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Report To: Planning and Development Committee
Date of Meeting: March 12, 2018
Report Number: PSD -023-18 Resolution Number: PD -042-18
File Number: ZBA2017-0003 By-law Number:
Report Subject: A Revised Application by Fifty Five Clarington Ltd. & Modo
Bowmanville Towns Ltd. (Kaitlin) to rezone lands to permit two 12 -
storey apartment buildings containing 434 dwelling units at 51 & 55
Clarington Boulevard, Bowmanville
Recommendations:
That Report PSD -023-18 be received;
2. That the revised application for Rezoning ZBA 2017-0003 continue to be processed
including the preparation of a subsequent report; and
3. That all interested parties listed in Report PSD -023-18 and any delegations be advised of
Council's decision.
Municipality of Clarington
Report PSD -023-18
Report Overview
Page 2
The Municipality is seeking public input on a revised application by Fifty Five Clarington Ltd.
and Modo Bowmanville Towns Ltd. (Kaitlin). The proposed multi -unit residential development
would introduce a total 424 apartment units in two twelve -storey buildings along the extension
of Clarington Boulevard in the Bomwanville West Urban Centre. These lands are part of the
Bowmanville Transit Hub, a major travel destination with multi -modal transportation transfer
opportunities.
1. Application Details
1.1 Owner/Applicant: Fifty Five Clarington Ltd. and Modo
BowmanvilleTowns Ltd. (Kaitlin Corporation)
1.2 Original Proposal To rezone the lands to permit two 6 storey apartment
buildings containing a total of 201 dwelling units in
two 6 storey buildings as follows:
x Building at 51 Clarington Boulevard: 136 units
with surface parking;
x Building at 55 Clarington Boulevard: 65 units
with underground parking;
1.3 Revised Proposal: To rezone the lands to permit two 12 storey
apartment buildings, both with underground parking,
as follows:
1.4 Area of Subject Lands:
1.5 Location:
1.6 Roll Number:
x 302 units at 51 Clarington Boulevard; and
x 132 units at 55 Clarington Boulevard.
1.82 hectares
51 and 55 Clarington Boulevard (Part of Lot 16,
Concession 1, former Township of Darlington)
1817 010 020 17280 and Part of 1817 010 020 16800
1.7 Within Built Boundary: Yes
Municipality of Clarington
Report PSD -023-18 Page 3
2. Background
2.1 The original application was deemed complete on March 14, 2017 and circulated to staff
and agencies for comments.
2.2 A Public Information Centre and Public Meeting were held on May 4, 2017 and May 15,
2017, respectively.
2.3 This revised application came forward as a result of overall discussions assessing
opportunities for higher densities for the Bowmanville West Urban Centre and
Transportation Hubs, with the site's close proximity to the future GO Train Station in
Bowmanville as shown on Figure 1.
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s sPRINCE WILLIAM BOULEVARD
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Figure 1: Key Map
Municipality of Clarington
Report PSD -023-18
2.4 The following studies were submitted in support of the application, and updated
accordingly to reflect the revised submission:
x Archaeological Assessment
x Phase 1 Environmental Site Assessment
x Storm Water Management Report
x Urban Design Plan
x Functional Servicing Report
x Traffic Impact Study
x Shadow Study
x Vibration Study
x Energy Conservation and Sustainability Plan
x Noise Study
3. Land Characteristics and Surrounding Uses
Page 4
3.1 The subject lands are currently vacant (Figure 2). Construction crews are onsite
extending Clarington Boulevard and completing preliminary servicing and grading work
related to the subdivision. (Figure 3). No significant vegetation is present on the site. An
informal pedestrian connection crosses the site and provides a connection south of the
railway.
3.2 The surrounding uses are as follows:
North - Municipal parkette block and existing commercial development.
South - CP Railway; existing low-rise apartment buildings along Aspen Spring Drive.
East - Existing retirement home and apartment building.
West - Proposed medium density townhouse development.
Figure 2: South View of Subject Lands
Municipality of Clarington
Report PSD -023-18
JMI=
Page 5
Figure 3: West View of the Extension of Clarington Boulevard
4. Provincial Policy
Provincial Policy Statement
4.1 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.
4.2. 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.
4.3 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.
Provincial Growth Plan
4.4 The subject lands are located within the defined Built Boundary of Bowmanville.
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. A minimum of 40 percent of all residential
development occurring annually within each upper tier municipality will be within the
built up area.
4.5 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.
Municipality of Clarington
Report PSD -023-18
Page 6
4.6 The Growth Plan provides for higher density targets along transit corridors and around
transit stations, including the subway network, light rail lines, bus rapid transit routes
and the GO Transit network.
4.7. Major transit station areas on priority transit corridors, will be planned in a transit -
supportive manner that maximizes the size of the area and the number of potential
transit users that are within walking distance of the station. A major transit station area
is generally defined as the area within approximately 500 metre radius of a transit
station, representing about a 10 minute walk.
4.8 Major transit station areas will be planned for a minimum density target of 150 residents
and jobs combined per hectare for those that are served by the GO Transit rail network.
4.9 Within major transit station areas on priority transit corridors, land uses and built form
that would adversely affect the achievement of the minimum density targets in the
Growth Plan will be prohibited.
4.10 Public transit will be the first priority for transportation infrastructure planning and
investments. Decisions on transit planning and investment will be made based on many
factors including the following:
x Supporting the transit priorities identified in the Plan, including the GO Rail
extension to Bowmanville;
x Prioritizing areas with existing or planned higher residential or employment
densities to optimize return on investment and the efficiency and viability of
existing and planned transit service levels;
x Increasing the capacity of existing transit systems to support strategic growth
areas; and
x Expanding transit service to areas that have achieved, or will be planned to
achieve, transit -supportive densities and provide a mix of residential, office,
institutional and commercial development.
4.11 The application conforms to the Growth Plan.
5. Official Plans
Durham Regional Official Plan
5.1 The subject lands are within a Regional Centre. Regional Centres provide a full array of
institutional, commercial, major retail, residential, recreational, cultural, entertainment
and major office uses. Regional Centres function as places of symbolic and physical
interest for the residents, and shall provide identity to the area municipalities within
which they are located.
5.2 Regional Centres shall support an overall, long-term density target of at least 75
residential units per gross hectare and a floor space index of 2.5. Gross densities are
measured over the entire Secondary Plan area, including roads, parks and other
infrastructure.
Municipality of Clarington
Report PSD -023-18
5.3 Development in Regional Centres shall be based on the following principles:
Page 7
x Compact urban form which is transit -supportive;
x Provides a mix of uses and opportunities for intensification;
x Follows good urban design principles with focus on public spaces and pedestrian
connections, with parking sited to the rear or within buildings; and
x Enhances grid connections for pedestrians and cyclists.
5.4 The Bowmanville Regional Centre is designated as a Transportation Hub. A
Transportation Hub is a major destination and facilitates transfers between different
modes of transit service. Development within approximately 500 metre radius or 10
minute walk should be mixed use or at higher density to support future transit services.
5.5 The lands are within the Built Boundary. On an annual basis, a minimum of 40 percent
of all residential development is to occur through intensification inside the Built
Boundary. The Clarington urban areas shall be planned to accommodate a minimum 32
percent of all residential development occurring annually through intensification within
the built-up area. Regional Centres and Transportation Hubs to be a key focus of
intensification.
Clarington Official Plan
5.6 The Clarington Official Plan designates the subject lands Urban Centre. Urban Centres
shall be comprehensively developed to provide residential and/or mixed use
developments in order to achieve higher densities, transit oriented development and
reinforce the objective of having a diverse mix of land uses. Urban Centres will be
planned and developed as a centre providing the highest level of retail and service uses
and are the primary focal point of cultural, community, recreational and institutional uses
in Clarington. Bowmanville is the predominant Urban Centres in Clarington.
5.7 The Bowmanville GO Rail Station is identified as a Transportation Hub. The lands
around it are to develop as a mixed use, higher density place. The Clarington Official
Plan requires Transportation Hubs areas to be developed at a net density of 200 units
per ha. The Official Plan states that the Municipality will work in partnership with the
Province and the Region to provide a transit -supportive environment including directing
density to Transportation Hubs, the Regional Transit Spine and Regional and Local
Corridors.
5.8 Core objectives of the Official Plan are to encourage transit -supportive, mixed use and
compact urban form in Priority Intensification Areas, which the subject lands are a part
of. Available and planned public infrastructure should be used efficiently. Lands within
the broader Urban Centre are to develop to a minimum net density of 120 units per
hectare. Mixed-use and apartment buildings are to be the predominant form, ranging in
height from 4 to 12 storeys.
Municipality of Clarington
Report PSD -023-18
Page 8
5.9 The lands are located within the Built Boundary. The Municipality has an intensification
target of at least 32% of all new residential units within the Built-up Area up to the year
2021, increasing to 40% thereafter to the year 2031. For Bowmanville, this means
4,150 new intensification units by the year 2031. The Bowmanville Urban Centres are
identified as Priority Intensification Areas.
5.10 The Bowmanville West Urban Centre has a housing target by 2031 of approximately
3,000 units, including approximately 2,557 high density and 484 medium density units.
5.11 The development 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.
5.12 The Municipality is in the process of updating the Secondary Plans to bring them into
conformity with this Plan. Where there is a conflict or inconsistency with the parent
Plan, the Secondary Plan will prevail, unless the conflict is associated with the density
and intensification policies of the parent Plan, in which case the parent Plan shall
prevail.
Bowmanville West Town Centre Secondary Plan
5.13 The subject lands are designated as Midrise High Density Residential and Medium
Density Residential in the Bowmanville West Town Centre Secondary Plan. The Midrise
High Density designation allows for residential development having a net density
between 50 and 300 units per hectare. Permitted dwelling types include apartment
buildings up to 12 storeys in height. The westerly portion of the site, owned by MODO
Bowmanville Towns Limited, is designated Medium Density Residential for residential
development between 31 and 60 units per net hectare.
5.14 The Bowmanville West Town Centre Secondary Plan contains detailed Urban Design
policies, including an Urban Design Guidelines and policies specific to residential
buildings and site layout.
5.15 The Secondary Plan is currently in the process of being updated in 2018 to conform to
the new Clarington Official Plan, as amended by OPA 107.
6. Zoning By-law
Zoning By-law 84-63 zones the subject lands Agricultural (A) Zone. A rezoning is
required to permit the proposed apartment buildings.
Municipality of Clarington
Report PSD -023-18
7. Public Notice and Submissions
Page 9
7.1 A combined notice of the Public Information Centre and Public Meeting was mailed on
February 2, 2018 and details of the application were also included on the municipal
website and in the Planning Services Department E -update.
7.2 A second Public Information Centre relating to the revised proposal was held February
15, 2018 at the Church of Jesus Christ of Latter Day Saints on Highway 2 in
Bowmanville. Seven area residents attend the Public Information Centre.
7.3 Generally comments were received regarding height and density and the ability for the
area to accommodate growth, however other comments received were in support of
more rental and more affordable housing, and in support of the development being
completed sooner than the anticipated timeframe for completion (approximately four
years).
8. Agency Comments
8.1 At the time of writing this report, comments from the Region of Durham and the Central
Lake Ontario Conservation Authority have not been received.
Canadian Pacific Railway
8.2 Comments regarding the revised application have not been received. CP Railway
commented on the original proposal and had no objections to the application provided
CP principal main line requirements were satisfied. CP supported the implementation of
the recommendations of the noise impact study based on the original site design.
Updated comments are required.
Metrolinx
8.3 Metrolinx noted CP Railway is the primary commenting agency and provided
recommended warning clauses to be included in future development agreements and
purchase and sale agreements regarding the future location of GO Transit facilities in
the railway corridor.
Other Agencies
8.4 Durham Regional Transit, Canada Post, Rogers, and Enbridge have no objections to
the development. Staff forwarded technical comments to the applicant.
9. Departmental Comments
Engineering Services
9.1 Engineering Staff have no objection to the findings of the Traffic Impact Study however
staff have concerns about the shared westerly access and will further review during the
site plan process for the subject lands and the townhouse application to the west.
Municipality of Clarington
Report PSD -023-18
9.2 The Functional Servicing Report is satisfactory. Financial contribution for post
development cleaning of the stormwater management pond may be necessary.
Page 10
9.3 General comments relating to site alteration, entrance works, revisions to the grading
plan, road occupancy and excavation, securities and deposits will be forwarded to the
applicant and implemented through the site plan process.
Building Division
9.4 The Building Division has no objections to the rezoning and has provided detailed
building code related comments for consideration as part of the site plan review.
Operations Department
9.5 The Operations Department has no objection to the proposed rezoning and site plan.
Accessibility Committee
9.6 Planning Staff met with the Accessibility Committee to review the application. The
Committee provided comments on the development to Planning Staff and these will be
forwarded to the applicant for their consideration and action as part of the site plan
review.
10. Discussion
10.1 This site is located within the Bowmanville West Urban Centre. In the existing
Secondary Plan, the majority of the site has been designated for high density
development, permitting up to 12 storeys and 300 units per hectare.
10.2 The revised development would generate a density of 238 units per net hectare, versus
the original proposal that had a density of approximately 110 units per hectare. A
perspective drawing of the proposal is included as Figure 4, below.
Figure 4: Perspective Image of Proposed 12 Storey Buildings
Municipality of Clarington
Report PSD -023-18
Page 11
10.3 The revised density and height is consistent with the policy direction of the Provincial
Growth Plan, the Regional Official Plan and new Official Plan that requires higher
densities around GO Station areas. This projects makes a significant contribution to
integrate land use and transit infrastructure planning.
10.4 The proposal meets key urban design criteria for Regional Centres and Priority
Intensification Areas including:
x building sited to create a strong street edge;
x entrances are visible and directly accessible to sidewalk;
x buildings would enhance the built environment with attention to massing, building
articulation and building materials; and
x adequate light and privacy for building occupants and adjacent properties.
More detailed urban design issued will be subject to the urban design review in the site
plan process.
10.5 Although the Secondary Plan update for the Bowmanville West Urban Centre has
commenced, this project implements the scale of development appropriate for the
predominant Urban Centre, increases the diversity of housing types and generally
meets the urban design goals of the Official Plan. It will not jeopardize the update to the
Bowmanville West Urban Centre Secondary Plans.
11. Concurrence
Not applicable.
12. Conclusion
The purpose of this report is to provide background information on the proposed multi-
unit residential development submitted by Fifty Five Clarington Ltd. & Modo
Bowmanville Towns Ltd. (Kaitlin) 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 -023-18
Submitted by:
David J. Crome, MCIP, RPP
Director of Planning Services
Page 12
Reviewed by: for CAO
Andrew C. Allison, B.Comm, LL.B
Chief Administrative Officer
Staff Contact: Anne Taylor Scott, Senior Planner, 905-623-3379 ext. 2414 or
ataylorscott(o)_clarington. net
ATS/CP/nl
The following is a list of the interested parties to be notified of Council's decision:
Enzo Bertucci
Ken &Irene Pattison
C. Brown
Leigh Taylor
Beth Kelly
Laura Labine
Joseph Doyle
Edward Johns
Chris Ball
Jim Scarth
Shane Stagg
Gina Stewart
Joan and Fred Johns
Rob & Amy Wilson
Pauline Couccio
Anne Mason
IA^Departmer
Report.docx