HomeMy WebLinkAboutPSD-014-16 Clarington
Planning Services
Report
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Report To: Planning and Development Committee
Date of Meeting: February 1, 2016
Report Number: PSD-014-16 Resolution-
Pb-
File
esolution:ab-File Number: COPA 2015-0001 & PLN 31.5.6 By-law NumberP`Ar ,
Report Subject: Amendment No. 104 to the Clarington Official Plan to delete an
Elementary School site in the Worden East Neighbourhood
Amendment to the Worden East Neighbourhood Design Plan
Applications submitted by H&H Properties Inc.
Recommendations:
1. That Report PSD-014-16 be received;
2. That Amendment No. 104 to the Clarington Official Plan, prepared in response to an
application submitted by H & H Properties Inc. be approved, as contained in Attachment
2 of Report PSD-014-16 and that the appropriate by-law be passed;
3. That the revised Worden East Neighbourhood Design Plan as contained in Attachment 3
of Report PSD-014-16 be supported;
4 That Staff be authorized to initiate an amendment to Zoning By-law to permit only single
family detached dwellings with greater lot frontages and setbacks in the Urban
Residential Type One (R1) zone, fronting on Tooley Road with the exception of the
medium density area, which would be rezoned to 'Agricultural (A)'; and
5. That all interested parties listing in Report PSD-014-16 and any delegation be advised of
Council's Decision.
Municipality of Clarington
Report PSD-014-16 Page 2
Report Overview
This report recommends that the Clarington Official Plan and the Worden East Neighbourhood
Design Plan be amended to remove a separate elementary school site. Recognizing the
natural heritage system, the character of the lands on Tooley Road and the objective of
providing a variety of housing forms and tenure, Staff are recommending various additional
amendments to the Worden East Neighbourhood Design Plan. Lastly, staff is requesting
authorization to initiate an amendment to Zoning By-law 84-63 to permit only single detached
dwellings with greater lot frontages and front yard setbacks fronting on Tooley Road.
1 . Background
1.1 Purpose of a Neighbourhood Design Plan
The Clarington Official Plan provides for the preparation of a Neighbourhood Design Plan
prior to consideration of any plan of subdivision. These plans do not require formal
approval from Council but are utilized by Staff in reviewing development applications for a
specific neighbourhood. It is a means of co-ordinating the design aspects of multiple
plans of subdivision, consents, site plans and infrastructure plans at the neighbourhood
or sub-neighbourhood level. In this way they also serve to illustrate to existing residents
and prospective purchasers the intended land uses proposed in a neighbourhood.
1.2 The design plans generally detail the following:
• Locations of schools, parks and open space, including stormwater management
ponds;
• Lotting patterns and residential uses;
• Road alignments; and
• Walking or cycling trails as well as future transit routes.
1.3 The 2002 Worden East Neighbourhood Design Plan
The Worden East Neighbourhood Design Plan 2002 was prepared as a result of
negotiated settlement between The Municipality of Clarington and Mr. Clifford Curtis to
avoid an Ontario Municipal Board hearing in respect of the 1996 Clarington Official Plan
wherein Mr. Curtis requested the relocation of the separate elementary school from
property in his ownership to an alternate location. The settlement also required staff to
prepare a Neighbourhood Design Plan which was approved in 2002 by the Director of
Planning Services and the Director of Engineering Services (see Attachment 1).
1.4 The H & H Properties Inc. Applications
On December 24, 2014, H & H Properties Inc. (H & H) submitted applications for
amendments to the Clarington Official Plan, Worden East Neighbourhood Design Plan,
Zoning By-law 84-63 and applications for a Draft Plan of Subdivision, and Site Plan
Approval to permit 80 one-storey style residential units fronting onto an interior network of
private lanes. The H & H applications for Plan of Subdivision and rezoning are
addressed in PSD-015-16.
Municipality of Clarington
Report PSD-014-16 Page 3
1.5 Prior to the Statutory Public Meeting, held on March 30, 2015, the applicant hosted a
Public Information Centre on March 10, 2015. On both occasions staff heard and
subsequently received emails and letters from numerous area residents, the majority of
whom were in opposition of the proposal. Concerns with the proposal included:
• not in keeping with rural character of Tooley Road;
• increased traffic and on-street parking; and
• impacts on wildlife and the environment.
1.6 Residents of Tooley Road are concerned about future development in their
neighbourhood. In addition to the H&H project, other factors that will influence changes
on Tooley Road, as follows:
• The lands are within the built boundary for Courtice and new and updated Provincial
Policies requires intensification and better use of infrastructure within the built
boundary;
• The identification of a provincially significant wetland in a portion of the area and
lands west of the area;
• The natural heritage system identified under current Provincial, Regional and
Municipal policies is greater than what is shown in the current Official Plan and will
influence the amount of land which can be developed;
• Installation of sanitary sewers will allow for more development;
• With full services imminent, developers who own lands in the area are preparing
plans for development; and
• Lands fronting onto Tooley Road are zoned "Urban Residential Type One (R1)"
which with the installation of sanitary sewers on Tooley Road, will allow further
development of single detached dwellings and semi-linked dwellings.
1.7 As a result of the proposed changes to the Neighbourhood Design Plan together with
residents' concerns for future development within the neighbourhood, staff undertook to
review the Worden East Neighbourhood Design Plan.
2. Resident Consultation
2.1 Design Charrette
On June 25, 2015, staff held a miniature design charrette. A full charrette involves
intensive planning sessions where citizens, designers and others collaborate on a vision
for development. In this case, not all of the necessary inputs were available particularly
environmental information on the natural heritage system and engineering information on
stormwater management.
At the charrette, the residents were asked to share, what they liked about their
neighbourhood, what they were afraid of and identify other memorable neighbourhood
and communities. This exercise was important to formulate principles for changes to the
neighbourhood design plan. Working together in groups at tables, the residents were
asked to design a plan for the neighbourhood. Staff from the Planning Services
Municipality of Clarington
Report PSD-014-16 Page 4
Department, Engineering Services Department and Central Lake Ontario Conservation
were available to assist with questions.
2.2 Preliminary Concepts Meeting
On November 10, 2015, staff met again with residents to review the consolidated list of
principles and preliminary concepts for various areas along Tooley Road. Again, the
most significant impediment for neighbourhood level plans was the lack of detailed
natural heritage data on the west side of Tooley Road. This particular area is an
extension of the provincially significant wetland (largely to the west of the Worden East
Area). It is a continuous feature and in one area it is close to connecting with the
Farewell Creek Valley.
2.3 Meeting with Landowners with Development Interests
Planning Staff and Staff from the Central Lake Ontario Conservation Authority met at their
request with a number of landowners with development interests, Mr. and Mrs. Curtis,
Ryan Lavender, Gina Lavender, Dave Holland and Ryan Zygocki, who own lands on west
side of Tooley Road in close proximity to Springfield Lane. The majority of the lands are
within the area identified as an Area of High Aquifer Vulnerability and in close proximity to
a provincially significant wetland, most of which is now in municipal ownership. These
lands form part of a natural heritage system identified in the Draft Official Plan released in
2015. The existing policies of the Clarington Official Plan require any development
proposal within or near a natural feature to complete an Environmental Impact Study in
support of the proposal. The landowners were encouraged to prepare one study rather
than independent studies to provide a better understanding of the natural heritage system
and define the limits of development.
2.4 Roundtable Meeting with Area Residents
On January 19th, 2016 Staff met with 9 residents from Tooley Road who had made
submissions on the proposed neighbourhood plan following the November 10, 2015
meeting. The meeting was to discuss the H & H project and proposed changes to the
2002 Neighbourhood Design Plan. The meeting provided a good opportunity for dialogue
and gain a better understanding of issues all around. Their comments with respect to the
H & H project are discussed in PSD-015-16.
Staff provided the residents with a draft of the proposed changes to the Neighbourhood
Design Plan as well as a three dimensional illustration of what the neighbourhood could
look like if all lands were to develop in accordance with the proposed changes to design
plan (see Attachment 4).
The residents at the meeting understand that development on Tooley Road is inevitable
yet want to ensure that the character is maintained. Protection of natural environment,
maintaining larger lots, homes with greater setbacks from Tooley Road to maintain
`green' along the frontage rather than a 'wall' of garages and driveways were important to
the residents. The residents also requested a park and opportunities for recreation.
Municipality of Clarington
Report PSD-014-16 Page 5
I Principles for the Worden East Neighbourhood Design Plan
3.1 The Character of Tooley Road Area
Throughout the consideration of these applications, residents have raised the issue of the
character of Tooley Road. Specifically many residents have stated that a multi-residential
development, at any density, is not compatible with the character of the other homes
along the road. Staff have reviewed this matter in some detail.
The homes along Tooley Road have been built over a period of time, mostly when Tooley
Road was a rural area. By necessity, to provide for septic sanitary sewer systems and
private wells, the lots are large and deep. The placement of the existing residences are
varied; some are setback a distance from the road while others, usually more recent, are
much closer. Many of the homes are from the 60's built as bungalows, with a mixture of
wood and brick veneer siding. Garages may be attached or separate or none at all.
More recent homes tend to be two-storey, with brick and/or stone veneer, and attached
two car garage.
Since 1976, these lands have been within the Courtice Urban Area. This area has been
identified for urbanization on full municipal services. In 1984, the R1 zone was applied to
the frontages of most properties in anticipation of the urbanization. This existing zone
allows for single detached dwellings 15 m wide lots or semi-detached dwellings on 18
metres wide lots, approximately 9 metres wide for each unit. Until services are available,
semi-detached lots are not viable.
A number of the properties on the west side of Tooley Road have severed the rear
portion of their lots for sale to developers. However, in this process, the retained lots vary
between 28 and 75 metres in depth, quite deep for urban lots. In part this is due to the
placement of the existing homes further back than minimum setback.
Perhaps the most consistent attribute is the mature vegetation along both sides of the
road. This reflects the age of the residences and the large setbacks from the road which
has allowed for well-vegetated front yards.
The last element is the road itself. The greater portion of Tooley Road within the Courtice
urban area has curb and gutter with the exception of the very north section. There are no
sidewalks despite its collector road status. Although it has been referred to as a great
place to walk and bike because of its roadside ambience, there will need to be
improvement in the coming years for walkability and pedestrian safety.
Based on the outcome of the design charrette and the analysis of the neighbourhood, the
following principles guided the amendments to the Neighbourhood Design Plan.
i) Protect the Natural Environment Features
The Farewell Creek valleylands, provincially significant wetland, area of high
acquifer vulnerability and wooded areas makeup the majority of the natural heritage
Municipality of Clarington
Report PSD-014-16 Page 6
features that should be protected. Opportunities to retain existing mature trees on
other lands should be pursued.
ii) Provide for Recreation Opportunities
The Farewell Creek valley and the significant forest cover in areas provide long term
opportunities for trails.
iii) Street Connectivity and Walkability
Creating a street connection to Centrefield Drive would provide greater permeability
within the Worden Neighbourhood for motorists, pedestrians and cyclists providing
alternative routes and dispersing traffic.
iv) Sensitive Infill Development
Infill development along Tooley Road, should be sensitive to the existing lots as
much as possible to retain some of the character of Tooley Road.
v) Variety of Housing for Various Needs
Recognizing that Tooley Road area is part of an urbanizing area, there will be
change. While this area is not a key intensification area, new development should
provide for a variety of housing, including larger lot single detached residential lots
which is often not found in a standard subdivision.
vi) Enhanced Landscaping
Outside of the natural heritage features, new development will necessitate the
removal of some existing trees and vegetation. This should be replaced with
enhanced landscaping on private properties and in the road allowance.
4. Proposed Amendments to the Worden East Neighbourhood
Design Plan
4.1 The proposed revised Worden East Neighbourhood Design Plan forms Attachment 3 to
this report. The following areas are proposed:
Environmental Study Area
Through existing data and analysis by the Central Lake Ontario Conservation Authority
based on Provincial policies and Regional Official Plan, the natural heritage system is
much larger than what is currently shown in the 2002 neighbourhood design plan and the
current Official Plan. The area has been identified as an Area of High Aquifer
Vulnerability. The large tree canopy indicates this area is significant to the overall system.
The Regional Official Plan identifies this area as Key Natural Heritage and Hydrologic
Features. These lands will require a study to determine the development limits, areas of
Municipality of Clarington
Report PSD-014-16 Page 7
protection, buffers, as well as possible mitigation and compensation measures. Areas
identified for development will be for low density residential development subject to the
recommendations of the environmental impact studies.
Extension of Poppyfield Drive
Staff recommend keeping the extension of Poppyfield Drive to Tooley Road. This will
provide for a connection from the Tooley Road area to the Centrefield Drive area and
an option for motorists, pedestrians and cyclists to move to points west to access the
neighbourhood park, S.T Worden Elementary School and the retails uses and services
on Courtice Main Street.
Termination of Cloverfield Street and Springfield Lane
As a result of H & H proposal and the deletion of the school site, Cloverfield Street will be
terminated at Centrefield Drive, with the existing road being incorporated as an entrance
to the Multi-unit Low Density Area.
Springfield Lane will be terminated at its current location in recognition of the natural
heritage feature.
Residential Development
i) A Multi-unit Low Density Residential area provides for one block with multiple
townhouses and semi-detached units with a system of internal private lanes and
amenity areas.
ii) Lands for Single Detached Residential are identified between the Poppyfield Drive
extension and the Multi-unit Low Density Residential area. These are
recommended for 15 metre wide lots. These lands are in close proximity to the
natural heritage features and will require an environmental impact study to
determine development limits. In addition, the street frontage of the H & H site is
recommended to have the same designation but with 17 metre wide lots.
iii) Residential Infill development may occur on either side of Tooley Road in the
Existing Residential Area. New lots may proceed by way of severance provided
that, where applicable, an Environmental Impact Study supports development.
iv) A Medium Density Residential area is proposed at the south-west corner of Tooley
Road and the future extension of Adelaide Avenue. This location is on the corner
of a Collector Road and Type B Arterial Road and an appropriate site for medium
density development, where transit will likely be available once Adelaide Avenue is
constructed. The site is in close proximity to the Environmental Study Area.
Stormwater Management Ponds
Future development application would determine the location of a stormwater
management facility needed mid-block. It could be on either side of Tooley Road.
Municipality of Clarington
Report PSD-014-16 Page 8
Parks and Trails
The 2002 Neighbourhood Design Plan shows a parkette beside the elementary school.
The park location was appropriate at the time given that it was adjacent to the school.
There may be opportunity to provide a small parkette and trails north of the extension of
Poppyfield Drive once the environmental studies are completed. The Farewell Creek
provides an excellent opportunity for trails, however will require the acquisition of land or
easements.
5. Application to Amend the Clarington Official Plan
5.1 H & H application proposes to amend the Official Plan to delete the separate elementary
school symbol. The Peterborough Victoria Northumberland and Clarington Catholic
District School Board no longer requires the site, and as such Staff are recommending
approval of the Official Plan Amendment 104 to the delete the school symbol as shown
on Attachment 2 to this report.
6. Amendment to Zoning By-law 84-63
6.1 The majority of the lands fronting onto Tooley Road are zoned "Urban Residential Type
one (R1)". The R1 zone permits single detached dwellings on lots with 15 metres of
frontage or semi-detached or linked units on lots of 18 metres of frontage (approximately
9 metres for each dwelling unit) provided it is serviced with municipal water and sanitary
sewer (see Figure 2).
Municipality of Clarington
Report PSD-014-16 Page 9
Figure 2: Lands showing zoning on the west and east side of Tooley Road
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Municipal water exists on Tooley Road. Sanitary sewers on Tooley Road is scheduled
for installation by the Region in 2016 from Nash Road to McLean Road. This will permit
further development of single detached dwellings and semi-linked dwellings on Tooley
Road.
Staff recommend that the Municipality initiate an amendment to the zoning by-law to
delete the semi-detached or linked units and increase the minimum lot frontage to 17
metres and increase setbacks to the road for the lots fronting onto Tooley Road only.
These amendments are intended to provide for lot widths and setbacks that better reflect
the existing character of the lots and homes on Tooley Road.
The lands zoned "Urban Residential Type One (R1)", proposed for Multi-Unit Medium
Density Residential in the Neighbourhood Design Plan is recommended to be zoned
"Agricultural (A)". The "A" zone is often used in urban areas prior to establishing
development limits or reviewing site specific applications.
Municipality of Clarington
Report PSD-014-16 Page 10
7. Conclusion
7.1 Over the past 60 years Tooley Road has evolved and for the past 40 years has been
within the Courtice urban area. With provincial policy directives for infill and
intensification, and imminent servicing there will be pressure to develop in this
neighbourhood. The proposed changes to the Neighbourhood Design Plan will assist in
guiding future development so that the character of Tooley Road can be maintained.
7.2 In consideration of all agency, staff and public comments, it is respectfully recommended:
i) that the application by H & H to amend the Clarington Official Plan to delete the
elementary school site be approved;
ii) that the Directors of Planning Services and Engineering Services approve the
revised to the Worden East Neighbourhood Design Plan; and
iii) that staff take the appropriate steps to amend the R1 zone along Tooley Road to
ensure the character of this area remains somewhat consistent.
Submitted b atm�'-� `—� � Xy Reviewed by.: '��K.
D J. Crome, MCIP, RPP Franklin Wu,
Director of Planning Services Chief Administrative Officer
Staff Contact: Cynthia Strike, Principal Planner, 905-623-3379 ext. 2410 or
cstrike@clarington.net
Attachments:
Attachment 1 - Worden East Neighbourhood Design Plan (2002)
Attachment 2 - Amendment No. 104 to the Clarington Official Plan
Attachment 3 - Amendment to the Worden East Neighbourhood Design Plan (2016)
Attachment 4 — Illustration of Proposed Dwellings along Tooley Road
List of interested parties may be obtained through the Planning Services Department
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Attachment 2 to
Municipality of Clarington Report PSD-014-16
Amendment Number 104
To The Municipality of Clarington Official Plan
Purpose: To remove the Separate Elementary School symbol from the
lands as shown on Map A2 of the Municipality of Clarington
Official Plan.
Basis: This amendment is based an application to amend the
Clarington Official Plan from H & H Properties to remove the
Separate Elementary School symbol as shown on Map 2. The
Peterborough Victoria Northumberland and Clarington Catholic
School Board no longer requires an elementary school in this
location.
Actual
Amendment: The Clarington Official Plan is hereby amended as follows-
1.
ollows:1. By amending Map A2 — Land Use Courtice Urban Area by
removing the Separate Elementary School symbol as
shown on the attached Exhibit "A".
Implementation: The provisions set forth in the Municipality of Clarington Official
Plan, regarding the implementation of the Plan, shall apply in
regard to this Amendment.
Interpretation: The provisions set forth in the Municipality of Clarington Official
Plan, regarding the interpretation of the Plan, shall apply in
regard to this Amendment.
Exhibit"A",Amendment No.104 To The Municipality Of Clarington Official
Plan,Map A2,Land Use,Courtice Urban Area
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OCT03ER 2014
Attachment 3 to
Municipality of Clarington Report PSD-014-16
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FUTURE ADELAIDE AVENUE -
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