate
excludes the former Target store (in the process of being occupied with a Lowe’s home
improvement store) and the vacant RONA building (to be demolished for the proposed
outlet centre). For comparison, normal vacancy rates in a balanced market can be as
high as 8.0%. Downtown Bowmanville currently has a vacancy rate of only 4.2%. The
authors of the urbanMetrics Report state that 4.2% vacancy rate is indicative of a very
healthy downtown for municipalities of comparable size and/or regional commercial
function.
Municipality of Clarington
Report PSD-047-17 Page 15
Positive Impacts Will Exceed Limited Negative Impact on Downtown Bowmanville
The conclusion reached by the urbanMetrics Report is that existing retail establishments
in Clarington generally serve the local community and therefore will have limited direct
competition from the types of retailers that typically locate in outlet centres. In addition,
the possibility exists that the non-local customers attracted to the outlet centre may look
for additional shopping and dining opportunities in the area around the outlet centre. This
spin-off effect created by the outlet centre would likely exceed and/or offset any negative
impacts caused by increasing competition.
9. Agency Comments
9.1 Regional Municipality of Durham
The proposed outlet centre conforms with the Durham Regional Official Plan.
The Applicant will be required to demonstrate that they are placing clean fill on the site.
A Traffic Impact Study will be required to assess the impacts to all road users of the
adjacent road network. This report should include a strong emphasis on promoting active
transportation (walking and cycling) and transit accessibility.
9.2 Central Lake Ontario Conservation (CLOCA)
This application must strike the right balance of meeting the development potential of the
property with:
• Protection of the environmental features on the property;
• Ensuring that the development is sufficiently protected from the natural hazards;
and
• Providing appropriate stormwater management.
It appears that this balance can be achieved in principle. However, it is CLOCA opinion
that there are a few items that will need to be addressed prior to our support of the
proposed rezoning. These items include:
1. Coordinated stormwater servicing;
2. Identify opportunities for low impact development measures;
3. Providing a Compensation Plan for the natural features that will be removed; and
4. Improving the connectivity of the cut area to the Bowmanville Creek floodplain and
valley.
The property must be filled in order to raise all buildings and parking sufficiently out of the
floodplain. A Holding (H) symbol should be placed on the portion of the property currently
within the floodplain until it can be demonstrated that this portion has been satisfactorily
elevated.
Municipality of Clarington
Report PSD-047-17 Page 16
The Environmental Impact Study (EIS) will determine the limits of the proposed
development. The EIS will identify the boundaries of the natural features and vegetation
communities, assess the features and functions, identify areas to be preserved, and
recommend buffers to protect the features. Mitigation measures and compensation will
be required for any intrusions into wetland and natural heritage features.
A permit from CLOCA will be required prior to any works occurring on the site.
9.3 Ministry of Transportation
No comments have yet been provided to date.
10. Departmental Comments
10.1 Engineering Services
The Engineering Services Department has no objection, in principle, to the proposed
outlet centre use. Engineering Services supports with the approach and
recommendations provided in the Traffic Impact Study (TIS) and Functional Servicing
Report. The applicant will be required to submit additional detailed plans to address the
ultimate grading, drainage, servicing, soils management, as well as legal plans.
In addition to the improvements to the Waverley Road 401 interchange and Regional
Road 57, the TIS should further discuss the effects of the proposed development on the
Lake Road and Liberty Street intersection. Additionally, analysis should be provided
regarding impacts to traffic during peak shopping periods (i.e. holiday season) which may
generate increased volumes of traffic over and above regular Saturday peak levels for
sustained periods of time.
The Functional Servicing Report should provide further discussion regarding any
requirements of MTO for drainage to their lands as well as discussion and detail
regarding how detention for erosion control is to be achieved on site.
As a significant earthworks hauling program will be required for the proposed site plan,
the Applicant will be required to receive approval for a Site Alteration Permit.
The Municipality of Clarington is scheduled to construct an extension of the Bowmanville
Creek Trail east of the development property. The trail will extend from Baseline Road to
the existing Waterfront Trail south of Highway 401 / CN Rail corridor. The Municipality
will require a trail connection from the proposed development to the Bowmanville Creek
Trail extension.
A 3.0m wide multi-use pathway will ultimately be constructed on the south side of
Baseline Road, from where it currently ends, to the east limits of the site.
10.2 Emergency and Fire Services
The Clarington Emergency and Fire Services Department has no objections to the
proposed outlet centre.
Municipality of Clarington
Report PSD-047-17 Page 17
10.3 Finance Department
The Finance Department has confirmed that the taxes on these properties are up to date.
11. Public Notice and Submissions
11.1 During February and March of 2017, Planning Staff attended the regular meetings of the
three downtown BIAs (Bowmanville, Newcastle and Orono) to provide them with
information about the proposed retail outlet centre. At that time, the Newcastle and
Orono BIAs did not express any direct concerns with the proposed development. The
response from the Bowmanville BIA was mixed. Some members welcomed the
increased exposure and growth that a retail outlet centre might bring. Other members
saw the proposed outlet centre as a direct competition with their existing business.
11.2 Notice for the Public Meeting and the Public Information Centre were placed in Clarington
This Week, Orono Weekly Times and given by letter to all property owners within 120
metres of the subject site. Notice was posted on the Municipal website, the Municipal
Facebook page and in the Planning Services Department E-Update newsletter. Two
signs advertising the Public Meeting were also posted on the subject site.
11.3 The Applicant and their consultants held a Public Information Centre on June 19, 2017.
This meeting provided residents and business owners with the opportunity to learn more
about the proposed outlet centre and ask questions of the consultants. Some of the
questions asked at the Public Information Centre were:
• What will happen to the access at Lockhart Gate from Baseline Road?
• How will the intersection of Baseline Road / Duke Street / Liberty Street be
improved?
• Will the connection from the existing valley trail to the waterfront trail be made
before the outlet centre opens?
• How will universal access be provided in the parking lot and throughout the centre?
• What stores will be in the outlet centre?
• How much noise will be generated?
• Will it be monitored 24/7? Will it be used by teenagers after hours?
• When will the highway interchange improvements be made?
12. Staff Comments
Through the continued review of this application, Staff will be evaluating number of key
areas.
Municipality of Clarington
Report PSD-047-17 Page 18
12.1 Urban Design and Sustainability
Good quality building design is an essential marketing element of all commercial
development. Outlet centres in particular must display a high standard of urban design in
order to match the expectations of the customers. The design of the outlet centre will
need to reflect the distinction over and above the day-to-day shopping experience. Since
the outlet centre will also serve as a shopping-tourism destination it will need to
incorporate a quality of design that reflects an attractive image of Clarington.
Integrated with the aesthetic design of the outlet centre will be the sustainable design of
the buildings and site. Exceptional landscaping will be required to combat the “heat
island” effect of the large parking area. Low impact stormwater solutions will need to be
utilized. Innovative materials and fixtures will be necessary to reduce the overall
consumption of water and energy. A Transportation Demand Management Plan will be
submitted in conjunction with the revised Traffic Impact Study that will identify
opportunities to reduce car dependency of staff and local customers by coordinating
transit services and infrastructure with active transportation options. Pedestrian
connectivity within the site and to the surrounding area must be included. These
sustainable design elements will be required within the site and on the surrounding
Municipal right of ways.
12.2 Transportation Impacts
As a retail tourism destination, the proposed outlet centre is expected to draw customers
from outside of the Clarington area. The impacts of the increased traffic will need to
mitigated to ensure the safe and efficient flow of traffic to, from and around the outlet
centre.
Improvements will be required to the Highway 401 interchange as well as Regional and
local streets on both the east and west sides of the site. The first two are discussed at
10.1 of this report. One area of particular interest will be the access to the Lockhart / John
Scott neighbourhood located to the north of the development site. Vehicle access to that
neighbourhood is currently provided exclusively from Lockhart Gate (see Figure 4). Part
of the transportation review will include examining the need for extending John Scott
Avenue to Spry Avenue to provide an alternative access.
12.3 Impacts on the Natural Environment
In order for this development to proceed, significant changes must be made to raise the
lands at the east end of the site out of the floodplain. In doing so, care must be taken to
ensure that the natural heritage features that are being removed can be replaced or
appropriately compensated for somewhere else within the Bowmanville Creek watershed.
This matter will require careful review.
Municipality of Clarington
Report PSD-047-17 Page 19
12.4 Local Commercial Business
While the subject site has been previously identified for retail development it currently
includes floor area and use restrictions intended to ensure that it does not negatively
impact the planned commercial function of other business areas in Clarington and
specifically in downtown Bowmanville. The proposed changes to the zoning are being
reviewed with the same approach.
13. Strategic Plan
Among the many priorities of the Clarington Strategic Plan are:
• Job creation;
• Improvements to Highway 401 interchanges; and
• Build trails that connect our community to the waterfront.
The proposed retail outlet centre supports these key priorities.
14. Conclusion
The purpose of this report is to provide background information on the proposed retail
outlet centre submitted by SmartREIT and receive public comments. Staff will take into
consideration all comments raised at this meeting. A future report will be prepared once
all agency comments have been received and issues resolved.
Submitted by: Reviewed by:
David J. Crome, MCIP, RPP Curry Clifford, MPA, CMO,
Director of Planning Services Interim CAO
Staff Contact: Paul Wirch or Carlos Salazar, 905-623-3379 extension 2418 or
pwirch@clarington.net
List of interested parties to be notified of Council's decision is on file in the Planning Services
Department
PW /COS/tg/df
I:\^Department\LDO NEW FILING SYSTEM\Application Files\ZBA-Zoning\2017\ZBA2017-0016 Outlet Centre\5-Reports\PSD-047-17.docx