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HomeMy WebLinkAboutPSD-057-18 Clarftwn Planning Services 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: June 25, 2018 Report Number: PSD-057-18 Resolution Number: PD-142-18 File Number: ZBA2017-0019 By-law Number: 2018-063 Report Subject: An Application by Bowmanville Lakebreeze East Village Ltd. (Kaitlin) to amend the R3-43 zone to permit a 341 unit townhouse development in Port Darlington Neighbourhood in Bowmanville Recommendations: 1. That Report PSD-057-18 be received; 2. That the Zoning By-law Amendment application (ZBA 2017-0019) submitted by Bowmanville Lakebreeze East Village Ltd. be approved as contained in Attachment 1 to Report PSD-057-18; 3. That notwithstanding Section 45(1.3) of the Planning Act, Council permits the submission of minor variances application to the Committee of Adjustment for relief from internal yard setbacks required by the R4-43 Zone, if necessary; 4. That once all conditions contained in the Official Plan with respect to the removal of the (H) Holding Symbol are satisfied, the By-law authorizing the removal of the (H) Holding Symbol be approved; 5. That the Durham Regional Planning and Economic Development Department and Municipal Property Assessment Corporation be forwarded a copy of Report PSD-057-18 and Council's decision; and 6. That all interested parties listed in Report PSD-057-18 and any delegations be advised of Council's decision. Municipality of Clarington Report PSD-057-18 Page 2 Report Overview This is a recommendation report for approval of the application by Bowmanville Lakebreeze East Village Ltd. (Kaitlin). The current development plan is for a mix of stacked, traditional and dual frontage townhouse units in a condominium development accessed by private lanes. The site plan contains a total of 341 dwelling units. The site plan provides the required resident and visitor parking. The proposed Zoning By-law amendment adds Stacked Townhouse dwellings as a permitted use and establishes unit regulations for the stack townhouse development, while amending some regulations for other townhouse units. The applicant no longer requests a reduction to the parking spaces required by the Zoning By- law. 1 . Application Details Applicant: Bowmanville Lakebreeze East Village Ltd. (Kaitlin) Proposal: A proposed rezoning to amend the R3-43 Zone to permit a townhouse (condominium) development (341 units) including a mix of stacked, dual frontage and traditional townhouse units, and to reduce parking requirements for some stacked townhouse units. Area: 7.78 hectares Location: West side of Bennett Road Roll Number: 1817 010 010 01600 and 1817 010 010 01400 Within Built Boundary: Yes 2. Background 2.1 The proposed rezoning and concurrent site plan application (SPA2017-0035) were submitted on May 16, 2017. The applications were deemed complete on January 18, 2018 and a Public Meeting was held on February 20, 2018. 2.2 The subject application pertains to Block 1 within the Port Darlington East subdivision. This block has draft approval and was pre-zoned for 424 medium density units in the form of apartments and townhouse units. The location of Block 1 in the context of the overall Port Darlington development is highlighted in red in Figure 1. 2.3 The subject lands are part of an overall development that includes two plans of subdivision in the Port Darlington Neighbourhood (See Figure 1). These 2 plans of Municipality of Clarington Report PSD-057-18 Page 3 subdivision were registered on February 26, 2018. The unit breakdown for the subdivisions is provided in Table 1. Table 1: Port Darlington Draft Approved Subdivisions Unit Breakdown Density Port Darlington West Port Darlington East TOTAL Lands Lands S-C-2013-0002 S-C-2002-002 Draft Approved 2012 Draft Approved 2014 High Density 0 426 426 Medium Density 0 424 424 Low Density 234 0 234 Subtotal 234 850 1,084 2.4 Construction of the plans of subdivision including onsite grading, servicing and road construction is ongoing. Building permits have been issued for the first twenty single detached dwellings on the Port Darlington West lands. 2.5 A site plan application was submitted concurrently with the rezoning for Block 1 being the medium density block in the Port Darlington East (Figure 1). Figure 2 is a master block plan showing unit types, internal and external connections, and the 341 townhouse units under consideration. The plan proposes 83 units less than identified in the draft approved plan. The site plan for the subject lands proposes: x 110 — three storey townhouse units with access on private lanes with traditional rear yards. x 79 — three storey dual frontage townhouse units with parking and vehicular access from the private lane and front doors facing Port Darlington Road. x 152 —four storey stacked townhouse units. 2.6 Following the Public Meeting held on February 20, 2018, the applicant revisited the site plan to explore opportunities to accommodate additional parking within the development in order to meet the minimum Zoning By-law requirements. Kaitlin has subsequently withdrawn their request to reduce parking rates for the 1 bedroom units in the stacked townhouse blocks. The revised draft site plan satisfies the minimum zoning requirements, providing 2 spaces for each townhouse unit, and 1 visitor parking space for every 4 dwelling units in the plan. 2.7 The zoning amendment proposes to permit stacked townhouse units (shown in purple on Figure 2) and to revise some regulations for other townhouse units, such as setbacks, lot coverage, landscape open space and height. Municipality of Clarington Report PSD-057-18 Page 4 2.8 The following studies were submitted in support of the application and are summarized in Section 7 of this report. x Noise Study x Parking Study x Energy Conservation and x Functional Servicing Report Sustainability Plan x Landscape Analysis peon)Jauuag h 0 CO) y W o .1 m N o C� L � Qm �O Q -- N � O peoZ{aoin rag t1mos J ladC v� m y EEx W Z CO, LU � m J a�o Q 4 N m c Q "� g ITIT�NT1Tp � c N o fi y N W peod 3 �� uo;Bu#1.reQ Wod V an!dQ arouS J e3 J a � Figure 1: Port Darlington Land Corporation Municipality of Clarington Report PSD-057-18 Page 5 EINixaaun i91ais o.)MIG ; of 1 � 1 — ° YY as CO .�.. x W � z N UeL! 0 ; LUw W d � �`�• LU a� a + L E Y f a Y a Q �- - d 0 9-20 P o vW V13M13- •R v _ i LT in r 1 P i ■ m C � ��j ■ C Z � ■ @ m V �"' O J q @ W QSW 7 L t:. i � jr �. � � 1 • I I 1 � � m � IN3Wd013A20 (f � 1111110 32i nin=i Figure 2: Master Block Plan for Subject Lands Municipality of Clarington Report PSD-057-18 Page 6 3. Land Characteristics and Surrounding Uses 3.1 The subject lands have a rolling topography. The site has been stripped of topsoil and onsite preliminary grading and servicing works have begun (Figure 3). €� s - ���" x - _ ,-��. f- _a ..�:•:aa ��g` T�, :�"•ate— ,�v$: w*� �s '" 4, '. _ ,,airs• - "�• "...-__ ;: _ . _. :_. Figure 3: Photo of Subject Lands 3.2 The surrounding uses are as follows: North - CN Railway and Industrial lands South - Future waterfront park and trail; Lake Ontario East - Municipal parkland on the east side of Bennett Road West - Lands Zoned for Apartment Use (up to 8 storeys and up to 120 units per hectare) 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. 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. Municipality of Clarington Report PSD-057-18 Page 7 4.2 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. 4.3 The application is consistent with the Provincial Policy Statement. Provincial Growth Plan 4.4 The Growth Plan for the Greater Golden Horseshoe was amended in May 2017 and all decisions of Council after July 1, 2017 must conform to the amended policies. 4.5 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. 4.6 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. 4.7 The application conforms to the Growth Plan. 5. Official Plans Durham Regional Official Plan 5.1 The subject lands are designated Living Area, and are considered to be within the Waterfront Place designation. The Lake Ontario shoreline is identified as Waterfront Area. The predominant use of lands within the Living Area designation shall be for housing purposes. 5.2 There is specific recognition of the Port Darlington area as a Waterfront Place. Waterfront Places shall be developed as focal points along the Lake Ontario waterfront having a mix of uses, integrated with the Greenlands System. Uses may include residential, commercial, marina, recreational, tourist, and cultural and community facilities. The scale of development shall be based on and reflect the characteristics of each Waterfront Place. Where appropriate Waterfront Places shall be planned to support an overall, long-term density target of at least 60 residential units per gross hectare and a floor space index of 2.0. The built form should vary, and be developed in a manner that is sensitive to the interface with the natural environment, as detailed in area municipal official plans. 5.3 As the lands are within the Built Boundary, a minimum 32 percent of all residential development occurring annually in Clarington shall be through intensification within built-up areas. Municipality of Clarington Report PSD-057-18 Page 8 5.4 The subject application conforms to the Regional Official Plan. Clarington Official Plan 5.5 The Clarington Official Plan designates the lands Urban Residential and the lands are within the limits of the Waterfront Place. Waterfront Places are considered to be a Priority Intensification Area, together with Corridors, Centres and Transportation Hubs. Lands within Waterfront Place must achieve a minimum net density of 40 units per hectare and a range of heights between 2 and 12 storeys. 5.6 The Official Plan contains policies for the creation of multi-unit residential developments. These policies were considered through the establishment of the Port Darlington Secondary Plan and application for Draft Approval. 5.7 The update to the Clarington Official Plan introduces an arterial road network through the Port Darlington Neighbourhood. Port Darlington Road extension and Lambs Road are considered arterial roads. 5.8 The Official Plan provides additional direction on built form, urban design and sustainability measures to be implemented through the site plan process. 5.9 Environmental Impact Studies and related environmental reports were approved at the time of previous approvals of the subdivision. The appropriate development limits adjacent to Lake Ontario and Bennett Creek were established through the Draft Approval in accordance with all applicable policies in place at the time including the Clarington Official Plan. 5.10 The subject application conforms to the Clarington Official Plan. Port Darlington Neighbourhood Secondary Plan 5.11 The Port Darlington Neighbourhood Secondary Plan provides a more detailed land use plan for this area. The lands are within a Medium Density Residential designation. The Secondary Plan has a focus on providing a high quality urban environment, with attention to heritage resources, the waterfront and recreational opportunities. The Waterfront Greenway with the Waterfront Trail and the District Park is designated along the Lake Ontario shoreline. The plan requires proponents to submit comprehensive design documents showing how the development will satisfy the urban design objectives. 5.12 The subject application conforms to the Port Darlington Neighbourhood Secondary Plan. 6. Zoning By-law 6.1 Zoning By-law 84-63 zones the subject lands Holding - Urban Residential Zone ((H)R3- 43 Zone which permits up to 424 units in the form of link townhouse units and apartment units. Municipality of Clarington Report PSD-057-18 Page 9 7. Summary of Background Studies Parking Study 7.1 The Parking study provides an analysis of parking spaces provided for residents and visitors across the site. The study reviewed rates for dwelling types in other municipalities and rates based on engineering industry standards. The study justifies the reduction in parking rates for 1 bedroom units in the stacked townhouse buildings from 2 units to 1.21 spaces per unit. Functional Servicing and Stormwater Management Report 7.2 The report submitted reflects the overall plan for servicing and stormwater management within the limits of the two plans of subdivision. Sanitary and water services are available to service the site. Sanitary flows from the development will enter the system via an existing sanitary sewer that crosses the hydro lands and leads to the Port Darlington Water Pollution Control Plant to the west. Water services will be extended via East Beach Road and also be looped to connect to watermains on Lambs Road and along Bennett Road. 7.3 Stormwater management for the neighbourhood will be directed to one of 2 stormwater management ponds. The subject lands will drain to the pond constructed just west of Lambs Road (Pond B). Both ponds will be constructed to address stormwater quality, erosion and quantity controls. Landscape Analysis 7.4 This analysis provides a detailed site context relative to Bennett Creek to the west, Lake Ontario to the south and Bennett Road to the east. A high point bisects the lands, with lands sloping more steeply to the west towards Bennett Creek (5 to 7% slope), while lands slope more gently to the east (2.5 to 3% slope). 7.5 The proposed development generally maintains the existing drainage pattern in order to use gravity to handle stormwater. There is a cut proposed through the crest of the hill to a maximum of approximately 4.5 metres. This will accommodate additional overland flow drainage to Bennett Creek, and minimize the size and depth of the minor storm sewer and sanitary sewer systems conveying drainage through the crest of the hill. Noise Study 7.6 The noise study assessed impacts from rail noise on the proposed dwelling units. Acoustic barriers are required adjacent to the CN Railway. This will take the form of earthen berms and/or noise attenuation fencing depending on final grades of the lands. Central air conditioning will be a requirement for units proximate to the railway while some units will only require the ducting to accommodate air conditioning should owners desire to install it at a later date. Municipality of Clarington Report PSD-057-18 Page 10 7.7 The study acknowledges that building construction materials and glazing must be built to a standard to mitigate noise within the building. This will be further refined during the site plan approval and the detailed design stage of the building. 7.8 Warning clauses will be required in agreements of purchase and sale to advise future residents of noise generated by the railway and noise attenuation measures that are in place. 7.9 The potential for vibration impacts was investigated, and no mitigation will be required for vibration. Energy Conservation and Sustainability Plan 7.10 This plan provides a high level overview of conservation and sustainability measures to be implemented in the development, including supporting electric vehicle use, improved air and water quality, and the reduction of energy and water consumption 8. Public Notice and Submissions 8.1 A Statutory Public Meeting under the Planning Act was held on February 20, 2018. Notice of the Public Meeting was mailed on February 2, 2018, in addition to posting on the municipal website and in the Planning Services Department E-update. 8.2 Prior to the Public Meeting staff received general inquiries from area residents. No objections were received. 8.3 No members of the public attended the Public Meeting to speak in opposition to or in support of the application. 9. Agency Comments Regional Municipality of Durham 9.1 The Region of Durham does not object to the rezoning however notes that the density on the site has decreased since draft approval. The Region encourages Clarington and the applicant to discuss what this potential decrease could mean for the overall density targets in this area, and whether it conforms to the Clarington Official Plan. 9.2 The Region highlights that apartments versus stacked townhouse units would provide an even higher density and lower lands consumption. Apartments also promotes affordability and accessibility within the community. 9.3 The Region finds the development will contribute to Clarington's intensification requirements within the built boundary. 9.4 No further archaeological assessment is required and the site will have to meet the Region's requirements with respect to Environmental Site Assessments. The future development agreement will be required to implement the findings of the Noise Feasibility Study. Municipality of Clarington Report PSD-057-18 Page 11 9.5 Regional Works has no objection to the rezoning from a servicing or transportation perspective. 9.6 The site plan will be required to satisfy the Region's requirement for municipal waste pickup, including appropriate set out areas for waste, blue bins and green compost containers. The private lanes must be 6.5 metres in width and have a 13 metre turning radius. 9.7 The closest transit stop is currently at South Service Road and Bennett Road which is a stop along Route 506 being a Monday to Friday service between Orono, Newcastle, Wilmot Creek and Bowmanville. The site is located outside the recommended 400 metre walking distance to transit as outlined in Durham Transit's Five Year Service strategy. 9.8 While transit stops do not exist today, Durham Region Transit has requested that the Port Darlington Road design include concrete pads for future transit stop locations. Unit purchasers should be aware that transit will loop along Port Darlington Road in the future. Central Lake Ontario Conservation Authority 9.9 The Central Lake Ontario Conservation Authority has no objection to the approval of the rezoning however there are outstanding items relating to the engineering and stormwater management to be addressed as part of the site plan application. 9.10 Other Agencies Canada Post, Enbridge and Rogers have no objections and detailed comments were forwarded to the applicant. 10. Departmental Comments Engineering Services 10.1 The Engineering Services Department has no objection to the proposed rezoning, however notes that the applicant must resolve all issues relating to the final Subdivision Approval prior to proceeding with the proposed development. 10.2 Engineering Staff have several comments relating to access design, servicing and grading on the site plan lands to be addressed in the context of the overall development scheme for the neighbourhood. Detailed technical comments will be provided to the applicant. Private entrances to the condominium townhouse block from Port Darlington Road extension will require approval and performance guarantees to the satisfaction of the Director of Engineering Services. Municipality of Clarington Report PSD-057-18 Page 12 10.3 Engineering Staff has reviewed the Parking Study. While the report appears to provide sufficient justification for a reduction in parking related to the 1 bedroom stacked townhouse units, Engineering Staff proposed further discussion with other municipal departments on the potential implications of the reduction. However, as the applicant has withdrawn this request, this is no longer an issue. 10.4 Standard requirements apply with respect to site alteration, timing windows for road excavation and construction, and noise attenuation. Emergency and Fire Services 10.5 Clarington Emergency and Fire Services have no objections to the rezoning, however have provided detailed comments on the site plan with respect to fire routes and turning radii for fire trucks, requirements for no parking signage along fire routes and hydrant spacing. Building Division 10.6 The Building Division has no objections and has provided comments to be addressed in the next site plan submission. The Building Division notes that the servicing drawings require revisions to address proper placement of fire hydrants and water services in accordance with the Building Code. As the site is a private condominium development the development must also comply with guidelines provided by the Ministry of Environment. Servicing permits will be required from the Region of Durham. Operations 10.7 Operations provided detailed comments to be addressed at the site plan stage relating to snow storage, maintenance of boulevards and mud tracking. The department has no objection to the rezoning. Accessibility Committee 10.8 The Committee has provided detailed comments on the site plan application. Accessible parking spaces should be better distributed throughout the site and must be designed to meeting accessibility standards with access aisles and dropped curbs. Catch basins should not impact accessible parking spaces. 10.9 The site plan must also consider accessibility across the site including along sidewalk and trail networks. Accessible seating and rest areas should be provided. 10.10 Providing access ramps in place or in addition to stairs to the courtyard spaces will ensure the courtyards are available to everyone. 10.11 The Committee encourages low plantings to ensure sightlines are protected even in seated position. The use of pavers on paths of travel require further review and consideration to minimize barriers and trip hazards. Municipality of Clarington Report PSD-057-18 Page 13 10.12 The Committee recommends 10% of units in new townhouse developments be designated as accessible housing. 11 . Discussion Density, Unit Mix and Accessibility 11.1 Conceptual site plans dating back to 2009 included apartments (3 to 4 storeys in height) on the subject lands. Sometime in late 2015/early 2016 Kaitlin revised their plans for the site to replace the apartment component and to introduce the stacked townhouse product. Despite staff's concerns about accessibility, unit mix and density, the applications were submitted in 2017 without addressing these items. 11.2 The Region of Durham Official Plan requires a minimum gross density of 60 units per hectare and a floor space index of 2.0. The Clarington Official Plan establishes a minimum net density of 40 units per hectare with a range in heights between 2 and 12 storeys. The proposed plan has a density of 44 units per net hectare. Although the block was draft approved for 424 units, the development plan technically complies with the density targets of the Official Plan. 11.3 Density is only one component of considering an appropriate unit mix. The site is completely comprised of townhouse units. All 341 units will include steps within the units, steps to access units, and steps within common courtyard areas. The site design is not considered accessible. Staff have identified the concern that the development would not accommodate residents with mobility issues, or families with strollers etc. Most, of the 341 units are sold. 11.4 The remaining lands within PDLC East subdivision are reserved for a High Density Block/Future Development (Figure 1). Apartments will be permitted and will provide at- grade accessible units and elevators. Future plans must include a balanced mid-rise mix between 4 and 8 storeys and taller buildings between 8 and 12 storeys. 11.5 Concepts for the remaining High Density blocks have included a stacked townhouse product— similar to the product on the subject lands. Staff have provided comments that would preclude additional townhouse units being developed on remaining lands held by Kaitlin for reasons of providing better unit mix and accessible units. Parking 11.6 The applicant originally requested to amend the typical parking requirements for smaller 1 bedroom units within the stacked townhouses. The zoning by-law requires 2 parking spaces for each townhouse unit regardless of size. The request for the reduction from 2 spaces per unit, down to 1.21 spaces per unit, was supported by a parking study.The stacked townhouse typical cross section is shown in Figure 4, and an elevation drawing of a typical townhouse block is provided in Figure 5. Relief was requested for the small 1 bedroom units shown in yellow. Municipality of Clarington Report PSD-057-18 Page 14 11.7 Since the Public Meeting the owner has revisited the site plan. All townhouse units will have 2 resident parking spaces and visitor parking will be provided at the rate of 1 space for every 4 units in accordance with the Zoning By-law. Bmmm 2 D MIH R41X = NO51ER 6E i y I •I _ KITCHEN D NITC _— _ 1 NR PATING I BEDROOM 2 @REH A p1NIN0 F PORCH " 1 I/p NR RAP 4.—p. PA R A G E WIDE = WHEX E,P P _-- - -- - ECNE –––- – "s F AvEwE Gr QE y — F., Figure 4: Stacked Unit Cross-Section STACKED B-FRONT ELEVATION _ I I __- fi Figure 5: Stacked Townhouse Dwelling Elevation Municipality of Clarington Report PSD-057-18 Page 15 Modifications to the R3-43 Zone and Unit Regulation 11.8 There are problems with the parking aspects of the site plan application which are yet to be resolved. This is not only for the stacked townhouse units, but for other forms of townhouses within the medium density block. One of the issues is with the size of the indoor parking spaces, where multiple spaces are proposed, and provide the required parking space. Staff are firm that both resident and visitor parking spaces have to be within relative proximity to the dwelling units (e.g. all the visitor parking should not be located at the north end of the site). Further some dwelling units do not have any outdoor spaces, so they are dependent on at grade parking that should be within a short walking distance. The resolution of this issue could have some impact on the units proposed and sold with reservation agreements. 11.9 The proposed revisions to the R3-43 Zone are included as Attachment 1. Stacked Townhouse units are added as a permitted use. Various regulations are proposed to be modified for setbacks, lot coverage, building height for some of the townhouse units. No amendments regarding standard resident and visitor parking rates are proposed. 11.10 Staff recommends a Zoning By-law amendment that establishes appropriate unit regulations based on the latest site plan. Kaitlin has reviewed and provided their concurrence. However, as the site plan is still being finalized future minor variances may be required for some site specific yard setbacks. As a result the recommendations include permissions to apply to the Committee of Adjustment for relief from internal yard setbacks, if necessary. 11.11 Taxes owing to the Municipality of Clarington have been paid in full. 12. Concurrence Not Applicable. 13. Conclusion 13.1 In consideration of all agency, staff and public comments, it is respectfully recommended that the rezoning application to permit a multi-unit residential development in the Port Darlington Neighbourhood by Bowmanville Lakebreeze East Village Ltd. (Kaitlin) be approved. 13.2 The site plan application needs considerable refinement prior to site plan approval. Accommodating parking needs may result in the loss or relocation of some units, the loss of greenspace or possibly require underground parking. The pre-sale of the units complicates Kaitlin's options to address this issue. 14. Strategic Plan Application The recommendations of this Report conform to the Strategic Plan action to support a variety of affordable mixed housing types and community design attributes that support our residents at every stage of life and across all abilities. Municipality of Clarington Report PSD-057-18 Page 16 Submitted by: Reviewed by: David J. Crome, MCIP, RPP Andrew C. Allison, B.Comm, LL.B Director of Planning Services Chief Administrative Officer Staff Contact: Anne Taylor Scott, Senior Planner, 905-623-3379 ext. 2414 or ataylorscott ,clarington.net ATS/CP/DJC/nl Attachments: Attachment 1 — Proposed Zoning By-law Amendment (to be forwarded separately) The following is a list of the interested parties to be notified of Council's decision: Enzo Bertucci Don Wilkinson Carol Maher-Hawken Queenie Tran Roland Roovers Deb Patrick I:\^Department\LDO NEW FILING SYSTEM\Application Files\ZBA-Zoning\2017\ZBA2017-0019 PDLC East\Staff Report\2.June 4 2018\PDLC East Recommendation Report.Docx